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Official Information Act Request PDF free Download. Think more deeply and widely.

The Aurora Centre, 56 The Terrace, PO Box 1556, Wellington
– Telephone 04-916 3300 – Facsimile 04-918 0099
IN-CONFIDENCE
11 July 2024
Tēnā koe
Official Information Act Request
Thank you for your email of 7 May, requesting any documents related to
services for seniors. I have considered your request under the Official
Information Act 1982 (the Act). Please find my decision on your request set
out below.
Please note that we have interpreted your request to only include services
specifically targeted to seniors. Programmes targeted at all ages are excluded
from this request.
Additionally, we have interpreted the timeframes for the documents in scope
of your request to be from 27 November 2023 to 7 May 2024.
Please find the below Appendix containing a document table, detailing the
provided documents and the relevant withholding grounds.
Some information is withheld under section 9(2)(f)(iv) of the Act to maintain
the constitutional conventions for the time being which protect the
confidentiality of advice tendered by Ministers of the Crown and officials. The
release of this information is likely to prejudice the ability of government to
consider advice and the wider public interest of effective government would
not be served.
Other information is withheld under section 9(2)(g)(i) of the Act to protect the
effective conduct of public affairs through the free and frank expression of
opinions. I believe the greater public interest is in the ability of individuals to
express opinions in the course of their duty.
Other information is withheld under section 9(2)(a) of the Act, to protect the
privacy of natural persons. The need to protect the privacy of these individuals
outweighs the public interest in this information.
Page 2 of 5
IN-CONFIDENCE
The appendix to report- REP/24/4/339 is publicly available and can be found
at the following link: www.msd.govt.nz/about-msd-and-our-
work/publications-resources/information-releases/cabinet-
papers/2024/adjustment-to-the-residential-care-subsidy-as-part-of-the-
annual-general-adjustment-2024.html.
I will be publishing this decision letter, with your personal details removed, on
the Ministry’s website in due course.
If you wish to discuss this response with us, please feel free to contact
OIA_Requests@msd.govt.nz.
If you are not satisfied with my decision on your request, you have the right
to seek an investigation and review by the Ombudsman. Information about
how to make a complaint is available at www.ombudsman.parliament.nz or
0800 802 602.
Ngā mihi nui
pp.
Magnus O’Neill
General Manager
Ministerial and Executive Services
Page 3 of 5
IN-CONFIDENCE
Appendix
Document table:
Document
number Date Report
Number Report title Release? Withholding
grounds.
1 8-Dec-23 REP/23/12/943 MSD's Communities and
Partnerships work. Release in
full. N/A.
2 23-Feb-24 N/A Excerpt from SDEU -
Research reports from
the prevention of abuse
of older people work
programme.
Release in
full. N/A.
3 12-Mar-24 REP/24/3/182 MSD's violence
prevention work
programme
Release in
full. N/A.
4 12-Mar-24 REP/24/3/184 MSD's family violence
response work
programme
Release in
full. N/A.
5 19-Apr-24 REP/24/4/353 Findings and public
release of research
report - Insights from
the Elder Abuse
Prevention Fund
Release in
full. N/A.
6 1-May-24 REP/24/5/384 Approval of F24 and F25
advertising expenditure
for family violence
campaigns.
Release in
full. N/A.
7 8-Dec-23 REP/23/12/921 How the Ministry of
Social Development
Supports the Financial
Security of Older People
Release in
full. N/A.
8 21-Dec-23 REP/23/12/978 Supporting older people
in New Zealand Release in
part. Section
9(2)(f)(iv)
9 21-Dec-23 REP/23/12/979 Overview of the
SuperGold Card Scheme Release in
part Section
9(2)(f)(iv)
10 24-Mar-24 REP/24/3/268 Upgrading the SuperGold
Card Release in
part Section
9(2)(f)(iv)
11 27-Mar-24 REP/24/3/208 Supporting older people
who experience
compounding
disadvantage in New
Zealand
Release in
part Section
9(2)(f)(iv)
12 5-Apr-24 REP/24/4/292 Meeting between the
Minister for Social
Development and
Employment and the
Minister for Seniors to
Release in
part Section
9(2)(f)(iv)
Page 4 of 5
IN-CONFIDENCE
discuss priorities relating
to older people
13 24-Apr-24 REP/24/4/339 Draft Cabinet Paper:
Adjustment to the
Residential Care Subsidy
as part of the Annual
General Adjustment
2024 + Appendix
Release in
full Appendix is
publicly
available:
www.msd.govt.nz/
about-msd-and-
our-
work/publications-
resources/informat
ion-
releases/cabinet-
papers/2024/adjus
tment-to-the-
residential-care-
subsidy-as-part-of-
the-annual-
general-
adjustment-
2024.html
14 19-Jan-24 REP/24/1/022 Abuse of older people -
an overview and current
government response
Release in
full N/A.
15 19-Jan-24 REP/24/1/023 Portfolio Priorities:
Housing Release in
part Section
9(2)(f)(iv)
16 8-Dec-23 REP/23/12/916 Age friendly Aotearoa
New Zealand Programme Release in
part Section
9(2)(f)(iv)
17 8-Dec-23 REP/23/12/917 Government Priorities for
Older People and the
Better Later Life Strategy
Release in
part Section
9(2)(f)(iv)
18 15-Dec-23 REP/23/12/920 Housing and older people Release in
full N/A.
19 21-Dec-23 REP/23/12/988 Digital Inclusion for Older
People Release in
full N/A.
20 27-Nov-23 N/A Briefing to the Incoming
Minister Release in
full Publicly
available.
21 8-Dec-23 REP/23/12/918 Senior Status Report
Issue #1 Release in
part 9(2)(a)
22 15-Dec-23 REP/23/12/967 Senior Status Report
Issue #2 Release in
part 9(2)(a)
23 17-Jan-24 REP/24/1/005 Senior Status Report
Issue #3 Release in
part 9(2)(a)
9(2)(g)(i)
24 8-Feb-24 REP/24/2/086 Senior Status Report
Issue #4 Release in
part 9(2)(a)
25 22-Feb-24 REP/24/2/143 Senior Status Report
Issue #5 Release in
part 9(2)(a)
26 14-Mar-24 REP/24/3/190 Senior Status Report
Issue #6 Release in
part 9(2)(a)
9(2)(f)(iv)
27 27-Mar-24 REP/24/3/275 Senior Status Report
Issue #7 Release in
part 9(2)(a)
Page 5 of 5
IN-CONFIDENCE
28 10-Apr-24 REP/24/4/312 Senior Status Report
Issue #8 Release in
part 9(2)(a)
29 24-Apr-24 REP/24/4/357 Senior Status Report
Issue #9 Release in
part 9(2)(a)
30 8-May-24 REP/24/5/414 Senior Status Report
Issue #10 Release in
part 9(2)(a)
31 19-Feb-24 REP-24-2-146 Aide memoire Annual
General Adjustment
2024
Release in
full N/A.
32 21-Feb-24 REP/24/2/147 2024 Annual General
Adjustment Amendments
to Ministerial Directions
and Welfare Programmes
Release in
full N/A.
33 9-Feb-24 REP/24/2/109 2024 Annual General
Adjustment to Rates and
Thresholds for Social
Assistance
Release in
full N/A.
34 9-Feb-24 REP/24/2/109 APPENDIX 1 CPI 2024
v24.4 - 8 February 2024 Release in
full N/A.
35 28-Nov-23 REP/23/11/891 Indexing main benefits
to inflation + Appendices Release in
part 9(2)(f)(iv)
36 28-Nov-23 REP/23/11/891 APPENDIX 1 Summary of
AGA Process Release in
full N/A
37 28-Nov-23 REP/23/11/891 APPENDIX 2 Comparative
benefit rates Release in
full N/A
1
Appendix 1: Overview of the Communities MCA
1
Appendix 2: Evidence of effectiveness
for MSD’s community investment
1 This appendix provides an outline of information available to MSD relating to
the effectiveness of MSD’s community investment.
2 The following table briefly:
• summarises, where available, any recent evidence available on the
outcomes, impact, return on investment or value for money of MSD’s
community investment programmes
• notes work planned or under way to gain further evidence of outcomes,
impact, return on investment or value for money
• indicates performance of services against performance measures for
2022/23, where applicable
• provides some other programme-specific evidence (note this is not
exhaustive)
• includes some other relevant national or international evidence that
supports programme design (note this is not exhaustive).
3 The programmes included reflects the scope of this briefing. Only standalone
services are included. Examples of exclusions are funds such as the
Community Innovation Fund.
Limitations
4 This is not a comprehensive review of programme effectiveness or
performance. Specifically, we note the following limitations:
• The depth of information available to MSD on the effectiveness of its
community investment varies between programmes.
• The main focus of this appendix has been on identifying any evidence
available to MSD on the impact, return on investment or value of money
of programmes.
• There is no standard approach to assessing the effectiveness of MSD’s
community investment programmes, like there is for employment
effectiveness. There has been limited evaluation undertaken to assess
the performance programmes against a counterfactual. Such an
approach may also not be suited to programmes that seek to improve
community-wide, intergenerational outcomes. Therefore, the impact
information included here is generally based on evaluations using other
methods.
• Other ways to assess the effectiveness or performance of a programme
are to consider programmes in relation to the relevant literature. For the
purposes of this document, we have tried to note where we have clear
and recent documentation that the design of a programme was explicitly
informed by national or international evidence, or where clear national or
international evidence exists that is relevant to a programme. However,
this was not a comprehensive assessment and it is possible some
2
programmes are still to be included. Further, this provides only a limited
view of the extent to which programmes are supported by
national/international evidence.
• Contract monitoring and reporting data has not been included.
Possible further work
5 A thorough assessment of whether the evidence base supports a programme
would require investigating the extent to which elements of a programme
(such as the theory of change, design, or implementation features) conform to
evidence from the national or international research literature on what is
effective, and developing an approach for assessing the quality of the
evidence on each programme.
6 Further work to assess specific services in this way could be undertaken as
required. This may require the re-prioritisation of internal expertise or
investment. We could also consider looking at other sources of data, such as
contract monitoring data that includes outcomes information.
1
Name of service
Further evidence work planned or underway
2022/23 Performance Measure (where
applicable from Annual Report)
Other programme-specific
evidence (not exhaustive)
International impact evidence that
supports programme design (not
exhaustive)
Crisis
Refuge family
violence support
service
MSD and the National Collective of Independent Women’s
Refuges (NCIWR) recently signed a Partnership Agreement,
which contains a reporting suite. NCIWR measure client
outcomes utilising a client-focused outcomes measurement
tool called the ‘Empowerment Start’. This toll has several
outcomes areas to measure a woman’s journey of change
and the effectiveness of the Women’s Refuge service.
The number of people accessing Community Support
services will be no less than 84,100. In FY23 we met
this measure with 138,780.
The percentage of all contracted services that achieved
or exceeded the target for their primary contracted
measure will be no less than 75%. In FY23 we met this
measure with 75.8%.
The number of people accessing family and sexual
violence services will be no less than 30,500. In FY23
we met this measure with 56,627.
Family violence
support service
helplines and Help
Portal
The percentage of all contracted services that achieved
or exceeded the target for their primary contracted
measure will be no less than 75%. In FY23 we met this
measure with 75.8%.
An unpublished 2023 evaluation of
the In Your Hands website, which
surveyed the public, found that
responses to the website were
broadly positive (although
awareness was low), and that
there were some areas for
improvement.7
An unpublished 2022 evaluation of
the Revised Are You Ok website
also used a survey methodology
to gather public feedback. Are You
Ok had a very positive response
from the general public and
showed a strong preference for
the revised website over the
previous version.8
Sexual violence
crisis support
A four-year research and evaluation programme has been
developed to evaluate the impact of the uplift in funding,
through the Budge 2019 investment, in building the
capacity, capability and integration of the sexual violence
sector, and to increase understanding of how best to support
people affected by sexual violence.
The programme in its entirety is due to be completed in
mid-2024, including service specific evaluations of Crisis
Support services, Peer Support for Male Survivors of Sexual
Abuse services, Harmful Sexual Behaviours and Concerning
Sexual Ideation services, and the Court Support service. A
synthesis report will also be produced, which will include
findings from the service specific evaluations and an
evaluation of the ‘Safe to talk’ national helpline.
The number of people accessing Community Support
services will be no less than 84,100. In FY23 we met
this measure with 138,780.
The percentage of all contracted services that achieved
or exceeded the target for their primary contracted
measure will be no less than 75%. In FY23 we met this
measure with 75.8%.
The number of people accessing family and sexual
violence services will be no less than 30,500. In FY23
we met this measure with 56,627.
The percentage of victims of violence who reported
they received the support they needed, when they
needed it will be no less than 80%. In FY23 we met
this measure with 91.4%.
Services for male
survivors of sexual
violence
Sexual Violence
helpline
Child advocates
Work to further determine effectiveness is at its early stages
of development.
7 Kantar Public, 2023, Evaluation of the In Your hands website (unpublished).
8 Kantar Public, 2022, Evaluation of the Family Violence Help Portal (unpublished).
2
Name of service
Further evidence work planned or underway
2022/23 Performance Measure (where
applicable from Annual Report)
Other programme-specific
evidence (not exhaustive)
International impact evidence that
supports programme design (not
exhaustive)
Elder abuse services
Work is underway to trial new ways to collect information
from providers and measure the outcomes of services. This
is expected to provide more information about how well
these services are working for older people.
The number of people accessing Community Support
services will be no less than 84,100. In FY23 we met
this measure with 138,780.
The percentage of all contracted services that achieved
or exceeded the target for their primary contracted
measure will be no less than 75%. In FY23 we met this
measure with 75.8%.
The number of people accessing family and sexual
violence services will be no less than 30,500. In FY23
we met this measure with 56,627.
The percentage of clients who indicate they have
greater control over their lives after receiving the Elder
Abuse Response service will be no less than 80%. In
FY23 we did not meet this measure with 77.4%.
Elder Abuse helpline
The percentage of all contracted services that achieved
or exceeded the target for their primary contracted
measure will be no less than 75%. In FY23 we met this
measure with 75.8%.
FVSV other services
Family violence
perpetrator support
services
The number of people accessing Community Support
services will be no less than 84,100. In FY23 we met
this measure with 138,780.
The percentage of all contracted services that achieved
or exceeded the target for their primary contracted
measure will be no less than 75%. In FY23 we met this
measure with 75.8%.
The number of people accessing family and sexual
violence services will be no less than 30,500. In FY23
we met this measure with 56,627.
9 Point & Associates and Awa & associates, 2023, Uncover, discover, recover: the peer-led journey to redemption for men who have used violence. Evaluation final report, unpublished.
3
Name of service
Further evidence work planned or underway
2022/23 Performance Measure (where
applicable from Annual Report)
Other programme-specific
evidence (not exhaustive)
International impact evidence that
supports programme design (not
exhaustive)
Family Violence
Perpetrator Support
Services Housing
Family Violence
Whānau Support
Services
The percentage of all contracted services that achieved
or exceeded the target for their primary contracted
measure will be no less than 75%. In FY23 we met this
measure with 75.8%.
The number of people accessing family and sexual
violence services will be no less than 30,500. In FY23
we met this measure with 56,627.
The percentage of victims of family violence who
reported they are satisfied or very satisfied with family
violence response services will be no less than 80%. In
FY23 we met this measure with 96.6%.
A kaupapa Māori evaluation on the
procurement and co-design of the
Whānau resilience programme
(2021) showed that it represented
a considerable shift in how MSD
procures and designs services,
with benefits to how MSD works
with the sector and for the sector
itself.
Evaluation report on the
procurement and co-design of the
Whānau Resilience programme -
Ministry of Social Development
(msd.govt.nz)
Sexual Violence
Perpetrator support
services – Harmful
Sexual Behaviour
A four-year research and evaluation programme has been
developed to evaluate the impact of the uplift in funding,
through the Budget 2019 investment, in building the
capacity, capability and integration of the sexual violence
sector, and to increase understanding of how best to support
people affected by sexual violence.
The programme in its entirety is due to be completed in
mid-2024, including service specific evaluations of Crisis
Support services, Peer Support for Male Survivors of Sexual
Abuse services, Harmful Sexual Behaviours and Concerning
Sexual Ideation services, and the Court Support service. A
synthesis report will also be produced, which will include
findings from the service specific evaluations and an
evaluation of the ‘Safe to talk’ national helpline.
Research on the Stand Strong, Walk Tall initiative is
currently underway.
The number of people accessing Community Support
services will be no less than 84,100. In FY23 we met
this measure with 138,780.
The percentage of all contracted services that achieved
or exceeded the target for their primary contracted
measure will be no less than 75%. In FY23 we met this
measure with 75.8%.
The number of people accessing family and sexual
violence services will be no less than 30,500. In FY23
we met this measure with 56,627.
The percentage of non-mandated harmful sexual
behaviour clients who show a decrease in risk factors
will be no less than 80%. In FY23 we met this measure
with 97%.
Sexual violence
perpetrator support
services –
concerning sexual
ideation
Sexual violence
victim support court
support service
Sexual Violence
victim support
Kaupapa Māori
Service
An evaluation of kaupapa Māori specialist sexual violence
services to determine effectiveness is in the early stages of
development.
Sexual Violence
victim support long
term recovery
An evaluation of the Continued Care pilot is currently in the
early stages of development. The evaluation is likely to be
completed by December 2024.
4
Name of service
Further evidence work planned or underway
2022/23 Performance Measure (where
applicable from Annual Report)
Other programme-specific
evidence (not exhaustive)
International impact evidence that
supports programme design (not
exhaustive)
Family and Sexual
Violence service
accessibility for
disabled people
We are engaging with MSD-funded
FVSV providers to understand the
current state of their physical and
digital accessibility. We are also
developing an accessibility self-
assessment tool for providers
which will inform our current state
analysis.
Sector capability and support
Building Financial
Capability Sector
Support
Family Violence
Sector Support
The percentage of all contracted services that achieved
or exceeded the target for their primary contracted
measure will be no less than 75%. In FY23 we met this
measure with 75.8%.
The percentage of member agencies who report that
they are better able to deliver their services as a result
of the support offered by the umbrella organisation will
be no less than 90%. In FY23 we met this measure
with 97.7%.
Family Violence
Integrated
Community
response
The percentage of all contracted services that achieved
or exceeded the target for their primary contracted
measure will be no less than 75%. In FY23 we met this
measure with 75.8%.
10 Unpublished, 2022.
11 Unpublished, 2022.
5
Name of service
Further evidence work planned or underway
2022/23 Performance Measure (where
applicable from Annual Report)
Other programme-specific
evidence (not exhaustive)
International impact evidence that
supports programme design (not
exhaustive)
governance
participation
Prevention, education and engagement
Sexual Violence
Prevention Support
The number of people accessing Community Support
services will be no less than 84,100. In FY23 we met
this measure with 138,780.
The percentage of all contracted services that achieved
or exceeded the target for their primary contracted
measure will be no less than 75%. In FY23 we met this
measure with 75.8%.
The number of people accessing family and sexual
violence services will be no less than 30,500. In FY23
we met this measure with 56,627.
Pasefika Proud
Family Violence
Prevention and
Education Services
Real-time evaluation of current funded prevention initiatives
is underway.
‘Celebrating Pasefika Proud – 10 Years On’ is an outcomes-
focused evaluation starting in January 2024. The evaluation
should inform the Pasefika Proud outcomes framework and
the ongoing evaluation framework and work programme.
Deliverables of contracted prevention programmes and
initiatives have achieved or exceeded the target by
95%.
The percentage of all contracted services that achieved
or exceeded the target for their primary contracted
measure will be no less than 75%. In FY23 we met this
measure with 75.8%.
Youth Campaign
(Love Better)
The Love Better youth campaign has an evaluation
framework that is based on its theory of change and
includes data and metrics from social media alongside more
in-depth qualitative and quantitative data. It will be used to
measure both Love Better (as a campaign platform) and
‘Own the Feels’ (the first phase).
Quantitative data will be measured through a Youth Pulse
survey, the results of which will be measured against a
benchmarking survey (1,000 participants) conducted before
the campaign went live. Quantitative evaluation results
measuring shifts in behaviours and attitudes will be available
in early 2024.
Analytics to date have been
positive with high engagement
rates. The data also indicates that
the Love Better content has been
reaching the target audience (16–
24-year-olds).
Early qualitative findings from the
evaluation framework show the
campaign has been well received
and is well liked and appreciated
by young people. Campaign
content is prompting reflection
around hurtful situations and
harmful behaviours, with no
discernible differences in relation
to awareness and reception across
gender, ethnicity, or orientation.
This initiative was informed by findings
from:
• a literature review on what was
already known about young people
and their intimate relationship,
including what they know about
the spectrum of harmful and
violent behaviours
• sense-making and qualitative
research with young people to
better understand their
relationship experiences,
expectations, behaviours,
boundaries, as well as what they
would really like from
relationships.
Campaign for Action
on Family Violence
(including It’s Not
Okay) Prevention
and Education
Services
E Tū Whānau
Refugee and Migrant
Partnerships with NFACT and ALAC (Buen Vivir) are currently
under (formative) evaluation, as part of Te Aorerekura B22
effectiveness evaluation.
The percentage of all contracted services that achieved
or exceeded the target for their primary contracted
An internal research report on
Muslim community engagement
found the E Tū Whānau approach
6
Name of service
Further evidence work planned or underway
2022/23 Performance Measure (where
applicable from Annual Report)
Other programme-specific
evidence (not exhaustive)
International impact evidence that
supports programme design (not
exhaustive)
measure will be no less than 75%. In FY23 we met this
measure with 75.8%.
to be uniquely successful in
comparison with other approaches
in Anglo-American contexts.
Ethnic communities
violence prevention
A theory of change and a monitoring, evaluation, research,
and learning (MERL) framework is under development to
build on the evidence base for violence and prevention and
understand/measure the emerging impacts of:
• community-led, government-enabled violence
prevention trials with South Asian ethnic communities in
Auckland
• community-led violence prevention initiatives for ethnic
communities funded by the innovation grant fund.
Litmus evaluated the initial
community engagement phase of
the work programme and 90% of
participants found the process
useful or very useful and 86% of
participants felt confident
discussing the needs of ethnic
communities.12
This initiative, which focuses on
building the evidence-base for violence
prevention policy, was informed by
findings from:
• a review of international literature
on what works for community
engagement and primary
prevention of violence in ethnic
communities
• a comprehensive map of existing
New Zealand data and evidence on
violence and prevention in ethnic
communities.
E Tū Whānau Family
Violence Prevention
and Education
Services
A mixed methods theory-based outcome evaluation of E Tū
Whānau is underway to provide evidence of impact as part
of the Budget 2022 investment in primary prevention
initiatives.
E Tū Whānau is also in the advanced stages of Mōhiotanga –
the digital transformation of funding and contracting process
to improve partner experience, create efficiencies, and
generate actionable insights on inputs, outputs and
outcomes from administrative data.
Tikanga Rangahau (E Tū Whānau research instrument) is
nearing completion, which is a toolkit for capturing data on
the most significant changes brought about in communities.
The percentage of all the contracted services that
achieved or exceeded the target for their primary
contracted measure will be no less than 75%. In FY23
we met this measure with 75.8%.
The E Tū Whānau Framework for
Change (2018) is based on national
and international evidence, including
official survey and administrative data
on prevalence:
• A literature review on violence in
whānau14 found that kaupapa
Māori models are critical to making
change.
• The strengths-based, whānau-
centred framework is based on
Kaupapa Māori wellbeing
framework: The basis for whānau
violence prevention and
intervention15 and Transforming
Whānau Violence16, and supported
by Te Puawaitanga o Ngā
Whānau17 – a synthesis of kaupapa
Māori research on whānau
wellbeing.
• The framework is based on a
growing international evidence
base about what works in violence
prevention.
• Community mobilisation has been
evaluated as effective for
preventing violence internationally.
This is supported by a global
evidence review.18
12 Unpublished, 2023.
13 Unpublished, 2020.
14 Pihama, 2008, Literature Review for Family Violence: Mäori Research Agenda: Te Puni Kōkiri.
15 Dobbs, T. & Eruera, M. (2014). Kaupapa Māori wellbeing framework: The basis for whānau violence prevention and intervention. Auckland, New Zealand: New Zealand Family Violence Clearinghouse, University of Auckland.
16 Kruger et al, 2014, Transforming Whānau Violence – a conceptual framework. An updated version of the report from the former Second Māori Taskforce on Whānau Violence.
17 Kingi et al, 2014, Te Puawaitanga o ngā whānau: six markers of flourishing whānau: a discussion document. Office of Assistant Vice Chancellor, Māori and Pasifika, Massey University.
18 Kerr-Wilson, A.; Gibbs, A.; McAslan Fraser E.; Ramsoomar, L.; Parke, A.; Khuwaja, HMA.; and Jewkes, R. (2020). A rigorous global evidence review of interventions to prevent violence against women and girls, What Works to Prevent Violence Against Women and Girls
Global Programme, Pretoria, South Africa.
7
Name of service
Further evidence work planned or underway
2022/23 Performance Measure (where
applicable from Annual Report)
Other programme-specific
evidence (not exhaustive)
International impact evidence that
supports programme design (not
exhaustive)
Community support and advice
Building Financial
Capability Core
A client-led outcomes tool has been developed to help
assess whether the service is making a difference in people’s
lives.
bfc-client-led-outcomes-background-and-technical-guide-
june-2021.pdf (msd.govt.nz)
The percentage of all contracted services that achieved
or exceeded the target for their primary contracted
measure will be no less than 75%. In FY23 we met this
measure with 75.8%.
The percentage of clients who report progress towards
achieving their financial capability goals will be no less
than 80%. In FY23 we met this measure with 94.4%.
Building Financial
Capability Plus
An internal review of BFC Plus is underway, and is intended
to include interviews with 12-20 BFC Plus clients in total to
ensure an adequate and varied sample.
The number of people accessing Community Support
services will be no less than 84,100. In FY23 we met
this measure with 138,780.
Building Financial
Capability
Community Finance
The percentage of all contracted services that achieved
or exceeded the target for their primary contracted
measure will be no less than 75%. In FY23 we met this
measure with 75.8%.
The percentage of loans approved during the reporting
period will be no less than 25%. In FY23 we met this
measure with 65%.
19 Unpublished, 2022.
20 Unpublished, 2018.
21 Unpublished, 2022.
22 Unpublished, 2020.
8
Name of service
Further evidence work planned or underway
2022/23 Performance Measure (where
applicable from Annual Report)
Other programme-specific
evidence (not exhaustive)
International impact evidence that
supports programme design (not
exhaustive)
Building Financial
Capability Debt
Solution Services
Food Secure
Communities
An outcomes-focused evaluation of the Care in the
Community welfare response is underway and due to be
completed in early 2024. The evaluation will review the
implementation, outcomes achieved, and lessons learned
during the welfare response. This will include lessons for
MSD’s broader service and partnership plans for future work
with communities. The role of food providers and
Community Connectors in supporting households will be
specifically examined.
Recent updates to Community Connector reporting will
enable the capture of information on outcomes of
households who receive support (from the perspective of
Connectors).
The performance measure for the Food Secure
Communities programmes is: The number of providers
supported to participate in building food secure
communities will be no less than 85.
The number of providers invested in in F22-23 was
401 and the number for Q1 of FY23-24 was 226.
A Social Return on Investment (SROI)
study found that the food rescue sector
has a SROI of 4.50:1 i.e. for every
dollar invested, there is a social impact
worth $4.50.
22.08.22-AFRA-SROI-Report-Final.pdf
(socialvalueuk.org)
International research, including advice
from the United Nations Food and
Agriculture Organisation, support
community food rescue and resilience
initiatives to help address food
insecurity. Most OECD counties have
invested in community food distribution
infrastructure with some countries
legislating limits to food waste.
Research identified a well-established
community food sector as a key
dependency for the success of these
programmes.
Community
Connection Service
Measure to be set for FY24.
23 Unpublished, 2020.
9
Name of service
Further evidence work planned or underway
2022/23 Performance Measure (where
applicable from Annual Report)
Other programme-specific
evidence (not exhaustive)
International impact evidence that
supports programme design (not
exhaustive)
225,732 households have been supported by
Community Connectors since 3 December 2021.
8,643 of these households were primarily affected by
severe weather events.
Heartlands
Information, Advice
and Advocacy
Services
An Outcomes and Measurement Framework for the service is
currently under development, aimed at helping improve
reporting on the outcomes of Heartlands, including more
robust mechanisms to collect and analyse data and improve
reporting measures.
The percentage of all contracted services that achieved
or exceeded the target for their primary contracted
measure will be no less than 75%. In FY23 we met this
measure with 75.8%.
Iwi partnerships
Te Hiku
Measures have not been set for this funding.
Tūhoe
In April 2022, the Authorising Environment Committee (DCE
group in He Tapuae) agreed to evaluate the contribution of
He Tapuae towards the Tūhoe Village concept. This work has
not yet begun.
Measures have not been set for this funding.
24 Unpublished.
Social Development and Employment Update – Week ending 23 February 2024
IN-CONFIDENCE
The Aurora Centre, 56 The Terrace, PO Box 1556, Wellington – Telephone 04-916 3300 – Facsimile 04-918 0099
IN-CONFIDENCE
Report
Date:
12 March 2024
Security Level:
IN CONFIDENCE
To:
Hon Louise Upston, Minister for Social Development and
Employment
File reference:
REP/24/3/182
MSD’s violence prevention work programme
Purpose of the report
1 This report provides an overview of the Ministry of Social Development
(MSD)’s family violence prevention work programme, outlining key
initiatives and opportunities.
Executive summary
2 MSD’s family violence prevention work programme consists of whole-of-
population and community-led initiatives that work together to prevent and
address violence.
3 There are three well-established prevention initiatives:
3.1 The Campaign for Action on Family Violence, a national social change
initiative currently focused on supporting behaviour change in men
using violence.
3.2 E Tū Whānau, a Crown/Māori partnership that focuses on building
protective factors that prevent family violence, while also addressing
local issues and needs in a practical and context specific way.
3.3 Pasefika Proud, which focuses on community-led solutions that harness
Pacific cultural values and frameworks to encourage violence-free,
respectful relationships that support Pacific peoples to thrive.
4 These initiatives are backed by frameworks which outline the strategies each
initiative is utilising, and the outcomes they are working towards, to achieve
positive change.
MSD’s violence prevention work programme 2
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5 Budget 2022 investment strengthened and expanded these initiatives and
supported the development and implementation of the youth campaign
(Love Better), the Prevention of Abuse of Older People, and the ethnic
communities violence prevention work programme.
6 Budget 2022 funding is time-limited for three years. We are using this
investment to understand more about effective prevention responses
(including evidence of impact), which can inform future investment
decisions.
Recommended actions
It is recommended that you:
1 note the contents of this report
2 agree to forward this briefing to Hon Karen Chhour, Minister for the
Prevention of Family and Sexual Violence.
AGREE / DISAGREE
12 March 2024
Mārama Edwards
Deputy Chief Executive, Māori
Communities and Partnerships
Date
Hon Louise Upston
Minister for Social Development and
Employment
Date
MSD’s violence prevention work programme 3
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Overview
7 The total social, economic, and fiscal costs of intimate partner violence and
child abuse to New Zealand are estimated to be between $4.1 billion and $7
billion every year (Snively & Kahui, 2014).
8 In 2015, it was estimated that the direct fiscal cost of family violence and
sexual violence to the government was $1.4 billion per annum; 86% of
these costs were demand driven responses to the impacts of family violence
and sexual violence, for example healthcare and prisons (Ministerial Group
on Family Violence and Sexual Violence, 2015).
9 Rebalancing efforts and investment towards prevention will reduce costs and
pressures on other parts of the family and sexual violence system that
respond to violent incidences (including health care, crisis services, policing,
courts, and corrections costs).
MSD’s family violence prevention approach
10 MSD’s family violence prevention approach is innovative and grounded in
international research and local evidence about what works.
11 Our approach focuses on primary prevention and early intervention. It
includes whole-of-population and community-led responses, both of which
are required to bring about sustainable behaviour change.
12 MSD’s prevention initiatives include:
12.1 the Campaign for Action on Family Violence (the Campaign)
12.2 the youth campaign, Love Better
12.3 the Prevention of Abuse of Older People
12.4 E Tū Whānau
12.5 Pasefika Proud
12.6 Ethnic communities violence prevention.
13 Collectively, these initiatives use a range of prevention activities, including
developing and implementing social marketing campaigns, supporting
community-led responses, and creating tools and resources. They are also
focused on growing a robust evidence base.
14 Our prevention initiatives work to reduce risk and increase protective
factors, support community responses, and shift community and societal
norms to prevent violence from occurring, including the intergenerational
transmission of violence.
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15 All six of MSD’s family violence prevention initiatives support the
implementation of Te Aorerekura – the National Strategy to Eliminate Family
Violence and Sexual Violence and deliver on Actions 21 and 23 in the
current Action Plan 2021-2023.
16 As well-established prevention initiatives, the Campaign for Action on Family
Violence, E Tū Whānau, and Pasefika Proud have frameworks which outline
the strategies each initiative is utilising, and the outcomes they are working
towards, to achieve positive change. While they were set to expire in
2023/24, we are extending them until 2026 as the impacts of the COVID-19
pandemic delayed their full implementation. The direction of future
frameworks will be informed by Te Aorerekura and the new Action Plan, as
well as our research and evaluation work programmes.
Investment in violence prevention initiatives
17 Budget 2019 invested $30.75 million over four years (and outyears) in the
Campaign, E Tū Whānau, and Pasefika Proud, acknowledging the need to
expand all three prevention initiatives.
18 Budget 2022 invested $37.625 million over three years to strengthen and
expand the Campaign, E Tū Whānau, and Pasefika Proud, and to support the
development of new prevention approaches for young people, older people,
and ethnic communities. This investment was part of a whole-of-
government Joint Venture package of $114.52 million over four years to
prevent and respond to family violence and sexual violence.
19 The Budget 2022 prevention package is focused on testing, learning,
strengthening, and further evaluating what works well and makes a positive
difference for families and communities.
20 We are building our evidence base to understand and demonstrate the
impact of effective prevention approaches in New Zealand. This includes
developing tools to measure impact and outcomes to inform future
investment in primary prevention.
21 MSD will be reporting back on the Budget 2022 prevention package to
Ministers in September 2024.
Whole-of-population initiatives
The Campaign for Action on Family Violence
22 The Campaign was launched in 2007 and aims to create the conditions that
support positive behaviour change to reduce family violence in New Zealand.
23 The Campaign’s Framework for Change outlines the current focus of the
campaign, which is to drive behaviour change in men using violence and
support community-led initiatives that help men to remain violence free.
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24 Men are more likely to use violence than women,1 and women are far more
likely than men to experience significant harm from intimate partner
violence and sexual violence.2 A significant number of men who use violence
were victimised as children and need support to heal from their trauma
(Family Violence Death Review Committee, 2020).
25 The Campaign’s current focus tells men and communities that change is
possible. Change is Possible aims to support healing and behaviour change
in men using, or at risk of using, violence.
26 Change is Possible has two key strategic responses:
26.1 Changemakers – investing in building the capability of local champions
and community leaders, and growing the ability of communities to
promote safe relationships and normalise help-seeking, and
26.2 Change Journeys – investing in campaigns to encourage men using
violence to seek help by driving them to online platforms and stopping
violence services, and supporting peer-led community initiatives that
help men who have completed programmes to stay violence free.
27 Change is Possible was launched in May 2023. It includes:
27.1 The Change is Possible website3, which provides changemakers with
tools and resources to positively influence their peers and their
communities, and to promote help-seeking and behaviour change.
27.2 A Changemaker Fund, which provides small grants to community-
based projects that aim to create the conditions that make it more
likely that men will seek help for their trauma and their use of
violence, and more likely that men will stay violence free. Most men
struggle to stay violence free because of isolation, a lack of
community support, or harmful social and gender norms.
28 The Changemaker Fund’s first round funded a total of 19 projects from
locations across New Zealand. Projects include supporting a group of men
through the first 1000 days of their baby’s life; and a community-based
healing initiative supporting men in prison to reintegrate into society. The
1 For example, there were 165,039 family violence investigations recorded by NZ Police in 2020 (NZ Police,
2021); of the 13,690 people that were charged with at least one family violence offence, 88% were men and
40% were aged under 30 years (Ministry of Justice, 2020).
2 Women, particularly wāhine Māori, disabled women, and transgender women, experience higher levels of
sexual violence and intimate partner violence (including repeat victimisation) than other genders (Family
Violence Death Review Committee, 2016 and 2020; World Health Organisation, 2004).
3 www.changeispossible.org.nz
MSD’s violence prevention work programme 6
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next funding round will be undertaken by the end of this financial year
(F2024).
29 A social media campaign to target change-ready men was launched in July
2023, directing them to the In Your Hands website.4
30 Planning has begun for a national help-seeking mass media campaign,
including commissioning initial market research and engaging with the
family violence sector. Once our planning is complete, we can provide you
with advice on the proposed structure and approach of this campaign. You
may also be interested in launching the campaign.
The youth campaign, Love Better
31 The youth campaign, Love Better, is a national, whole-of-population primary
prevention campaign for young people (16-24-years-old) aiming to foster
safe, positive, and equal relationships.
32 It focuses on addressing the universal factors that impact all young people
while building their skills and knowledge so that they can experience a safe,
healthy adolescence and a mature, satisfying adulthood.
33 MSD utilised a small amount of funding allocated to the Campaign for Action
on Family Violence from Budget 2019 for foundational work to support the
development of a primary prevention campaign, focused on preventing
violence in young people’s relationships.
34 We commissioned formative research to understand the needs of young
people the campaign would respond to, and how best to address these
needs. This work included commissioning a literature review, sense-making
and qualitative research with young people.
35 Based on this work, additional funding was granted in Budget 2022 to
develop and implement the youth campaign over a three-year period.
36 Love Better’s five-year strategy for change has been informed by both the
literature review and the sense-making and qualitative research. It has
helped to guide the development of the creative content.
37 Love Better was launched in March 2023. The campaign has been designed
to be multi-phased and uses youth-skewed media outlets and social media
to engage with young people where they are, in ways that work for them.
Out of Home advertising (e.g., posters and other collateral in bus stops,
bars, and universities) is also being used to intercept and nudge the target
audience when they are out and about.
44 www.inyourhands.org.nz
MSD’s violence prevention work programme 7
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38 Phase one of Love Better is ‘Own the Feels’. It is focused on break ups with
the aim of reducing the harm that occurs because of hurt, including harm to
self, as well as harm to others. Evidence highlights that break ups are a key
risk predictor for self-harm (including suicide) and relationship violence.5
39 As of 30 November 2023, the campaign as recorded total engagement
across all social media accounts - TikTok and Meta (Instagram and
Facebook) as:
39.1 Over 13 million engagements (likes, shares, and comments).6
39.2 Over 51 million impressions (the number of times content was
viewed, including multiple views from individual users).
40 Additionally, Vice articles were viewed over 320,000 times, and the Shit You
Should Care About podcasts were listened to over 101,000 times.
41 We have now reached over 95% of the available 16–24-year-old audience
on TikTok and Meta with engagement rates being higher than average. The
TikTok engagement rate is 35% (benchmark across similar campaigns is
14%) while Meta engagement is 11% (benchmark for this is 4%). The Vice
content for the campaign has surpassed the overall benchmarks for Vice
organic and native article page views.
42 Youthline was contracted to provide dedicated Love Better support through
its text and email helpline service. As part of this service, Youthline also
provides a pathway to more intense or specialist help if required.
43 Love Better has an outcomes and evaluation framework based on its theory
of change. Early qualitative findings show the campaign has been well
received and is well liked and appreciated by young people. Campaign
content is prompting reflection around hurtful situations and harmful
behaviours, with no discernible differences in relation to awareness and
reception across gender, ethnicity, or orientation.
44 In a recent report on Love Better, we indicated that high-level quantitative
results would be available later in the new year [REP/24/1/004 refers].
5 In New Zealand 67 percent of female primary victims were killed, or their new/ex-male partners were killed,
by male predominant aggressors in the time leading up to or following separation (Family Violence Death
Review Committee, 2016). Break ups are a leading predictor for self-harm and suicide, particularly for young
men (e.g., Baker et al., 2015; Love et al., 2018). MSD’s research has indicated that 68% of respondents
reported being harmed at the time of, or shortly after, a breakup.
6 Various platforms and partnerships all measure engagement differently:
• TikTok Engagements = Likes + Comments + Shares + Follows + Clicks + Profile Views + Followers
Gained + 2 Second Views.
• Meta Engagements = Comments + Reactions + Shares + Saves + Page Likes + Saves + 3 Second
Plays.
MSD’s violence prevention work programme 8
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45 These high-level results are now in, and they align with earlier qualitative
findings and the monthly reports from our media partner. The quantitative
survey is benchmarked against the same survey undertaken in 2022, before
the campaign launched involving 1,000 young people.
46 Early results indicate that the campaign is contributing to help seeking and
attitudes towards break ups.7 In particular, more young people indicated
they would seek help (75% up from 60%) while those who wouldn’t seek
help has decreased (25% down from 40%). Attitudes towards break ups are
also changing with young people reporting the following shifts from 2022:
46.1 Young people who have seen the campaign are increasingly seeing
break ups as an opportunity to learn or change 68% up from 52%.
46.2 In 2022 65% of young people thought that a breakup equals failure
this has dropped to 52%.
46.3 Compared with 2022, more young people recognise that revenge-
seeking and the temptation to do hurtful things in a breakup should
not be accepted or normalised up from 77% to 85%.
47 Nine in ten young people have also experienced at least one harmful
behaviour during their last breakup. This has increased since 2022 driven by
an increase in recognition of mental health impacts, harmful drinking, and
the impact of online abuse.
48 Phase two of the campaign is under development. This new phase will have
a focus on controlling behaviours, including coercive control and emotional
abuse. This is based on the evaluation of phase 1 so far, the foundational
audience research and aligns with other reports that indicate a shift from
physical abuse to coercive control. Testing of the concept with young people
will conclude by 25 March and we will then be able to provide you with a
further update on phase two development.
49 Currently, most of the campaigns written material is held on the Love Better
section of the Vice website and our contract with Vice ends 30 June 2024. A
new website that will support the broader Love Better campaign is under
development. This means we will be able to re-use all the phase 1 content
alive for those who need it as we move into a new phase of the campaign.
The look and feel of the website has now been designed. We can provide
you with further information about this (e.g., screenshots of the design), or
take your office through a demonstration of the website if preferred.
7 Based on the first six months of campaign activity.
MSD’s violence prevention work programme 9
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50 Post-launch, the campaign was positively reported in media from 16
different countries. Since that time, we have formed several international
relationships with others working in prevention of relationship violence that
have a focus on young people.
50.1 France has implemented their own local “Love Better” campaign, with
positive early results, and they are now looking to implement
nationally.
50.2 We have recently been asked to share our campaign strategic
development and results with Verian (formerly Kantar) Singapore, in
order to showcase best practice in engaging with young people for
social change to Singaporean government officials.
51 There is an opportunity for you to launch phase two of Love Better and the
website in mid-2024, alongside the final evaluation results of phase one.
Prevention of Abuse of Older People
52 The Prevention of Abuse of Older People (AOP) work programme focuses on
building the foundations needed to better understand and prevent abuse of
older people (also known as elder abuse) in New Zealand. It has been
informed by the limited research that does exist, engagement across
government and with key sector stakeholders, and with similar work
programmes and approaches from overseas.
53 There is a lack of information about the abuse of older people, both
internationally and in New Zealand. This includes the risk and protective
factors specific to this cohort, as well as effective primary prevention
approaches and early intervention responses (Goldstein & Glass, 2020;
Marshall et al., 2020). It has been estimated that a minimum of 1 in 10 New
Zealanders will experience abuse of older people in their lifetime
(Waldegrave, 2015); however, we do not have accurate data about the
actual prevalence of abuse of older people in New Zealand.
54 The Prevention of AOP work programme prioritises investment in research to
build a foundational and robust evidence base around the prevention of
abuse of older people, as there is a lack of information about the abuse of
older people both internationally and in New Zealand. As the evidence base
grows, we will use what we learn to provide targeted investment into
prevention initiatives, as well as for informing future policy decisions for
older people.
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55 The work programme has four focus areas:
55.1 Reviewing what is known and is already happening to prevent abuse
of older people.
55.2 Understanding abuse of older people in New Zealand: prevalence,
impacts, and drivers.
55.3 Investing in opportunities to grow the prevention system around
abuse of older people.
55.4 Testing what does and doesn’t work in initiatives aiming to prevent
abuse of older people.
56 Initial work focused on reviewing existing information and initiatives to
prevent the abuse of older people. Key projects included:
56.1 a review of data sources for abuse of older people
56.2 a review of tools and practices of screening and assessment for abuse
of older people
56.3 gathering insights from initiatives funded by the Office for Seniors’
Elder Abuse Prevention Fund (EAPF).
57 The final report on initiatives funded by the EAPF by Dovetail Consulting has
been delivered. We are currently preparing a report to inform you of the
findings of this work ahead of publication by the Office for Seniors.
58 The current phase of the work programme focuses on delivering two
significant research projects:
58.1 A national prevalence study, which is the most significant deliverable
being undertaken by this work programme. Auckland University of
Technology has been commissioned to undertake the design and
implementation of the study, with the initial scoping about to
commence. The study is planned to be completed by mid-2025.
58.2 Qualitative research to better understand different cultural
perspectives and experiences of abuse of older people. This will be the
first research of its kind conducted in New Zealand and is expected to
be completed by late-2024.
59 The findings from these studies will be significant for informing the future
direction of the work programme.
60 Work has also begun to scope out options for possible campaigns – initially
focusing on promoting help-seeking for older people experiencing abuse.
The campaign is expected to be trialled in one region to understand the
range of helping services that might be promoted and to determine capacity
of the sector to respond. We can provide you with advice on the proposed
approach and options for this campaign.
MSD’s violence prevention work programme 11
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Community-led initiatives
E Tū Whānau
61 Established in 2008, E Tū Whānau continues to operate as a joint
Crown/Māori initiative focusing on building the protective factors to prevent
family violence, while also addressing local issues and needs in a practical
and context specific way.
62 Whānau and communities shape and lead the work based on this identified
need, while the MSD-based team provides guidance and support. This
approach is particularly effective because whānau are enabled to make the
changes required to create a different future for themselves, and ownership
of the work necessary to achieve this rests with them and the community.
63 Currently, this sees us working in formalised partnerships with some 70
communities across the country, with engagement ranging from small
community-based groups to larger organisations with wider reach. Alongside
this, we adopt a range of strategies to support wider community action and
mobilisation, and capability development.
64 The initiative grows local capability and expertise by building on and
strengthening community-led solutions to achieve effective and sustainable
outcomes. On-the-ground flexibility reflects the understanding that
successful and sustainable change within the community requires agile,
adaptive, and bespoke responses.
65 The work is guided by community readiness and pace, so can accommodate
local variances and engage across the broadest range of settings. It also
supports the creation of strong local provider and community networks.
66 E Tū Whānau’s Mahere Rautaki – Framework for Change (the third and most
recent since 2008) reflects a well-tested approach that grows community
leadership and shifts attitudes and behaviours away from the use of family
violence. It also highlights that, for many Māori, delivering prevention
responses in a culturally responsive way increases effectiveness and
sustainability of outcomes.
67 We continue to strengthen and expand reach and take-up of community-led,
primary prevention activity – investing in and working alongside
communities to increase the protective factors and, through these actions,
decrease the risk factors for a range of societal harms, including family
violence.
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68 This work includes individual, whānau, and community education and
training; development of local leadership capability; development of
parenting knowledge and skills; the growth and reinforcement of local
networks; the strengthening of provider/practitioner capacity; and the
building of whānau and community resilience – as well as linking whānau to
available community-based services and supports.
69 We also actively foster positive youth engagement, education, and
leadership by growing their skills and capability, connecting disengaged
young people to their wider community, and supporting young community
leaders to model and drive constructive local change.
70 E Tū Whānau continues to build its evidence base to better understand what
works to support effective and sustainable change through a bespoke
research and evaluation programme. This includes developing and trialling
both local community and whānau level assessment tools to effectively
measure change.
71 At the local level, this entails a collective assessment as to where the
community is placed in relation to family violence prevention, and what is
needed to achieve better outcomes. The focus is on mobilising communities
for positive change, including facilitating discussion and planning concerning
what is needed to strengthen the community.
72 The whānau level tool is a psychometrically validated quantitative
instrument to measure family violence prevention and wider outcomes. Our
current focus is on trialling and field research of both tools. We expect to
update you on progress and community take-up, in October 2024.
Pasefika Proud
73 Pasefika Proud was launched in 2011 and is a Pacific response to family
violence in New Zealand. It mobilises Pacific people, families, and
communities to take responsibility for the issues they are facing, find the
solutions, and take leadership to implement them.
74 Pasefika Proud partners with Pacific communities to support ethnic-specific
leadership and action. It acknowledges that Pacific cultures have strengths
and protective factors that can build community resilience and capability
and strong Pacific families and communities.
75 Pasefika Proud’s Pathways for Change strongly commits to an “ethnic-
specific for Pacific” approach. Emerging evidence suggests that working
within ethnic-specific communities results in better outcomes than working
with all Pacific ethnicities homogenously. Each community has its own
unique insights and practices which inform the development of community-
owned, culturally appropriate solutions. Collectively, this approach aims to
prevent and address violence for Pacific peoples in New Zealand.
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76 Pasefika Proud continues to implement and expand Pacific community-led
family violence prevention work and activities with key cohorts. Over 25
initiatives received investment and support in F2023 financial year.
77 We are focused on mobilising the following eight ethnic-specific Pacific
communities: Kiribati, Tuvalu, Fiji, Tokelau, Niue, the Cook Islands, Soman
and Tonga.
78 As part of this work, we have been supporting the implementation of the
Kiribati and Tuvalu ethnic-specific community plans, and the launch and
implementation of the Fiji, Tokelau, and Niue ethnic-specific community
plans. Work has also commenced on the socialisation of the ethnic-specific
community plans for the Cook Islands, Samoan, and Tongan communities.
79 We are also working in partnership with the Cause Collective to build the
workforce capability and cultural competency of Pacific and non-Pacific
professionals, service providers, agencies, and leaders through the Nga
Vaka Kāiga o Tapu Family Violence training programme. Alongside this, we
have also established ethnic-specific Pacific Change Champions in Auckland
and Waikato.
80 Additionally, Pasefika Proud has prioritised building a robust evidence base.
Two key pieces of evaluation work underway are:
80.1 An outcomes-focused evaluation looking at the progress for Pacific
families made against the Pathways for Change Outcomes Framework
from 2011-2022.
80.2 An evaluation of Pasefika Proud funded activities from F2023, which
will look at the extent to which these activities have achieved their
intended objectives.
81 Collectively, these two evaluations will determine how Pasefika Proud has
affected positive change for Pacific families and communities. Findings will
inform the future work programme, including the development of a
measurement framework, and an ongoing research and evaluation plan.
Family and sexual violence prevention in ethnic
communities
82 The ethnic communities violence work programme focuses on preventing
family and sexual violence for the diverse ethnic communities of New
Zealand.
83 Initial work focused on understanding the current state of violence
prevention in ethnic communities has included, carrying out an international
literature review of what works to prevent violence in ethnic communities,
and mapping existing evidence on violence in ethnic communities within
New Zealand.
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84 Findings from our initial research, and learnings from our consultation and
engagement with community partners, has informed the next steps in the
work programme’s development.
85 Based on available data and evidence-driven research, two community
mobilisation workstreams are underway that will test ethnic-specific family
and sexual violence prevention initiatives:
85.1 Trialling prevention programmes and activities with South Asian
communities in Auckland.
85.2 An Ethnic Communities Innovation Fund, which will support ethnic
communities more broadly across New Zealand to test and deliver
prevention activities, add to the evidence base and build capability.
86 We are working to procure eight South Asian community organisations and
service providers in Auckland to co-design and trial prevention activities,
following the 31 expressions of interest received. We will support them to
identify strengths, needs, gaps, and opportunities and to find practical and
tailored solutions to prevent violence in their communities.
87 The Ethnic Communities Innovation Fund will enable communities from
across New Zealand to draw on the strengths from within their local and
cultural contexts to develop prevention strategies.
88 139 applications to the Ethnic Communities Innovation Fund have been
assessed by a specialist evaluation panel. Successful applicants will be
notified once the panel’s recommendations have been approved.
89 Alongside the two main community-focused workstreams, we are also
investing in:
89.1 Capability building and organisational upskilling for the successful
South Asian trial partners and Innovation Fund recipients.
89.2 Developing resources, such as the renewed ‘Our Culture, Our Pride:
No Excuse for Abuse’ booklet for ethnic communities, which we expect
to be available in a range of languages by June 2024.
89.3 Developing a strategic research plan, which includes the future
direction of the research gathered from the programme.
90 We are developing a monitoring, evaluation, research, and learning (MERL)
framework for the family and sexual violence prevention in ethnic
communities work programme.
91 The MERL framework will see us expand our evidence base, as it will be
used to monitor and evaluate the two community-focused workstreams to
gather insights into what prevention activities work best for ethnically
marginalised people, and to help us to fill identified gaps in the evidence.
MSD’s violence prevention work programme 15
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92 The MERL framework will sit alongside an overarching theory of change,
which will outline the detailed outcomes for this work programme.
93 Three research projects are currently going through a procurement process.
These projects are focused on:
93.1 Analysis of administrative datasets to understand the extent of family
and sexual violence experiences and associated risk factors within
ethnic communities in New Zealand, as well as document key data
gaps.
93.2 Exploration of specific family and sexual violence complexities within
South Asian communities across the country.
93.3 Developing guiding principles and a blueprint for family and sexual
violence prevention and responses in ethnic communities.
94 As this is a new work programme within MSD, another key deliverable has
been the development of a brand identity, in collaboration with ethnic
communities, who wanted to emphasise their connection and belonging to
New Zealand and its cultures.
95 The result of this engagement is a co-designed name - ‘Marohi Global
Communities’. In Te Reo Māori, ‘Marohi’ means ‘strong’ and ‘resilient’, which
reflects the identity of the 200+ ethnic communities in this country. The use
of kupu Māori within the name supports these communities’ desire to
position themselves within their chosen country of New Zealand.
96 We will keep you informed as this work programme progresses, including
the future direction of the work programme.
Sexual Violence Prevention
97 ACC is the lead agency for sexual violence prevention in the sector.
However, MSD holds $57,062.50 of historical funding, which supports two
providers. These contracts have been extended to 30 June 2025. We are
currently exploring whether this funding would be better utilised within crisis
services. More information on MSD’s sexual violence work programme is
outlined in our report on this work [REP/24/3/182 refers].
Author: Scott Waring-Flood - Principal Analyst, Safe Strong Families and
Communities
Responsible Managers: Mark Henderson – General Manager, Safe Strong Families
and Communities, Rena Hona – General Manager, Māori Partnerships and
Programmes and Serena Curtis – General Manager, Pacific and Community
Capability Programmes (Māori Communities and Partnerships)
MSD’s violence prevention work programme 16
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References
• Baker, C.K., Helm, S., Bifulco, K., & Chung-Do, J. (2015) ‘The Relationship
Between Self-Harm and Teen Dating Violence Among Youth in Hawaii’,
Qualitative Health Research, 25(5):652-667.
• Family Violence Death Review Committee (2016). Fifth Annual Report:
January 2014 to December 2015, Health Quality & Safety Commission,
Wellington.
• Family Violence Death Review Committee (2020). Sixth report | Te Pūrongo
tuaono. Men who use violence | Ngā tāne ka whakamahi i te whakarekereke,
Health Quality & Safety Commission, Wellington.
• Goldstein, C., & Glass, N.E. (2020). ‘Interpersonal Violence: A Review of
Elder Abuse’, Current Trauma Reports 6:133–139.
• Love, H.A., Nalbone, D.P., Hecker, L.L., Sweeney, K.A., Dharnidharka, P.
(2018) ‘Suicidal Risk Following the Termination of Romantic Relationships’,
Crisis, 39(3):166-174.
• Marshall, K., Herbst, J., Girod, C., & Annor, F. (2020) ‘Do interventions to
prevent or stop abuse and neglect among older adults work? A systematic
review of reviews’, Journal of Elder Abuse & Neglect, 32(5):409-433.
• Ministerial Group on Family Violence and Sexual Violence (2015). Cabinet
Paper: Progress on the Work Programme of the Ministerial Group on Family
Violence and Sexual Violence.
• Ministry of Justice (2020). Justice Statistics data tables: Notes and trends for
2020.
• NZ Police (2021). Daily Occurrences of Crime and Family Violence
Investigations.
• Snively, S., & Kahui, S. (2014). Measuring the Economic Costs of Child
Abuse and Intimate Partner Violence in New Zealand. Wellington, New
Zealand: MoreMedia Enterprises.
• Waldegrave, C. (2015). Measuring Elder Abuse in New Zealand: Findings
from the New Zealand Longitudinal Study of Ageing (NZLSA). Family Centre
Social Policy Research Unit. Commissioned by the Office for Senior Citizens
within the Ministry of Social Development.
• World Health Organization (2004). Preventing violence: A Guide to
Implementing the Recommendations of the World Report on Violence and
Health.
The Aurora Centre, 56 The Terrace, PO Box 1556, Wellington – Telephone 04-916 3300 – Facsimile 04-918 0099
Report
Date:
12 March 2023
Security Level:
IN CONFIDENCE
To:
Hon Louise Upston, Minister for Social Development and
Employment
File reference:
REP/24/3/184
MSD’s family violence response work programme
Purpose of the report
1 This report provides an overview of the Ministry of Social Development
(MSD)’s family violence response work programme, outlining the key
initiatives and opportunities for future service enhancement.
Executive Summary
2 MSD leads a comprehensive family violence work programme, centred
around improving responsiveness to family violence to ensure effective and
efficient crisis and long-term services and supports.
3 We fund a range of family violence response initiatives. These include crisis
support for women and children; services for older people experiencing
abuse; long-term healing and recovery; supporting men’s behaviour change;
improving service accessibility for disabled people; and digital and helpline
support to ensure that more people can access information and support for
family violence.
4 Investment in strengthening these response initiatives has contributed to
developing a more cohesive and wide-reaching service delivery system.
Investing in early intervention also provides the best potential to reduce the
down-stream costs of violence.
5 Opportunities for future initiatives include strengthening primary prevention,
better supporting children experiencing violence, further digital and helpline
expansion, and enhancing our learning and reporting systems to further
support an outcomes-based approach.
6 Continuing to support and enhance MSD’s family violence response work
programme provides a unique opportunity for you to effect positive change
and help to break the intergenerational cycle of family violence.
MSD’s family violence response work programme 2
IN-CONFIDENCE
Recommended actions
It is recommended that you:
1 note the key initiatives in MSD’s family violence work programme and
opportunities for future service enhancement.
2 agree to forward this briefing to Hon Karen Chhour, Minister for the
Prevention of Family and Sexual Violence.
AGREE / DISAGREE
12 March 2023
Mārama Edwards
Deputy Chief Executive, Māori
Communities and Partnerships
Date
Hon Louise Upston
Minister for Social Development and
Employment
Date
MSD’s family violence response work programme 3
IN-CONFIDENCE
Overview
7 New Zealand has unacceptably high rates of family violence. The most
recent 2019 prevalence study on family violence showed that about 1 in 3
women experience physical and/or intimate partner violence in their
lifetime.1 Māori women are twice as likely as non-Māori women to suffer
intimate partner violence.2 Further, between 2009 and 2019, 292 people
died from incidences of family violence, 44 percent of whom were Māori.3
These high levels of family violence have led to an overwhelming demand for
specialist family violence services for victims/survivors and people using
violence.
8 MSD is the lead agency in delivering family violence services and has worked
collaboratively across government as an Interdepartmental Executive Board
– Te Puna Aonui (IEB) agency to implement the National Strategy to
Eliminate Family Violence and Sexual Violence (Te Aorerekura). MSD holds
the key relationships with networks and community service providers,
funding around 200 providers across New Zealand.
9 Over the last 10 years, MSD has led a comprehensive work programme to
improve responsiveness and ensure services are funded appropriately. We
focus on engaging with providers and communities to strengthen the
delivery of family violence services for families and whānau.
10 MSD also works with community partners and other IEB agencies to better
integrate the family and sexual violence system and services into
communities throughout New Zealand.
11 While lifetime prevalence remains high, research has shown a significant
decrease in women reporting instances of intimate partner violence
experienced within the previous 12 months.4 Research also suggests
potential changes in perpetrator behaviour, which could be a result of
increased awareness through the wide population reach of family violence
campaigns and initiatives.
1 Fanslow, J., Hashemi, L., Malihi, Z, Gulliver P., and McIntosh, I. (2021) ‘Change in prevalence rates of
physical and sexual intimate partner violence against women: data from two cross-sectional studies in New
Zealand, 2003 and 2019’, BMJ Open (11):1-14. e044907.full.pdf (bmj.com)
2 Te Puni Kōkiri. (2017). Māori family violence infographic. Retrieved from https://www.tpk.govt.nz/en/a-
matou-mohiotanga/health/maori-familyviolenceinfographic.
3 Family Violence Death Review Committee (2022). Seventh report: A duty to care | Pūrongo tuawhitu: Me
manaaki te tangata. Health Quality & Safety Commission, Wellington.
4 Fanslow et. al (2021), ibid.
MSD’s family violence response work programme 4
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12 With a strong foundation in place, we have the opportunity to build on the
current momentum, continuing to effect positive change. A continued focus
on children, prevention, and outcomes is vital to ensure a sustained
response and reliable access to both immediate and long-term focused
services.
Where we came from
13 Historically, the family violence sector developed from a voluntary non-
government base, meaning that while these core services need to be
provided, there was limited investment and a lack of workforce
development. This was not helped by the contributory-based funding model,
which led to a sector facing recruitment and retention challenges.
14 In 2014, the Government acknowledged the need for a more joined-up
response to break the intergenerational cycle of family violence. The
Ministerial Group set up to address New Zealand’s high levels of family and
sexual violence noted that the service system was fragmented, and spending
did not align with effectiveness or client need. Key drivers to change
involved altering behavioural attitudes to violence and increasing early
intervention. This included building on existing MSD initiatives like E Tū
Whānau, Pasefika Proud, and the Campaign for Action on Family Violence It’s
Not OK campaign.5
15 In 2015, the Government launched a new cross-agency family violence work
programme, promoting a more coordinated whole-of-government approach
to reduce service gaps and inefficiencies by creating an integrated, people-
centred system.6 This also meant reaching out to the non-government
sector, and considering perspectives across all population groups.
16 Since then, we have focused on eliminating family violence through a series
of cross-agency programmes, and in 2018 the Government established the
Joint Venture for Family Violence and Sexual Violence (renamed the
Interdepartmental Executive Board - Te Puna Aonui (IEB) in 2022).
17 As part of Budget 2018, $76.157 million of funding over four years was
allocated to support and strengthen MSD-funded family violence response
services. This funding enabled MSD to further invest in essential services.
5 More information on these prevention initiatives is set out in more detail in REP/24/3/182.
6 Cabinet Social Policy Committee Progress on the work programme of the ministerial group on family violence
and sexual violence (29 July 2015).
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Where we are now – current state
18 Building upon previous work, we have made significant changes to
strengthen family violence response services. This included moving to fair
and transparent funding for Full Time Equivalent (FTEs), implementing
funding allocation models based on relative need to distribute funding,
supporting workforce development, increasing investment in a broader range
of services, being clearer about the services we are purchasing, increasing
consistency in service delivery, establishing a more efficient and equitable
procurement approach, working in partnership with communities to co-
design services including client-voice, and expanding services digitally.
19 MSD has worked collaboratively across government as part of the IEB
through the implementation of a 25-year National Strategy for Eliminating
Family Violence and Sexual Violence - Te Aorerekura (the National
Strategy).7
20 We have increased investment in long-term responses, crisis services, and
elder abuse and prevention, creating a more cohesive service delivery
system. While the family violence response system is more cohesive now,
funding and support is still weighted more heavily towards the needs of
victims and focused on crisis support.
21 As part of Budget 2020 MSD received $183 million over four years to invest
in specialist services for people impacted by family violence (including elder
abuse). This funding was to address existing cost pressures and ensure
continued access to specialist family violence services.
22 Since then, we have delivered a series of initiatives (detailed below) to
address service gaps, improving the immediate support available for people
impacted by family violence. These workstreams support Actions 12, 14, and
29 of the National Strategy.
Current investment in MSD funded services
23 $130.35 million is appropriated for family violence response per annum, split
across 14 service types, which are discussed in more detail below. Of this,
$129.08 million is baselined. The remaining $1.27 million is time limited
funding, invested in improving service accessibility for disabled people.
7 Te Puna Aonui (2021). Te Aorerekura - National Strategy to Eliminate Family Violence and Sexual Violence.
MSD’s family violence response work programme 6
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Key MSD funded family violence response services
Women’s refuge – Supporting women and children experiencing
violence
24 MSD funds 56 women’s refuges across New Zealand to deliver our largest
family violence crisis response service. The service includes safe housing,
safety planning, and advocacy support for women and children, receiving
$36.45 million funding per annum.
25 Women’s refuges provide a critical service to supporting women and children
impacted by family violence. MSD has worked in partnership with refuges for
42 years, building strong and lasting relationships. This partnership has been
instrumental in improving support for the family violence sector, including
increased funding.
26 In 2023, MSD signed an eight-year Partnership Outcome Agreement with the
National Collective of Independent Women’s Refuge (NCIWR) which currently
sub-contracts 40 refuges. The Partnership Agreement is a leading example
of Social Sector Commissioning and supports the National Strategy. The new
agreement is for $202.772 million over 8 years. In 2021/22, NCIWR
supported 52,000 referrals and 59,000 safe nights in safe houses.8
27 Alongside NCIWR, there are 16 non-affiliated refuges that are directly
contracted by MSD. These refuges are predominantly in Auckland and
Waikato and are mainly Māori refuges. The contracts with these non-
affiliated refuges are ending 30 June 2026, so work is underway to develop a
procurement approach.
28 Women’s refuges also support children exposed to family violence, who
make up approximately 54 percent of all safe house clients.9 As children are
arguably one of the most underserved victim groups in New Zealand,
women’s refuges offer a real opportunity for early intervention. Their
services play a significant role in helping to prevent lifelong impact and
disrupt the intergenerational cycle of violence.
8 National Collective of Independent Women’s Refuges (2023). Evaluation of Kōkihi ngā Rito.
9 Ibid.
MSD’s family violence response work programme 7
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29 Throughout 2021 and 2022, MSD piloted the Child Advocates programme
across eight women’s refuges.10 Early evaluation findings show children
consistently reported that the programme made them feel safer and made
their lives better.11
30 The pilot demonstrates the necessity for a specialist workforce to support
children, ensuring their needs and experiences of family violence are
acknowledged and understood. Currently, this service is not available to all
children. MSD is investing $1.24 million annually for four years to continue
funding the Child Advocates programme in the eight pilot sites.
31 However, there are still significant gaps in research, knowledge, and
practice, particularly regarding identifying and addressing unmet needs, and
understanding the adverse effects family violence can have on women and
children later in life. Workforce capability and capacity, outcomes-focused
service design, and increasing service availability are all paramount in
providing effective support to those experiencing family violence.
Elder Abuse Response Services
32 MSD currently funds 37 providers to deliver Elder Abuse Response services
(EARS), investing $12.24 million in these services per annum. Eleven of
these providers were procured in 2023 to address service gaps.
33 Work is underway to procure an additional EARS provider in the Hawkes Bay
region. This work was delayed from the 2023 procurement due to the
impacts of Cyclone Gabrielle.
34 These services address the needs of older people experiencing, or at risk of
experiencing, elder abuse. EARS advocate for and help older people access
agency support and services in their communities.
35 Alongside EARS, there is also a dedicated helpline for elder abuse (0800 EA
NOT OK) currently in contract with Whakarongorau Aotearoa. Further detail
on other helpline services contracted to Whakarongorau Aotearoa is outlined
from paragraph 41 below.
10 The eight refuge sites are: Te Whare O Ngā Tumanako, West Coast Women’s Refuge, Fale Pasifika,
Palmerston North Women’s Refuge, Te Whare Oranga Wairua Maori Women’s Refuge, Te Whare Pounamu, Te
Roopu Whakaruruhau O Ngā Wahine Maori, Te Whakaruruhau - Waikato Women’s Refuge and Mother of Divine
Mercy.
11 Ibid.
MSD’s family violence response work programme 8
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Family Violence Long Term Healing – Whānau Resilience Programme
36 As part of the development of our Family Violence Funding Approach,
providers advised that most of MSD’s funding for family violence services
was being directed to crisis support because of overwhelming and immediate
demand.
37 However, crisis services do not enable service providers to work with families
and whānau and provide long-term support to break the intergenerational
cycle of violence. A study looking at family violence and what it takes for
women to recover, found that the healing journey takes years and often a
significant period of separation from the abuser.12 This demonstrates the
need for long-term support to support people to heal to prevent
intergenerational transmission of violence.
38 To address this need, we worked with providers to design Whānau Resilience
Services. These services are focused on providing long-term healing and
recovery for individuals, families, whānau, and communities affected by
family violence. Programme objectives include increasing resilience, building
protective solutions like housing and employment, and breaking the
intergenerational cycle of family violence. The programme receives $15.38
million funding per annum.
39 Providers work collectively and innovatively to support client healing, with
whānau voice at the centre. Due to the unique design approach to establish
this service, providers with Whānau Resilience contracts continue to
collaborate and learn from each other.
40 In 2023, MSD funded providers established an annual conference, the
Whānau Resilience Symposium, for organisations to come together and learn
from each other. These national conferences are provider developed and led.
While most costs are met by providers and officials attending from agencies,
MSD provide a small contribution towards venue hire.
41 The second Whānau Resilience Symposium will be taking place in Taranaki
on 9-10 May 2024, and will be a chance for providers and agencies to share
their experiences of Whānau Resilience to date, and to discuss service
improvements like designing a better outcomes-focused reporting framework
to benefit both MSD and providers.
42 This could be an opportunity for you, as Minister, to support this work and
present your priorities. We can provide you with further advice on this when
planning for the symposium begins.
12 The Backbone Collective (2020). Victim-Survivor Perspectives on Longer-Term Support After Experiencing
Violence and Abuse.
MSD’s family violence response work programme 9
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Family Violence Helplines and Digital Tools
43 MSD’s family violence help portal work aims to increase the accessibility of
family violence services, creating a more streamlined and efficient
infrastructure, complementing other supports and services funded by MSD.
The initiative receives $3.59 million funding per annum and the work
supports implementation of MSD led National Strategy Action 12: Build tools
for communities and informal helpers.
44 We received additional funding in Budget 2023 so more people could access
help and support through online mediums, phone and chat services, and
other digital tools. This investment provides the opportunity to enhance
services to be more responsive to different communities and groups.
45 MSD has focused on improving and developing its helplines to create a more
cohesive and integrated family violence response system. MSD has a single
helpline provider, Whakarongorau Aotearoa, that responds to all contacts to
all MSD-funded helplines (Family Violence Information Line, Shine Line, Elder
Abuse Helpline, and Safe to Talk Helpline). Whakarongorau Aotearoa also
answer afterhours calls for many of our women’s refuges, ensuring that
refuge staff do not need to be on-call outside of business hours and can
focus on direct service delivery.
46 A core part of the Help Portal work has included our digital expansion of
support to ensure that more people can access information and support for
family violence. This includes launching In Your Hands a new website aimed
at supporting people to change their violent behaviour in October 2022. In
Your Hands is supported by 24/7 telephone and online webchat to help
support people to deescalate and find the right support for them.
47 The Are You Ok website was also redesigned and officially launched in
October 2022 as a site exclusively for victim/survivors and their friends and
family. It is now backed by a 24/7 telephone and online webchat help for
victims/survivors of family violence and those supporting them to be safe.
48 These service improvements also mean informal helpers (family, whānau,
friends, and neighbours) are better supported, able to recognise family
violence and access support for those impacted by violence, including
connecting with specialist services.
49 While this suite of digital tools and helpline supports is a significant step
forward, there is the potential to increase the sophistication of these sites
and to develop more online tools. There is also a need to increase the
awareness of our websites to ensure that more people can get the support
they need.
MSD’s family violence response work programme 10
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50 Investing in digital tools and helplines for family violence is cost-effective
and is a necessary support. We know that many people experiencing family
violence are not reaching out to Police or formal supports, instead they are
either not disclosing the violence to anyone or are only telling friends and
family.
51 Additionally, not everybody will need or want intensive face-to-face services,
some people have the capacity and capability to be supported through less
intensive supports like helplines and digital tools. Expanding our digital
network of family violence support tools will create a wider reach, ensuring
more people experiencing family violence can be supported.
Support for perpetrators – people harming others
52 Currently, men have limited access to support their behaviour change. What
is available is often time-limited, inflexible, punitive, underfunded, and
predominantly accessed through criminal justice pathways.13
53 MSD has two key initiatives to provide more support for perpetrators:
Supporting Men’s Behaviour Change services – Te Huringa ō Te Ao, and
perpetrator housing support, known as Whānau Safety Services.
54 Supporting Men’s Behaviour Change – Te Huringa ō Te Ao is an initiative to
strengthen and expand services for men who use violence by supporting
locally led responses, reflective of the needs and aspirations of whānau.
Priorities include geographical coverage of support, investing in the specialist
family violence workforce, and increasing support for high need
communities.
55 The Supporting Men’s Behaviour Change initiative has a budget of $17.02
million per annum. Procurement for this service started last year. Successful
providers will receive long-term contracts of up to 9.5 years, with FTE-based
funding. The first two and a half years of the contract will be flexible allowing
providers to do both service development and service delivery. This will be
community-led and MSD-supported.
56 Phase one procurement decisions will be formally communicated in the
coming weeks and phase two procurement is now underway following our
previous briefing to you on this matter [REP/23/12/998 refers].
57 Wrap around housing services for people who use violence – Whānau Safety
Services –focus on enhancing immediate safety for victims and whānau,
reducing family violence and in turn minimising justice sector costs. These
13 Family Violence Death Review Committee (2022). op. cit.
MSD’s family violence response work programme 11
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services offer various supports for people bound by a police safety order
(PSO), including:
57.1 24/7 supported accommodation in their community for those bound by
a PSO who identify as male over the age of 18 years old.
57.2 General, advocacy support e.g., supporting the person to access Work
and Income and job interviews.
57.3 A risk and needs assessment tailored to people who have been issued
a PSO and their whānau.
57.4 Delivering and/or connecting the person bound by a PSO and their
whānau with therapeutic interventions e.g., counselling, supported
employment, and addiction services.
57.5 Safety and goal planning.
57.6 Kaimahi outreach: staff working with PSO-bound people who do not
require supported accommodation and are not engaging with services
for crucial support.
58 Wrap around housing services for people who use violence receives $4.9
million funding per annum. This funding is made up of Budget 2021
investment, and a baseline funding transfer from Vote Justice in 2021. The
final stages of procurement for a further two wraparound housing services is
currently on hold, pending Ministerial direction [REP/23/12/998 and
REP/24/2/123 refers].
Enhancing family violence service accessibility
59 Disabled people make up approximately 24 percent of New Zealand’s
population with Māori and Pacific people experiencing higher rates of
disability than NZ European/Pākehā. The discrimination and stigma arising
from ableism make disabled people a highly at-risk population cohort.
Disabled people and tāngata whaikaha Māori are significantly more likely
than other New Zealanders to experience family violence and sexual violence
across their lifetimes.
60 In May and June 2021, the IEB Business Unit engaged with disabled people
across New Zealand as part of the development of the National Strategy.
Disabled people highlighted that the current FVSV system was not designed
with, or for, disabled people and tāngata whaikaha Māori. This makes
mainstream FVSV supports and services either difficult to navigate at best,
or completely inaccessible at worst.
61 As part of Budget 2023, funding was allocated for ‘Accessible family violence
and sexual violence services for disabled people’. This investment provides a
time-limited fund of $1.27 million per annum (over two years) so MSD-
funded FVSV providers can implement physical and digital accessibility
MSD’s family violence response work programme 12
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enhancements to improve access for disabled people. The initiative will also
provide greater understanding of the current FVSV service gaps for disabled
people.
62 In line with this, the funding for the initiative, known as the Accessibility
Fund, intends to:
62.1 support change ready FVSV providers to receive an independent
specialist assessment of the physical and/or digital accessibility of
their organisation and services;
62.2 help implement recommended changes from the assessment (where
possible), enabling the FVSV providers to respond more appropriately
to the disabled community; and
62.3 undertake a current state analysis of MSD-funded FVSV providers to
gain a deeper understanding of mainstream service gaps.
63 MSD conducted stakeholder engagement to socialise its approach to the
Accessibility Fund. This stakeholder engagement included discussions across
the wider disability sector, with family and sexual violence peak bodies, and
with Whaikaha – Ministry of Disabled People.
64 Based on stakeholder feedback, MSD is now planning to implement the
Accessibility Fund using a phased approach. In phase one, we intend to
prioritise making physical modifications to family violence crisis response
services (refuges/safe houses) across New Zealand.
65 This includes entering a contractual arrangement with Kāinga Ora – Homes
and Communities. This Crown agency is the landlord for most women’s
refuges across New Zealand and it has identified that 16 of its safe house
properties are modifiable.14 Kāinga Ora will scope, organise, and project
manage the modifications, allowing these safe houses to focus on continuing
to deliver their FVSV services.
66 Phase two involves an open grants process for providers of other FVSV
services apply for funding to make necessary modifications following
completion of an accessibility self-assessment tool.
67 Work on procurement for phase one is now underway following our previous
briefing to you on this matter [REP/23/12/998 refers].
14 Of the 56 refuges across New Zealand, 49 refuges/safe houses lease properties from Kāinga Ora, 4
refuges/safe houses are in non-Kāinga Ora owned properties, and 3 providers do not have a physical
refuge/safehouse.
MSD’s family violence response work programme 13
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68 MSD will also be developing a current state analysis of the accessibility of
MSD’s FVSV providers. This current state analysis will inform MSD’s
approach to improving accessibility of FVSV providers beyond this time-
limited funding. We will keep you informed as we progress this.
Integrated Community-led Responses to family violence
69 MSD works with our community partners and IEB partner agencies towards
greater integration of family violence sector decisions and responses in
communities throughout New Zealand.
70 The IEB Business Unit leads work on the cross-government Integrated
Community-led Response (ICR) work programme, also now known as
Enabling Te Aorerekura in Place.
71 This work programme includes exploring what system infrastructure and
funding is needed to better support family and sexual violence sectors,
including elements like network coordination and community-led solutions.
72 In late 2019, responsibility for three initiatives which contribute to Enabling
Te Aorerekura in Place, was transferred to MSD to implement as follows:
72.1 Funding for family violence non-government organisations (NGOs) to
participate in Safety Assessment Meeting (SAM) tables.
72.2 Establishing Regional System Leads supported by National System
Practice Leads.
72.3 Funding iwi and NGO participation in regional governance.
73 These three initiatives receive a total of $8.1 million per annum.
74 Future work on these ICR initiatives is on hold, pending Ministerial direction
[REP/24/2/123 refers].
Family Violence Response Coordination
75 MSD contracts 36 providers to deliver Family Violence Response Coordination
(FVRC). FVRC were established based on the previous Te Rito strategy
released in September 2001 with a focus on network coordination of the
family violence sector.
76 FVRC contracts have been evaluated three times. The findings show that
although FVRC add some value to communities, the roles and funding lack
the consistency needed for a systemic response to family violence
coordination.
77 From 2012 funding had been rolled over annually pending Ministerial
decisions about the family violence system. Budget 2019 provided time-
limited funding for FVRC which was extended for a further two years (time
limited end 30 June 2024) through Budget 2022.
MSD’s family violence response work programme 14
IN-CONFIDENCE
78 As part of MSD’s work supporting the Enabling Te Aorerekura in Place work
programme, we have explored implementing Regional System Leads,
however this is currently on hold pending direction from you as indicated in
paragraph 71 above.
79 FVRC contracts expire on 30 June 2024. We communicated verbally with
impacted providers about current contracts not being renewed and there
being no ongoing funding. More formal written communication on this matter
is on hold, pending discussions with your office on the required process and
timing of this.
80 Due to the number of years this funding has been in place we anticipate that
impacted providers will raise concerns about the future of this work.
Opportunities for future family violence service
enhancement
81 Preventing and intervening early to avoid families continuously cycling
through the system has the best potential to reduce the down-stream costs
of violence. Proportionately, more funding is currently directed to response
services than primary prevention.
82 However, there are also numerous opportunities to enhance and further
develop services to better cater to people experiencing family violence.
83 To intervene early with children impacted by family violence, there is an
opportunity to expand the Child Advocates programme nationwide to all
women’s refuges. This long-term, wraparound, and child-centred support is
likely to significantly impact lifelong outcomes for children, reducing
potential future victimisation and perpetration by interrupting generational
transmission of violence. We are working on an impact evaluation to better
identify and articulate the effectiveness of this service and will come back to
you when results are available later this year.
84 Further expansion of MSD’s digital family violence sites and helpline supports
is an effective use of funding, as this is very cost-efficient compared to face-
to-face services and can cater to a much broader audience than the people
that will come in for direct services.
85 We also have the opportunity to continue strengthening insights across the
FVSV sector through effective and efficient reporting mechanisms. Through
the development of a reporting measurement framework for the current
Partnership Outcome Agreement between MSD and NCIWR we were able to
enhance the effectiveness of reporting across affiliated women’s refuges.
MSD’s family violence response work programme 15
IN-CONFIDENCE
86 This reporting was designed as a reporting package suite that includes a
client outcomes dashboard, a workforce report, and the piloting of a new
tool to capture client feedback. It was the first set of reporting to follow an
enhancement approach to capturing more effective information about family
violence services.
87 Work is underway to further enhance reporting for the family violence sector,
and this type of reporting package will be rolled out across other family
violence services and providers. In doing so we will have a better collective
understanding of the effectiveness of our family violence services and the
needs of those that are engaging in different services.
88 Key opportunities for making a difference in family violence include:
88.1 Supporting a sophisticated suite of services for everyone impacted by
and using violence, including more support for children.
88.2 Further expansion of services digitally and through helplines to cater
to a broader audience.
88.3 A sustained focus on primary prevention.
88.4 Creating learning and reporting systems to support better decision
making.
88.5 Evaluating the impact of the investment for continuous improvement.
88.6 Centring client-voice in our services to drive innovation.
88.7 Encouraging collaboration between the FV sector and government to
strengthen our collective outcomes.
89 We are currently working with the IEB Business Unit to develop the second
Action Plan for the National Strategy.
Author: Alex Morris - Senior Analyst, Operational Policy and Planning
Responsible Manager: Mark Henderson – General Manager, Safe Strong Families
and Communities (Māori Communities and Partnerships)
Findings and public release of research report – insights from the Elder Abuse Prevention Fund 2
Background
2. In 2022, the Office for Seniors provided eleven one-off grants of up to
$25,000 through the Elder Abuse Prevention Fund (EAPF). The funding was
provided to initiatives aiming to prevent the abuse of older people (AOP –
also known as elder abuse).
3. As part of the Budget 2022 funded Prevention of abuse of older people work
programme, MSD funded a learning and insights review of the initiatives
funded by the EAPF. This was commissioned with the Office for Seniors.
4. An overview of the Prevention of abuse of older people work programme is
covered in our report on our March 2024 prevention work programme
[REP/24/3/182 refers].
Overview
5. There were two focus areas for the learning and insights review:
5.1. Gathering practice-based insights from the initiatives – including
what worked well, challenges the initiatives faced, how initiatives
developed and adapted over time, and the scalability of the
initiatives.
5.2. Contributing to the broader knowledge base around AOP in New
Zealand.
6. Nine of the eleven initiatives that received funding through the EAPF agreed
to participate in the research. The findings from this research are based on
interviews conducted with staff involved in the planning and implementation
of each of these nine initiatives (‘the participants’).
Key findings
7. The report identified themes from the interviews across three broad areas:
7.1. Identifying key areas of success.
7.2. Understanding challenges and lessons.
7.3. Insights about AOP.
8. The top-level insights from these areas are listed below.
Initiatives were successful in building trust, getting engagement, and
using their expertise to deliver high quality programmes
9. The report identified these areas of success:
9.1. High engagement and participation from older people.
9.2. Positive impact of building high-trust relationships with older
people.
9.3. Importance of access to expert skills and knowledge around AOP.
Findings and public release of research report – insights from the Elder Abuse Prevention Fund 3
Challenges included the high level of need, skill and service gaps, and
the resource intensity of work relating to AOP
10. The report identified these challenges:
10.1. Initiatives found considerable need in the community, and their
limited resources meant they were not able to respond to the level
of demand.
10.2. There are significant challenges associated with short-term funding,
and there are flow-on impacts for the clients of services.
10.3. There are knowledge and skill gaps in some organisations, and
service gaps for older people with some specific needs. These vary
from region to region.
10.4. Work in this area is very complex and requires individualised
approaches for each situation - this makes the work very resource
intensive.
Insights about AOP included risk factors, the need for definitions and
frameworks, and how AOP is experienced by Māori
11. Participants spoke about potential risk factors and drivers of abuse, including
social isolation and loneliness, poverty, and housing insecurity (among both
older people and perpetrators of abuse).
12. The report also highlights how older people who have limited decision-
making capacity can be more vulnerable to abuse, and that this can also
make it more difficult to identify if they are experiencing abuse – particularly
if the older person is not able to report the abuse.
13. Participants spoke about several areas where work around AOP could be
developed and improved. This included the definition and scope of AOP,
reporting processes and guidelines, safeguarding legislation, and support for
the organisations working in this area.
14. The report did not make formal recommendations. However, it identified
some insights for government:
14.1. The most effective initiatives were flexible, delivered by a skilled
workforce, and responsive to individual needs.
14.2. Best practice, safe responses to AOP depend on specialist
organisations and practitioners having strong working relationships
and connections.
14.3. Future initiatives aiming to prevent AOP should consider and plan
for the scale of need within communities and the responsibility that
comes with starting work of this nature in communities.
14.4. More research and services are needed to ensure we are effectively
preventing AOP.
Findings and public release of research report – insights from the Elder Abuse Prevention Fund 4
Research implications
15. Given the limited research into AOP in New Zealand, including about what
works in initiatives aimed at preventing and responding to AOP, this report is
a small but notable contribution to the evidence base on this subject.
16. The findings increase our understanding of the characteristics of successful
initiatives in this area. They will help us make more informed funding
decisions, and also help inform sector knowledge and practice when
designing and developing new initiatives.
Next steps
17. We intend to publish the research report on the MSD and Office for Seniors
websites.
18. News about the publication will be shared through appropriate channels,
including MSD’s Family and Sexual Violence sector newsletter and through
the Office for Seniors stakeholder newsletter.
19. We will also share the research with key partners, both internal and external,
including Te Puna Aonui and the Ministry of Health.
Appendix
20. Appendix 1: Gathering insights from the Elder Abuse Prevention Fund
Author: Tim Foote, Senior Advisor, Social Action team
Responsible manager: Mark Henderson, General Manager, Safe, Strong Families
and Communities
Elder Abuse Prevention Fund, Learning and Insights Review | 1
Elder Abuse Prevention Fund, Learning and Insights Review | 2
Acknowledgements
We would like to thank the following people for their input and assistance to this project and the
preparation of this report:
• Rosie Anderson of the Office for Seniors and Tim Foote of Ministry of Social Development
for providing stewardship and oversight of this learning and insights review.
• All interviewees from the various organisations who participated in this review.
The review team were Amanda Hunter, Rachael Butler, Kellie Spee and Adrian Field.
Elder Abuse Prevention Fund, Learning and Insights Review | 3
Contents
Acknowledgements ................................................................................................................................. 2
Executive summary ................................................................................................................................. 4
Introduction ............................................................................................................................................ 6
Broader context for the review: Abuse of older people ....................................................................... 10
Identifying key areas of success ............................................................................................................ 12
Understanding challenges and lessons ................................................................................................. 18
Insights about abuse of older people ................................................................................................... 23
Conclusion ............................................................................................................................................. 34
References ............................................................................................................................................ 36
Appendix: Initiative summaries ............................................................................................................ 38
Elder Abuse Prevention Fund, Learning and Insights Review | 4
Executive summary
About the Elder Abuse Prevention Fund
Abuse of older people (also known as elder abuse) in New Zealand is an understudied issue, and
there is a lack of comprehensive research and public awareness regarding the mistreatment of older
people. The abuse of older people (AOP), encompassing various forms of physical, emotional,
financial, and psychological harm, and neglect, often remains hidden due to societal attitudes and
the covert nature of abuse.
In 2022, the Office for Seniors provided eleven one-off grants of up to $25,000 for initiatives aiming
to prevent the abuse of older people through the Elder Abuse Prevention Fund (EAPF).
About this review
The Ministry of Social Development commissioned this review to explore the learning and insights
from the initiatives that received funding from the EAPF. This review has gathered practice-based
insights and information contributing to the broader knowledge base to enhance understanding of
the scale, prevalence, and nature of the abuse of older people in New Zealand.
The project involved a review of relevant documentation and nine semi-structured interviews with
staff involved in the planning and implementation of the EAPF-funded initiatives (‘the participants’).
Summary of findings
Participants reported several aspects that worked well:
• Most were successful in engaging older people in their communities to take up their services
and participate in their research.
• Establishing and building trusting relationships with older people was viewed as having
worked well, with the subsequent disclosures of abuse or general help seeking which
eventuated from this viewed as an indication of its success.
• Clear communication regarding confidentiality, thoughtful service design and collaborative
whānau-centred approaches were identified as key in supporting this work.
• Having skilled, diverse networks to draw on and competent and well-resourced staff were
central to the success and safety of the initiatives.
Participants reported several challenges they faced in the delivery of the initiatives:
• A significant challenge for many organisations was the unearthing of considerable demand in
communities. Organisations felt a responsibility to continue addressing these needs;
however, this was typically above and beyond what the funding could support.
• EAPF initiatives highlighted gaps in organisations’ networks – particularly in regard to
services.
• The nature of the abuse of older people itself contributes to this being a difficult space to
work in. Complex family dynamics and the hidden and stigmatised nature of abuse means
the work is labour intensive, time consuming, and requires specific, specialist skills.
Participants shared the knowledge they gained about the abuse of older people and the broader
sector challenges in addressing this issue in New Zealand. Several risk factors and drivers of abuse
Elder Abuse Prevention Fund, Learning and Insights Review | 5
were identified by participants through the process, including social isolation and loneliness, poverty
and housing insecurity/unaffordability, the limited capacity and heightened vulnerability of older
people, the covert and hidden nature of abuse and the complexity of perpetrator intent.
Participants also identified systemic challenges that can make addressing the issue of AOP
challenging, including broad definitions of abuse, limited reporting frameworks, and a lack of
safeguarding legislation, as well as insufficient research, statistics, and information sharing in the
sector.
Significantly, participants in the review highlighted the value they gained from being able to initiate
activity through the EAPF, and that their initiatives uncovered a substantial scale of need in this
space. The initiatives funded by the EAPF have made an important contribution to older
communities and a developing field of research in New Zealand.
Elder Abuse Prevention Fund, Learning and Insights Review | 6
Introduction
About the Elder Abuse Prevention Fund
In 2022, the Elder Abuse Prevention Fund (EAPF) provided one-off grants of up to $25,000 to
initiatives aiming to prevent the abuse of older people (AOP). The fund was administered by the
Office for Seniors, with funding for the 2022 round provided by Te Puna Aonui (the Executive Board
for the Elimination of Family Violence and Sexual Violence).
The 2022 funding round prioritised grassroots initiatives and organisations that do not typically work
in the abuse of older people prevention field, alongside initiatives targeting diverse communities
(e.g., rainbow, disabled or Māori). Eleven unique initiatives of varying type, size and scope received
funding through the EAPF1.
Overview of funded initiatives
Nine EAPF funded initiatives participated in this review. Participation was voluntary – see ‘Approach
and methodology’ in this section. A summary of each initiative has been provided below, with a
more detailed overview included in the appendix to this report.
Initiative one: Elder abuse education workshops (Family Focus)
Initiative One delivered a series of educational sessions for older individuals which were followed by
a recreational activity to reinforce learning. Sessions covered topics such as best practice Enduring
Power of Attorney services (EPOA’s), safety planning for later life and financial mentoring, as well as
guest facilitated talks with organisations such as the Citizens Advice Bureau, Age Concern, Work and
Income New Zealand and Grandparents Raising Grandchildren.
Initiative two: Uplifting takatāpui and rainbow elder Voices: Tukua kia tū takitahi ngā
whetū o te rangi (Hohou te Rongo Kahukura)
Initiative Two looked to bring visibility to the experiences and stories of takatāpui and rainbow
elders after finding that research in this area was limited. This research initiative explored the
contexts of discrimination on the lives of these older individuals through a survey and a series of in-
depth interviews. The survey, which was distributed and promoted widely across New Zealand,
received 424 valid responses. The project produced a final report which is available online2.
Initiative three: Senior care advocacy support (Manchester House)
Initiative Three involved establishing a Senior Care Advocate role in an existing senior hub setting.
The position was shared by two staff members who each dedicated eight hours a week to the role.
The Senior Care Advocates provided one-on-one advocacy and support for older people with unmet
needs and acted as a conduit to specialist service agencies who provided assistance as required.
Initiative four: Enduring power of attorney support (Porirua Kāpiti Community Law
Centre)
Porirua Kāpiti Community Law Centre had previous experience providing educational seminars
within their community and recognised an opportunity to expand these to the wider Wellington
region. Seminars were developed to include an in-depth focus on enduring power of attorney
1 The details of all Elder Abuse Prevention Fund initiatives are available on the Office for Seniors website. See:
Elder Abuse Prevention Fund | Te Tari Kaumātua (officeforseniors.govt.nz)
2 The report and documentation are available on the website of Hohou te Rongo Kahukura: Uplifting Takatāpui
and Rainbow Elder Voices | Hohou Te Rongo Kahukura
Elder Abuse Prevention Fund, Learning and Insights Review | 7
(EPOA) processes and the abuse of older people. The initiative raised awareness of the abuse of
older people, emphasised the importance of having a well-drafted EPOAs and educated older people
on best-practice EPOA selection and process. As a result of the initiative, a large number of
applications for EPOA and Welfare Guardianship’s were generated in the community, free of charge
to older people.
Initiative Five: Kaumātua peer-support (Te Ahi Kaa)
Initiative Five developed out of an observed increased risk of abuse situations for kaumātua after the
COVID-19 lockdowns. The project involved raising awareness of the abuse of older people in a one-
on-one and a community-based setting, with a specific focus on financial abuse. Topics ranged from
keeping safe online to engaging with whānau to increase understanding of kaumātua abuse and how
to keep each other safe. Following awareness raising, Te Ahi Kaa experienced an increase of requests
for support from kaumātua and their whānau.
Initiative Six: Home support community advocate (Wesley Community Action)
Initiative Six recognised a need for intensive support for older people with unmet needs in the
community. Wesley Community Action saw a gap between long term needs of older people which
could require intensive support and what homecare support agencies are able to provide. The
organisation has witnessed through their own work in this area that when the basic needs of older
people are not met, they can put themselves in vulnerable situations to meet these needs (for
example, providing personal and/or confidential details to others in setting up online banking).
Addressing these needs as they arise was seen to be an important part of the prevention of abuse of
older people.
Initiative Seven: interRAI3 screening research (University of Otago)
Initiative Seven brought together clinical experience in acute inpatient psychogeriatric care and
biostatistician expertise to review the way that the interRAI needs assessment tool screens for
potential abuse of older people. The initiative recognised the interRAI as an opportunity to start
learning about the abuse of older people in New Zealand as it is mandatory and consistently used in
several environments and provides digitally available data for analysis. However, the tool has been
shown by this group’s research to be under-reporting potential cases of abuse. Initiative Seven
manipulated the algorithm of the interRAI to become more sensitive to potential abuse, without
changing the tool itself. The new algorithm increased the flag rate for potential abuse from 2.5% to
5.9%, which has the potential to have far-reaching, positive implications for a large number of older
adults if further research supports this strategy.
Initiative Eight: Technology-facilitated connection (Kilbirnie Lyall Bay Community
Centre)
Initiative Eight involved establishing a new space within an existing community centre where online
conversations could be facilitated between older people and their loved ones. The converted storage
room was a private space that could be booked out for this purpose, but also doubled as an area
where members of the community could speak with centre staff confidentially about potentially
abusive situations or experiences. Members of staff listened to them and let them know about the
help available to them, including the Elder Abuse helpline. The space was fully booked out during the
funded period and proved to be very popular among older people who enjoyed being able to
3 InterRAI is a suite of clinical assessment instruments. It is developed by interRAI™, an international
consortium of experts, and licensed for use in New Zealand by interRAI Services, part of Te Whatu Ora - Health
New Zealand. InterRAI is mandatory in aged residential care and home and community services for older
people living in the community.
Elder Abuse Prevention Fund, Learning and Insights Review | 8
connect with friends and family who they were unable to see in person due to international distance
and mobility issues.
Initiative Nine: Research with Chinese and Afghan communities (Age Concern
Waikato)
Initiative Nine identified a gap in available data and the published literature regarding the
experiences of older migrants and former refugees in relation to abuse and undertook research to
address this. This included a series of focus groups and semi-structured interviews and incorporated
the use of a validated tool to structure discussions - these included members of the Chinese
community and the Afghan community. Central to the success and safety of the programme was the
use of a professional interpreting service to ensure that the translations accurately conveyed
meaning and concepts.
Purpose of this learning and insights review
The Ministry of Social Development, in partnership with the Office for Seniors, commissioned this
review to gather learning and insights from initiatives funded from the EAPF.
There were two primary areas for insight gathering:
• Practice-based insights: Understanding what providers have learned about preventing
abuse of older people through their initiatives. This included exploring what worked well,
what challenges providers faced, how initiatives developed or changed over the course of
the year, what would be needed to scale the initiatives, and ideas on suggestions for how to
best connect others working in the field.
• Contribution to the broader knowledge base: Given how little is known about the abuse of
older people, this aspect of the review sought to share insights into the scale, prevalence,
and nature of the abuse of older people in Aotearoa New Zealand.
Approach and methodology
The methodology and approach for this learning and insights review was designed in collaboration
with the Ministry of Social Development and the Office for Seniors.
This included:
• A brief review of available literature: A brief review was carried out to summarise some of
the key knowledge areas of AOP and to situate this learning and insights review in what is
currently known about this issue. An extensive review of the existing literature was out of
scope of this learning and insights activity.
• Document review: A review of relevant material from each of the initiatives was carried out
to provide context for evaluation design and semi-structured interviews. A total of 37
documents were provided by the Office for Seniors with permission from relevant grantees.
These included grant proposals, initiative plans and accountability reports for each initiative.
• Semi-structured interviews: The eleven initiatives that received funding through the EAPF
were invited to participate in a one-hour semi-structured interview. Of these, nine chose to
take part.
o Participants: Each initiative nominated between one and two interview participants
based on availability and involvement in the initiative. Most interview participants
Elder Abuse Prevention Fund, Learning and Insights Review | 9
were involved in the management of the initiatives or in a frontline capacity. In the
case of one interview, the two participants both held strategic roles within their
organisation. One initiative utilised a kaupapa Māori approach to working with older
people and this interview was conducted by a Kaupapa Māori research and
evaluation specialist.
o Interview format: Participants were invited to take part either online or in person.
All nine opted to participate online. The interviews were, on average, one-hour in
length and took place in August and September 2023. Interviews were recorded,
with permission, and transcribed through a private transcription service.
o Analysis: A thematic analysis of the qualitative data was undertaken. This method is
used to systematically explore, identify, and map out themes. The approach taken
followed a process of familiarisation with the interview data; generating initial
codes; searching for themes; reviewing and mapping themes; defining and naming
themes; and reporting.
o Interview participation ethical considerations: Participation in the review was
optional. Research participants chose to participate, having been informed in writing
of the learning and insights review objectives and their involvement in it.
Participants signed a consent form prior to taking part in an interview.
o Reporting: General themes are reported anonymously, but participants have given
specific permission to include the name of their organisation with a summary of the
initiatives carried out. Quotes from interviews have been used to support themes
where appropriate, and in instances where interviewees have drawn on client
stories these have been included separately.
Independent ethics approval was sought from and approved by the Aotearoa Research Ethics
Committee (AREC). This was to ensure that the research design was ethically sound, that the review
adhered to rigorous ethical standards, and that any potential risks to the initiative and to
participants were minimised. Approval ID: ARECC23_28.
Elder Abuse Prevention Fund, Learning and Insights Review | 10
Broader context for the review: Abuse of older people
This section briefly summarises some of the key knowledge areas of AOP to situate this learning and
insights review in what is currently known about this issue internationally and in Aotearoa New
Zealand. For a comprehensive literature scan on the prevention of AOP, please see: Hynds and
Leonard (2023).
The abuse of older people in New Zealand is an understudied area and there is a lack of
comprehensive research and public awareness regarding the mistreatment of older individuals. This
form of abuse encompasses physical, emotional, financial, and psychological harm, and neglect, and
it often remains hidden due to societal attitudes and the covert nature of abuse.
Drivers of the abuse of older people
The drivers of the abuse of older people are often interconnected and can be influenced by
individual, relational, societal, and structural dynamics. Some key drivers of the AOP noted in the
literature are:
• Caregiver stress and burnout: Family members and caregivers responsible for the care of
older individuals may experience stress, burnout, and emotional strain, which can lead to
abusive behaviours (Ministry of Social Development, 2019; Woodhead, 2018).
• Dependency and power imbalance: The abuse of older people can stem from imbalanced
power dynamics, where older adults depend on others for care and support. Individuals can
seek to exert control and exploit this dependency (Spangler & Brand, 2007; Lin & Giles,
2013).
• Health issues and cognitive impairment: Physical and mental health issues, including
cognitive impairment, such as dementia, and decreased mobility can increase vulnerability
to abuse (Păroşanu, 2017).
• Isolation and loneliness: Social isolation and loneliness can increase the risk of AOP. Older
individuals who lack social connections may be more susceptible to abuse, as they have
fewer people to detect and report mistreatment (Park, 2014; Ministry of Social
Development, 2019).
• Socio-economic conditions: Poverty and financial hardship of older people and/or their
family members are key risk factors in abuse (Boon-Nanai et al., 2022; Gray, LaBore, &
Carter, 2021).
• Healthcare and caregiver training: Inadequate training of healthcare professionals and
caregivers can result in suboptimal care and, in some cases, abusive behaviours (Tough,
Brinkhof, & Fekete, 2022).
Abuse of older Māori
AOP is a significant concern that impacts on older people across New Zealand regardless of ethnicity.
Research into the abuse of older people in Māori communities is an evolving field, and efforts are
being made to better understand the unique challenges and opportunities for prevention in this
space. While research on the abuse of older Māori is still limited, there are some trends and
considerations that have been reported in the literature:
• Colonisation and racism: Experiences of colonisation and cultural dislocation have had
lasting effects on Māori communities, potentially influencing family dynamics and
Elder Abuse Prevention Fund, Learning and Insights Review | 11
contributing to stressors that can lead to the abuse of older people. Racism, negative
stereotypes, and discrimination are clearly evident in social service and health provision for
older Māori people (Savage et al., 2020; Waitangi Tribunal, 2019; Ryan, Grey, & Mischiewski,
2019). It has been acknowledged in the literature that and definitions and approaches to
family violence (which can include AOP) need to include analysis of the impacts of structural
factors like colonisation and racism (Te Puni Kōkiri, 2010). Culturally specific interventions
and supports should reflect the lived experiences of Māori, the importance of whānau, and
how they may have become disconnected from culture, language, and identity (Hokowhitu
et al., 2020).
• Whānau, hapū and iwi: Whānau, hapū and iwi connections are central to Māoritanga.
Within te ao Māori, relationships and interconnectedness extend beyond whānau to include
hapū and iwi. As Māori whakapapa is central to belonging and identity, these connections
can act both as protective factors against the abuse of older people and as potential sources
of abuse, depending on the dynamics within a particular family or community. Cultural
norms and values can also influence how Māori elders are cared for and respected. Māori
researchers have previously acknowledged that a failure to understand the broad nature of
whānau can inevitably lead to the failure of family violence prevention efforts (Cooper,
2012).
Gaps
The literature on the abuse of older people, both internationally and in New Zealand, has
considerable gaps or limitations, some of which include:
• There is no international consistency in definitions and measurements adopted: There is
still a lack of consensus on the precise definition of AOP and consistent measurement
methods across different countries. This hampers accurate cross-country comparisons and
the development of universally applicable prevention strategies (Gholipour et al., 2020).
• AOP is likely under-reported: AOP remains underreported, mainly due to factors such as
shame, fear, cognitive impairment, and lack of awareness. Understanding the true scale and
nature of the abuse of older people is challenging due to its hidden nature and inconsistent
data (Te Aorerekura, 2022; Ministry of Social Development, 2020; 2019; Păroşanu, 2017;
Hall et al., 2022).
• Understanding of the impact of abuse on intersectional older individuals is limited: There
is a need for more research that focuses on specific populations of older adults who are at
greater risk of abuse due to factors such as ethnicity, sexual orientation, gender identity,
disability, or immigration status (Finnegan, 2022; Morrissey et al., 2021).
• Cultural and indigenous perspectives: Despite growing recognition of the unique
experiences and needs of older Māori and Pacific peoples, there is a lack of research on
culturally embedded, collective care models to prevent and/or address the abuse of older
people (Hokowhitu et al., 2020).
Elder Abuse Prevention Fund, Learning and Insights Review | 12
Identifying key areas of success
This review sought to understand key areas of success across the range of initiatives and explore the
factors that contributed to this. There were three areas which the majority of initiatives described as
working well, as summarised below:
Initiatives achieved high engagement and participation from older people
In service-based and research-based initiatives, engaging older individuals to participate in
programme activities, services, and research was crucial. Many participants reported success in this
area and provided valuable insights into how they effectively engaged older people at the beginning
of their initiatives.
Accessibility of services is a practical consideration that can significantly impact on
the engagement of older people
Ensuring services were accessible to older people was essential for supporting and maintaining
engagement through the various initiatives. Reduced mobility and driving restrictions meant
transportation was a barrier to engagement for many older people. Participants explained that
initiatives carefully selected the location of services to enable accessibility. One initiative provided
transportation to and from the venue and others delivered services in older people’s homes.
Another participant spoke about moving the location around in future so that venues would be
closer to older adults, increasing the accessibility of the initiative.
Two participants emphasised accessibility for older individuals with specific needs and disabilities.
This included addressing mobility concerns with access and egress in buildings and implementing
technology options for those with hearing impairments. Additionally, providing services at no cost to
older individuals and accommodating English as a second language were identified as ways to ensure
the accessibility of services.
“Accessibility is a big one here. That can be accessibility of the building but also of
maneuvering around physically or getting to somewhere - that stops a lot of
people getting places and getting things and getting experiences.”
Initiatives achieved high engagement and participation from older people
Initiatives were able to quickly build trust with older people
Initiatives had access to skills and knowledge to support disclosures of abuse
Most initiatives were successful in engaging older people and succeeded in doing so by
ensuring services were accessible and promoting them through networks.
Many of the initiatives successfully built high-trust relationships with older people in their
communities.
Many of the service-based initiatives resulted in disclosures of abuse and were able to tap
into specialist organisations and internal expertise to appropriately manage disclosures.
Elder Abuse Prevention Fund, Learning and Insights Review | 13
“We have a lot of people that have disabilities. Some are profoundly deaf, and we
sign, but we also have two hearing aids, so getting good earphones that go over
those. All the little thoughtful things that increase the experience for our people.”
Promotion and recruitment of elder abuse initiatives can require innovative and
creative approaches to achieve engagement
The sensitive nature of AOP meant initiatives had to be creative in promoting their services and
recruiting project-participants. When speaking about engaging older people, one participant advised
“You can’t just put a full-page ad in the paper,” and another asked “If I had said ‘we’re having a
meeting about senior abuse’, can you imagine the attendance?”. To overcome this, various
approaches were taken to promote engagement. Word of mouth proved to be a powerful tool for
some, while others leveraged new and existing networks to extend their reach.
“It was more word of mouth. In a group of 71 people, those 71 people go out and
tell 10 people. People are actually rocking up here now and are coming
specifically to see someone.”
“We went really hard at getting it out and about in the world. We asked libraries
all over the country to put up posters in their libraries and they did. We worked
with other organisations who put out material through their national newsletter,
they put out material through their legal magazines. Their elder abuse champion
went around the country putting posters up for us everywhere. We ended up
having more than 450 responses, which we were absolutely thrilled with.”
Participants spoke about how conversations about the abuse of older people can be confronting. In
overcoming this, initiatives included information and services about the abuse of older people as
part of a broader offering to generate interest. One initiative, for example, included activities such as
pot planting and flax weaving to bring levity to the topic. Another offered free legal services and
included information on the abuse of older people as part of these seminars. Leveraging the existing
trust felt towards community hubs was seen as another way to support engagement without having
to specifically cite the prevention of the abuse of older people as the primary reason for the service.
“We need a connected service, like the Hub, because we have like something cheery to give
them and then you can get in on the end of that you can talk about the elder abuse.”
Initiatives were able to quickly build trust with older people
Following initial engagement of older individuals, building high-trust relationships was seen to be an
important next step. Some initiatives were able to leverage existing relationships and to work with
older individuals and have conversations about AOP – which can be a difficult topic for many due to
its stigmatised nature. Other initiatives that did not have pre-existing relationships within their
communities were able to share insights into how they were able to quickly build trust and rapport.
Existing relationships with community members allowed organisations to rapidly
establish AOP interventions
Some organisations had pre-existing relationships with community members, which allowed them to
quickly build rapport and begin having sensitive conversations about AOP. This could be either
Elder Abuse Prevention Fund, Learning and Insights Review | 14
through direct relationships or the trust built in existing community services and hubs. The existing
relationships of organisations were important for the success of initiatives like this, which required
rapid set-up and implementation.
“We have those relationships; it would have been very difficult and it’s probably
not a project I would have attempted to start had we not had that ground-level
already. I know in this job what people share with me - which is a lot of the time
very personal - is because they’ve known me for so long and I’ve been here
consistently.”
Creating confidential and anonymous services meant that older people felt
comfortable to have sensitive conversations
For initiatives carried out by organisations that did not have pre-existing, high-trust relationships
with older people in their communities, there was a need to build trust in other ways. Many
participants referenced confidentiality and anonymity of services as essential to this. One initiative
kept the confidentiality rules on the door of one of their rooms so that individuals could understand
the process before reaching out for a conversation. Others used forms at the beginning of a
conversation to clarify client and staff expectations.
“Before we started seeing clients, we formulated intake forms and confidentiality
forms. They need to know that that's done in a confidential way and all the
information is held securely - that's quite a big thing to build the trust. The people
that I've seen, it's building that relationship and getting the information. You're
not going to get that information unless you've got that trust and this is how we
build the trust by saying your files are locked away in a cabinet, only I can get to
them.”
Designing and co-designing services that incorporate a range of activities and
information can support buy-in and trust
Participants found service design was influential in establishing trusting relationships with older
people, particularly when discussing a potentially confronting topic like abuse. One participant spoke
about designing daily workshops with an education component and a lighter activity. Another
initiative introduced general information before delving into the topic of abuse. Participants also
noted how language was important in building trust when speaking about the abuse of older people.
For one initiative this meant changing the language from abuse to “elder harm”, as softer language
was more approachable.
“I manned the table at an expo in elder abuse and I just noticed a real difference
between [our] table and the elder abuse table. People’s faces just went from
“Wow this is really interesting, I might want to do that,” to “I don't actually want
to know too much about this.” So, we decided it would be better to term it elder
harm because it just seems to be less confronting.”
Some participants also spoke about involving older people in the design of services and allowing
them to drive the direction and development process to create buy-in and trust. For one initiative
this meant having older people deliver the programmes, and for another it meant being flexible to
the needs of communities and being willing to make changes when something wasn’t working.
Elder Abuse Prevention Fund, Learning and Insights Review | 15
“I was really proud of how it developed because we are community pushed and
community developed and it’s not always the vision I have in my head, and I’m
like okay, this is how it’s going, they’re all pushing in this direction, I’ll go with
that, and we’ll just see how it goes and we’ll tweak it as we go long. So that’s kind
of how this project also went as well.”
Initiatives had access to skills and knowledge to support disclosures of abuse
Although the project focus of the initiatives was on primary prevention, many of the service-based
initiatives resulted in disclosures of abuse and help-seeking from older individuals. Participants
viewed this as an indication that they had successfully fostered trust and promoted education and
awareness in older communities. Having access to expert skills and knowledge – either externally or
within initiative organisations – meant that staff from the initiatives felt able to respond
appropriately in instances where abuse was disclosed.
Relationships with specialist service providers in the wider network supported
appropriate responses and referrals
Many organisations designed their initiatives to support primary prevention, so having relationships
with specialist providers with the appropriate skills and knowledge to support disclosures was vital.
In some cases, this meant seeking out advice to support an individual with a disclosure. In other
cases, this meant making referrals to appropriate support to meet the needs of the older person.
“I have really good relationships with our local Police, so I use them all the time
and that's been a big help. With my job in the past, I've always connected with
social workers and so when I've had issues I often turn to people and say, “Hey
this is the situation, what would you do, what could I try, how can I get through
this, what can I do with this person or this behaviour?”
“I’m not going to go to someone’s house that I do not know, I am not trained in
that, I am not a specialist in that. There’s lots of people out there who have
amazing training and are experts in their field and we pull on them all the time in
our job. I get really good at getting to know people and going ‘This is when I need
a bit of help from you’, because it’s interesting learning but it’s also got to be the
best for the person that you’re providing the care for.”
One participant described having extremely passionate staff willing to go the extra mile to support
someone who had made a disclosure of abuse or was seeking help; however, it was seen to be
“I came into work a couple of weeks back and I had a chap sleeping in our foyer and he just needed
some information, but I start work at eight o'clock in the morning. It was freezing and he had spent
the night sleeping in the foyer. That should not happen. He was probably about nearly 70 years old,
and he’d had an argument with his sister, and he had nowhere to go. So that's again the connection
of the service, knowing that this place is here and a little bit of help”.
Client Example: Leveraging existing relationships and trust in community
Elder Abuse Prevention Fund, Learning and Insights Review | 16
important to engage people who are qualified and skilled in this space to ensure the safety of older
people and staff. Having strong networks in place to support disclosures of abuse was seen to assist
staff to maintain professional boundaries as they knew any referrals made would be handled by
specialists and the older people would get the support they needed.
“They're nice people in my team and they want to help. I’m like that as well but
there are some areas and there's sometimes when it’s a no, I’m sorry that’s not
something that I do working here. So that’s been an interesting learning curve for
the team, learning those lines.”
A broader outcome of the EAPF was the opportunity it provided for initiative staff to link with other
organisations working in the field, with several participants reporting stronger sector connections as
a result of participating in the fund. They spoke about the ongoing impact this would have for their
organisations in terms of being able to support older people in their communities.
“It's all intertwined, more so now than it has been. I mean the role has allowed us
to get closer to the other agencies. We've done a lot of networking. That was
needed to get referrals and so forth and just to raise people’s awareness about
the role.”
Initiatives utilised the distinct knowledge and skills sets of internal staff to achieve
outcomes for older people
Participants identified the importance of a skilled, competent, and well-equipped workforce to
respond to the unique nature of this work and the vulnerability of older people. Participants
emphasised the importance of practical skills, emotional intelligence, patience, and life experience
to ensure staff can relate to and attend to the unique needs of older people.
“We hired a support worker that was very skilled, emotionally intelligent and life
wise, knew the processes of selling a house and what it would take, understood
the processes of helping someone moving into care.”
“We have a social worker who’s a kaumātua, who’s also very well connected to
our kaumātua. She is of retirement age but she's like ‘I'm not retiring’. But it
means we have this connection to our kaumātua because the other challenge for
us is, in terms of our tikanga, how is it that we as a rangatahi in the eyes of our
kaumātua, to sit in front of them and have these conversations.”
Some participants highlighted how, as a result of the funding, their organisations were better
equipped to support older people in future work. This included one participant who highlighted how
their staff now had a better understanding of working with older people, and teams within their
organisation are working more closely together as a result. Given staff and skill shortages in this
sector, they saw this as an important outcome.
“Now there is an awareness when we're going into homes, we're checking are
there older people in there that we might not know about and being able to check
on their welfare. It certainly brought that team alongside the elder abuse service.
The rest of the team has a much better understanding of working with older
people, which I think is really important.”
Elder Abuse Prevention Fund, Learning and Insights Review | 17
For two initiatives, drawing on the knowledge and skills of individuals and collectives beyond core
staff members was an important tool in the primary prevention of AOP. This included having a
kaumātua governance board and “elder advisors” involved in the planning and implementation of
the initiatives and providing an ongoing vision for the initiatives. For these providers, pulling in
knowledgeable and skilled people was non-negotiable.
“We went back to all of the elder advisors and checked in with them they said we
don't just want something to read from this, we want to hear elders’ voices. It
was totally beautiful and not something I would have thought of myself at all,
which is the benefit of many voices.”
“Hundreds of people are responsible for this. I'm the one that gets to talk to you
about it today but actually when I look at all of the whānau that have gotten us
to this point and actually been a part of the kaupapa, it doesn't even just take a
village, it takes an iwi to get this to a place where we are today.”
Elder Abuse Prevention Fund, Learning and Insights Review | 18
Understanding challenges and lessons
This review sought to understand the key challenges that organisations came up against in designing
and implementing EAPF initiatives. This section summarises some of the common challenges
experienced by organisations, as well as the insights gained in overcoming these. There were three
areas which the majority of participants described experiencing challenges and learning lessons for
similar initiative design and implementation in future:
The initiatives demonstrated the need for ongoing AOP services and research
The initiatives generated through the EAPF were designed to plug a gap in AOP service provision and
research. A concern for many participants was that the needs identified in older communities were
greater than they had expected, and without sustainable, ongoing funding for these or similar
initiatives these would remain unaddressed in the long term.
Initiatives unearthed a high level of need in communities, which organisations felt a
responsibility to address
During interviews, participants expressed their gratitude for the opportunity to participate in the
EAPF funding round. However, many found it difficult to balance community needs with the funding
duration as the demand they unearthed in communities was larger than expected and required
more resources to address. Participants felt a responsibility to their communities to continue
addressing the demand beyond the funding end-date.
“Whenever you go for a grant, what happens is that grants aren't sustainable.
You kind of opened a wound and then if you think you're good enough to open it,
then you damn well better be good enough to follow it through because our
whānau deserve that. Even though the grant and the funding and all of that has
stopped, it's become a core part of what we do, and we just do it. It is challenging
because we are holding a social worker, but we don't get pūtea for that social
worker, we have to find it in other spaces.”
A lack of existing community services in communities, and extremely passionate teams, meant some
initiatives took on work outside of the funding scope. While some saw this as a positive, others
The initiatives demonstrated the need for ongoing AOP services and research
Knowledge and skill gaps within the broader network of AOP organisations
AOP responses require individualised and resource intensive work
While initiatives appreciated the resourcing they received, they also found demand often
outstripped ability to deliver and created a responsibility on providers to plug existing gaps.
Building and deepening network connections went well in the initiatives, but also
highlighted gaps in services and connections.
Participants spoke about the intersection of complex family dynamics and the drivers of
abuse. This work requires sensitivity and resource-intensive, individualised responses.
Elder Abuse Prevention Fund, Learning and Insights Review | 19
acknowledged the challenge of balancing worker wellbeing with community need in social service-
based environments.
“I think when there's nothing, you try to make the space as big as possible. So we
have flogged ourselves with this project, honestly, because we wanted to make it
as big an opportunity as we possibly could. There's been lots and lots of voluntary
love given by our members and we’re basically 100% in love with this project and
so we’ve done so much beyond what we probably have been resourced to do to
make it work.”
“Their hauora, their wellbeing is very important to me. It's my priority. We have a
staff member in today, it's her day off, and I'm like ‘You're lucky I'm in a hui, when
I get out of this hui you better be gone,’ because it's about her wellbeing and
that's so important to us. I do notice that other providers, their staff are so run-
ragged. And that's not through any fault of the provider or themselves in most
situations, it's because of the passion and there's just not enough to go around.”
The needs of older people will remain unaddressed without sustainably funded
initiatives like those generated through the EAPF.
Participants emphasised how their work helped fill identified community needs and gaps. Without a
sustainable service, they expressed concern these gaps would remain unaddressed. Some noted the
conclusion of their work would affect clients who had come to rely on their support, as well as
network members who had established relationships based on mutual support and referrals.
“It created a demand that actually outstripped our ability to provide the service
and the funding was time limited. We've got all these social workers in hospitals
that think that there's the service and so I'm having to manage that, which is fine
but benefit of hindsight, we would have been clear upfront that this was a one-
year thing.”
“It's a fear, you now have people that are coming here specifically or calling
specifically for this and it's almost like a trust thing. How can you offer a valuable
service for a year and then you're not there the next year? How do people put
their faith in anything like that?”
Participants also highlighted the high level of upfront work required to develop forms, policies, and
other specific materials, alongside the investment of time and effort in developing networks and
trusting relationships with older people in the community. Some were concerned this work will have
been for nothing if initiatives cannot secure ongoing funding.
“You're sitting on tenterhooks and you're waiting to see. You're committing 100%
but you start thinking to yourself well gosh if this is ripped out from underneath
us, we've done all of this for it to go, and that is that.”
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Knowledge and skill gaps within the broader network of AOP organisations
As highlighted previously, participants emphasised how critical developing and deepening of
network connections was for initiative success. This work supported organisations to build those
connections and networks in the sector, and highlighted service availability and resource gaps.
However, some participants noted the gaps they could see in their communities, specifically in
primary care, to ensure older people’s needs are met.
“In between those attempts to support people in the home, there's enormous
yawning gaps. If someone's struggling with mobility or with cognition and they
need new clothes, who does that? If someone’s heater is broken, how do you get
it fixed? If the house is getting really cluttered and difficult, who does that? And
there's all these things that it's no one’s job to do.”
Limited referral options sometimes presented a challenge for service initiatives which came across
disclosures or help-seeking in their work. One participant referred to service availability as a “post-
code lottery” that impacts the types and amount of support older people can access. Several
participants identified emergency housing for older people experiencing abuse as a specific service
gap.
“Where is their emergency housing? It's not appropriate for older people to be
just chucked in, we have like a building and motel, they don't feel safe. So how do
we get them to a place of safety? They are similar to children. Imagine pulling a
child out of an abusive home and just putting them in a place all by themselves…
the older people have the same anxiety and fears, when you remove them from
the perpetrator.”
One participant shared that some services in the community have limited experience and knowledge
in working with specific groups of older people, and this can cause harm to older people or limit
referral options. This participant found some organisations working with older communities were
not interested in engaging on the topic of abuse as it related to the specific demographics they
worked with in New Zealand. There was also a sense that those willing to engage may not currently
have the skills or resources they need to work safely in this space yet.
“We’ve had fantastic support from some organisations at a national level and
fantastic engagement from lots of older person services we’ve reached out to.
We’ve also had groups point blank say ‘Nah, none of that here thanks.’ One of the
most well-known older persons associations in New Zealand, point blank told us
that they didn't have any gays and lesbians - I think was the word they used - in
the organisation, which seemed surprising to me but there's been a bit of that.”
“There was a 68-year-old woman who was being abused, she was living in a home with her
brother-in-law. She has been beaten and it was not safe for her to go home and so our staff
have to organise accommodation for her. She didn't want to return, she had no clothing,
nothing. A challenge in that particular situation is there is no emergency housing for older
people. Because she was battered and bruised, we had to take her to the emergency
department and thankfully the hospital took her.”
Client Example: Emergency housing gaps
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AOP responses require individualised and resource intensive work
One of the main challenges of the funded work was the labour-intensive and time-consuming nature
of AOP prevention efforts. These included activities such as traveling to meet clients at various
locations, including their homes, coordinating volunteers and transport to support those with
mobility or transport challenges, shopping, decluttering homes, and working with extended family
networks who were sometimes busy or non-responsive. Participants acknowledged that building
trust with older people, particularly in initiatives that work in primary prevention by addressing
unmet needs, can be very time consuming as well.
“It’s been working really well but that takes 1.5 FTEs, a pool of about 15
volunteers, a venue, a van plus volunteers transporting other people in their cars.
This stuff is resource intensive, it just is. You can't do it on a shoestring. You can't
declutter on a shoestring, you can't do shopping support on a shoestring, none of
those are short things, they're all quite involved, complex tasks and they take
time.”
Participants also spoke to the sensitive nature of work in AOP, and the individualised responses
needed to support older people, emphasising they are not a homogenous group. It was highlighted
that prevention or intervention efforts with this demographic typically necessitate personalised
responses that take into account their unique socio-economic, social, and cultural needs. Family
dynamics, particularly when working with those with complex conflicts, was seen to be a difficult
area to navigate that required specific skills and bespoke approaches.
“We get families in chaos and families in conflict, and we get perpetrators of
abuse ringing up and crying that other people are perpetrating abuse in the same
family. That could be because they don't know that that's what they're doing, it
could be partially because the whole family dynamics are really toxic, and this is
just decades of chaos now being wreaked with an older, vulnerable person. The
level of skill you need to respond in a family of chaos like that is really high, really,
really high.”
When working with whānau Māori, whānau-centred approaches also required specific skills,
knowledge, and understanding. A participant spoke about the length of time it could take to work
with whānau in abusive situations, advising it could take weeks to support and ensure the safety of
the entire whānau. The process of “really pulling things apart and ensuring every person in that
whānau connected into that whānau, got the supports that they needed” along with the in-depth
nature of kaupapa Māori approaches, meant this work could be very labour-intensive.
“There's all these dynamics within Māori that we have to be aware of. We have
to balance, that tauiwi providers are not held to the same standard I guess and
there's a really good reason why and we should be able to do that. But it means
it's longer, it's longer, we're not recognised that, we're recognised as apples for
apples. While you get given this amount, they get given this amount and it's like
yeah but you're ultimately comparing apples to pineapples. The work we do is so
much more in-depth, we have so many more layers to it, there's so much more
consideration and balancing of how and why we do things.”
Elder Abuse Prevention Fund, Learning and Insights Review | 22
in that space and that's a really long task and it takes a lot of
“It’s a really long task and it takes a lot of patience to sit with someone while they go through
one box at a time and decide they want to keep three quarters of the contents of that box and
then where are we going to put it. This woman, everywhere she walked it was a trip hazard and
she felt emotionally overwhelmed by it all. She didn't actually have a hoarding disorder; she had
packed up a bigger house to move to a smaller house as she aged and didn't know what to do
with everything that she had left over. Our support worker was able to sit with her for hours
and hours and hours. I think it took about three months’ worth of work for him and he would
spend three, four hours at a time with her. It really changed her life. Unless you've got lots of
money or unless you've got a highly skilled, trained person who can sit with them for the many
hours it takes, there is no funded support for those people.
Client Example: Primary prevention in cluttered homes
Elder Abuse Prevention Fund, Learning and Insights Review | 23
Insights about abuse of older people
Participants provided insights into the abuse of older people gained from their work and experiences
during the EAPF initiatives. These included insights into the risk factors and drivers of abuse, the
challenges faced in addressing this specific type of abuse, and the abuse of Māori kaumātua. Insights
about the abuse of older people are presented within the following categories:
Risk factors and drivers of abuse of older people
Participants provided broader insights into the risk factors and drivers of abuse they have observed
within their communities. These included:
• Social isolation and loneliness.
• Poverty and housing.
• Limited capacity and heightened vulnerability.
• The covert nature of abuse.
• The complexity of intent.
Social isolation and loneliness
Many participants were surprised by the number of older individuals who live alone and experience
loneliness, which they identified as a risk factor for abuse. They believe loneliness can lead to risky
behaviour and put older people in potentially dangerous situations in their pursuit of
companionship. One participant highlighted how pro-social relationships safeguard against abuse by
giving older people avenues to seek support and can play a role in overall mental health and
wellbeing.
“Some people don't have anyone, they have no one they can appoint, they don't
have any family, they have the volunteers that visit them and apart from that
they're completely isolated. That was a bit of an eyeopener, to think that people
don't have anyone.”
“As you get lonelier and more socially isolated, you get depressed, your cognition
can decline because you're not using your brain in the same way because you're
not interacting with people, you eat less because what’s the point of eating and
people literally die sooner, and we know that from international research.”
Risk factors and drivers of abuse of older people
Existing definitions and frameworks make AOP difficult to address
Insights for working with Māori in the space of AOP
Initiatives shared their views on some of the key risks and drivers of the abuse of older
people in their communities.
The lack of a shared legal definition of the abuse of older people and guiding frameworks /
processes were seen as gaps.
There were some general findings in terms of cultural insights including understanding the
distinct experiences of Māori in AOP and the need for whānau-centred approaches.
Elder Abuse Prevention Fund, Learning and Insights Review | 24
Isolation was seen as another risk factor for abuse. Being socially isolated was seen to contribute to
the normalisation of abuse and restrict the ability of older individuals to seek support. This could be
isolation as a result of living alone with reduced mobility or opportunities for social interaction or
being isolated from others by an abuser. One participant spoke about the unique experiences of
older individuals who took part in their research and how downsizing in later life can lead to social
isolation.
“There was so much commentary in the survey responses from people who said, ’I
used to hang out with other people when I was living in blah, blah, but since we
moved, we don't know anyone here.’ That seems to have been a real issue for lots
of people. I'd say there's some particular vulnerabilities around that.”
Living alone, or with an abuser, can lead to older people becoming isolated from others. One
initiative hypothesised that older people become trapped in abusive situations as the perpetrator is
better able to conceal abuse and isolate the older person from potential help seeking avenues:
“We know from publications both here in New Zealand but mainly in the US and
the UK, that older people who are abused, very frequently are dependent on the
people abusing them. When there is another person present in the interview and
the interviewer has to ask you, ’Are you frightened of someone in your family?’
you're dependent on them for food, for everything. You're not going to go ‘Well
actually yes, my son is a bastard and I'm so frightened that he will push me
around’.”
Poverty and housing
Socio-economic conditions and poverty, at both an individual and an inter-generational level, were
identified as key drivers of the abuse of older people. Organisations highlighted housing
unaffordability as a significant financial stressor for older people, regardless of whether they rent or
own their own home. This was seen to put older people in situations where they have to decide
which basic needs they can afford to meet. Housing instability could also mean that older people
rely on social housing options in their old age, which are often considered inappropriate to meet
their needs.
“The other thing that we really recognise is abject poverty in retirement, even if
you're in the Kāinga Ora house let alone if you're paying private rent. Even if you
“Because he was so lonely, he would stand out the front of his apartment and he would talk to
anyone that walked past and then over time people got to know who he was and he had a list of
people that would come on pension day, get their smoke money, get their drink money, he got
packed up and put in someone's car and taken to Auckland over the Christmas holidays and paid
for the petrol. When you speak to him about it, he goes ‘That's my mate, that's my friend.’ It's
actually not his friend. It’s people abusing him and taking advantage of him. It's not abuse with a
capital A. It's about degrees of protection and degrees of abuse. That's how vulnerable
loneliness and isolation can make you.”
Client Example: Social isolation and loneliness
Elder Abuse Prevention Fund, Learning and Insights Review | 25
own your home outright but you're now in your 80s and you've only been on the
pension and you've had not much savings, how do you do the maintenance repair
on your house?”
“I would say living in social housing that is not necessarily set up well for older
people. Social housing in large apartment blocks. What I think is appropriate
social housing for older people would be sort of small groups of units together on
the flat, maybe groups of five or six where people can actually get to know Joan
and Henry and start to make little friends. Community housing providers are
being set up instead of Councils. There's some really good iwi led initiatives with
kaumātua housing but that's rare and we need so much more of that.”
Participants spoke about the perceived obligation amongst older people to continue supporting
children in adulthood as an economic factor in abuse. These participants gave examples of adult
children moving back in with their parents due to inaccessible housing options and causing stress for
older people by “taking over the home, doing drugs, bullying and terrorising” parents. There were
also examples of families who would view an older adult’s pension or savings as a shared resource
which could lead to financially abusive situations.
“I think too it's often the case where if mum or dad, if either the children have
moved into the family home or grandma or granddad have moved in with the
kids, it's like well you're living here free of charge kind of thing so actually we
deserve that money.”
“That age group don't talk about money. It's not something you discuss, and it
might start off with the person loses their job, so they move in for a little while
and that little while gets longer and what money they do get on a benefit, well
they need money to go and get a flat and a bond. There’s this whole
intergenerational expectation of ‘well, you’re my parent’ but when does that
stop?”
A lack of control over their finances and assets amongst older people could facilitate ongoing abuse.
One example of this was parents being forced to remain in their home rather than moving into
supported living facilities because adult children are not allowing them to sell their home. Financial
barriers associated with contesting or changing an EPOA decision and documentation could also
allow an abusive situation to occur or continue to occur.
“We had a case where dad had Alzheimer’s, the son would not put him into care
because he didn't want the house sold. He didn't want to lose his inheritance. His
father was just left in this home. I think he might have caught the kitchen on fire.
That's going to be a new trend, this whole idea of protecting inheritance.”
Limited capacity and heightened vulnerability
Many of the participants spoke about the heightened vulnerability of older people as a risk factor for
abuse. Some of these participants compared the level of older people’s vulnerability to that of
children. Children – like older people – are often dependent on their abuser, in some cases are
unable to meet their own basic and safety needs, and may have reduced decision-making capacity to
consent or understand complex situations.
Elder Abuse Prevention Fund, Learning and Insights Review | 26
“People do their best to try and get their needs met and so that might mean
asking a neighbour that they don't know very well to do something or handing
Eftpos cards over to people. It's a subset of individuals that are really particularly
vulnerable. It's not that they're all being abused but they're all so vulnerable that
they're wide open for someone to take advantage of that level of vulnerability.”
Hidden nature and normalisation of abuse
Participants spoke about the hidden nature of the abuse of older people as a factor that makes it
challenging to address.
“Of the original interRAI assessment, maybe 2.5% on average would capture
older adults as potentially being victims of abuse. If we accept that abuse rate is
no different than Australia, the US, the UK etc., then we should be capturing at
least 12.5 maybe 15% of the people as being abused and the interRAI is used with
a more vulnerable population so it may be even higher rates.”
Participants shared various reasons for abuse being difficult to detect and address. These include
perpetrators being very good at covering up the abuse and the reluctance of older people to report
abuse, particularly if the abuser is a close family member or if they are dependent on them.
“People that are good at abusing their elders are also very good at covering it up.
Rather than just relying on our skill or ability can be irrelevant. People are very
good at coming in and everything looks to be kosher, but the reality is it's not.”
“We have quite a bit of that, particularly mothers and sons, that seems the big
one. We offer suggestions of the 0800 number, someone just to talk through that
and just to talk about it with someone and ’No, no, no.’ There’s a lot of people
who are not doing anything about it but living in that and then there’s all the
ones that haven’t said anything.”
The normalisation or rationalisation of abuse by the older person may also lead to it being
unreported by victims. One participant explained that abuse can be minimised or normalised when
an older person values their relationship with their abuser over and above addressing the abuse. A
number of participants also spoke about the impact of a lack of awareness, education, and
conversations about the topic, with some older people simply having no idea they are in an abusive
situation.
“We would often have a whole lot of kaumātua come and go ’Oh we don't get
abused.’ By the end of it they're like, ‘Oh, gee, we are being abused.’ I mean we
talked about scams and frauds, so keeping them safe online, like their phone
secure, things like that, but also things like them recognising that they have
mokos that will take $10 out of their bag and not even ask them and they're like
‘We didn't actually think that that was abuse.’ They're starting to tick things over
and then when you talk to the mokos, they themselves don’t realise it. They were
like ‘It's just something we always do. We need money, nannies got some money,
we just take it’.”
Elder Abuse Prevention Fund, Learning and Insights Review | 27
Complexity of intent
The abuse of older people can be challenging to tackle, as it can stem from a wide range of complex
and diverse motivations. Some initiatives have encountered instances where the abuser knowingly
inflicted harm for financial or other types of gain, whereas others found many instances of abuse
encountered were being perpetrated unknowingly. A lack of education or understanding and often
toxic family dynamics create highly complex environments where abuse can be hard to address.
Participants acknowledged intent differed from case to case, so approaches to potentially abusive
situations require patience and care.
“It was about building whānau capability to kind of create a safe environment for
everyone living in that whare. How do we keep nanny safe because they didn't
realise that because they took nanny’s $10, that was for her prescription. Because
now nanny’s not able to get her prescription she's going to become unwell. So, for
them to sit there and go ‘We don't want her to become unwell.’ That really was
around education, and it wasn’t around the intent of wanting to hurt their
kaumātua, but it was around just, this is normal for us.”
“It is manipulative, it is coercive control, it is intentional, and it’s panic driven and
it's panic stricken and it's patterns of behaviour that are decades old that are
going on and on, if you think about it from a family systems point of view.”
“We've just admitted a patient who has over the last few weeks become incontinent. He is
suffering from dementia. Unfortunately, he also wanders at night, so his wife wakes up in the
morning and the whole house is… she cleans up day after day. So, she started at night to lock his
door from the outside, they sleep in separate bedrooms. Now, he's agitated, he wakes up, the
door is locked, obviously he's not happy about it and he bangs and he shouts. So yes, formally
she is abusing him. But, really, report her to the Police? That would be ridiculous. She was just
trying to somehow keep herself from burning out and she really cares for him. She's been caring
for him with his journey of dementia for so many years, but she doesn't know where to go, how
to get help. We need these kinds of discussions or information out there for families and
communities. Most people don't abuse their older parents because they take revenge on them.
A lot of abuse, I believe, is just people are unaware that they're actually abusing.
Client Example: The complexity of intent
“We had an older woman and her daughter moved in with her, supposedly to take care of her,
and unbeknownst to this older person, her daughter was isolating her, stopping family and
friends from visiting her and she went as far as putting trespass notices against the family. We
have our older person there who had absolutely no idea, took her phone away, everything. We
got this case because her concerned sister rang us to say she had not heard from her for several
months and was really concerned and then the rest of the family contacted us to say they had
these trespass orders. That's how it came to light, and I thought of course that older person
would not have known any different.”
Client Example: Older people unaware of abuse
Elder Abuse Prevention Fund, Learning and Insights Review | 28
Existing definitions and frameworks make AOP difficult to address
In addition to identifying learning for prevention programmes and services, participants also
identified learnings for the sector. Participants highlighted a number of areas where they felt that
the sector requires further development in order to support prevention efforts in AOP. These
included:
• Lack of a clear definition of AOP can make it challenging to address.
• Unclear AOP reporting guidelines can make it difficult to address.
• Safeguarding legislation is needed to support prevention efforts.
• Professionalisation of the sector could be improved.
• Better information sharing, including research and networking, would support AOP
prevention efforts.
Lack of a clear definition of AOP can make it challenging to uncover and address
Several participants spoke about a lack of a clear definition for the abuse of older people. One
participant referenced the UN definition “Elder abuse is a single or repeated act, or lack of
appropriate action, occurring within any relationship where there is an expectation of trust, which
causes harm or distress to an older person.” which they described as “so enormously broad as to be
unhelpful”. This participant felt that a lack of specificity in current definitions can make it difficult to
demonstrate both to abusers and victims that they may be involved in an abusive situation. This was
also seen to lead to semantic bleaching, a process where the significance of the term is weakened as
members of the public begin to refer to instances that do not constitute abuse.
“The definition is so broad, […] there's not much point, and we do get referrals,
we will get elder abuse referrals, a lady rang up, “I was just at the supermarket,
and I saw this woman getting out of a taxi and the taxi driver was yelling at her
and I think that's elder abuse.”
“Elder Abuse does fit into family violence but it's not the same as ordinary family
violence. It has unique components to it because of cognition, because of
capacity, because coercive control is much more subtle and doesn't meet any
definition of a crime. It is its own space.”
“There’s no gold standard, there's no way to measure abuse as an accurate this is
definitely abuse this isn't. It makes it, from my point of view it's quite a difficult
thing to then investigate and look at.”
Unclear AOP reporting guidelines can make it difficult to address
A lack of clarity around what to do when a member of the public suspects abuse was seen to be
another gap in the sector. One participant explained that, regardless of the accuracy of detection
tools, if there are not clear guidelines or requirements for flagging or reporting potential abuse, it
will not impact overall outcomes for older people.
“Unfortunately, there has not been a nationwide policy. When we had DHBs and
the interRAI quality controller in each DHB sort of had their own policy. It will be
unbelievably unusual for anyone to report to the Police.”
Elder Abuse Prevention Fund, Learning and Insights Review | 29
“Pediatricians are by law required to report suspicion of infant or child abuse. ED
consultants must report suspicions of family violence and sexual abuse. Elder
abuse is sort of an undetermined area, nobody really knows what the law actually
means, how we should interpret that.”
One participant spoke about the delicate nature of suspected abuse and subsequent investigations,
explaining that while it is important to address abuse, accusations of abuse – whether accurate or
not – can cause serious harm to families. This was seen to be reflected in some of the advice that
government organisations provide in the context of AOP investigations, which was seen to err on the
side of caution because “they are more afraid that the family will complain rather than investigating
what’s maybe happening.”
“There is a huge controversy where the abuse reporting to the authorities, in
many countries the Police, should be mandatory. Screening comes with a lot of
harm. It's not as simple as that after the investigation. ‘Oh, sorry we were wrong.
Thank you for spending some time talking to us. Bye.’ An apology doesn't make it
right. Screening is not without side effects.”
“Even when we ask for instructions, ‘we think someone has been abused, what
next?’ Where I’m from there is something called constipated advice. When the
legal departments don't really know what to say so they sort of write something,
‘maybe you should approach this delicately in a family meeting with your social
worker present’, because they are more afraid that the family will complain
rather than investigating what's maybe happening.”
Safeguarding legislation is needed to support prevention efforts
One participant spoke about the need for safeguarding legislation to support law enforcement
agencies to respond in cases that do not fit neatly into the current definition of family violence, but
are abusive situations for older people. Another participant spoke about the lack of legislative
support to remove older adults from abusive situations in the same way that Oranga Tamariki would
uplift an at-risk child, stating: “It's a shame we don't have statutory powers to uplift them because I
think if we did, we would.” A lack of a centralised body like Oranga Tamariki where people could
make reports of concern was also identified as a gap. Without safeguarding legislation in place,
these services felt the primary tool they have at their disposal is negotiation and advocacy.
“We need legislative support. You can't intervene to stop elder abuse if you've got
no backup. If it's not a crime, male assaults female, Police really only know how to
respond in a crime perspective. When it's above the waterline family violence,
they understand a little bit about coercive control, but they don't necessarily
understand coercive control when it's other members of the family and not an
intimate partner.”
“We desperately need some robust support around us otherwise it stays what it is
now, which is a service that can only rest on whakawhanaungatanga and trying
to bring people together by negotiation and advocacy but with no support
underneath it. It's a toothless tiger.”
Elder Abuse Prevention Fund, Learning and Insights Review | 30
Professionalisation of the sector could be improved
General professionalisation of the sector was seen to be an area for improvement. This included
tailored training opportunities for those working in the sector, practice guidelines specific to the
abuse of older people, and networking infrastructure.
“Elder abuse is named in Te Aorerekura, the community response to family
violence. Elder abuse is one of the priority populations in there, we've got practice
standards, but those practice standards that are being developed are around
lifespan, it's not around elder abuse, it's around intimate partner violence
generally. We need slightly different things in other parts of family violence and
there are parts of elder abuse that have nothing to do with family violence.”
Participants also spoke about the need for research to support a more accurate understanding of the
size and scale of AOP in New Zealand. Participants felt that there is a need for better statistics and
monitoring data, beyond estimations that are based on what is happening in Australia. This work
would require cross-sector monitoring or readily available data-sources.
“This is a really difficult thing to research, and you need researchers who have got
the money invested, who can go and actually quantify it because if you can
quantify the size of the problem and then who’s most at risk, that starts feeding
into interventions and how to identify and how to pick that up. At the moment it
feels like we can't even quantify the size of the problem.”
Better information sharing including research and networking would support AOP
prevention efforts
Participants spoke about the need for better information sharing between organisations and within
the sector more broadly. Formal research and publication of research findings was seen to be an
important way of ensuring that knowledge and new learning is shared widely and utilised in practice.
“If we can put our findings out there and people can have a read and a discussion
and maybe pick it up and say, ‘They have a point’, we may be providing help to
tens of thousands of older people around the world annually.”
Several participants spoke to the importance of sharing information and learning across
organisations to reduce the replication of work and ensure best practice is being shared and utilised
across the sector. One participant explained this is something they would like to see happen when
government contracts in AOP are re-tendered and a new contractor takes over. Sharing learning and
knowledge in this context would mean providers can get up to speed faster and have the
information they need to provide the best care for older people in their communities.
“Everyone does have to share information. I'm big into that because that's where
our biggest learnings are, and we replicate too many times with stuff that other
people have done or learnt. You can just gather so much from listening to other
people who are experts in their own field and gathered experience.”
Elder Abuse Prevention Fund, Learning and Insights Review | 31
Insights for working with Māori in the space of AOP
The EAPF learning and insights review has produced some specific insights into primary prevention
of abuse for older people in Māori communities. These insights were limited to two specific
initiatives which focused on Māori and were delivered by kaupapa Māori organisations.
Working with Māori in AOP prevention requires a whānau-centred approach
Pivotal to working with Māori in the space of AOP was a whānau-centered, holistic approach. Central
to this approach is ensuring whakapapa "is not severed” and whānau ties are strengthened and
healed through addressing abuse. This whakapapa-based approach is at odds with Western
practices, where older people are more likely to be removed from abusive situations and supported
in isolation from the wider whānau. Taking a whānau-centered approach was seen to be "really
critical around the safety of kaumātua."
“It’s not about removing the kaumātua actually from the whare because one of
the things we were really clear about is that we cannot sever whakapapa, nor will
we. Whakapapa is actually the strength that whānau have and so it's about us
utilising that strength. Of course, if we thought that they would be in immediate
danger, there would be a process we would undertake because it's always going
to be about keeping them safe and the tamariki safe but in these situations, we
knew it was more around how to do we work and engage with the whānau, what
is the education that they needed.”
This provider shared insights into what is meant by a whānau-centred approach – which they
cautioned is not the same as a family-centred approach. Whānau-centred approaches understand
that individuals exist within the context of whānau, hapū, iwi and hapori. Therefore, approaches may
involve working with the individual, whānau, and the broader network around the older person. This
can extend to whakapapa beyond parents, children, and other whānau members. Whānau-centred
approaches provide whānau with the skills and knowledge and leverage their existing strengths to
support joint decision making that benefits the entire whānau.
“It's still a whānau-centred approach, which is not a family centred approach
because whānau centred is wide. It can be whakapapa, whānau, and I think that's
the thing that really gets, well, misunderstood I think at perhaps a government
level anyway, is whānau is not, it doesn't just sit here.”
“It was about how do we give those skills to the whānau, how do we map what
skills they already have, because we know the aunties and the uncles that
whānau are always going to go to the knowledge that they hold, the mātauranga
but actually there are some key skills that they perhaps didn't have and how do
we build that up within our whānau.”
Central to a whānau-centred approach is supporting families to frame ideas of collective living –
which can include sharing resources and support – in a way that supports the safety of the entire
whānau. While collective approaches can, on the surface, appear to mean sharing resources, they
also require considering the impacts that taking resources from one member can have on the
collective.
“That's what we notice is that at the beginning, it was this is just part and parcel
of Nanny or koro living there, because it's shared right. When we take a Te Ao
Elder Abuse Prevention Fund, Learning and Insights Review | 32
Māori perspective, we really are a collective, in terms of whānau, and actually
what does that mean? Collectively we raise our babies, collectively we share
resources. So, it was about being really clear that we understand what that
collective living looks like, feels like, the benefits of it, so we don't ever want to
come in with a non-Kaupapa Māori lens to go ‘This is not okay, you cannot do
this.’ That's not going to work. How do we come in with that lens knowing we
collectively live, mahi, raise our babies but, actually, we do it for the benefit of the
entire whānau and if one whānau is not benefitting from it, then that's the key for
us. It's like when everyone’s benefitting, ka pai.”
Māori have distinct experiences of AOP that include cultural abuse
One participant spoke about cultural abuse as a particular type of abuse experienced in the Māori
communities they worked with, which was misunderstood and often overlooked within the sector.
This abuse has two sides: abuse based on cultural norms and expectations from within the whānau,
and discrimination-based abuse from systemic racism and perpetrated by institutions.
“Our kaumātua are often seen as the ones who come in and just do karakia, can
you please come in and do a waiata, a karanga and then we no longer need you.
So, there's that abuse side that we see from within whānau or from a marae
perspective and then there's the cultural abuse around when our kaumātua are
entering into the bank, talking down to them.”
Cultural abuse was seen to be a particularly concerning and hidden form of abuse because of its
intrinsic links with whakamā and tāpu. Traditionally, kaumātua are to be held in high regard within
the whānau and when they are not this was seen to cause shame for kaumātua. This was not only
because of the implications for themselves but also in the way that it reflects on the whānau as a
whole. The desire to conceal this could also lead to abusive behaviours or situations remaining
hidden.
“The reasons why a lot of our kaumātua were not reaching out for help, shame is
absolutely attached to it, that's one thing we knew but, within Māori, there is this
status symbol that kaumātua have, and our kaumātuas said to us, that status
symbol comes with a lot of responsibility, but it also comes with a huge amount of
respect. If we don't get that from our own whānau, we don't want to admit that
we don't hold the same mana in our whānau as what we know we should and
perhaps it's what we get on the marae or from other people.”
More research is needed to understand how to best support those with Māori in AOP
Underpinning the insights that these providers shared about working with older people and their
whānau was the need for more research and understanding to support not only kaupapa Māori
providers, but all providers working in the sector.
“Actually, what I've seen so far is that there is no concept of what does that mean
from a cultural perspective or for Māori and that we don't have people skilled in
that knowledge, in that knowing. What we are seeing is that when you go in, the
first immediate thing is we have to severe this relationship and we have to work
Elder Abuse Prevention Fund, Learning and Insights Review | 33
with just this older person. I think that there's a real big misstep there and a
missed opportunity and that's not how we work, and we won't work that way.”
“I think it's just, there are so many intricacies and dynamics around whānau that
unless you whakapapa Māori or come from quite a strong Kaupapa Māori
provider and have that oversight and that support, then actually it’s something
that you're going to be really challenged to do and, ultimately, it’s our kaumātua
that will be the ones that are missing out.”
Elder Abuse Prevention Fund, Learning and Insights Review | 34
Conclusion
This review has gathered practice-based insights and information contributing to the broader
knowledge base to enhance understanding of the scale, prevalence, and nature of the abuse of older
people in New Zealand.
Initiative staff who participated in the fund reported several success factors for their initiatives,
including:
• Gaining the involvement of older people in projects.
• Establishing and building trusting relationships with older people, often enabling subsequent
disclosures of abuse and/or general help seeking.
• Clear communication regarding confidentiality, thoughtful service design and collaborative
whānau-centred approaches.
• Having skilled, diverse networks to draw on and access to competent and well-resourced
staff.
Challenges encountered in planning and implementation of new services included:
• Uncovering considerable demand in communities, with project leads feeling responsible to
continue addressing these needs; often above and beyond what the funding could support.
• EAPF initiatives also revealed some gaps in organisations’ networks, particularly regarding
services.
• The nature of the abuse of older people itself contributes to this being a difficult space to
work in; complex family dynamics and the hidden and stigmatised nature of abuse means
the work is labour intensive and requires specific, specialist skills.
Participants shared the knowledge they gained about the abuse of older people and the broader
sector challenges in addressing this issue in Aotearoa New Zealand. Several risk factors and drivers
of abuse were identified, including social isolation and loneliness, poverty and housing
insecurity/unaffordability, the limited capacity and heightened vulnerability of older people, the
covert and hidden nature of abuse, and the complexity of perpetrator intent. Participants also
identified systemic challenges that can make addressing the issue of AOP challenging, including
broad definitions of abuse, limited reporting frameworks, and a lack of safeguarding legislation, as
well as insufficient research, statistics, and information sharing in the sector.
In a relatively small study such as this where the experiences of organisations funded for tightly
focused and time-bound activities, giving priority to particular issues is challenging. However, key
reflections to take forward from the review include the following:
• Effective AOP initiatives are individualised, flexible, and are likely to be resource intensive.
• Ensuring best-practice and safe responses in instances of AOP disclosure require specialist
skills and having a strong network of specialist organisations and practitioners.
• AOP prevention initiatives should consider and plan for the scale of need within
communities and the responsibility that comes with starting work in these communities.
• AOP is a complex social problem and there are a variety of risk factors that can contribute to
older people being in abusive situations. Systemic challenges can make addressing the issue
of AOP challenging.
• AOP is a relatively understudied and hidden type of abuse, and more research is needed to
understand the problem and the most effective ways to address it in Aotearoa New Zealand.
Elder Abuse Prevention Fund, Learning and Insights Review | 35
Significantly, participants in the review highlighted the value they gained from being able to initiate
activity through the Elder Abuse Prevention Fund, and that their initiatives uncovered a substantial
scale of need in this space. The initiatives developed through the Elder Abuse Prevention Fund have
made an important contribution to older communities and a developing body of knowledge in
Aotearoa New Zealand.
Elder Abuse Prevention Fund, Learning and Insights Review | 36
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Elder Abuse Prevention Fund, Learning and Insights Review | 38
Appendix: Initiative summaries
Nine initiatives took part in this learning and insights review. This section briefly summarises the
aims, intended outcomes and future work for each initiative.
• Initiative one: Elder abuse education workshops
• Initiative two: Uplifting takatāpui and rainbow elder voices: Tukua kia tū takitahi ngā whetū
o te rangi
• Initiative three: Senior care advocacy support
• Initiative four: Enduring power of attorney support
• Initiative five: Kaumātua peer-support
• Initiative six: Home support community advocate
• Initiative seven: interRAI screening research
• Initiative eight: Technology-facilitated connection
• Initiative nine: Research with Chinese and Afghan communities
Initiative one: Elder abuse education workshops
Family Focus: Rotorua based organisation working in family violence reduction
A series of educational workshops and activities to promote awareness and knowledge about the
abuse of older people and develop champions within the community.
Initiative one delivered a series of educational sessions for older individuals which were followed by
a recreational activity to reinforce learning. Sessions covered topics such as best practice EPOAs,
safety planning for later life and financial mentoring, as well as guest facilitated talks with
organisations such as the Citizens Advice Bureau, Age Concern, Work and Income New Zealand and
Grandparents Raising Grandchildren.
Initiative one was developed by an organisation with a background in AOP and a pre-existing elder
abuse team that work in responding to the abuse of older people. The initiative sought to support
primary prevention and achieve the following outcomes:
- Educate older people about abuse and raise awareness of the issue.
- Ensure that there were people in the community (“champions”) who were informed and able to
advocate for those who may be in abusive situations.
- Create opportunities for older people to develop their own support networks.
Initiative one felt that these outcomes were achieved and that both community and organisational
champions were developed as a result of this work – although perhaps not as many as they had
expected. Although the intention was to have older people attend every session, attendance was
variable, despite transport to and from the workshops being provided for participants. Other
challenges included coordinating and resourcing each unique session.
This work has elevated the abuse of older people as an area of concern and focus for the
organisation and has supported staff to gain more knowledge and skills in this area. Future iterations
of this initiative would involve testing the programme at different venues to improve accessibility,
building on the idea of community champions and exploring further opportunities to connect in with
local organisations to network and share knowledge.
Elder Abuse Prevention Fund, Learning and Insights Review | 39
Initiative two: Uplifting takatāpui and rainbow elder voices: Tukua kia tū
takitahi ngā whetū o te rangi
Hohou te Rongo Kahukura: Building rainbow communities free of family, partner, and
sexual violence
A research project exploring the experiences of takatāpui and rainbow elders, with a focus on sharing
the findings through a series of short podcasts factsheets and community report.
Initiative two looked to bring visibility to the experiences and stories of takatāpui and rainbow elders
after finding that research in this area was limited. This research project explored the contexts of
discrimination on the lives of these older individuals through a survey and a series of in-depth
interviews. The survey, which was distributed and promoted widely across New Zealand, received
424 valid responses. The interviews were analysed thematically and edited into 15 short podcasts
which looked to:
- Share and elevate the stories and experiences of takatāpui and rainbow elders.
- Explore the impacts of discrimination and the specific vulnerabilities for this group of older
people in New Zealand.
- Support future service design that results in improved rainbow and takatāpui elder inclusion in
older persons services and strategies in Aotearoa.
Initiative two was successful in recruiting and engaging a variety of takatāpui and rainbow elders,
with eleven individuals interviewed from a variety of geographic areas, sexualities, living situations
and disability status backgrounds. While the initiative was successful in engaging Māori and Pasifika
participants to interview, no rainbow ethnic elders participated as interviewees. This was addressed
with follow-up focus groups with rainbow ethnic groups, takatāpui, rainbow Pasifika groups, and this
material incorporated into the final report.
Future work includes finalising and distributing the final podcasts and report findings, which are on
the Hohou te Rongo Kahukura and Rainbow Hub Waikato websites, and shared on Pride NZ, an
archive of rainbow audio clips. Hohou Te Rongo Kahukura will also integrate the findings into their
internal training material. The follow-up project, also funded by the Office for Seniors, is a
collaboration with Age Concern Auckland to develop a framework that drives inclusive practices and
spaces for takatāpui and rainbow elders, including training to allow older persons services to
become “Rainbow Ready”.
Initiative three: Senior care advocacy support
Manchester House: Operates a Senior Hub that offers older people in Fielding a place
of belonging, purpose, and social connection
A Senior Care Advocate role established to raise awareness about the abuse of older people in
communities alongside providing information, connection, and advocacy support to older people.
Initiative three involved establishing a Senior Care Advocate role in an existing senior hub setting.
The position was shared by two staff members who each dedicated eight hours a week to the role.
The Senior Care Advocates provided one-on-one advocacy and support for older people with unmet
Elder Abuse Prevention Fund, Learning and Insights Review | 40
needs and acted as a conduit to specialist service agencies who provided assistance as required. The
role looked to:
- Enhance existing Senior Hub services offerings by connecting older people to information and
support.
- Advocate for older people to have their needs met.
- Support the existing Senior Hub to become better connected into the wider community of
organisations working in the prevention and intervention of the abuse of older people.
While the role was intended to provide one-on-one support, the initiative found they had to create
awareness through group conversations in order to channel older people into one-on-one services.
The initiative also engaged older people via direct referrals received through agencies in their
network. Initiative three saw value in the Senior Care Advocate role continuing and believed that it
would be beneficial to have more hours dedicated to the position.
Initiative four: Enduring power of attorney support
Porirua Kapiti Community Law Centre: Providers of legal services to Porirua and
Kāpiti communities.
A series of seminars providing AOP education and legal service advice to older people across the
Wellington Region.
The legal services organisation delivering initiative four had previous experience providing
educational seminars within their community and recognised an opportunity to expand these to the
wider Wellington region. Seminars were developed to include an in-depth focus on Enduring Power
of Attorney services (EPOA) and the abuse of older people. The organisation had identified through
their own experiences that well-drafted EPOA documents are an important tool in the prevention of
the abuse of older people and conversely, that a poorly drafted EPOA can place an individual at a
heightened risk of experiencing abuse.
Initiative four offered free information and advice, as well as assistance with the EPOA and Welfare
Guardianship processes. The initiative aimed to achieve the following outcomes:
- Raise awareness of the abuse of older people.
- Emphasise the importance of having a well-drafted EPOA.
- Educate older people on best-practice EPOA selection and process.
- Generate applications for EPOA and Welfare Guardianship’s in the community – free of
charge - to older people.
Initiative four involved targeted and intensive work with communities with complex needs.
Removing the cost barrier meant that anybody could access the service, regardless of means.
However, the fact that the service was free also meant that families felt less urgency to respond to
messages and organise meetings, adding an administrative burden and making the initiative more
labour-intensive. This organisation felt that to scale an initiative of this nature would be of huge
value to the Office for Seniors, as well as older communities and their whānau, however,
development past proof of concept would ideally sit with government organisations such as the
Public Trust.
Elder Abuse Prevention Fund, Learning and Insights Review | 41
Initiative Five: Kaumātua peer-support
Te Ahi Kaa: Deliver a range of services grounded in Kaupapa Māori including its
values, philosophies and practices
A peer-support model delivering education and support for whānau experiencing kaumātua abuse,
working in whānau-centred ways.
Initiative five developed out of an observed increased risk of abuse situations for kaumātua (older
people) after the COVID-19 lockdowns. The initiative involved raising awareness of the abuse of
older people in a one-on-one and a community based setting, with a specific focus on financial
abuse. Topics ranged from keeping safe online to engaging with whānau to increase understanding
of kaumātua abuse and how to keep each other safe. Following awareness raising, Te Ahi Kaa
experienced an increase of requests for support from kaumātua and their whānau. The initiative
aimed to achieve the following outcomes:
- Raise awareness of abuse of older people, with a specific focus on financial abuse, in a one-
on-one and a community based setting.
- Build whānau capability to create a safe environment for everyone living in the whare.
- Embrace the collective strength of the whānau to address instances of abuse.
Initiative five has now established a Kaumātua Governance Board and a Kaumātua Peer Support
Rōpū to support with continued work in this space, with complex cases being channelled through to
the organisation’s social workers in partnership with the Kaumātua Peer Support Rōpū. They are also
looking to collaborate with network organisations to combine external resources such as training,
policies and databases with Initiative five’s understanding of working with and engaging Māori.
Initiative six: Home support community advocate
Wesley Community Action: Works in communities throughout Wellington to help
people who may be finding it tough to create better lives for themselves
Intensive one-on-one support to address the unmet needs of older people in the community.
Initiative six recognised a need for intensive support for older people with unmet needs in the
community. The organisation saw a gap between long term needs of older people which could
require intensive support and what homecare support agencies are able to provide. The organisation
has witnessed through their own work in this area that when the basic needs of older people are not
met, they can put themselves in vulnerable situations in order to meet these needs (for example,
providing online banking details to others in order to set up online baking). Addressing these needs
as they arise was seen to be an important part of the prevention of abuse of older people.
Wesley Community Action hired a skilled and experienced support worker to work one-on-one with
older people; this included activities such as decluttering homes, shopping for clothing and food,
paying bills and supporting with home maintenance. The initiative looked to:
- Work one-on-one with older people to address their unmet needs.
- Prevent instances where older people may be vulnerable to abuse.
Elder Abuse Prevention Fund, Learning and Insights Review | 42
Activities undertaken supported older people who may have otherwise been vulnerable to abuse
and also demonstrated the need to undertake activities that support older people who are
vulnerable and require extra support, time, and patience.
Initiative seven: interRAI screening research
University of Otago: Department of psychological medicine
Analysis of 9 years of interRAI-HC data (186,713 individual assessments) to explore the impacts of
altering the criteria for suspicion of abuse of older people.
Initiative seven brought together clinical experience in acute inpatient psychogeriatric care and
biostatistician expertise to review the way that the interRAI needs assessment tool screens for
potential abuse of older people. The initiative recognised the interRAI as an opportunity to start
learning about the abuse of older people in New Zealand as it is mandatory and consistently used in
several environments and provides digitally available data for analysis. However, the tool has been
shown by this group’s research to be under-reporting potential cases of abuse.
Initiative seven manipulated the algorithm of the interRAI to become more sensitive to potential
abuse, without changing the tool itself. The project looked to achieve the following outcomes:
- Use the interRAI database to learn more about the nature and scale of abuse of older people
in New Zealand.
- Test the theory that manipulating the interRAI algorithm would result in a higher number of
potential abuse cases being flagged.
- Lay the foundations for further research into the use of the interRAI to screen for the abuse
of older people.
The new algorithm increased the flag rate for potential abuse from 2.5% to 5.9% which will have far-
reaching, positive implications for a large number of older adults if further research supports this
strategy. Future work in this space will look to publish the findings of this research initiative and
further explore the relationship between interRAI and detection of elder abuse in communities. The
next research initiative will analyse the fourteen indicators of potential abuse used in the interRAI
and explore the frequency of these indicators being observed in communities.
Initiative eight: Technology-facilitated connection
Kilbirnie Lyall Bay Community Centre: Drop in centre for community members to pop
in, share a cup of tea or coffee and have a chat
Facilitation of online conversations between older people and loved ones to reduce isolation and
loneliness in older communities.
Initiative eight involved establishing a bespoke room within an existing community centre to
facilitate online conversations between older people and their loved ones. The converted storage
room was a private space that could be booked out for this purpose, but also doubled as an area
where members of the community could speak with centre staff confidentially about potentially
abusive situations or experiences. Members of staff listened to them and let them know about the
help available to them, including the Elder Abuse helpline. The space was fully booked out during the
Elder Abuse Prevention Fund, Learning and Insights Review | 43
funded period and proved to be very popular among older people who enjoyed being able to
connect with friends and family who they were unable to see in person due to international distance
and mobility issues. Ultimately, the initiative looked to:
- Address issues of isolation and loneliness by providing older people with ways that they
could connect with loved ones.
- Provide a confidential and anonymous environment to have conversations about potentially
abusive situations or experiences.
Initiative eight was pleased with the outcome of the initiative and felt that the organisation had
gained valuable knowledge and insights into the nature and scale of the abuse of older people as a
result of participating in the fund. The organisation will continue to maintain the resources to
support the use of the room in future; however, without ongoing funding they will be unable to
maintain the staffing levels needed to run it at the capacity provided during the funded period. To
maintain or scale an initiative of this nature would require dedicated resource within an existing
community hub with strong community ties and relationships.
Initiative nine: Research with Chinese and Afghan communities
Age Concern: Promote dignity, wellbeing, equity, and respect and provide expert
information and support services in response to older people's needs
Research initiative exploring the unique experiences and needs of migrants and former refugees
Initiative nine identified a gap in available data and the published literature regarding the
experiences of older migrants and former refugees in relation to abuse and undertook research to
address this. This included a series of focus groups and semi-structured interviews and incorporated
the use of a validated tool to structure discussions. These involved members of the Chinese
community and the Afghan community. Central to the success and safety of the programme was the
use of a professional interpreting service to ensure that the translations accurately conveyed
meaning and concepts. The initiative sought to:
- Explore the role and the place of elders in families across different cultural contexts.
- Explore the lived experience and the understanding of abuse of people who - through choice
or not - are living in New Zealand.
- Use a valid tool to collect data on the experiences of older migrants in New Zealand and test
the appropriateness of it for this purpose.
Initially, the initiative looked to engage a broader cross section of migrant and former refugee
communities; however, resource constraints meant that the initiative scope changed to focus solely
on the experiences of members of Chinese and of Afghan communities. Staff felt that the initiative
went well and that members of the community were more aware of their organisation’s work as a
result of the research. Scaling this work would mean investing in further research to deepen the
understanding of the experiences of these communities in relation to the abuse of older people.
The Aurora Centre, 56 The Terrace, PO Box 1556, Wellington
–Telephone 04-916 3300 – Facsimile 04-918 0099
Aide-mémoire
Meeting
Date:
5 April 2024
Security Level:
In-Confidence
For:
Hon Louise Upston, Minister for Social Development and Employment
and Hon Casey Costello, Minister for Seniors
File Reference:
REP/24/4/292
Meeting between the Minister for Social Development and
Employment and the Minister for Seniors to discuss
priorities relating to older people
Meeting
details
8:30am – 9:15am, Tuesday 9 April 2024, 5.1L EW
Expected
attendees
Ministry of Social Development officials
Office for Seniors officials
Ministry of Health officials
Full list of attendees is included in Appendix 1 – meeting agenda.
Purpose of
meeting
The purpose of this meeting is to discuss your shared portfolio
priorities relating to older people, with a focus on upgrades to the
SuperGold Card1 and other matters relating to supporting older
people, including those experiencing compounding disadvantage.
This meeting has been requested following:
1 agreement to you meeting to discuss an approach to deliver on
the Government’s priority to upgrade and maximise the
benefits of the SuperGold Card [REP/23/12/978 and
REP/23/12/979 refers], and
2 direction from Minister Upston that MSD advice, in particular
‘Paper 2: Supporting older people in New Zealand’, be jointly
discussed with Minister Costello during an officials’ meeting.
This meeting presents an opportunity to discuss how you may work
together to achieve your priorities and the wider Government priority
to “improve the lives of seniors”.
1 For ease of reading, all references to the SuperGold Card include the Veteran’s SuperGold card issued to
those who receive the Veteran’s Pension.
2
Background
The Social Development, Employment and Seniors portfolios
both have a role in supporting older people
There are many opportunities to align and leverage work across the
Social Development, Employment and Seniors portfolios to improve
the lives of seniors.
At a high level, these portfolios have the following responsibilities
relating to older people:
• Social Development and Employment portfolio: providing
income, employment, and community social supports primarily
through universal access to New Zealand Superannuation,
supplementary supports and job seeker support for older
workers aged 50-64 years.
• Seniors portfolio: overseeing the Government’s strategy for our
ageing population, Better Later Life Strategy – He Oranga
Kaumātua, and representing the interests of older New
Zealanders within Government.
This meeting will provide an opportunity for you to discuss your
portfolio priorities and responsibilities at a high level. It will also
provide an opportunity for you to have more targeted discussion on
the content and recommendations for action in the three supporting
papers provided:
• Paper 1: Upgrading the SuperGold Card [REP/24/3/268 refers]
• Paper 2: Supporting older people in New Zealand
[REP/23/12/978 refers]
• Paper 3: Supporting older people who experience compounding
disadvantage in New Zealand [REP/24/3/208 refers].
Key areas for
discussion
Agenda item 1 - Discussion between Ministers on overall
priorities relating to older people
Agenda item 1 is dedicated space for you to discuss your overall
priorities and responsibilities within your respective portfolios and
how they may align or work together to support older people.
Agenda item 2 - Upgrading the SuperGold Card
Paper 1: Upgrading the SuperGold Card
The Government, through the New Zealand First and National
Coalition Agreement, has committed to upgrading the SuperGold Card
to maximise its potential benefit for all cardholders. This paper
supports your discussion about an approach to this priority, including:
• setting out, at a high-level, your respective portfolio
responsibilities in relation to upgrading the SuperGold Card
for your consideration. This includes that the Minister for
Social Development and Employment is responsible for the
policy and assessing entitlement and issuing of the card, and
the Minister for Seniors is responsible for enhancing and
3
promoting the card and enlisting businesses to provide
discounts to SuperGold cardholders, and
•
In relation to the first point, you may wish to confirm your approach
to delivering on the priority across your areas of portfolio
responsibility.
In relation to the second point, you may wish to indicate your
preferred areas of further work, so that officials can provide you with
advice on options. This would include a fulsome analysis of the legal,
financial, privacy and consultation implications, to support your final
decision on how you want to upgrade the SuperGold Card.
Areas for exploration outlined in the paper include:
•
.
Agenda item 3 - Supporting older people, including older
people who experience compounding disadvantage
Paper 2: Supporting older people in New Zealand
In December 2023, MSD provided advice (Paper 2) which sought to
inform you of features and implications of an ageing and increasingly
diverse population and the role of the Social Development and
Employment portfolio in supporting older people. This included
priority areas focused on meeting the range of needs of older people,
both domestically and internationally, including those experiencing
compounding disadvantage and poor outcomes in later life.
During the signing of this advice, the Minister for Social Development
and Employment indicated an interest in better understanding the
employment situation of older people. This information can be found
in Appendix 2.
Paper 3: Supporting older people who experience compounding
disadvantage in New Zealand
Paper 3 builds on this broader ageing population advice and advises
on opportunities to scope work across government to address
compounding disadvantage. This work has the potential of achieving
better outcomes for older people experiencing compounding
disadvantage, and potentially cost-savings for social and health
supports in the longer term in the face of an ageing population.
s9(2)(f)(iv)
s9(2)(f)(iv)
4
This work
could:
•support your portfolios and wider Government priorities
including the Social Development, Employment and Seniors
portfolios
•relate to Minister Costello’s work to conduct a stocktake of
services relevant to the seniors portfolio to provide clarity
around the agencies in this sector, including structure, focus
area and budget
•relate to Minister Costello’s Associate Minister of Health
portfolio responsibilities for aged care and dementia
management, and
•as outlined in this paper, and depending on your priorities, also
relate to wider portfolios, such as Housing and Social
Investment.
Next steps
Advise your Offices of any actions that arise from the meeting,
including decisions related to the recommendations outlined in the
supporting papers.
Author: Alice Ansley, Senior Policy Analyst, Older Peoples Policy
Responsible manager: Miriam Mathews, Acting Policy Manager, Older Peoples Policy
[Attachments: Appendix 1 – Meeting Agenda]
2 To date, this work has been delivered in partnership with the Ministry of Health, as there is joint responsibility to deliver
an action in the Better Later Life Strategy.
s9(2)(f)(iv)
5
Appendix 2 – Older people and employment
• New Zealand has an ageing workforce. Statistics released as part of the Older
Workers Employment Action Plan (OWEAP)3 in 2021 show that workers aged 50+
(older workers) make up a third of the labour force and are the fastest growing
demographic group in the labour market, with over 25% of people aged 65+ still
working. However, about a third of people aged 65+ who are working do so for
financial necessity.
• There are employment products available for older people (who are of working age)
to support them to seek and retain employment or access training but these are not
specifically targeted to older job seekers.
• While there are currently no active labour market programmes that are specifically
designed to support older workers, there has been work previous done in this
space, including:
- the Senior Enterprise Pilot, launched by the Office for Seniors (OFS), to
support 80 older prospective entrepreneurs to venture into starting a small
business. A robust evaluation process (set to conclude in mid-2024) is
underway. This will provide insights into further opportunities to support older
people into business.
- The MSD-led extension of Flexi-wage4 in July 2023 to include people aged
65+ who are eligible for New Zealand Superannuation or Veteran’s Pension
(NZS/VP) so long as they meet all other eligibility criteria5 [REP/12/3/150
refers]. People who are 65+ and ineligible for NZS/VP can already access
Flexi-wage (and other employment supports). This is the first employment
support MSD has extended to people aged 65+.
- the renaming and refresh of the Older Worker Toolkit, supported by OFS and
the Ministry of Business, Innovation and Employment.
3 The OWEAP, created under the previous Government, had a number of actions aiming to improve employment
outcomes for older workers. Work to progress the OWEAP is currently on pause due to other priorities in the
employment portfolio.
4 Flexi-wage is a wage subsidy programme to support employers to take on new employees who do not meet the entry
level requirements for the role.
5 To qualify for Flexi-wage, the client must: meet the core eligibility criteria, have a job offer that meets the job criteria,
meet the client eligibility criteria and have an employer that meets the employer criteria.
Age friendly Aotearoa New Zealand programme
7
IN-CONFIDENCE
Appendix 1 – Summary of Age friendly Aotearoa New Zealand 2022/2023 Annual Update Report to WHO
        
Housing
Digital inclusion
Employment
The Office for Seniors has:
• launched a Homeshare pilot for older people in
Auckland to make it viable for them to remain in their
own homes and stay connected with community
• supported the Minister for Seniors with feedback on
applications for fast-tracked resource management
requests for new retirement villages
• conducted desk-based research into the current state
of existing and recently divested council housing
• supported the Centre for Research, Evaluation and
Social Assessment (CRESA) looking at small homes
reviewing both the market for them and testing
approaches to make them more available for people
throughout their life course, and
• engaged across government to advocate for the needs
of older people in housing and urban development
programmes and policies.
The Office for Seniors has:
• set up and met with the the Digital Inclusion Action
Group for Older People to look at expanding the
Digital Inclusion Programme
• expanded the Digital Inclusion Programme to provide
digital literacy training to disadvantaged groups such
as older Mori, Pacific and Asian learners
• presented at the 16th International Federation on
Ageing Conference on digital inclusion initiatives, and
• participated in TechWeek in May 2023 to help raise
awareness of digital inclusion needs for older pacific
people.
The Department of Internal Affairs has released the
Digital Strategy which includes digital inclusion.
The Office for Seniors has:
• made progress on the 11 actions detailed in the
Older
Workers’ Employment Action Plan
including:
reviewing and updating the Older Workers
Employment Toolkit
presenting a deep dive on the ageing workforce to
the Future of Work Forum Governance Group
(partnering with government, unions and
BusinessNZ)
removing barriers for older workers to finding work
and staying employed such as extending the
Ministry of Social Development’s training products
to people over the age of 65.
• established the Senior Enterprise Programme and are
testing different delivery models to support people
aged 50+ years to start their own business, and
• ri and work.
Healthy ageing and access to services
Participation and social inclusion
Making environments accessible
The Government has continued to implement phase 2 of
the
Healthy Ageing Strategy Priority Actions 2019 to 2024.
The
Aged Care Commissioner is designing a framework for
monitoring and reporting on the performance of the aged
care sector
.
M
inistry of Social Development published the report
Older people experiencing vulnerability and multiple
disadvantage in New Zealand
.
A
ccident Compensation Corporation progressed their Live
Stronger for Longer falls prevention programme
launching
the Nymbl app.
The Office for Seniors has continued work on developing
a response to the
United Nations Decade of Healthy
Ageing
with the Ministry of Health.
The Office for Seniors has:
• distributed $155,000 of funding from the Joint Venture
for Family Violence and Sexual Violence as small
grants of up to $25,000 to extend community-led Eld e r
Abuse prevention projects
• run a month long campaign using television, radio,
social and other media to raise awareness of and to
promote the prevention of elder abuse to align with
World Elder Abuse Awareness Day
• set up elder abuse prevention networks as pilots in
three regions of New Zealand
• supported locally led participation and social
inclusion age friendly projects through administration
of the Age friendly fund grants scheme.
The Government has:
established Whaikaha – Whaikaha, the Ministry of
Disabled People on 1 July 2022
progressed the Accessibility for New Zealanders Bill
to Select Committee stage.
Through
the Age friendly Aotearoa New Zealand
Programme
, the Office for Seniors has:
continued to promote age friendly to communities,
providing advice, guides and toolkits
doubled membership of the Age friendly Network as
a national community of practice for local councils
provided twelve Age friendly Fund grants of up to
$15,000 for locally-led age friendly projects and
plans.
Age friendly Aotearoa New Zealand programme
13
IN-CONFIDENCE
Hurunui District Council: Assessing current and future needs and
understanding the issues affecting older people. It will engage with older
people and organisations to gather ideas on what the Council can do to create
age friendly communities and create a plan to present to the council with
actions.
Napier City Council: Napier is one of six cities trialling the use of Older
People’s External Residential Assessment Tool (OPERAT). The council will train
and support older people to use the tool to assess their local neighbourhoods.
It will test the suitability of the tool for use in New Zealand, and identify areas
where local improvements could be made, and help implement the plan for the
Napier Positive Ageing Strategy.
Waimakariri District Council: Supporting the development of a Waimakariri
Age friendly Community Plan. The project will establish a Steering Group to
co-create an engagement plan to gather views of older people in the
community. The council has prepared a discussion document to stimulate
discussion in the community. The project will assess current council activities
and identify priority issues and gaps. Information will be used to develop an
Age friendly Community Plan.
Well-Able: A community-based group working to design and develop
resources for pre- and primary school children to build empathy and
understanding of the needs of older people in the Kāpiti community. The
resources will be tested in schools and with older people.
s9(2)(f)(iv)
s9(2)(f)(iv)
s9(2)(f)(iv)
s9(2)(f)(iv)
s9(2)(f)(iv)
IN-CONFIDENCE
Digital Inclusion for Older People
Purpose of the report
To provide you with an overview of digital inclusion as an issue for older people
and how the Office for Seniors (the Office) is contributing to addressing digital
exclusion.
Recommended actions
It is recommended that you:
1 agree to discuss with officials how the Office can support you to increase the
digital inclusion of older people.
AGREE / DISAGREE
21/12/23
Diane Turner
Director
Office for Seniors
Date
Hon Casey Costello
Minister for Seniors
Date
Report
Date:
2
0 December 2023
Security
Level:
IN CONFIDENCE
To:
Hon Casey Costello, Minister for Seniors
Digital Inclusion for Older People 2
IN-CONFIDENCE
Background
The increasing importance of digital inclusion
1 Digital technology has changed our lives significantly in the past few decades
and will continue to do so. Government agencies and businesses are moving
towards providing goods, services and information through online platforms.
In many instances this is accompanied by scaling back non-digital options.
2 Many government agencies are reducing access to paper-based resources,
and encouraging people to use and access online services, information and
channels (for example RealMe, MyMSD, MyIR, MyACC,
connected.govt.nz).Some businesses are closing stores and providing
services online (for example banks phasing out cheques and closing local
branches).
3 The COVID-19 pandemic fast-tracked this trend, as well as amplifying the role
digital engagement plays in New Zealanders’ daily lives. In addition to
increasing the need to undertake key transactions online (for example
grocery shopping or paying bills), periods of lockdown also saw many New
Zealanders moving social connections with friends and family online.
Digital inclusion needs to address motivation, access, skills and trust
4 Digital Government NZ is an online source of information, tools and guidance
to support the all-of-government work programme and the Government’s
Chief Digital Officer role. It defines digital inclusion as “an end-state where
everyone has equitable opportunities to participate in society using digital
technologies.”
5 To be digitally included, a person needs to be able to address four
interdependent elements:
Digital Inclusion for Older People 3
IN-CONFIDENCE
Digital exclusion among older people
6 The Department of Internal Affairs (DIA) commissioned Motu (an economic
and public research company) to provide a report on Digital inclusion and
wellbeing in New Zealand.1 The report, released in 2019 identifies that:
• internet use/access diminishes with age. Up to 25 percent of people
aged 65 and over do not have access to the internet. This figure rises
to 35 percent for people aged 75 and over.
• older people are one of eleven digitally disadvantaged groups. The
others are Māori, Pacific peoples, people in social housing, families with
low incomes, people in rural communities, unemployed people, people
with low literacy levels, people with disabilities, migrants and refugees,
and offenders and ex-offenders.
• these groups are prone to relatively low internet access and are more
likely to have lower levels of general wellbeing.
7 Digitally disadvantaged groups are less likely to be able to afford a device or
internet connection and to keep up with changes in technology. Some people
in these groups may have the means to be online but lack the skills to carry
out online transactions safely with trust and confidence. A 2020 study by the
Victoria University of Wellington reported that the main barriers to digital
inclusion for older people in New Zealand are cost, physical access,
motivation, skills, capacity, trust and safety.
8 The overlap between older people and several of the other digitally
disadvantaged groups points to the possibility of more severe digital exclusion
among a smaller proportion of the older population.
9 There is research indicating how many older people lack the physical internet
access required to be digitally included, but not skills, trust motivation or
trust as separate factors. Many older people who are digitally excluded are
instead likely to experience multiple or overlapping challenges across the four
areas of digital inclusion.
10 Some older people report that they lack motivation to engage online. While
often framed as a barrier, some people say that this is about a preference for
person-to-person support. In a survey for the World Internet Project New
Zealand 20212, the most reported reason given for non-use of the internet
was that it had no purpose, meaning that a proportion of non-users (22
percent) did not feel like the internet could be useful to them. Almost two
thirds (64 percent) of those that indicated no purpose in using the internet
were aged over 65 years.
11 Digital exclusion can compound difficulties faced by those who experience
hardship across life domains, by limiting access to information, government
services, or communication options.
12 Older people can be especially vulnerable to privacy risks, particularly online
cybersecurity and privacy threats, including:
• identity theft
1 Motu 2019. Digital inclusion and wellbeing in New Zealand. Department of Internal Affairs,
Wellington, New Zealand.
2 World internet Project – New Zealand 2021.
Digital Inclusion for Older People 4
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• data security breaches
• romance scams, and
• consumer fraud, such as fearmongering about the need to update
software on devices, cold calling and texting pretending to be from
banking institutions.
13 Research shows older people tend to:
• exhibit low digital literacy and low computer self-efficacy
• have less awareness and expertise with regards to internet security
hazards than younger internet users
• show less knowledge and lower confidence in performing protective
behaviours than younger users, and
• show reluctance to engage with cybersecurity behaviours.
Digital exclusion has wide-ranging impacts
14 A 2020 report commissioned by the Citizens Advice Bureau, Face to Face with
Digital Exclusion is based on insights from over 4,000 client enquiries where
issues of digital exclusion were identified. Findings included:
• over 40 percent of people aged 60 years and over faced barriers to
accessing government information and services online, and
• digitally disadvantaged groups have negative experiences with
government online services – with some people finding online services a
barrier to accessing government services at all.
15 Research indicates that beyond accessing services, digital engagement can
play a significant role in improving social outcomes. The 2020 COVID-19
Justice sector survey (undertaken during the level four lockdown) saw four
percent of overall respondents reporting feeling lonely all or most of the time,
but 14 percent of those with no access to the internet felt lonely all or most
of the time.
16 Digital engagement is also a key element of economic participation and
commercial activities. This year, Nera Economic Consulting – commissioned
by the Spark Foundation – reported on a review of the economic benefits of
digital inclusion and connectivity in New Zealand. The report found that the
economic and social benefits (both public and private) of connectivity are
material and specific, including:
• increased employment
• increased civic participation
• better health outcomes and lower healthcare costs
• increased productivity
• reduced education costs
• better access to government services
• reduced search and transaction costs
• travel and time cost saving (including environmental benefits)
• productivity gains, and
• consumer benefits.
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Government response to digital inclusion
Digital Strategy for Aotearoa
17 In 2022, the Government released the Digital Strategy for Aotearoa (the
Strategy), with a vision for an equitable, digitally inclusive Aotearoa New
Zealand.
18 The Strategy centres around three key themes: Mahi Tika — Trust, Mahi
Tahi — Inclusion, and Mahi Ake — Growth. These themes are underpinned by
a focus on:
• skills and education
• sustainability
• digital infrastructure.
19 Mahi Tahi – Inclusion sets out a vision of “making sure everyone is
empowered to equitably participate in our digital society” with two goals:
• All New Zealanders have the tools, skills and confidence to participate in
an increasingly digital society.
• Digital infrastructure, content and services meet people’s diverse needs.
20 This aspect of the Strategy was to be built upon with the release of a digital
inclusion action plan, but this has not yet been completed. Depending on how
the Government chooses to address the strategy, there may be opportunities
to explore the place of digital inclusion in the Government’s priorities with
your Ministerial colleagues.
Cross-government approach to improve digital inclusion
21 The Office is supportive of a more integrated cross-government approach to
improve digital inclusion. This will be particularly important to effectively
address multiple or overlapping challenges faced by some groups across the
four areas of digital inclusion. An all-of-government approach to address
digital exclusion, particularly of digitally disadvantaged groups, could include:
• improving cross-government funding and actions on
- providing internet connections to those who are digitally excluded,
based on greatest need,
- providing (refurbished) digital devices to digital literacy training
participants or other older people who cannot afford devices,
- equipping older people with the appropriate skills to benefit from
the digital world, and
- ensuring government websites meet web accessibility standards
• recognising and ensuring those who do not use technology (for example
due to decline in cognitive ability, a choice not to, or lacking the means
to do so) can still find and access services and information they need
• leveraging work done in the private and voluntary sectors to help build
value, share knowledge, and create scalable intervention options.
22 It is also important to ensure that the specific needs of older people are
appropriately considered, and where necessary addressed in a tailored
manner (for example, ensuring digital literacy training is delivered at a place
where they feel comfortable by people they trust, or in languages other than
Digital Inclusion for Older People 6
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English). Older people are less likely to access mainstream services delivered
through tertiary education or similar institutions.
The Office’s work on digital inclusion
Digital literacy training for older people
23 Due to the importance of digital engagement for access to government
services, social wellbeing, and economic participation, improving digital
inclusion for older people is a priority for the Office. The Better Later Life
Action Plan – He Mahere Hohenga 2021 – 2024 identifies Digital Inclusion as
a priority action.
24 In Budget 2019, the Office for Seniors was allocated $600,000 over three
years to provide digital literacy training for older people. We contracted
Digital Inclusion Alliance Aotearoa and 20/20 Communications Trust to deliver
this training, with a focus on essential digital skills for everyday life and
building trust. This programme, which ran from 2019 through 2023 (having
been extended due to COVID-19 disruptions) delivered digital literacy training
with 4,675 course placements. The final report of the pilot phase of this
programme is attached as Appendix 1.
25 Budget 2022 allocated $1.341 million over three years to support a further
5,000 older people to be digitally included. The new delivery phase was
intended to expand the reach of the programmes, focus on groups with
multiple risk factors for digital exclusion, and enhance the data on learner
participation. Over the next three years six providers are expected to deliver
essential digital skills courses to nearly 5,000 learners around the country.
We will keep you updated on progress of the programme through the Seniors
Status Reports.
26 The programme is due to be evaluated over its three-year duration. The
evaluation will report on the completion of the outcome agreements with the
six providers and the impact and value of the programme overall.
Essential digital skills framework
27 To promote consistency in service delivery, the Office developed a framework
to help evaluate and improve the effectiveness and quality of digital literacy
training programmes for seniors, focusing on essential skills training. The
Essential Digital Skills Evaluation Framework for Seniors (the EDS
Framework) has been adopted, shared and endorsed by several government
agencies, businesses, and digital literacy training providers. A copy of the
framework is provided as Appendix 2.
28 The Office has been working with a group of digital training providers and
established the Digital Inclusion Action Group for Older People (the Action
Group). The objective of this group is to enhance partnership opportunities
and explore ways to improve digital inclusion for older people.
29 The Action Group have agreed to work with us to use and promote the EDS
Framework and work collaboratively to increase the reach, impact, quality
and consistency of digital literacy training programmes, impact, quality and
consistency.
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Progressing digital inclusion
30 There continues to be a need to improve digital inclusion for older people and
demand for training and support is high. All members of the Action Group
report that training programmes are over-subscribed.
31 The Office will continue to advocate and work on improving digital inclusion
for older people. This includes:
• supporting successful completion of the current Digital Literacy Training
for Seniors programme by June 2026
• exploring ways to increase the reach and impact of the Digital Literacy
Training for Seniors initiative. This includes working with the Action
Group to improve its strategic alignment and coordination, with a focus
on the EDS framework that provides a baseline/level of quality digital
literacy training outputs and measures, and
• work with other government agencies, including DIA and the Ministry
for Business, Innovation and Employment to explore an all-of-
government approach to address digital exclusion.
32 The scale of digital exclusion among older people is significant and will remain
an issue for some time. We look forward to discussing with you opportunities
to:
• sustainably deliver digital literacy training for older people beyond the
end of the current Office programme in 2026, and
• address more enduring and complex barriers to digital inclusion
experienced by some older people, including affordability of devices
and connections.
Next Steps
33 We welcome the opportunity to discuss digital inclusion with you and how we
can work with you to continue to see improvements in digital inclusion for
older people.
34 In due course, you may also wish to seek opportunities to discuss digital
inclusion for older people with relevant Cabinet colleagues, such as the
Minister for Digitising Government.
Appendices
35 Appendix 1 – Final report – Phase 1 Digital Literacy Training for Seniors
programme
36 Appendix 2 – Essential Digital Skills/Literacy Evaluation Framework for
Seniors.
File reference: REP/23/12/988
Author: Peta Ranieri, Advisor, Office for Seniors
Responsible manager: George Minton, Manager, Office for Seniors
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Appendix 1 – Final report – Phase 1 Digital Literacy Training for
Seniors programme
Background
One of the initial actions in the Better Later Life – He Oranga Kaumātua 2019 to
2034 Strategy is to ‘improve digital skills and inclusion of older people’. The Better
Later Life Action Plan 2021-2024 identifies Digital Inclusion as a priority action.
In 2019, the Office for Seniors was allocated $600,000 to provide digital literacy
training for seniors over three years. The Office led a procurement process to
provide training focused on learning essential digital skills for everyday life and
building trust. Digital Inclusion Alliance Aotearoa and 20/20 Communications
Trust were contracted to deliver essential digital skills and literacy training for up
to 4,700 older people. Pasefika Proud also committed $30,000 in funding for the
translation of material and resources into Pacific languages in order to support
older Pacific learners.
The programme was designed to run over three years, with contracts signed
February 2020. Delays due to the COVID-19 disruptions – notably impacting
providers’ ability to deliver in-person training – meant that the contracts were
varied and the programme was completed in its entirety by June 30 2023 and led
into Phase 2, which is currently in progress.
20/20 Communications Trust – Pacific Senior CONNECT Programme
The 20/20 Communications Trust partners with local communities to deliver digital
inclusion programmes. The Pacific Senior CONNECT programme was designed
specifically to provide training to Pacific Seniors through their churches, delivered
in participants’ first languages.
• This programme offered eight 2.5-hour training modules with face-to-face
classes.
• The programme successfully delivered 378 placements, meeting the
contracted requirement of 375 learners. The programme had a 100%
completion rate.
• Learners were Pacific seniors over 65 years of age, with approximately 15%
over the age of 75.
• Learners identified as Samoan, Fijian, Tongan, Cook Island Māori, Kiribati,
Tuvaluan, and Niuean. The largest percentage identifying as Samoan.
• Most learners in the programme were female (approximately 60%).
• 100% of course participants indicated that they learned and could use at
least one new skill.
• Evaluation using the essential digital skills framework indicated that on
average participants increased:
o Foundation/Basic skills from 14% (before training) to 55% (after
training). Within this category, the ability to “connect a device to a
Wi-Fi network” had the highest increase; from 17% to 90%.
o Social Connections skills from 14% (before training) to 65% (after
training). Within this category, “communicate with others digitally
e.g.; through email, messenger” had the highest increase from 28%
to 93%.
o Skills to carry out online activity and services from 7% (before
training) to 43% (after training). Within this category, the skill to
“use the internet to find information that help me solves problems
Digital Inclusion for Older People 9
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e.g.: use search engines” has the highest increase from 12% to
68%.
o Skills to be safe online from 7% (before training) to 37% (after
training). Within this category, the ability to “keep the information I
use to access my online accounts secure, by using different and
secure passwords for websites and accounts” has the highest
increase from 16% to 69%.
Notes
• 20/20 Communications Trust received funding from Lotto grants for $40k to
cover the cost of participant devices in 2021.
• The COVID-19 pandemic impacted delivery of the programme and the
service delivery end date was extended from June 2022 to December 2022
to enable the 20/20 Communications Trust to reach the contracted number
of participants (up to 375).
• During the course of delivering the programme 20/20 Communications
Trust implemented a change in data management systems to record
learner information and programme delivery (from GoogleSheets to
SalesForce CRM). The changeover between systems led to some data entry
errors, which were subsequently identified and corrected.
• Staffing changes meant doubling up of some work during handover
occurred and led to some confusion in reporting, which was later clarified.
• It was noted that in Pacific communities, older age is generally considered
to begin at around 55 years. The 65+ requirement for the programme
meant some high need Pacific older people were missing out, which should
be considered moving forward with similar programmes.
Digital Inclusion Alliance Aotearoa (DIAA) - Better Digital Futures for
Seniors
The DIAA is a national network provider of over 400 local organisations, providing
digital literacy support for their communities. Approximately half of
these organisations are public libraries; the others provide targeted social services
to their communities. Many provide services specifically for older people. The
programme run through DIAA was named Better Digital Futures for Seniors.
• This programme began by offering six learning pathways: Digital
Introductory, Digital Essentials, Digital Engagement, Digital Safety, Digital
Banking, and Digital Apps, with each pathway including four 2-hour
modules with face-to-face classes. A seventh pathway was added during
the course of programme at the request of delivery partners – Digital Mix ‘n
Match. This was offered for seniors who wanted to select four modules from
different pathways. It was found that some participants preferred flexibility
to select particular modules most suited to their needs. The most popular
pathways over the course of the programme were Digital Introductory and
Digital Mix ‘n Match.
• The programme successfully delivered 4,301 pathway placements, meeting
the contracted requirement of 4,300. By June 12 2023, 2643 people had
enrolled in one or more pathways and over 10,000 individual modules were
delivered over the seven pathways across the course of the programme.
Some participants chose not to complete all four modules of the enrolled
pathway because they already had those skills or indicated they were
happy with the sessions they had completed. Some were unable to
continue because of health or other reasons.
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• Learners were supported through 61 delivery partners at 161 locations
around Aotearoa New Zealand. Delivery partners included public libraries
(66%), community service providers – including technology centres (23%),
as well as Age Concern groups and retirement villages.
• 92% of learners were over the age of 65 and the majority were female
(73%). 62% of learners identified as European/Pākeha, 15% Asian, 11%
Pasifika, 9% Māori and 5% other.
• Evaluation using the essential digital skills framework showed participants
reported a significant increase in digital skills:
o Basic/Foundation Skills: 68% had basic digital skills
o Social Connection Skills: 64% could use digital technologies for social
connection
o Online Transactions and Activities: 66% could work online confidently
o Online Safety: 86% could keep themselves safe online.
• Participants indicated that after training there was a 16% increase in using
the internet to find information and a 12% decrease in dependence on
others for tasks involving technology.
• Participants were asked to rate their experience with the training
programme:
o 89% said they were ‘very satisfied’ or ‘satisfied’ with the programme
o 95% said they were ‘very satisfied’ or ‘satisfied’ with the trainer.
Notes
• The COVID-19 pandemic impacted delivery of the programme. Many
delivery partners were unable to provide face-to-face training due to social
distancing requirements at training locations. DIAA revised their service
delivery plan, including piloting an alternative delivery model using Zoom
for those with access, and local community digital hubs for those without.
• Due to the delays and disruptions, the service delivery end date was
extended from June 2022 to June 2023 to enable the DIAA to reach the
agreed number of participant pathways (up to 4,300).
• The Office for Seniors worked collaboratively with DIAA to help them
identify and subcontract with more delivery partners in order to meet the
terms of the contract.
• It was noted that delivery partners with staff dedicated to the delivery of
digital skills support were more successful in engaging older people than
those with staff who had to fit this task in with numerous other duties. This
was reported as an issue particularly with public library providers and in
retirement villages.
Concluding remarks
The programme was in place over the substantive period of the COVID-19
pandemic. This impacted delivery of the programme for both providers, but also
highlighted the importance that digital inclusion plays in our daily lives.
Both contracts were successfully completed. Participants overwhelmingly reported
an increase in digital skills and confidence, and satisfaction with the provided
programme. Demand for the training remained high throughout the duration of
the programme.
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The Digital Literacy Training for Seniors programme was the recipient of the 2021
International Data Corporation (IDC) Smart City Asia Pacific Awards in the
Education category.
Budget 2022 allocated $1.341 million over three years for the Office for Seniors to
extend and expand its Digital Literacy Training for Seniors programme. This new
funding is particularly targeted to deliver digital skills training in a way that works
for diverse groups of older people, including older Māori, Pacific, and East Asian
people. Following a tender process, six providers were chosen to deliver essential
digital skills courses for up to a further 5,000 learners around the country
between 2023 and 2025. This will form the second phase of the Digital Literacy
Training for Seniors programme and will be separately evaluated.
IN-CONFIDENCE
Appendix 2 – Essential Digital Skills/Literacy Evaluation Framework for Seniors
Essential Digital Skills/Literacy Evaluation Framework for Seniors
What do we want to achieve
All older New Zealanders have the digital literacy skills to be digitally included. These include:
•being able to connect to the digital world or the internet
•having the trust and confidence to carry out online activity and services
•staying connected with their families and friends
•keeping up with technology as it changes
What does this look like Able to connect to the internet with
different devices in different ways
Able to carry out online activity and services safely, with trust and confidence,
including being able to:
•register and apply for services, buy and sell goods and services, and administer
and manage transactions online
•interact online safely (understand and avoid scams) with different online
devices, systems, and apps
•find, manage and store digital information securely
•find solutions to problems using online services, including keeping up with
change of technology
Have a better understanding about technology and the digital
world
How we will measure this
Participants self-evaluate their
digital literacy skills before and
after training using the enclosed
template (also includes questions
about participants’ experience on
the training programme and
trainers/facilitators)
Foundation/Basic skills*
percentage of participants who can:
•turn on a device and log in to any
accounts/profiles they have
•percentage of participants who can
connect a device to a Wi-Fi network
•find and open different applications
(App) or programmes on a device
•use the different menu settings on a
device to make it easier to use (e.g.
change the font size to make it
easier to read)
•organise information using files and
folders
•use bookmarks to save and retrieve
websites and information
*Participants must have the
foundation skills before learning the
other skills
Skills to carry out online activity and
services
percentage of participants who can:
•manage their money and transactions
online securely, via websites or apps (e.g.
bank account)
•buy and/or sell goods or services online
•percentage of participants who can access
and register services online including filling
in forms, particularly for government
services
•access and manage health services online
(e.g. booking appointments or online
consultation)
•use the Internet to find information to help
them solve problems e.g. use search
engines
•use online tutorials, web chat, FAQs and
forums to solve problems
•use their digital skills to keep up with
change in technology
Social connection skills
percentage of participants who
can:
•communicate with others
digitally (e.g. email, or
Messenger)
•speak to others through
video tools (e.g. FaceTime,
Zoom or Skype)
•interact and/or post content
on social media platforms
(e.g. messages,
photographs, video etc.)
•use the Internet to stream
or download entertainment
content (e.g. films, music,
games or books)
•set privacy settings on social
media and other accounts
Skills to be safe online
percentage of participants who can:
•keep the information they use to access online accounts
secure, by using different and secure passwords for
websites and accounts
•respond to requests for authentication (e.g. reactivate an
account when they have forgotten their passwords)
•assess the risks and threats involved in carrying out
activities online and act accordingly, including
orecognise and avoid suspicious links in emails,
websites, social media messages and pop ups, and
know that clicking on these links is a risk
oupdate computer security systems when necessary to
prevent viruses and other risks
oidentify secure websites by looking for the padlock and
‘https’ in the address bar
•make sure not to share or use other people's data or
intellectual property without their consent
•be careful with what they share online as they know that
online activity produces a permanent record that can be
accessed by others
Input/Intervention Digital Literacy Training
Target group/participant
criteria
•People aged 65 years and over, from diverse groups including Māori, Pacific, and other ethnic groups
•Lack basic understanding about technology, the internet, and online services
•Lack knowledge and skills to connect to the internet with different devices in different ways
•Lack skills, trust and confidence with technology to carry out online activity and services
1
Seniors
Status Report
Issue #2
Friday 15 December 2023
REP/23/12/967
Date: / /
Seen by Hon Casey Costello
Minister for Seniors
2
Table of Contents
1. Age friendly grants – past recipients .................................................................. 3
2. Huia Award recipients - Age Concern New Zealand .............................................. 4
3. Senior Enterprise Pilot ...................................................................................... 5
4. Grey Power facing financial pressures................................................................. 8
5. Affordable Housing for Generations Research Summit .......................................... 9
6. Current engagement in Office for Seniors communications channels .................... 10
Upcoming reports to the Minister in the next month ................................................ 12
Reports for the Minister since the last Seniors Status report ..................................... 13
Actions arising from previous Senior Status meetings .............................................. 14
Office for Seniors sector engagement .................................................................... 15
3
1. Age friendly grants – past recipients
Action: For noting
You requested the amount funded for each recipient of Age friendly grants. This
information is collated in Appendix 1.
Details of the 2023 grants are not yet finalised. We will update you with
information on the 2023 recipients in a future Seniors Status Report.
Contact: Karen Piercy, Programme Lead Age friendly, Office for Seniors,
s9(2)(a)
4
2. Huia Award recipients - Age Concern New Zealand
Action: Sign the three attached congratulatory letters
Age Concern New Zealand’s Huia awards were launched in 2022 as an annual
celebration of older people and those who have made a significant contribution
to the lives of older people. There are three recipients each year. The recipients
for 2023 were Elsie Tonks, Bronwyn Groot and the Age Concern Auckland Asian
Services Team.
We suggest you congratulate the winners of the award and have prepared
congratulatory letters should you wish to do so. These are attached for your
signature as Appendix 2.
Elsie Tonks has been a volunteer at the Tait Drive Social Club Luncheon in
Napier for 25 years. She is described as a stalwart of compassion, dedication,
and resilience. She has created a space for fostering friendships and social
connection at the luncheon.
Bronwyn Groot is a strong advocate against financial elder abuse and scams.
She is currently an anti-scam consultant. In her previous role she led the
development of “The Little Black Book of Scams”, as the Fraud Education
Manager at the Commission for Financial Capability (now the Office of the
Retirement Commissioner). Since early experience as a bank teller observing the
incidence of scams affecting older people, she has dedicated her career to
raising awareness on these issues and has taken proactive steps to educate
older people.
The Age Concern Auckland Asian Services Team provides services and supports
in Mandarin, Cantonese, Korean and Japanese to older Asian residents living in
Auckland. They provide a range of services to help reduce social isolation,
loneliness and address abuse and neglect. The Asian Services Team is also one
of the contracted providers for the Office for Seniors Digital Literacy Training
Programme (referenced in Seniors Status Report #1), although this award
relates to their wider work.
Contact: Rita Endermann, Advisor, Office for Seniors,
s9(2)(a)
5
3. Senior Enterprise Pilot
Action: For noting
You have asked us to provide you with information regarding the Office for
Seniors (the Office) Senior Enterprise pilot programme.
Two small pilots were completed in 2022 in Selwyn District, supported by the
Office and the Selwyn District Council. Two groups totalling 25 people completed
the ‘Starting a Business Later in life’ programme. This involved weekly group
meetings and workshops and working with a business mentor to plan their
business.
The Office was allocated $240,000 in Budget 2022 to deliver a larger scale pilot,
as part of a wider bid to implement elements of the Better Later Life Action Plan.
This included targeting people who are underrepresented in entrepreneurial
activities such as older Māori, Pacific Peoples and women. The aim of the larger
scale pilot was to enable around 80 older people (aged 50 and over) to establish
successful business ventures.
The Office undertook a Request for Proposal (RFP) process in late 2022 and five
providers were appointed. Each provider proposed a different service delivery
model to meet the objective of enabling participants to make informed decisions
about the viability of their business idea and to take the first steps towards
developing a sustainable business. A short summary of each pilot, the service
delivery model and progress to date is included below.
Nelson Tasman Chamber of Commerce (Nelson)
Delivering a collaborative approach consisting of a mixture of group workshops
focused on business essentials and one-to-one business mentoring, as well as
joining the Chamber of Commerce network. This pilot has been delivered over
eight months to a group of 13.
Trust MYRIVR (Pukekohe)
Trust MYRIVR took an individualised approach to providing tailored support to
older Māori and Pacific entrepreneurs. In addition to supporting older
participants, Trust MYRIVR focuses on families, and where possible supports the
development of multigenerational businesses. Participants had access to shared
office space and other equipment. An emphasis on networking allowed the
participants to build business connections.
Creative HQ (Wellington)
Creative HQ takes a “learn by doing” approach to capability-building services so
the cohort can apply their learning and make real progress on their
entrepreneurial journey. The team at Creative HQ help break down the jargon of
entrepreneurship and connect participants with a range of other supports. The
cohort completed the Creative HQ Certificate in Applied Innovation, participated
6
in the Creative HQ Startup sessions, connected with the startup community and
used the Creative HQ entrepreneurship e-learning modules.
Univentures Ltd (Online)
Univentures will deliver the Starting a Business in Later Life programme that was
delivered in the previous Selwyn pilot, involving training and start-up coaching.
Univentures collaborated with UCOnline (University of Canterbury) to convert
this to an online support programme that can be delivered across the country.
Ngā Toi Hawke’s Bay Charitable Trust
Delivered Wā Matua, a wānanga-based business start-up and development
programme for Mātāpuputu Māori Rakahinonga (Māori Senior Entrepreneurs).
Examples of businesses being established
Most businesses are still at testing stage, or are close to getting underway.
However, several are established and operating. The table below provides
examples of business ideas across the five providers (in no particular order):
An enterprise offering post-operative
homestays for individuals requiring a level
of support as they recuperate, providing a
comforting and healing environment.
An intergenerational start-up in gaming,
developing an indigenous approach at the
interface of health and education.
A small business focused on crafting and
selling garments and accessories dyed with
natural, eco-friendly colours.
A refrigeration and air-conditioning service in
Auckland and Tonga, catering to residential
and commercial clients.
A watercolour artist working to collaborate
with local galleries to exhibit and sell their
creations.
A lawn care business in South Auckland,
specializing in cemetery maintenance with a
respectful approach.
An innovative platform dedicated to
tracking individual trees for carbon
offsetting, contributing to environmental
sustainability.
A Māori entrepreneur providing kaumātua
cultural advisory services, enriching
organisations like the Police and Auckland
University with Māori cultural insights.
A dog grooming business which is being
structured with a view to franchising. A custom apparel printing business,
featuring Māori, Pasifika and indigenous
designs on clothing.
A business offering expertise in applying
methodologies like systems thinking, future
thinking, and design thinking to enhance
government stakeholder engagement, user
experiences, and strategic innovations.
A Samoan grandmother in Auckland teaching
music, offering singing and piano lessons,
nurturing musical talent in the community.
7
A business specialising in the production of
wildflower turf for residential, commercial,
and public landscapes.
A business to manufacture plus-size clothing
for wahine Māori using natural fabrics and
Māori designs.
A digital tool that evaluates the value of
consumer goods based on their price,
warranty, and expected lifespan, aiding
consumers in making informed purchasing
decisions.
A Māori and Pasifika language and cultural
consultancy, enhancing cultural
understanding and language proficiency for
organisations and individuals.
A business that hires out and maintains
plants for businesses, office and home
spaces and special events.
Two Wahine Māori healing practitioners
working towards setting up a clinic for a
diverse range of Māori health practitioners
A business producing kawakawa skin balms
and natural soy candles using mātauranga
Māori approach and applying kete tuauri
ritual and prayer.
A business to deliver a boutique online
English Language programme to overseas
and domestic international students.
A secondary objective of the pilot is to test and assess approaches to supporting
entrepreneurship for those over the age of 50. To this end, an evaluation process
is already underway with those providers whose programmes have concluded.
We expect results for the full programme to be available by mid-2024. We will
provide you with a report on the evaluation of the programme when it is
completed.
Contact: Jessica Ettridge, Senior Advisor, Office for Seniors,
s9(2)(a)
8
4. Grey Power facing financial pressures
Action: For noting
You asked for advice on what could be done to support Grey Power New Zealand
(Grey Power NZ) in publishing its printed quarterly magazine. In the November
2023 (Issue 56) edition of the magazine, the Interim Treasurer outlines this
issue.
Grey Power NZ is facing financial pressures due to rising costs and reducing
membership numbers and loss of sponsorship. Their annual budget was rejected
at their 2023 Annual General Meeting. It has since been revised by the Board.
This situation is in line with the experience of many other membership
organisations.
Grey Power NZ produces a quarterly publication that is printed and posted to
members. This magazine provides members with organisational updates from
the Grey Power Executive, as well as articles and offers of relevance to older
people. Its production is funded in part with advertising. The magazine is an
important method of communication with members, particularly those who are
not online. Although the majority of members prefer reading a printed copy of
the magazine, a growing number are opting to receive a digital copy.
The Grey Power organisations have established a federation structure with Grey
Power NZ being responsible for advocating to support and protect the interests
of older people. They also hold responsibility for a range of issues including NZ
Super, Aged Care and Retirement Villages. They also provide a range of services
to their members, including discounts on a variety of products and services.
The Office has a good relationship with Grey Power NZ, as one of our key
stakeholders in the seniors sector, but do not have a financial relationship.
There are approximately 70 Grey Power Associations around New Zealand. They
have been declining in number as has membership which has declined from
around 90,000 paid members, and was reported to be around 70,000 in 2018.
Publication of the Grey Power magazine is the organisation’s largest expense, at
$8 per member annually. Grey Power receive a capitation of $7.50 per member
from membership fees that contributes to this cost. Grey Power prints 43,000
magazines each quarter, for distribution to members.
Grey Power NZ has raised several options to meet the funding shortfall
associated with publishing its magazine:
• offer an email only option,
• increase annual membership fees, or
• reduce frequency of publications, from 4 to 3 annually.
Testing these options could be a viable route for Grey Power NZ to modernise
and ensure its financial viability. Grey Power NZ are seeking feedback from
members on this issue and it will be discussed at their AGM in in 2024.
The Office has relationships with stakeholder organisations across the seniors
sector but is not funded to financially support these organisations.
Contact: Katharine Haddock, Senior Advisor, Office for Seniors,
s9(2)(a)
9
5. Affordable Housing for Generations Research Summit
Action: For noting
Representatives from the Office for Seniors and the Ministry of Social
Development Older People’s Policy team recently attended the Affordable
Housing for Generations Research Summit, which focused on housing, homes
and communities.
The research presented at the summit was undertaken for the Building Better
Homes, Towns and Cities National Science Challenge, a programme launched in
2016 to improve the quality and supply of housing and create smart and
attractive urban environments.
The summit presented research-based solutions to achieve affordable housing
stock for diverse people and thriving communities. It also focused on housing
that works throughout the lifecycle of the dwelling and that can support multiple
generations through the life course.
Speakers addressed a range of topics including the meaning of home ownership,
affordability benchmarks and co-housing. Though not specific to older
populations, the research captures issues for housing, homes and communities
that are increasingly impacting older people.
Some key takeaways included:
• Housing affordability stress is greater for marginalised groups, including
older people, low-income families, single people, refugees, Māori and
Pacific people.
• In New Zealand people buy housing as a form of investment, often to
supplement their retirement income. Where these are not held as a long-
term asset this can impact security of tenure for those who rent.
• Renters can lack control and agency over their rentals. Temporary housing
is a risk-factor for older people’s homelessness. For a house to be a home,
the renter needs a sense of independence, belonging and autonomy in the
rental arrangement.
Insights from the summit will inform our teams’ work in relation to housing for
older people.
The research presented at the Affordable Housing for Generations Research
Summit are uploaded here as they are finalised: Publications – Homes for
Generations (goodhomes.co.nz).
Contact: Maryam Ghorbanpour, Policy Analyst, Older Peoples Policy,
s9(2)(a)
10
6. Current engagement in Office for Seniors
communications channels
Action: For noting
You asked us to provide additional statistics for the Office for Seniors’ (the
Office) communications channels, including unsubscribe rates.
Newsletter
The Seniors Newsletter has two mailing lists, one which has all NZ
superannuitants (more than 470,000 unique email addresses), and an opt-in
mailing list made up of 8,850 subscribers.
Below are the statistics for our most recent December Newsletter.
NZ Superannuitants:
• Unsubscribes: 414
• Total opens: 353,965
• Total recipients who opened: 190,783
• Total recipients who clicked: 21,462
• Total link clicks: 34,242
• Most popular link: 4,544 clicks for change to residence criteria for NZ
Super.
Opt-in subscriber mailing list:
• Unsubscribes: 12
• Total opens: 6,523
• Total recipients who opened: 3,447
• Total recipients who clicked: 392
• Total link clicks: 667
• Most popular link: 107 clicks for change to residence criteria for NZ Super.
Website
The aim of the Office website is to improve awareness of what we do and
provide relevant information to stakeholders to help them to support older
people.
In the past six months, the most viewed pages were:
• Creating an Enduring Power of Attorney (17,000)
• Digital Literacy (7,900)
• Elder Abuse Response Service (6,100), and
• Sign up for Seniors Newsletter (4,800).
11
Over the last six months, the website had 145,000 views, and there were
425,000 events (actions such as clicking buttons, downloading forms, or
watching a video).
Social media
Facebook
The Office Facebook page promotes a range of information specifically targeted
at people aged over 65.
Content is a mix of publicity around Office initiatives, important messages from
the Ministry of Social Development, other Ministries and public sector
organisations, combined with health, positive human-interest stories and light-
hearted memes aimed at encouraging engagement and contribution.
An online publicity campaign was launched to support the World Elder Abuse
Awareness Day (15 June). This used animations, graphics and promoted (paid)
posts. The campaign delivered targeted and persistent coverage and more than
six months later is continuing to deliver results and engagement.
In the last six months the Facebook page has:
• 241 new page likes/followers, and
• reached 934,000 people through posts.
The best performing post in the last six months was a cartoon about Alzheimer’s
by Tony Husband, reaching 48,500 people. Second highest was a “Flashback
Friday” post reaching 23,700 people.
Best performing posts (apart from “Flashback Friday”) have been:
• Article about Dr Gladys McGarey living to 102 years (6,100)
• Celebrating Matariki (5,400), and
• Covid-19 update in August (4,100).
LinkedIn and X (formerly Twitter)
The Office uses both LinkedIn and X (formerly Twitter), with followers made up
primarily of our stakeholders. X has been the Office’s main platform for
stakeholders in the past, but we have transitioned to using LinkedIn more
recently. This is in line with other organisations and stakeholders.
In the past six months the Office for Seniors LinkedIn account has:
• gained 29 followers, and one unfollow (there are currently 151 followers)
• 201 page views, and
• 82 unique visitors.
For X, in the past three months there have been 2,600 impressions.
While the platform does not show the number of unfollows, in the last six
months the account has fluctuated up and down by 2-5 followers each month.
Contact: Helen Holt, Communications Advisor, Office for Seniors, 029 7700793
12
Upcoming reports to the Minister in the next month
Title Rep # Activity Lead Activity Support Due date Comments
Older People’s Housing REP/23/12/920 George Minton Katharine Haddock
15/12/23
Seniors’ financial security and economic
participation REP/23/12/922 George Minton Jessica Ettridge 15/12/23
2024 King's Birthday Honours
Applications REP/23/12/954 George Minton Rita Endermann 18/12/23
AM: Introductory meeting with Age
Concern New Zealand TBC George Minton Rita Endermann 19/12/23
Digital Inclusion for Older People TBC George Minton Peta Ranieri 21/12/23
Potential priorities for the Seniors
portfolio TBC George Minton 21/12/23
Summer reading list TBC George Minton 21/12/23
13
Reports for the Minister since the last Seniors Status report
Title Reference Activity Lead Activity
Support Date sent
AM: Introductory meeting with the Aged Care
Commissioner REP/23/12/919 Miriam
Mathews Liz Marks 11/12/23
COVID-19 Recovery (Fast-track Consenting) Act
2020 - Holly Lea Village Limited - Draft Conditions REP/23/12/953 Diane Turner Karen Piercy 11/12/23
New Zealand Superannuation and Income Support
for Older People
(to Minister for Social Development and Employment
office for referral)
REP/23/12/921 Miriam
Mathews Kam Salt 11/12/23
AM: Introductory meeting with the Retirement
Commissioner REP/23/12/938 George Minton Daniel Haig 12/12/23
14
Actions arising from previous Senior Status meetings
Action required Timing Lead Status
Further detail on Senior Enterprise Pilot Programme Included in this report – SSR #2
item 3 George
Minton Complete
Further Information on Homeshare Pilot Included in REP/23/12/920 George
Minton Complete
Map of departments and agencies with policy
responsibilities for issues related to Seniors portfolio Will be included in Summer reading George
Minton In progress
Background on Rates Rebate Included in REP/23/12/920 Miriam
Matthews Complete
Background on overseas pension issues Included in REP/23/12/921
Information on Grey Power financial issues publishing
newsletter Included in this report – SSR #2
item 4 George
Minton Complete
15
Office for Seniors sector engagement
Organisation Date Meeting Content
Nelson City Council 28 November 2023
The Nelson City Council, City for All Ages Steering Group requested a
presentation to provide an overview of the recent work of the Office.
As one of the Age friendly Cities they have an interest in the overall
work programme.
Shanti Niwas 1 December 2023 Met with the new social worker, to let them know about the role of
Office for Seniors and discuss the abuse of older people.
Ageing Well National Science
Challenge 5 December 2023 Discussed research opportunities for the first half of 2024, ahead of
the end of the National Science Challenge.
Māori Women’s Welfare League 5 December 2023 Met to discuss the abuse of older people and the potential
development of a toolkit to enable whānau discussions about abuse.
Digital Inclusion Action Group
for Older People 6 December 2023
Quarterly meeting to discuss work being done around digital
inclusion for older people and digital literacy training for older
people. Members include Moana Connect, Age Concern New Zealand,
Digital Inclusion Alliance Aotearoa, SeniorNet NZ, Tautua 360, 20/20
Communications Trust, Age Concern Auckland Asian Services team
and Kokiri Marae.
16
Organisation Date Meeting Content
Supported decision-making
advisory group meeting 6 December 2023
This group is developing guidance about supported decision-making.
The meeting was attended by Age Concern New Zealand, Dementia
NZ, IHC, the Personal Advocacy and Safeguarding Adults Trust and
the Complex Care Group, as well as government organisations.
International Migrant Services
Conference 7 December 2023 Conference organised by the Chinese New Settlers Services Trust.
Participants included Auckland Council, Haumaru Housing, Stats NZ
and organisations from the United States of America.
Meeting with the UN Decade of
Healthy Ageing collaboration
seeking to bring about positive,
transformational change for
older people in Aotearoa New
Zealand
15 December 2023 Attended event organised by Selwyn Foundation –
originally you were
invited as Minister. Attendees included Age Concern NZ, Retirement
and Aged Care Commissioners, Grey Power and Carers New Zealand.
17
Appendix 1 - Age friendly fund grants 2018-2022
Funding
Round Organisation Project Description
Amount
(excl. GST)
May 2018
2018/05 Carterton District
Council Carterton Positive
Aging Strategy Co-ordinating with South Wairarapa and Masterton District Councils to
create a Positive Ageing Strategy for the whole Wairarapa district. $15,000.00
2018/05 Eastern Bay
Villages: Whakatane Te Kokoru
Manaakitanga
Linking residents from the Whakatāne district to share ideas, host hui and
develop policies. The project will prepare a report on ways to reduce
vulnerability and isolation in rural Māori communities and culturally
appropriate ways to address these issues.
$15,000.00
2018/05 Hurunui District
Council (Canterbury) Hurunui Age friendly
Community Plan
Assessing current and future needs and understanding the issues affecting
older people. Engaging with older people and organisations to gather ideas
on what the council can do to create Age friendly communities and create a
plan to present to the council with actions.
$12,900.00
2018/05 Napier City Council
Older People's
External Residential
Assessment Tool
(OPERAT) Trial
Training and supporting older people in the use of OPERAT (Older People's
External Residential Assessment Tool). Testing the suitability of the tool for
use in New Zealand. $8,325.00
2018/05 Waimakariri District
Council
Waimakariri Age
friendly Community
Plan
Supporting development of a Waimakariri Age friendly Community Plan.
The project will establish a Steering Group to co-create an engagement
plan to gather views of older people in the community. The council has
prepared a discussion document to stimulate discussion. The project will
assess current council activities and identify priority issues and gaps.
Information will be used to develop an Age friendly Community Plan.
$11,997.00
2018/05 Well-Able: Kāpiti Well Able Kāpiti Designing and developing resources for pre- and primary school children to
build empathy and understanding of the needs of older people in the Kāpiti
community. The resources will be tested in schools and with older people. $6,750.00
18
Funding
Round Organisation Project Description
Amount
(excl. GST)
October 2018
2018/10 Taupō District
Council Taupō Age friendly
Community Strategy
Developing an Age friendly Communities Strategy. The first step is to
develop a project plan to engage and work with the different communities
in the Taupō district. $12,000.00
2018/10 Wesley Community
Action - Hutt Valley,
Wellington Ageing Well Network Designing and developing an Ageing Well Network for the Hutt Valley. It
will involve establishing a core design group, workshops with community
stakeholders, and creation of a stepped implementation plan. $15,000.00
2018/10 Enliven Woburn -
Hutt Valley,
Wellington
Buddy Programme for
community members
experiencing
Dementia
Piloting a volunteer buddy programme to support Hutt Valley community
members experiencing early to moderate dementia, and their family
members. The project will train and up-skill the volunteer work force and
pool resources currently available in different parts of the community.
$5,000.00
2018/10 Nelson City Council Nelson Age friendly
strategy
Investigating the experiences and challenges of ageing from the
perspective of five different groups in Nelson: Māori, Pasifika, former
refuges, older migrants and LGBTI. This work will inform the development
of the wider Nelson Age friendly Strategy.
$12,600.00
May 2019
2019/05 CNSST: Auckland
Age friendly Future for
Us (Chinese
Communities)
Targeted consultation with Chinese communities to help develop the
Auckland Age friendly action plan. $15,000.00
2019/05 Hauraki District
Council A Friend’s Place,
Waihi’ project A feasibility study to establish intergenerational and Age friendly social
support for older people in Waihi. $5,000.00
2019/05 Horowhenua District
Council Nurturing the Way
Forward project Developing an Age friendly Communities strategy and review of the
councils' Positive Aging Action Plan. $15,000.00
19
Funding
Round Organisation Project Description
Amount
(excl. GST)
2019/05
Howick Baptist
Virtual Villages East:
Auckland
Virtual Village East
project Developing a virtual village model to build an Age friendly community for
seniors in Howick and surrounding areas. $10,000.00
2019/05 Kāpiti Coast Grey
Power Age friendly Kapiti
Coast project Engaging with four unique communities in the Kāpiti Coast to identify and
prioritise Age friendly actions. $10,000.00
2019/05
Nelson Tasman
Community
Transport Trust
Community Transport
Tasman research
project
Researching the transport needs of older people and trialling a community
bus service to develop an effective community transport service model. $12,500.00
2019/05 New Plymouth Age-
Friendly Trust
Launch of the Age
Friendly New
Plymouth Action Plan
Engaging with key stakeholders in rural and remote areas to identify
priority areas for the Age friendly New Plymouth Action Plan. Overseeing
implementation. $12,000.00
2019/05 Toa Pacific (Ōtara,
Auckland)
Ōtara Community
Outreach project
Facilitating an introduction to older Pasifika people. Engaging and
connecting with a range of Age friendly community led activities to help
reduce social isolation and loneliness. $10,000.00
October 2019
2019/10 Age Concern
Auckland Age friendly Social
Connections
Piloting a social connection programme making Auckland more Age
friendly. Build a network of local volunteers to support and assist isolated
older people. $15,000.00
2019/10 Age Concern
Wellington Connect! Programme
An initiative to reduce isolation among older people and strengthen
communities through increased participation and engagement. Piloting use
of the existing volunteer network to support older people into new activities
and networks. Creating relationships with older people then linking them
through to existing clubs and opportunities in their area.
$15,000.00
2019/10 Alexandra
Community House:
Central Otago
Alexandra Community
Village
Undertaking a feasibility study to develop a model to address isolation and
loneliness in Alexandra/Clyde. Work includes a community survey to
identify community issues and priorities to support development of a virtual
village.
$10,000.00
20
Funding
Round Organisation Project Description
Amount
(excl. GST)
2019/10 Alzheimer’s Otago Dementia Friendly
Otago Project
Raising awareness of dementia to the public and supporting local
businesses to become dementia friendly to support people living with
dementia. $15,000.00
2019/10 Connect the Dots
(South Auckland)
Make Moments
Multicultural
Programme
Developing and piloting free community art workshops in Māori, Pacific and
Asian languages for people with dementia, to provide social connection and
meaningful activity. $8,700.00
2019/10 Coromandel
Independent Living
Trust
Towards an Age
friendly Coromandel
Community
Assessment
Engaging with older people and key local stakeholders to form a steering
group to develop and carry out a community Age friendly assessment in
the Coromandel Colville ward. It will be guided by the WHO framework and
form a seniors hub (networking group).
$10,000.00
2019/10 Dementia Wellington
Living Well with
Dementia Kapiti
Project
A pilot programme to enable people with dementia and their carers to
remain connected and engaged. $9,000.00
2019/10 Hutt Timebank Ageing Well Transport
Pilot Supporting older people with transport needs and social connection using a
time banking model. $7,200.00
2019/10 Waitaki District
Council Towards an Age
friendly Waitaki Developing a Waitaki District action plan to address the needs of older
community members. $9,940.00
October 2020
2020/10 Alzheimer’s
Marlborough Dementia Friendly
Marlborough Project
Employing a project facilitator to provide dementia-friendly awareness
education to businesses in Marlborough. Create a community that supports
people living with dementia. $15,000.00
2020/10 Tauranga City
Council
Age friendly Strategy
Revitalisation and
Research Project Enabling seniors to be well, active, connected and secure. $9,500.00
2020/10 The Family Centre
Lower Hutt Pacific Age friendly
Community Plan Developing an Age friendly plan for Pasifika seniors in Hutt Valley and
Wainuiomata. $15,000.00
2020/10
Waikato Indian
Senior Citizens
Association
Day Time Activity
Programme for Senior
Citizens
Providing a weekly programme for local senior citizens where they can get
together, play games, share views and learn from each other. $10,000.00
21
Funding
Round Organisation Project Description
Amount
(excl. GST)
2020/10 Rotorua Multicultural
Council Involving Senior
Migrants Rotorua
Collaborating with Parksyde and SeniorNet to support older adults to
improve their computer skills. Involving older migrants in multicultural
events to improve their community connections. $7,050.00
2020/10 Nelson Tasman Age
Concern
Age Concern Nelson
Tasman Rural
Connection Plan
Encouraging social connection in rural parts of the region using a
community led approach. Find the gaps to establish more socialising
opportunities according to local needs. $15,000.00
October 2021
2021/10 Timaru District
Council
Timaru District Age
friendly Strategy
Development
Analysing the Timaru District Age friendly community engagement activity
and developing an Age friendly strategy and plan for the Timaru District. $15,000.00
2021/10 Whanganui District
Council L-DA Leading Digital
Ageing Project
Engaging with older people to understand their needs and barriers in
accessing digital inclusion initiatives. Designing interventions and support
for digital inclusion. $15,000.00
2021/10 Mackenzie District
Council
Mackenzie Age
friendly Community
Strategy
Developing a Mackenzie Age friendly Community Strategy and terms of
reference as part of a wider South Canterbury Age friendly Alliance. $15,000.00
2021/10 Kawerau and District
Ageing in Place Kawerau Seniors
Community Survey
Community survey on the Kawerau District Council Age friendly and
Accessibility review. Identify ways to enhance connections between youth
and older people, and areas to strengthen support of older people. $9,690.00
2021/10 Kāpiti Coast District
Council Toiora Kaumatua Elder
Wellbeing Project
Creating an Age friendly environment for kaumatua focusing on addressing
the needs of Māori people in Kāpiti. Trialling a coordinator role to
implement activities. $15,000.00
2021/10
Foto Iwi Charitable
Trust (Hastings DC) ReGENerate Project
Bringing together young people and seniors to record and capture stories
and socially connect. Sharing skills and interest through digital media. $13,477.00
2021/10
Te Hau Awhiowhio O
Otangarei (suburb of
Whangārei,
Northland)
Age friendly Otangarei
project – Ngā Morehu
o Otangarei
Bringing together kaumatua and kuia to provide culturally appropriate
advice and support to make Otangarei more Age friendly. A te ao Māori
library will be created to access information and stories through the eyes of
the residents.
$9,000.00
22
Funding
Round Organisation Project Description
Amount
(excl. GST)
2021/10
HBH Senior Living -
Mount Roskill & New
Windsor (Auckland)
HBH Senior Living
Project A virtual village plan to support and connect vulnerable older people living
in Mount Roskill and New Windsor. $12,500.00
October 2022
2022/10 Atamu EFKS Porirua Lalaga
Fa’atasi Project
A series of weaving (lalaga) sessions and an opportunity for the older
generation to share valuable knowledge about this dying art with younger
people to encourage intergenerational engagement. $15,000.00
2022/10 Te Runanga o Ngai
Tamawhariua
(Western BOP)
Te Roopu Whakatipu
Korero Project
A series of kaupapa Māori events for kaumātua and kuia from Te
Rereatukahia, Otawhiwhi and Tuapiro Marae. Each event will have
education, health and intergenerational aspects that kaumātua and kuia
will get to learn about.
$9,195.00
2022/10
Presbyterian Support
Upper South
(Marlborough)
Preparation for
Retirement Workshops
Project
Retirement workshops that aim to provide participants with a framework to
prepare for retirement. $9,125.00
2022/10 North Otago Art
Society (Waitaki) Creative Ageing
Waitaki Project
The Creative Connections programme, an initiative to assist in addressing
the growing need for support for people living with dementia in the Waitaki
District. $15,000.00
2022/10 Manchester House
(Manawatū) Write your own
memoirs project
Connecting SeniorNet and Feilding High school students to assist seniors to
write their memoirs. The end result is a digital and hard copy book
preserving the senior client’s history for future generations. $5,600.00
2022/10
Te Whare Toi o
Ngaaruawaahia Inc.
(Waikato)
Kaumatua Creatives
Project A suite of cultural programmes for the seniors of Ngaaruawaahia. $15,000.00
2022/10 Age Concern
Auckland
Progressing
Implementation of the
Age Friendly Auckland
Action Plan Project
Progressing implementation of the Age friendly Auckland Action Plan. The
grant will enable Age Concern Auckland to identify gaps and opportunities
for developing new Age friendly activities and initiatives, and collaborative
ways of working.
$15,000.00
2022/10 Age Concern
Whangārei Live-Alone Senior
Service Project Providing contact each month with a senior who is living alone, to enhance
their health and overall wellbeing. $10,000.00
23
Funding
Round Organisation Project Description
Amount
(excl. GST)
2022/10 Alpine Community
Trust (Clutha)
Community Needs
Assessment of Older
Population of Upper
Clutha Project
A survey and focus groups with older adults to collect data, specifically
about living conditions, health and social needs in the Upper Clutha region. $15,000.00
2022/10 Takutai Charitable
Trust (East
Auckland)
Takutai
Intergenerational
Project
Engaging seniors and youth of the Pohutukawa Coast through workshops to
help identify and develop an intergenerational activity or event that they
would like to organise and participate in. $15,000.00
2022/10 Northshore CMA
(Auckland)
Age in Place
Community
Assessment –
Auckland North
Project
Engaging with seniors and local stakeholders to form a steering group to
develop and carry out a community age-friendly assessment in the North
Shore and Hibiscus Coast areas of Auckland. $10,000.00
2022/10 Cycling Without Age
Eastern Bay of Plenty
Inc
Inaugural
Development of
Service Provision
Project
The International Cycling Without Age Movement providing free
recreational outings primarily for older, low mobility residents and others
socially isolated by illness and disability in the Eastern Bay of Plenty. $5,000.00
Appendix 2
[ministerial header]
[date]
Auckland Asian Services Team
I would like to personally congratulate you on being awarded Age Concern’s
prestigious Huia Award for your services and support for older Asian residents in
Auckland.
The work you do to faciliate a range of supports in Mandarin, Cantonese, Korean
and Japanese that are culturally and linguistically appropriate for Auckland’s
older Asian community is admirable. Auckland is an ethnically diverse city and it
is important that services and supports available are accessible to everyone.
I am pleased that your work is being recognised with this award. I wish your
continued success with your services to the community.
Yours sincerely
Hon Casey Costello
Minister for Seniors
s9(2)(a)
[ministerial header]
[date]
Dear Elsie
I would like to personally congratulate you on being awarded Age Concern’s
prestigious Huia Award for your volunteer service at the Napier Tait Drive Social
Club.
Your dedication over your 25 year long volunteer service at the Tait Drive Social
Club and the Napier community is admirable. Events such as the Tait Drive
Social Club luncheon are made possible by volunteers such as yourself. Your
compassion has helped transform the weekly luncheon into a place of friendship
and social connection for many in your community.
I am pleased that your work is being recognised with this award. I wish you
continued success with your services to the community.
Yours sincerely
Hon Casey Costello
Minister for Seniors
s9(2)(a)
[ministerial header]
[date]
Dear Bronwyn
I would like to personally congratulate you on being awarded Age Concern’s
prestigious Huia Award for your work combatting financial elder abuse and
scams.
Your relentless advocacy against financial abuse and scams targetting older
people is admirable. Your contribution towards raising awareness of scams and
fraud, which can have a devasting impact on victims, is important.
Your efforts to support older people and Age Concern elder abuse workers
through the financial, social, and emotional losses from scams is greatly
appreciated.
I am pleased that your work is being recognised with this award. I wish you all
the best as you continue to contribute to communities across New Zealand.
Yours sincerely
Hon Casey Costello
Minister for Seniors
s9(2)(a)
1
Seniors
Status Report
Issue #3
Thursday 18 January 2024
REP/24/1/005
Date: / /
Seen by Hon Casey Costello
Minister for Seniors
2
Table of Contents
1. Prime Minister’s Priority Letter ........................................................................... 3
2. Research into equitable rates relief .................................................................... 4
3. Research into the financial impacts of health conditions for over 65s ...................... 5
4. New Years Honours 2024 recipients ................................................................... 6
5. Age friendly fund recipients ............................................................................... 7
Upcoming reports to the Minister in the next month ................................................ 10
Reports for the Minister since the last Seniors Status Report .................................... 12
Actions arising from previous Senior Status meetings .............................................. 13
Office for Seniors sector engagement since the last Seniors Status Report ................. 14
13
Actions arising from previous Senior Status meetings
Action required Timing Lead Status
Map of departments and agencies with policy
responsibilities for issues related to Seniors portfolio Included with REP/23/12/1006 George
Minton Complete
Advice on potential visits, including to digital literacy
training programmes, senior enterprise participant
businesses and community housing providers
Will be provided with upcoming SSR George
Minton Underway
s9(2)(g)(i)
s9(2)(g)(i)
Appendix 2
[ministerial header]
[date]
Mr Peter Carr (QSM)
[address]
Dear Peter
I would like to personally congratulate you on being awarded a prestigious
Queen’s Service Medal through New Zealand’s New Year Honours 2024.
Your efforts to serve your community over many years are admirable. Your
impressive contributions as a Justice of the Peace, as well as a committed and
enthusiastic member of multiple community organisations are impressive and
show your willingness to help others wherever possible.
I would like to thank you particularly for your work advocating for older people
in New Zealand. In your capacity as President of the Retirement Villages
Residents Association of New Zealand, your support of more than 50,000
residents of retirement villages in New Zealand has been an important and
valued achievement.
I am delighted that your work has been recognised with this award. I wish you
continued success and thank you again for your services to the community.
Yours sincerely
Hon Casey Costello
Minister for Seniors
[ministerial header]
[date]
Ms Susan Jordan (QSM)
[address]
Dear Susan
I would like to personally congratulate you on being awarded a prestigious
Queen’s Service Medal through New Zealand’s New Year Honours 2024.
Your dedication over your decades-long service to dance is admirable. Your
impressive contributions founding the Dance Studies programme at the
University of Auckland, as well as your leadership with charitable organisations
providing dance opportunities for the community, is impressive and
demonstrates your commitment to helping others.
I would like to thank you particularly for your work advocating for older people
in New Zealand. By establishing SeniorsDANCE and curating the Aspire dance
show, you are supporting the health and wellbeing of older people in
New Zealand as well as promoting positive ageing and social connections.
Your research and work promoting the arts as a means of creative expression for
older people is important and valuable, and ensures continued opportunities for
seniors to live healthy, joyful lives.
I am delighted that your work has been recognised with this award. I wish you
continued success and thank you again for your services to the community.
Yours sincerely
Hon Casey Costello
Minister for Seniors
[ministerial header]
[date]
Mr Alister Robertson (QSM)
[address]
Dear Alister
I would like to personally congratulate you on being awarded a prestigious
Queen’s Service Medal through New Zealand’s New Year Honours 2024.
Your contributions in support of people living with dementia and their families in
New Zealand is admirable. Your dedicated involvement with Dementia Alliance
International and Alzheimers New Zealand over many years is impressive and
demonstrates your commitment to helping others.
Your contributions and leadership in the development of the Dementia
Declaration, and your work towards New Zealand’s first-ever Dementia Plan is
important and valuable. I am appreciative of your work advocating for a positive
future for people in our community.
I thank you for your innovative engagement and hard work on conferences,
community events and local initiatives, and willingness to speak on behalf of
people living with dementia and their families.
I am delighted that your work has been recognised with this award. I wish you
continued success and thank you again for your services to the community.
Yours sincerely
Hon Casey Costello
Minister for Seniors
1
Seniors
Status Report
Issue #6
Thursday 14 March 2024
REP/24/3/190
Date: / /
Seen by Hon Casey Costello
Minister for Seniors
2
Table of Contents
1. Roles of the Retirement Commissioner and Aged Care Commissioner ..................... 3
2. Response to Māori Women’s Welfare League letter............................................... 6
3. Supporting Carers ............................................................................................ 7
4. Age friendly employer network .......................................................................... 9
5. NZ Superannuation and Veterans Pension increase on 1 April 2024 ...................... 10
6. Changes to the residency criteria for NZ Superannuation/Veteran’s Pension .......... 11
7. Research on mortgage debt and financial stress in older persons ......................... 12
8. Research report describes the benefits of an innovative model of ‘ageing in place’ . 13
9. The benefits of the multigenerational home for Pacific elders .............................. 14
10. SuperGold report on health focused eDM .......................................................... 15
Upcoming reports to the Minister in the next month ................................................ 17
Reports for the Minister since the last Seniors Status Report .................................... 18
Progress on Coalition Agreement Priorities ............................................................. 19
Actions arising from previous Senior Status meetings .............................................. 21
Office for Seniors sector engagement since the last Seniors Status Report ................. 22
3
1. Roles of the Retirement Commissioner and Aged Care
Commissioner
Action: For noting
You have requested information on the roles of the Retirement Commissioner
and the Aged Care Commissioner.
Retirement Commissioner
The Retirement Commissioner’s role was first established under the Retirement
Income Act 1993 as a cross-party initiative for the purpose of delivering long-
term consensus and certainty on retirement income policies. The Retirement
Commission Te Ara Ahunga Ora is an autonomous Crown entity that is
monitored by the Ministry of Business, Innovation and Employment. The
Retirement Commissioner is appointed by the Minister of Commerce and
Consumer Affairs.
The Retirement Commission’s main funding comes from the Government, with a
small amount from delivering financial education programmes in workplaces and
communities. Funding for the 2023/2024 year was received as a single
appropriation of $8,622,000.
Jane Wrightson was appointed to for her second term as the Retirement
Commissioner in 2022. Her current term will end early in 2026. The main
functions of the Retirement Commissioner are set out by the New Zealand
Superannuation and Retirement Income Act 2001 and Retirement Villages Act
2003. The Retirement Commission’s key areas of work include:
• Retirement Income Policies: advocating for a system that serves the
diversity of New Zealanders by conducting reviews for Government every
three years. These highlight emerging issues and share evidence to
measure the impact of policy changes in relation to savings, KiwiSaver,
New Zealand Superannuation (NZS), Veterans Pension (VP), and housing.
• Retirement Villages: overseeing a fair regulatory framework by raising
issues and reporting on sector trends, supporting dispute resolution and
sector collaboration to resolve issues.
• Financial Capability: The Retirement Commissioner leads work on the
National Strategy for Financial Capability, which provides a framework for
collaboration, communication and knowledge sharing across the Financial
Capability community, including Government, industry, iwi and non-profit
organisations.1 In line with this, the Retirement Commission also provides
trusted and independent information through Sorted.
1The National Strategy for Financial Capability – The Retirement Commissioner | Te Ara Ahunga
Ora
4
The Retirement Commissioner leads research and analysis on retirement policy
to advise Government on how to provide good living standards for people as
they age. She uses this evidence to advocate for a stable retirement income
system, of which New Zealand Superannuation (NZS) and KiwiSaver are core.
The Retirement Commissioner is supported by a team that includes
Communications and Stakeholder Engagement, Māori learning, Marketing, Policy
and Research, and Operating. As of October 2023, there were 34 full-time
employees at the Commission, including the Retirement Commissioner.
Aged Care Commissioner
In October 2010, the New Zealand Labour Party, Green Party and Grey Power
published A report into Aged Care: What does the future hold for older New
Zealanders? This report called for the establishment of an independent Aged
Care Commission and Commissioner.
In September 2017 an ‘Inquiry into Aged Care’ revisited the 2010 review. The
Inquiry report again recommended that an Aged Care Commissioner and Office
of the Aged Care Commissioner should be established.
In June 2020 the Social Services and Community Select Committee
recommended the appointment of a ‘Commissioner for the Elderly’. This was in
response to a petition presented to the Committee by Mark Sainsbury.
The Aged Care Commissioner was established as a Deputy Commissioner under
the Health and Disability Commissioner (HDC) in 2021. This was a commitment
under the 2020 Labour Manifesto.
Carolyn Cooper was appointed to the role in February 2022 to:
• advocate for quality of health and disability services on behalf of older
people and their whanau whenever needed – in their home, primary care,
community care, care home, or public/private hospitals
• make statutory decisions on complaints and formal investigations into
older people’s health and disability services, to protect their rights under
the Code of Health and Disability Services Consumers' Rights
• provide strategic oversight and leadership to drive quality improvement
• monitor the responsiveness of the health and disability system to the
needs of older people
• analyse emerging issues and reports on improvements in the aged-care
sector, and
• support the Government’s commitment to Te Tiriti o Waitangi.
The Aged Care Commissioner does not have responsibility for issues such as
family violence (eg, elder abuse), housing, or retirement income, but does work
with agencies who are involved in this work to ensure that older people have
access to support.
15
10. SuperGold report on health focused eDM
Action: For noting
As people age, they often have higher health needs. Discounts on healthcare
services and products help SuperGold Cardholders stretch their dollar further,
assisting them to afford these essential items. This also includes preventative
healthcare products/services that help maintain their health and detect any
potential issues early, ultimately leading to better health outcomes.
A SuperGold eDM (electronic direct mail) was sent out on 5th March 2024. It
included discounts covering a number of essential health categories.
Please find the special offer banners below:
24
Appendix 1
[ministerial header]
[date]
Dr Hope Tupara
[address]
Tēnā koe Hope,
Thank you for your letter dated 3 January 2024 and for meeting with me on 15
February 2024.
I appreciated the opportunity to begin building a relationship with the Māori
Women’s Welfare League, and to gain a better understanding of the work you do
to support kaumātua.
In particular, I would like to thank you for the work you are embarking on to
support kaumātua who are experiencing, or are at risk of experiencing abuse. I
have no doubt that Remit 2023/17 will add value to our communities.
I know the Office for Seniors is looking forward to partnering with you on this
kaupapa and I’m pleased to also offer my support as Minister for Seniors.
I look forward to hearing how the partnership and the work progresses.
Ngā mihi nui,
Hon Casey Costello
Minister for Seniors
As safe as houses
Mortgage debt and financial stress in older persons
NZIER report to the Office of Seniors
February 2024
Registered office: Level 13, Public Trust Tower, 22–28 Willeston St | PO Box 3479, Wellington 6140
Auckland office: Level 4, 70 Shortland St, Auckland
Tel 0800 220 090 or +64 4 472 1880 | econ@nzier.org.nz | www.nzier.org.nz
© NZ Institute of Economic Research (Inc). Cover image © Dreamstime.com
NZIER’s standard terms of engagement for contract research can be found at www.nzier.org.nz.
While NZIER will use all reasonable endeavours in undertaking contract research and producing reports to ensure the information is as
accurate as practicable, the Institute, its contributors, employees, and Board shall not be liable (whether in contract, tort (including
negligence), equity or on any other basis) for any loss or damage sustained by any person relying on such work whatever the cause of
such loss or damage.
About NZIER
NZIER is a specialist consulting firm that uses applied economic research and analysis to
provide a wide range of strategic advice.
We undertake and make freely available economic research aimed at promoting a better
understanding of New Zealand’s important economic challenges.
Our long-established Quarterly Survey of Business Opinion and Quarterly Predictions are
available to members of NZIER.
We pride ourselves on our reputation for independence and delivering quality analysis in
the right form and at the right time. We ensure quality through teamwork on individual
projects, critical review at internal seminars, and peer review.
NZIER was established in 1958.
Authorship
This paper was prepared at NZIER by Tom Dunn and Todd Krieble.
It was quality approved by Ting Huang.
The assistance of Sarah Spring, the Office of the Retirement Commissioner and Age
Concern, is gratefully acknowledged.
How to cite this document:
NZIER. 2024. As safe as houses: Mortgage debt and financial stress in older persons. A
report for Office for Seniors.
i
Key points
Purpose and background
• This report examines what Centrix data can reveal about mortgage stress in seniors.
The Centrix mortgage data analysed for this report allows us to examine age, gender
and regional trends.
• Household living costs and mortgage interest rates have increased post-COVID-19.
• Mortgage rate rises have the potential to contribute to financial stress for people on
fixed incomes, low levels of earnings and lower levels of earning potential.
• Sixty-six percent of seniors own their houses outright, 13 percent pay a mortgage and
20 percent rent.
• Treasury research shows seniors who pay rent or have a mortgage are more likely than
outright owners to spend more than 40 percent of New Zealand superannuation on
housing. So, rising mortgage rates put pressure on seniors' budgets.
Findings from the Centrix data
• The number of borrowers in age groups over 50 is relatively static.
• However, the number of outstanding mortgages in the 50+ age groups has increased
significantly in the last five years, including 65+ groups who are more likely to be on
fixed incomes and have lower earnings potential.
• The percentage of overdue mortgages for the 50+ age groups over the last five years
ranged between 2 percent and 2.5 percent compared to a range of 1 to 1.5 percent for
all mortgages.
• It appears that lenders are effectively managing mortgage risk from a lender
perspective based on the containment of arrears as a percentage of mortgage holders.
Recommendations
• The extent of any dynamic in which some mortgage holders have to exit their
mortgages, freeing up existing housing capital and downsizing, moving to rental
accommodation or taking up other options is unclear. This would be worthy of
investigation as social and economic conditions for seniors evolve.
• The ability to better link public and privately held data sets would assist with a better
understanding of the dynamic between mortgage stress and overall well-being. For
example, being able to link the Centrix data with sociodemographic and household
economic data would help with understanding the security of tenure, household
income and other variables. This may be possible as part of the Statistics New Zealand
Integrated Data Infrastructure.
ii
Contents
1 Shedding light on older people with mortgages ............................................................................ 1
1.1 Objective .............................................................................................................................. 1
1.2 Our methods ........................................................................................................................ 1
2 Housing and later life – what is the issue? ..................................................................................... 2
2.1 Housing and social support for enhanced well-being in later life ....................................... 2
2.2 Housing and living costs for seniors .................................................................................... 3
2.3 Decumulation....................................................................................................................... 5
3 The trend in Aotearoa New Zealand reveals a small problem getting bigger ............................... 6
3.1 Analysis of Centrix data by age groups 50 and over ............................................................ 6
5 Recommendations .......................................................................................................................19
7 References....................................................................................................................................20
Appendices
Appendix A Tables by household type, mortgage type and risk tier .................................................... 22
Figures
Figure 1 Factors that influence the adequacy of retirement income ...................................................... 3
Figure 2 Household living costs have escalated to historic high levels .................................................... 4
Figure 3 Number of borrowers by age group ........................................................................................... 7
Figure 4 Percentage of population with a mortgage by age group ......................................................... 7
Figure 5 Average mortgage exposure by age group ................................................................................ 8
Figure 6 Average mortgage exposure by age group ................................................................................ 8
Figure 7 The proportion of fixed-term mortgages in New Zealand is increasing .................................... 9
Figure 8 Mortgage exposure as a percentage of average house price by age group .............................. 9
Figure 9 Number of borrowers with a mortgage in arrears by age group .............................................10
Figure 10 Percentage of borrowers in arrears by age group .................................................................10
Figure 11 Average value of mortgage exposure in arrears per borrower by age group ........................11
Figure 12 Average value of mortgage exposure in arrears per borrower by age group ........................11
Figure 13 Average credit score of borrowers by age group ...................................................................12
Figure 14 Percentage of mortgage exposure in arrears by high-level age group of primary borrower 12
Figure 15 Number of borrowers aged 65 and older, by gender ............................................................13
Figure 16 Average mortgage exposure per borrower aged 65 and older by gender.............................13
Figure 17 Number of borrowers with a mortgage in arrears aged 65 and older by gender ..................14
Figure 18 Percentage of borrowers aged 65 and older with a mortgage in arrears by gender .............14
Figure 19 Average value of mortgage exposure in arrears per borrower aged 65 and older by
gender .................................................................................................................................15
Figure 20 Percentage of individual mortgages held by females by age group ......................................15
Figure 21 Number of borrowers aged 65 and older by region ..............................................................16
Figure 22 Average mortgage exposure per borrower aged 65 and older by region ..............................16
Figure 23 Number of borrowers with a mortgage in arrears aged 65 and older by region ...................17
Figure 24 Percentage of borrowers aged 65 and older with a mortgage in arrears by region ..............17
iii
Figure 25 Average value of mortgage exposure in arrears per borrower aged 65 and older by
region ..................................................................................................................................18
Figure 26 Number of mortgages with a primary borrower aged 65 and older by household type .......22
Figure 27 Average mortgage exposure with a primary borrower aged 65 and older by household
type ......................................................................................................................................22
Figure 28 Number of mortgages in arrears with a primary borrower aged 65 and older by
household type ....................................................................................................................23
Figure 29 Percentage of mortgages in arrears with a primary borrower aged 65 and older by
household type ....................................................................................................................23
Figure 30 Average value of mortgages in arrears with a primary borrower aged 65 and older, by
household type ....................................................................................................................24
Figure 31 Number of mortgages with a primary borrower aged 65 and older by mortgage type ........24
Figure 32 Average mortgage exposure with a primary borrower aged 65 and older by mortgage
type ......................................................................................................................................25
Figure 33 Number of mortgages in arrears with a primary borrower aged 65 and older by
mortgage type .....................................................................................................................25
Figure 34 Percentage of mortgages in arrears with a primary borrower aged 65 and older by
mortgage type .....................................................................................................................26
Figure 35 Average value of mortgages in arrears with a primary borrower aged 65 and older, by
household type ....................................................................................................................26
Figure 36 Number of mortgages with a primary borrower aged 65 and older by risk tier ....................27
Figure 37 Average mortgage exposure with a primary borrower aged 65 and older by risk tier ..........27
Figure 38 Number of mortgages in arrears with a primary borrower aged 65 and older by risk tier ...28
Figure 39 Percentage of mortgages in arrears with a primary borrower aged 65 and older by risk
tier .......................................................................................................................................28
Figure 40 Average value of mortgages in arrears with a primary borrower aged 65 and older by risk
tier .......................................................................................................................................29
Tables
Table 1 Cohort size changes in the decade to 2013-2033 ....................................................................... 6
1
1 Shedding light on older people with mortgages
1.1 Objective
The objective of this research is to gain a better understanding of the impact of mortgages
on older people. This includes the nature and magnitude of the issue, including
distributional aspects.
The Office for Seniors has commissioned this research to get a picture of older people (65
and over) in New Zealand who hold a mortgage.
This research was commissioned in the context of New Zealand’s ageing population and the
increasing numbers of people entering later life paying off mortgages, as well as the current
economic climate, which is putting pressure on household finances. The Government’s
strategy for our ageing population, Better Later Life – He Oranga Kaumātua 2019 to 2034,
contains the aim that people can age in a place they call home safely and, where possible,
independently.
Indicators such as homeownership rates and household spend on housing among the older
population help to build a picture of the outcomes for older homeowners. This research
addresses a gap in our knowledge of the current situation and pressures for older
homeowners and provides an analysis of the experiences of different cohorts within the
older population. This research will help us to provide an evidence-based narrative that
may be helpful for policy decisions and our wider understanding of the evolving social and
economic dynamics older people face, and work continues to implement the Better Later
Life strategy.
1.2 Our methods
The methods we used to examine the issue include:
• Rapid desk-based review of recent reports and to establish a framework
• Interviews with Age Concern and the Retirement Commission to get a qualitative
understanding of the issues
• Using updated Centrix mortgage data to assess:
− mortgage stress by age band, gender, region, household type, and other
indicators of risk
− rates of older people entering into reverse mortgage (or similar) agreements
− an overall picture of arrears and credit scores
− mortgage balances.
2
2 Housing and later life – what is the issue?
2.1 Housing and social support for enhanced well-being in later life
New Zealand’s superannuation system has evolved from the 1800s through to the Social
Security Act of 1938, with changes made in the 1970s that created what we recognise now
as New Zealand Superannuation. Alongside this have been the introduction of KiwiSaver
and the New Zealand Super Fund to improve the sustainability of retirement income policy.
The assumption in the ‘early days’ was that people would enter later life with stable
relationships, universal healthcare and stable economic conditions with a freehold house,
providing a reasonably secure base for retirement that might last 15 years.
The ageing New Zealand population has put pressure on the ability to fund superannuation.
At the same time, a public expectation that the state will provide adequate income in older
age remains high, with little support for means testing (NZIER 2018).
New Zealand's healthy life expectancy (HALE) at age 60 stands at 19 years for women and
18 years for men (World Health Organization, n.d.). Living longer in good health can extend
working life and years on a fixed income for those not in work. New Zealand has one of the
OECD’s highest labour market participation rates for people over 65, at 25 percent engaged
in part-time or full-time work (OECD 2023). This takes some pressure off sole reliance on
state-funded superannuation.
While this report focuses on what updated Centrix data can say about mortgage stress, the
‘eco-system’ of government health and social policies and self-funded earnings, savings and
decumulation options are important for understanding the larger dynamic.
3
Figure 1 Factors that influence the adequacy of retirement income
Source: Davey and Stephens (2018)
2.2 Housing and living costs for seniors
Research from the Retirement Commission and the New Zealand Treasury in 2022 reveals
that 66 percent of seniors own their houses outright, with 13 percent paying a mortgage
and 20 percent renting. Less than half of Māori seniors and about one-quarter of Pacific
seniors own their homes outright (Morrissey, Reyers, and Gamble 2022).
We know from that research that seniors who pay rent or have a mortgage are more likely
than outright owners to spend more than 40 percent of New Zealand Superannuation on
housing (Morrissey, Reyers, and Gamble 2022). So, rising mortgage rates put pressure on
seniors’ budgets. Outright owners have lower housing costs at all ages.
After a long period of economic stability, increases in interest rates have been beneficial for
older people with savings. However, increasing mortgage rates has been stressful for older
people with mortgages and on low fixed incomes. The average floating mortgage rate went
from 4.47 percent in June 2021 to 8.61 percent in October 2023. This is the highest level
since 2008 (Reserve Bank of New Zealand 2023).
The overall cost of living has been relatively stable between 2012 and 2020. However, the
annual Consumers Price Index inflation escalation since 2021 has also accelerated
household cost of living, adding stress for superannuants and beneficiaries on fixed
5
The number of people 65 and over with mortgage debt has grown from 118,000 in 2018 to
134,000 in 2022 (Stock 2022). We also know that the value of this debt is increasing, rising
from $16.9 billion in 2018 to $23.4 billion in 2022. That means that of the 863,560 (Stats NZ
2023b) aged 65 and older, 16 percent have mortgages. While this is in line with population
growth and increasing house prices, it still reflects a growing issue of outstanding
mortgages.
With around 52 percent of all mortgages due for repricing over the coming twelve months
from September 2023, households will be reining in discretionary spending in the face of
significantly higher mortgage repayments (NZIER 2023).
2.3 Decumulation
Decumulation is the process of drawing down accumulated savings in retirement to use as
income for day-to-day living. Decumulation is important for financial security and peace of
mind. Mortgages and changes in interest rates can affect decumulation plans.
Several factors influence the dynamic for people entering into older age with mortgage
debt. Life changes such as relationship splits in later life can cause financial stress, and
these numbers are increasing, with 50 percent of divorced men over 47 and 50 percent of
divorced women over 44 in 2022 (Stats NZ 2023a). This is up from 42 and 39 respectively in
2000. Meanwhile, there are more options for accessing capital to finance daily living with
reverse mortgage agreements and other ‘relief’ policies such as rates deferral and rate
rebates. $73.1 million was spent on 109,826 rate rebates in 2022 (data.govt.nz 2023).
While mortgages are getting paid, there may be underlying stress. This stress may be
directly related to well-being, such as going without heating, food or social activities. This
‘distress’ may be indirect in the form of foregoing insurance and upkeep that leaves seniors
‘exposed’.
Government regulations help protect borrowers from being put into financial difficulty.
Lenders are regulated by the Credit Contracts and Consumer Finance Act. The Responsible
Lending Code serves as a good practice and principles-based guide. While it may restrict
access to capital, it aims to ensure borrowers are not stretched beyond their means.
There is limited data on reverse mortgages. In New Zealand, few banks and few products
are available. Heartland, the main lender, reports customers borrowing an average of
$117,000, representing about 10 percent of the value of their home. The average borrower
was 78 years old. New Zealanders who have cashed in on the product now owe $721
million (Hatton 2022). Reverse mortgage rates tend to be higher than standard mortgage
rates, and there are restrictions on the percentage of house value that can be borrowed.
The market is expected to grow and product offerings to mature (Ruth 2023). In the ten
years to June 2023, Heartland Bank reports having more than 20,000 reverse mortgage
customers. The average loan was just under $88,000. The main reasons are home
improvements, debt consolidation, and covering everyday expenses. (Edmunds 2024).
While many seniors are financially secure, shedding light on mortgage stress allows us to
better understand the distributional impacts of mortgage rates as one of the greatest single
sources of financial stress.
19
5 Recommendations
In light of the main findings…
• The number of borrowers in age groups over 50 is relatively static.
• However, the amount of mortgage exposure in the 50+ age groups has increased
significantly in the last five years, including 65+ groups who are more likely to be on
fixed incomes and have lower earnings potential.
• This trend of 50+ is likely to lead to greater numbers of 65+ over the next 10–15 years,
which will require monitoring and, potentially, intervention.
• The percentage of mortgages in arrears for the 50+ age groups over the last five years
ranged between 2 percent and 2.5 percent compared to a range of 1 to 1.5 percent for
all mortgages.
• It appears that lenders are effectively managing mortgage risk from a lender
perspective based on the containment of arrears as a percentage of mortgage holders.
Our recommendations are:
• Encourage government agencies to maintain a watching brief on mortgages as a
source of stress for seniors.
• Given the social and economic evolution of senior well-being, the extent of any
dynamic in which some mortgage holders have to exit their mortgages, freeing up
existing housing capital and downsizing, moving to rental accommodation or taking up
other options be investigated.
• Link public and privately held data sets to assist with a better understanding of the
dynamic between mortgage stress and overall well-being. For example, being able to
link the Centrix data with sociodemographic and household economic data would help
with understanding the security of tenure, household income and other variables. This
may be possible as part of the Statistics New Zealand Integrated Data Infrastructure.
20
7 References
data.govt.nz. 2023. “Rates Rebates Statistics - Rates Rebates Statistics as at 21 August 2023.” August
1, 2023. https://catalogue.data.govt.nz/dataset/rates-rebates-statistics/resource/9f526083-
b33b-44d6-a73f-9cdd7d10e35d.
Davey, Judith A., and Robert Stephens. 2018. “New Zealand Retirement Income: Policy as an ‘Eco-
System.’” Policy Quarterly 14 (3). https://doi.org/10.26686/pq.v14i3.5109.
Edmunds, Susan. 2024. “Warning for Retirees Putting Expenses on the House.” Stuff. January 19,
2024. https://www.stuff.co.nz/money/350149526/warning-retirees-putting-expenses-house.
Hatton, Emma. 2022. “Why Big Banks Aren’t Interested in the Reverse Mortgage Market.”
Newsroom. August 29, 2022. http://newsroom.co.nz/2022/08/29/big-banks-arent-
interested-in-growing-reverse-mortgage-market/.
Morrissey, Suzy, Michelle Reyers, and Jo Gamble. 2022. “TAR 309: Housing Tenure by Age, Cost,
Ethnicity, and Time.” Te Ara Ahunga Ora Retirement Commission.
NZIER. 2018. “Retirement Income Policies in Australia and New Zealand : Facing the Fiscal Challenge
from an Ageing Population.” https://www.nzier.org.nz/publications/retirement-income-
policies-in-australia-and-new-zealand-facing-the-fiscal-challenge-from-an-ageing-population.
———. 2023. “Slowing Global Demand Clouds New Zealand’s Growth Outlook - Quarterly
Predictions, September 2023 Media Release.” August 29, 2023.
https://www.nzier.org.nz/publications/slowing-global-demand-clouds-new-zealands-growth-
outlook-quarterly-predictions-september-2023.
OECD. 2023. “Employment - Labour Force Participation Rate.” OECD. 2023.
http://data.oecd.org/emp/labour-force-participation-rate.htm.
Reserve Bank of New Zealand. 2023. “B20 - New Residential Mortgage Standard Interest Rates.”
https://www.rbnz.govt.nz/statistics/series/exchange-and-interest-rates/new-residential-
mortgage-standard-interest-rates.
Ruth, Jenny. 2023. “Heartland’s Reverse Mortgages Grow at More than 20% - Good Returns.” 2023.
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76522222/heartland-s-reverse-mortgages-grow-at-more-than-20.html.
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3, 2023. https://www.stats.govt.nz/information-releases/marriages-civil-unions-and-
divorces-year-ended-december-2022/.
———. 2023b. “National Population Estimates: At 30 June 2023.” August 16, 2023.
https://www.stats.govt.nz/information-releases/national-population-estimates-at-30-june-
2023/.
———. n.d. “Income by Region, Sex, Age Groups and Ethnic Groups.” Accessed November 10, 2023.
https://nzdotstat.stats.govt.nz/wbos/Index.aspx?DataSetCode=TABLECODE7471#.
Stock, Rob. 2022. “‘Frightening’ Increase in Mortgage Debt among over-65s.” Stuff, August 10, 2022.
https://www.stuff.co.nz/business/129518767/frightening-increase-in-mortgage-debt-
among-over65s.
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with New Zealanders Aged 65 or Older.”
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Research.pdf.
———. 2023b. “New Research Reveals More than Half of New Zealanders Are Struggling with
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half-of-new-zealanders-are-struggling-with-money/.
21
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details/GHO/gho-ghe-hale-healthy-life-expectancy-at-age-60.
Tables by household type, mortgage type and risk tier
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The arts-based delivery of an
innovative model of aged care:
Systematising and dissem inating the
Virtual Eastern Bay Villages:
Te Kokoru Manaakitanga (VEBV:
TKM) m odel of a ge ing in place
research project
Art and Meditation Workshop participants, Whakatāne,
March 2023
End of project report for Te Tari Kaumātua,
Office for Seniors,
October 2023
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Table of Contents
Executive Summary ....................................................................................................................... 4
Key Features of the VEBV: TKM’s Successful Model of Ageing in Place ............................. 5
1. What Brought People to the VEBV: TKM ...................................................................... 5
2. Key Features of the VEBV: TKM, What Makes it Work ................................................ 5
3. Fosters Connection, Community and Strengthens Agency and Resilience .......... 7
4. The benefits for the VEBV: TKM members of participating in the art and
meditation workshop ............................................................................................................. 8
In summary, key features for creating and running an ageing in place organisation . 9
The Issue ........................................................................................................................................ 12
The Project .................................................................................................................................... 13
Phase One ................................................................................................................................ 13
The Project Team .................................................................................................................. 14
Phase Two, The Workshop ....................................................................................................... 14
Preparations .......................................................................................................................... 14
Phase Three, Methods ............................................................................................................. 16
Interviews ............................................................................................................................... 16
Data Collection and Analysis ............................................................................................. 17
Findings ......................................................................................................................................... 18
Introduction ........................................................................................................................... 18
Central themes ............................................................................................................................ 19
Theme one ................................................................................................................................ 20
What brought people to the VEBV: TKM ........................................................................... 20
Theme two ................................................................................................................................ 22
Key Features of the VEBV: TKM, What Makes the VEBV: TKM work ................................ 22
What members like about the VEBV: TKM, and why they remain members ............... 28
Theme Three ............................................................................................................................. 32
The Benefits for the VEBV: TKM members of participating in the workshop’s
contemplative and creative practices ............................................................................. 32
Theme four ................................................................................................................................ 39
Realisations and change resulting from participation in the workshop........................ 39
1. The participants use of art practices to express subjective experience............... 40
2. How experience of the contemplative art practices led to heightened self-
awareness and change ...................................................................................................... 42
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In Conclusion ................................................................................................................................ 47
Acknowledgements .................................................................................................................... 48
References .................................................................................................................................... 49
Appendix One.............................................................................................................................. 53
The Virtual Eastern Bay Villages: Te Kokoru Manaakitanga (VEBV: TKM) ......................... 53
Appendix Two .............................................................................................................................. 55
The Meditative Process Art (MPA) Method .......................................................................... 55
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Executive Summary
A common definition of ‘ageing in place’ is articulated by the Centres for Disease
Control and Prevention (CDC) as, “the ability to live in one’s own home and
community safely, independently, and comfortably, regardless of age, income, or
ability level” (CDC, 2009). In their consumer-informed research, Grimmer K. D.,
Foot J. & Pastakia K. (2015) identified personal characteristics required for
successful ageing in place as: independence, adaptability, and resilience, with key
elements of successful ageing in place, summarised in the acronym HIPFACTS:
health, information, practical assistance, finance, activity (physical and mental),
company (family, friends, neighbours, pets), transport, and safety. In their
comprehensive review of literature about Ageing in Place, Pani-Harreman et al.,
(2021) discuss HIPFACTS scores as they relate to successful Ageing in Place, with
low HIPFACTS scores indicating “modest self-reliance”, which correlates with
unsuccessful ageing in place. The features of the Virtual Eastern Bay Villages: Te
Kokoru Manaakitanga (VEBV: TKM) detailed below highlight ways in which the
personal characteristics described by Grimmer et al., (2015) are strengthened by
membership in the VEBV: TKM. While the VEBV: TKM offers many of Grimmer et
al.’s elements of successful Ageing in Place - HIPFACTS, their focus on emotional
intelligence in the provision of these elements offers an additional and much
needed element to successful ageing in place.
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Key Features of th e VEBV: TKM’s Successful Model
of Ageing in Place
The key features of the successful VEBV: TKM ageing in place model detailed below
are drawn from the project’s findings detailed in the Findings section. The first
three features, which contain ‘sub-features’ have been taken from Themes One
and Two in the Findings section, while the fourth is drawn from Themes Three and
Four in the Findings, which focuses on the participants experiences of the
workshop.
1. What Brought People to the VEBV: TKM
To understand what makes the VEBV: TKM work, it is important to consider what
brought individuals to the organisation. Primarily this is related to:
- impacts of major life changes, such as a loss of identity, fear of meeting
new people, loneliness, and isolation brought individuals to the VEBV: TKM.
In addition, individual’s histories underpinning these changes are important
to consider.
- the necessity to have coordinators who are skilled connectors and have
strong emotional intelligence.
2. Key Features of the VEBV: TKM, What Makes it Work
Emotional labour
Of equal importance to its activities, and all the VEBV: TKM does, is the manner
in which it facilitates these activities. That is, they place as much, if not more,
importance on ‘how’ they do things as on ‘what’ they do. The creation and
provision of an inclusive, supportive, kind, non-judgmental culture, is reliant on
the direction of the VEBV: TKM board, its coordinator’s skills as a connector or
‘people specialist’ and their strong emotional intelligence, and the way they, and
the values of the organisation, encourage the same in its members. This focus in
the VEBV: TKM aligns with the concept of “transcendence” a criterion for healthy
ageing that broadens the goals of healthy ageing. Lander-McCarthy & Bockweg’s
(2013) define transcendence as an inherent process that is a gradual, nonlinear
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expansion of conceptual boundaries; that is, one’s personal limits or internal rules
and expectations of oneself, others, and the world” (p. 86). With the outcomes of
transcendence being “a sense of meaning in life, well-being, life satisfaction, and
a decreased fear of death” (ibid).
The Two Whare (Tāngata Whenua and Tāngata Tiriti) Governance Model
The strong emotional intelligence and labour that underpins the VEBV: TKM’s
culture of kindness, mutual support, and inclusivity, is supported by the VEBV:
TKM’s two whare (Tāngata Whenua and Tāngata Tiriti) governance model with
Māori and European / Pākehā co-chairs of the VEBV: TKM board, and Māori and
European/ Pākehā coordinators. In addition to the co-chairs, the board consists of
four trustees, and a cultural advisor. This approach to governance highlights the
importance of having equitable governance systems, that reflect the context of
the ageing in place organisation.
The VEBV: TKM Activities and the Information that is Provided
As with other ageing in place initiatives/organisations, the VEBV: TKM supports
many of the factors required for high HIPFACTS scores, through their activities,
provision of useful information, and networking with aligned organisations.
Particularly important for participants was having the opportunity to make friends,
and this was facilitated through the VEBV: TKM’s activities:
- These activities include: coffee mornings, public meetings with guest
speakers, outings to local attractions, shared meals, and educational
programmes, such as the “Oranga Kai/Just Cook” programme they run in
partnership with the NZ Nutrition Foundation (Please see:
https://www.virtualeasternbayvillages.org.nz/events-programmes).
- The VEBV: TKM network with aligned organisations in the Eastern Bay of
Plenty, such as Grey Power, Te Puna Ora o Mataatua, Probus, Rotary, and
Alzheimers New Zealand.
- The VEBV: TKM provides useful information, such as a list of trustworthy
and economical handy people, special deals on essential items, and
recommendations for other organisations that members might want to join
such as Probus and the University of the Third Age (U3A). Members are
regularly kept informed about upcoming VEBV: TKM events, and other
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information they may find useful, and this is done both through email and
a hardcopy newsletter.
3. Fosters Connection, Community and Strengthens Agency
and Resilience
It is not Service Provision
Related to the VEBV: TKM’s recognition of the importance and support of strong
emotional intelligence and labour is the way the VEBV: TKM differentiates what it
does from service provision. This is clearly stated in their mission, which affirms
that they seek, “to foster well-being for seniors/pakeke in our communities,
families and extended families/whānau/hapū/iwi by promoting mutual support
and reciprocal relationships” (https://www.virtualeasternbayvillages.org.nz/,
para. 4, 2023).
Acknowledgement of members skills and experience
While activities are important in what the VEBV: TKM does, particularly as these
activities are the entry-points for the development of connection and friendship,
equally important is the acknowledgment of members skills and abilities, and the
way that members are matched with each other to provide mutual support. This
starts when individuals join the VEBV: TKM and can be seen in several of the
questions in the VEBV: TKM’s new member application form, such as: “Are there
skills you enjoy and might be willing to share?”, “What would you be interested in
learning about?” and “What brings you joy?”.
Member-led
The VEBV: TKM is member-led, which was described by one of the board members
who explained that “there’s a core group that get together on a monthly basis,
and they’ll solicit feedback from other members. The core group is representative
of the member group, though members of this group do change.” Currently
members requests for support via the core group have resulted in the “Digital
buddies” programme, and the VEBV: TKM sub-committees, including the Whānau
led funerals/tangihanga, and the Accessible Transport Solutions, Waka Eastern
Bay. Also, members are supported to create break-away groups focused on their
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interests and needs. These groups include coffee mornings in areas surrounding
Whakatāne, the Ukulele Group, the Walkie Talkies walking group, and a Men’s
Group. Lastly, members are supported to build networks with other organisations,
and meet socially with each other outside of the VEBV: TKM. The VEBV: TKM is
agile and able to change its approach when needed, this happened for example,
when the transport and funeral initiatives, which had initially been housed in the
VEBV: TKM, became VEBV: TKM ‘sub-committees’ with their own governance
structures.
When discussing what the VEBV: TKM does well a board member mentioned the
organisation’s agility saying:
One of the good things about the Virtual Eastern Bay Villages is it can react
quite quickly to changes in circumstances, without having a lot of red tape to
go through. So, you can adapt and mould the support or the connection quite
quickly if the need is there. Whereas other organisations I’ve worked with, you
sort of have to prepare a proposal, and get it signed off, and so forth, and by
the end of that you’re six weeks down the track. While we as an organisation
can react quickly to change – if there is a need now, it can be met right now!
Describing one of the things about the VEBV: TKM that could be improved the
same board member named ‘marketing,’ she said:
One of the things we don’t do well is marketing. I think for example we could
be working with real estate agents, and every time they sell a property to
someone out of town, who is over 65, that person would get an information
pack. I think we have a big job to do with marketing. So, its marketing
ourselves and marketing what the community of Eastern Bay Villages can offer
to each other.
4. The benefits for the VEBV: TKM members of participating
in the art and meditation workshop
Experience of the workshop’s contemplative art practices, and sharing circles, was
not only pleasurable but led to heightened self-awareness and change for
participants. The realisations they gained by participating in the workshop related
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to their lives and the impacts of membership in the VEBV: TKM. The latter revealed
important features of the VEBV: TKM. Art works created in the workshop’s first
session illustrate ways that participants understand different aspects of
themselves, for example what gave them a sense of power, and what provided
strength and pleasure. Gaining this kind of self-awareness is important for older
people, and those working with them in ageing in place organisations (Poulos et
al., 2019). The longer practices in the second half of the workshop provided
important information about participants’ experience before coming to the VEBV:
TKM, and therefore what kind of supports they might have needed, and what the
VEBV: TKM had provided. Participants spoke about their loneliness, isolation, and
fear of connecting with others before joining the VEBV: TKM, and how becoming
a member helped them to open up and expand their personal boundaries (Lander-
McCarthy & Bockweg’s, 2013). This resulted from the friendships they developed,
and the new meaning and pleasure they found in their lives. As Peter emphasised,
“I’ve found a lot more colour!”.
In summary, key features for creating and running an
ageing in place organisation
What brought people to the VEBV: TKM
All of the participants spoke of the negative impacts in their lives of significant life
changes, and how this brought them to the VEBV: TKM. Bearing this in mind it is
important to have coordinators who are skilled connectors, with strong emotional
intelligence, and to not only consider member’s immediate circumstances, and
some of the common issues related to ageing, such as declining health, loneliness,
and isolation, but the circumstances leading up to those more obvious issues. This
requires the strong emotional intelligence that was repeatedly described in the
participants interviews. They also spoke of the need to allow time for people to
adjust when they first become members, and the need to be open to the many
different ‘personality types’ of members.
As Mary said, “The group thing is alright but for some it’s easier to express
themselves than for others.” When describing the major changes, she had
experienced Mary explained:
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You know, you’re suddenly thrown out of the life you had. It was sort of just
like cut off and I actually miss all the input we had sort of, you know, because
it’s just gone…and I was talking the other day to one of the men there who
looked a bit lonely on the Monday, so I started talking to him and he said, ‘it's
quite hard, just till you get to that level that the others are in already.’
Key Features of the VEBV: TKM, What Makes it Work
There are three central features comprising the efficacy of the VEBV: TKM, and
over and above these features is the need for the strong emotional intelligence of
all involved (Wilson & Saklofske, 2018; Chen, Peng & Fang, 2016):
- Coordinators are not only important for bringing members to the
organisation, but they also need certain attributes for the flourishing of the
organisation and its members. All participants named these attributes,
describing the coordinators as: outgoing, friendly, non-judgemental, helpful
and patient, good organisers and professional, supportive, willing to help,
and good connectors.
- Certain traits of members need to be supported and encouraged by the
coordinators and values of the VEBV: TKM, particularly the core value of
facilitating members ability to connect and help each other. Attributes of
their fellow VEBV: TKM members that participants said they liked were their
kindness, thoughtfulness, that they were non-judgemental, supportive,
caring, loving, and that they had a genuine desire to help each other.
- Having the opportunity, via the organisations activities to gain and maintain
friendships is central. It is also helpful to have a range of activities starting
with those that offer an easy entry point, such as a coffee morning that only
lasts a few hours, progressing to day-long activities, such as visits to local
art galleries or gardens. It is helpful if members are supported to create
‘break away’ groups, and have the ability to suggest additional activities
and projects, as the VEBV: TKM members have done with their digital
literacy and transport groups, and that coordinators are regularly in contact
with members about upcoming activities, and encourage members to join
these activities. Lastly, it is not only important to offer members the help,
information and support they require in a ‘personalised way’, but it is
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equally important to assist members to offer help, information, and support
to each other.
Fosters Connection, Community and Strengthens Agency and Resilience
The fact that the VEBV: TKM does not ‘provide services’ was regularly mentioned
by participants. In contrast when asked what the VEBV: TKM’s core value was, a
board member simply said “reciprocity”. The VEBV: TKM, which is member-led,
acknowledges members skills and abilities, and matches members through these
skills and abilities to enable mutual support. This is pivotal for the way that the
VEBV: TKM fosters reciprocity, agency, resilience, and community.
The benefits for older people of contemplative and creative practices
Findings related to the project’s meditation and art workshop suggest that:
- Contemplative and creative practice sessions and sharing circles can be
enjoyable and beneficial for older people. The need for such practices is
affirmed by scholars working on ‘healthy ageing,’ such as Berg-Weger &
Morley, 2020; Jansson & Pitkälä, 2021; Klimecki et al., 2019; Lander-
McCarthy & Bockweg, 2013; Malchiodi, 2012; McFadden and Basting,
2010; Nilsson, Bülow & Kazemi, 2015, and Yuen & Baime, 2006.
- The variety of reasons that participants gave for attending the art and
meditation workshop provided insight into participants areas of interest,
while highlighting pursuits that could be useful to cater for in ageing in
place organisations. These included an interest in art and meditation, or
a desire to explore these practices further; an interest in, and desire to
support research on older people; curiosity about, and desire for new
experiences; learning about anything ‘outside of the box’ and a desire
for self-expression and understanding, described by one of the
participants as a way “to try and find myself within myself.”
- In addition to the benefits gained and pleasure participants experienced
in the workshop, they also described how engaging the Meditative
Process Art (MPA) method led to heightened self-awareness about
aspects of their lives, including impacts of joining the VEBV: TKM.
Providing opportunities to engage in a non-medicalised and enjoyable
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self-development/self-awareness process, that includes art, meditation
and sharing circles, in a supportive, non-judgmental, scaffolded manner
can be very useful for ageing in place organisations to include in what
they do (Flood & Phillips, 2007; Hanna, 2013).
The Issue
New Zealand’s growing, ageing population is, and will continue to exert significant
health, social, and economic pressures on New Zealand. These pressures, which
are similar for other Western countries, are exacerbated by changes to family
values and structures, including the growing prevalence of nuclear families. The
changes have negatively impacted the amount of family support that many older
adults now receive. Concurrently, questions have been raised about the
effectiveness of traditional models of care, as detailed in the then Office for Senior
Citizen’s (now the Office for Seniors, Te Tari Kaumātua) (2014) report on their
Positive Ageing Strategy. Additionally, as the population ages there will be an
increased demand for expensive long-term formal care and a decrease in care
workers (Ministry of Business, Innovation and Employment (MIBE), 2009).
Intergenerational equity (in this case fairness and justice related to the burden of
costs carried by a younger generation for one that is ageing), and increased fiscal
pressures, mean that current models of care for older people are becoming
unsustainable, and in some cases are unsuitable. In response to these issues the
New Zealand government’s Positive Ageing Strategy (Ministry of Social
Development, 2011) highlights the need for new models, including the
development of age friendly environments, and ageing in place. These are
strengths-based models that encourage and support inclusivity, diversity, agency,
and socialisation. Initiatives like the Virtual Eastern Bay Villages: Te Kokoru
Manaakitanga (VEBV: TKM) that are member-led, and emphasise participation and
social support networks, are key to long term positive outcomes and wellbeing for
older people (Bowling, 1991; Bowling & Farquar, 1991).
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The Project
The “Arts-Based Delivery of An Innovative Model of Aged Care: Systematising and
Disseminating the Virtual Eastern Bay Villages Model of Ageing in Place” research
project, funded by the New Zealand Office for Seniors - Te Tari Kaumātua, was
conducted at the Faculty of Medical and Health Sciences, the University of
Auckland, Auckland, and in Whakatāne, the Eastern Bay of Plenty, New Zealand,
2022-23. This qualitative, community- and arts-based research was evaluative
and sought to identify key features of the VEBV: TKM, a successful ageing in place
initiative in the Eastern Bay of Plenty. The research highlights and engages a gap
in health research focused on older people. With much of the research in the field
examining biomedical and physical needs of older people, rather than working to
understand older people as active participants in their own care, as opposed to
passive recipients of services. The two outputs of the research project are this
report describing the VEBV: TKM model of ageing in place, and the Ageing Well
Together virtual exhibition https://Ageingwelltogether.co.nz, which acts as a
knowledge translation tool. Features of the model described in both outcomes
have been drawn from interviews with key members of the VEBV: TKM, members
who participated in the project’s contemplative art workshop, and reflections with
the participants on their artworks and poetry.
Phase One
Activities for this project started in 2022 with the lead researcher Dr Patricia
Morgan becoming a contractor with the University of Auckland University (UOA),
and preliminary meetings with the research team. A lengthy ethics application
followed, with ethics gained from the University of Auckland Human Participants
Ethics Committee in January 2023. The twelve documents created for the ethics
application included three sets of Participant Information and Consent forms - one
each for workshop participants, the VEBV: TKM Coordinator, and VEBV: TKM board
members; an interview schedule for participant groups; a workshop poster; a set
of focus group questions; a confidentiality agreement for the project transcriber,
an email for potential participants if the workshop was oversubscribed, and a
project timeline. Because of the arts-based nature of this project a detailed
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overview of the art workshop was created, which included consideration of how
the workshop would be documented. This information was included in the ethics
application form and informed the workshop Participant Information Sheets. A
letter of support from the VEBV: TKM was also required and received in October
2022.
The Project Team
Professor Ngaire Kerse, MNZM (PI), Chair in Ageing Well General Practice
and Primary Healthcare, the University of Auckland, Auckland, New
Zealand.
Dr Patricia Morgan, Research Associate, Faculty of Medical and Health
Sciences, the University of Auckland, Auckland, New Zealand.
Mrs Sandra McDonald (Advisor), Senior Lecturer Māori, Te Pūkenga,
Manukau, Auckland, New Zealand.
Dr Kathy Peri, (Advisor) Senior Lecturer, Faculty of Medical and Health
Sciences, Nursing, the University of Auckland, Auckland, New Zealand.
Mrs Ruth Gerzon, (research project advisor) MNZM, VEBV: TKM,
Whakatāne, Bay of Plenty, New Zealand (VEBV: TKM’s first coordinator).
Phase Two, The Workshop
The research project’s first data collection site was its art and meditation
workshop. The purpose of this workshop was to support participants to move
beyond cognitive discursive understanding to a deeper subjective engagement
with their experience of the VEBV: TKM. We took this approach as the VEBV: TKM’s
success appears in part to relate to the way it engages subjective realms, including
the way VEBV: TKM encourages relationality, or as Ruth Gerson the past VEBV:
TKM’s coordinator, drawing from Cormac Russell (2022), puts it, the VEBV: TKM
is a community of interdependence with a welcome to the stranger at the edge.
Preparations
After receiving ethics approval, the lead researcher contacted the VEBV: TKM
coordinator to start recruitment and find a suitable time to run the art and
meditation workshop. Initially this was designed as a 3-week workshop series, but
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the VEBV: TKM coordinator was concerned that VEBV: TKM members would not
be able to commit to 3 sessions, and it was decided to run a one-day workshop.
The workshop was advertised in the VEBV: TKM’s newsletter and the VEBV: TKM’s
coordinators informed members about the workshop at different VEBV: TKM
events.
The workshop was originally planned for late February but had to be moved to
early March because of impacts of a major storm and Cyclone Gabrielle in the
Eastern Bay of Plenty. The workshop ran on 2 March 2023, from 10am – 4pm at
the Knox Presbyterian Church, Domain Road, Whakatāne. Prior to the workshop
Dr Morgan coordinated participant recruitment with the VEBV: TKM coordinators,
which included providing participants with the information and consent forms and
answered any questions regarding these forms and the workshop. Lastly, before
the workshop Dr Morgan purchased the workshop art supplies.
The Workshop Poster
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Nine participants attended the workshop1, which was divided into two sessions.
The first involved several preliminary exercises, and started at 10.30am after
karakia, and a whakawhanaungatanga session. The first session included an
introduction to process art and meditation, the two practices used throughout the
workshop. Morning tea was provided and was followed by a series of short
exercises in which participants meditated and then used pastels and paints to
describe their body, mind, emotions, and spirit, a power symbol and a symbol that
represented what gave them strength and pleasure. Participants used the Image
Library, a booklet created for the workshop, that offered suggestions for art
techniques, including the use of colour to express feelings, mark and symbol
making. To ground these practices participants also wrote poems about
themselves and their experiences of the VEBV: TKM. The second session of the
workshop started after lunch and consisted of longer practices in which
participants visually described themselves before and after joining the VEBV: TKM.
This section also included afternoon tea and concluded with participants speaking
in a sharing circle about their experience of the workshop. As a part of their
discussions, participants showed and spoke about their last two art works. This
discussion was recorded.
Phase Three, Methods
Interviews
Directly after the workshop, in-depth 60-90 minute semi structured interviews
were conducted with the two co-chairs of the VEBV: TKM board and the first VEBV:
TKM coordinator. Then interviews with the 8 workshop participants (please note
one workshop participant withdrew from the study), the VEBV: TKM coordinator,
and two of the VEBV: TKM trustees were conducted via Zoom by Dr Morgan, who
transcribed the interviews, before analysing them. The eight workshop
participants ranged in age from 62-86, with seven women and one man. They all
1 Originally 11 participants had been recruited, but two of the participants were unable to attend on the day
because of ill health, and one withdrew from the research.
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lived independently in their own homes or rental accommodation. Only one
participant was married, and one lived on a shared property with her family. One
of the participants was born and brought up in the area, two had immigrated to
New Zealand and after living in different parts of New Zealand had settled in the
Eastern Bay of Plenty, and five had moved to Eastern Bay from other parts of New
Zealand. All had experienced major life changes such as illness, accident, and loss
of a life partner. It was the isolation and loneliness resulting from these changes
that brought them to the VEBV: TKM. A feature of interviews with the VEBV: TKM
board members was the need to concentrate on what they believed to be the
central work of the VEBV: TKM, which they described as, “the knitting.” This core
work supports members to identify their strengths and share these with their
fellow VEBV: TKM members. The participants are eight of the approximately 100
VEBV: TKM members. They pay a nominal yearly membership fee, which is
important as many members are on low incomes. However, this means that
funding is not secure for the VEBV: TKM, and primarily comes from community
funding.
Data Collection and Analysis
Arts-based data and an audio recording of workshop participants’ discussion at
the end of the workshop was gathered at the workshop, and interviews conducted,
recorded, and transcribed as described above. Grounded Theory Analysis (GTA)
was used in this project, including inductive thematic coding and analysis of
transcripts that was conducted by hand. This included the iterative, sorting and
“memoing” stages (Glaser, 1978; Glaser & Holton, 2005) of GTA. Analysis began
with open coding where close reading resulted in extensive labelling of data, that
led, through axial coding, or the identification of relations between codes, to the
aggregation of core codes. The lead researcher’s coding and analysis of the data
focused on participants’ emic interpretation, or the way they ascribed meaning to
their lives. Lastly, theory building consisted of bringing core concepts into
relationship with relevant interdisciplinary literature. This aspect of Glasser’s
(1978) method titled “theoretical sensitivity” provided the means to begin
theorising participants’ stories. Art works were not directly analysed but
participants were encouraged to speak about their meaning in the in-depth semi-
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structured interviews. A similar form of interview was used with the VEBV: TKM
board members and coordinators but the content focused on their roles.
The four central themes identified using these methods are:
- What brings people to the Virtual Eastern Bay Villages: Te Kokoru
Manaakitanga (VEBV: TKM);
- What makes the VEBV: TKM work;
- The Workshop;
- Change and Transformation. Each theme contains a series of sub-
themes, and both themes and sub-themes are discussed below.
Preliminary findings were presented at the New Zealand Association of
Gerontology Conference, Rethinking Ageing, 6th – 8th September, 2023.
Findings
In this community and arts-based research we aimed to identify key features of
the successful VEBV: TKM’s ageing in place organisation. After in-depth interviews
and data analysis, the key features of the VEBV: TKM, as described by its member,
are detailed below.
Introduction
What sets the Virtual Eastern Bay Villages apart from many other community-
based organisations working with older people is its emphasis on, and support of,
members agency, skills, and experience, as opposed to service provision (please
see: https://www.virtualeasternbayvillages.org.nz/). As one of the board
members emphasised, “Well, I mean, that's one of the things we've made sure of,
and I keep reiterating it, we are not a service”. In contrast, other organisations
working with older people frequently emphasis the ‘what’ of their work, that is the
provision of services related to personal care, household chores, meals, money
management and health. While the VEBV: TKM acknowledges and addresses these
important areas of support, it focuses on ’how’ it does this. Or in other words it
focuses on its culture and the manner in which it works with all involved in the
organisation. The VEBV: TKM encourages and supports what is often invisible, and
unconsciously expected in organisations that work with older people - primarily
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emotional labour and emotional intelligence. It does this in a variety of ways,
including having co-ordinators who are skilled connectors or ‘people specialists’,
and the encouragement of certain traits in its members by the coordinators and
through the organisation’s values, particularly its core value of recognising its
members skills and abilities and encouraging them to connect and help each other.
All of the participants spoke about valuing the supportive culture of the VEBV:
TKM and the diversity of its members. This is supported by the VEBV: TKM’s two
whare (Tāngata Whenua and Tāngata Tiriti) model with Māori and Pākehā
(European) co-chairs and coordinators. Common elements of best practice in
organisations that work with older people, such as respecting and valuing older
people, and creating age friendly environments, are worthy pursuits but until
emotional labour and intelligence are valued and understood to be of equal
importance to those pursuits, aspirations for best practice can remain unfulfilled
in practice.
Central themes
As we used a grounded inductive approach in our research, findings were
developed from what the participants told us, as opposed to the application of a
theory or hypothesis to lead data collection and analysis. This meant that
participants ideas and feelings about the VEBV: TKM, which directed our
identification of key features of the VEBV: TKM model, are articulated through
information found in participants’ interviews including reflections on their art
works. In this section the findings are divided into 4 central themes drawn from
the participants interviews and the emphasis they put on factors important to
them. These themes are: 1. What brought people to the VEBV: TKM; 2. What
makes the VEBV: TKM work; 3. The benefits for the VEBV: TKM members of
participating in the workshop’s contemplative and creative practices; 4.
Realisations and change resulting from participation in the workshop: Highlighting
features of the VEBV: TKM’s successful model of ageing in place.
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Theme one
What brought people to the VEBV: TKM
- It is important to understand the impacts of major life changes on members
of ageing in place organisations, such as a loss of identity, fear of meeting
new people, loneliness, and isolation, as they are what brought individuals
to the VEBV: TKM and indicate their needs.
- Related, and important to consider when creating, or working in ageing in
place organisations, are individuals’ histories underpinning these life
changes and immediate circumstances.
- The coordinators of ageing in place organisations need to be great
connectors, or ‘people specialists,’ as they are pivotal in attracting members
and maintaining a healthy, welcoming, supportive organisation.
When speaking about why they became VEBV: TKM members, every participant
told stories of a major life change, which in some cases was traumatic. The stress,
anxiety and depression that can result from these changes is emphasised by
scholars such as Bassil, Ghandour & Grossberg, 2011 and Verill & Beck, 2000,
with the latter focusing on “late-life anxiety”. The changes participants described
resulted from, illness, accident, the loss of a relationship/life partner, issues with
housing and fear of homelessness, or having to shift after living in one place for a
long time. The breakdown of traditional family structures is also important here.
It is something that Mary lamented when she spoke of the loneliness she suffered
after her children and grandchildren moved to live in different parts of New
Zealand. The issues Mary raised about loneliness and the break-down of family
structures is well understood in the field of ageing studies (Berg-Weger & Morley,
2020; Fried, 2020; Wenger 1996). Because family-structures may never be what
they were, there will be a greater need for ageing in place organisations like the
VEBV: TKM.
Participants feelings about ageing were also relevant and ranged from what
Renata called her ‘glass half full’ attitude, led by her belief that, as she described
it, “you are only as old as you feel,” to Peter’s assertion that he “hates it, it's hard,
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speaking about the coordinators Fiona said, “Oh gosh they’re beautiful people.
They’re very understanding, they’ll have a bit of time out with you if there’s any
issue, any problem, or they’ll take you into a quiet spot, and they don’t pressure
you, they really support you.” Sharon spoke about how the coordinators approach
is ‘personalised’ giving the example of needing a bit of extra help with her smart
phone and how one of the coordinators showed her how to use it. At the same
time, she also told her about a special deal on an internet connection with a phone
company. Describing the VEBV: TKM coordinators Sharon outlined, what for her,
makes a good coordinator:
I think basically, they like people, they enjoy people, being in their company
and talking. Yeah, their friendliness and being able to help, or put you in
contact with people that can help. Like I noticed how there were two group
members in the same area who wanted to go walking, so the coordinator
connected them up. The coordinators try and get people to help each other,
and it's just the joining in and connecting people and not giving up because
a lot of people I know have said that they were contacted two or three times
before they really started to get involved. It was the persistence of the
person trying to help them or assist them, but not being overly pushy as
well. Not telling them what to do by any means. Because I think that would
be the worst thing to do to tell anybody older what to do. They’re just very
special people.
Strong emotional intelligence is underpinned by self-awareness and potential
coordinators may need to be supported to develop the necessary self-awareness.
Explaining the need for heightened self-awareness a board member said that
coordinators need to be “flexible, it’s important not to have a ‘fixed view’.” They
also suggested that training through self-development courses could be useful for
coordinators to understand the VEBV: TKM’s approach, which is based on,
“standing side by side with someone and supporting them, and this is one of the
critical things that is needed.” The board member also spoke about coordinators
needing to know how to “give it away,” that is, despite possible good intentions
to help that can lead to a service provision approach, coordinators need to give
away the position of power, and hand it over to the ageing in place members. For
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example, members need to be supported to organise and run their own activities.
Further, as the board member explained, “the number one thing is to be in
communication, don’t assume anything, then the next part is to acknowledge what
people have done, this is the key to success, you have to be 100% on to it, you
can’t miss out even one person.”
Another board member emphasised the need for coordinators to be from the
community they are working in, as she said, “they have to have actually be from
that community, and have an established network. So, I think you can't go past
those established conduits that exist in communities.” These established
connections were important, and particularly in country towns, when the
coordinators need help or information. Emphasising this the board member said,
“that's probably a really vital thing knowing who to go to or who to tap on the
shoulder, or who to ask for help. That's quite important once you get out of a city,
having those connections.” For this board member emotional intelligence is
central, and the coordinator needs to be “out there” or out and about in the
community, be good at prioritising members’ needs, have good organisational
capabilities, and they don’t get drawn into conflicts, but focus on the “big picture.”
Plus, there are other qualities that the board member felt were important with the
first being, “a really good listener, and you have to be able to sort out what's real
and what's not. And who to prioritise your time with. Because it's very easy to go
off on a tangent.” When describing other qualities, the board member suggested
that in the case of coordinators working in ageing in place organisations they need
to have specific knowledge about older people and that this is an area they are
working on with the VEBV: TKM coordinators:
Yes, understanding of process, knowing the community, being a really good
listener, and having a bit of get up and go. I think those are very important
things, you've got to be able to relate to people of all ages. But if you're working
with vulnerable seniors, you actually have to have some knowledge and
understanding. And that's probably the next thing for us as a board, is to start
looking at what kind of mentoring or not…I don't want to use the word
‘training’, but maybe exposure? Can we give our coordinators that broader
brush view of our members, and what they can contribute.
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Traits of the members
Through the course of the interviews, it became obvious that certain traits of the
VEBV: TKM members were supported and encouraged by the coordinators and
values of the VEBV: TKM, particularly its core value of facilitating members ability
to connect and help each other. Describing these attributes members spoke of
themselves and their fellow members as kind, thoughtful, non-judgemental,
supportive, caring, loving, and that they had a genuine desire to help each other.
Some even spoke of the VEBV: TKM as a “second family.” Additionally, participants
liked the diversity of VEBV: TKM members, and explained that because of this
diversity they each engaged with the VEBV: TKM for different reasons and in
different ways. While participants liked this flexibility and diversity, they were
pragmatic about needing to compromise at times, and how they may not always
get on with everyone. As Mary explained: “If you are together in a group there
are always people who are different you know, they'll have a different viewpoint
that's how it is in life. Then you might find people who are more suited, who match
with you, that's the good thing if you’re in a group.”
While learning to accommodate these differences was important for participants,
the sense of caring between VEBV: TKM members was emphasised by
participants. Gillian, for example spoke of how when she arrives at a VEBV: TKM
event that “everyone gives you a hug when you go in, and everyone’s just
welcoming, there's no snobbiness, it's just different types of people.” Participants
spoke of needing time for trusting relationships to build and how this then led to
the reciprocity that many described. Gillian spoke of this in terms of what she
understands as a core value of the VEBV: TKM, which she explained is about
“helping one person to help the next person, it's really just you - do something for
one person, and that person can do something to help the next person.” While
they didn’t use the term, many of the participants spoke about their own, or others
strong emotional intelligence. This is described by Peter in his story about mowing
his neighbour’s lawn:
I went to mow her lawn because her husband was crook, and she'd been having
trouble, but I think they’re fairly proud, like most people are. Most people like
to mow their lawn the way they like to mow it, and no matter who you are,
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you're never going to do the job the same as them, and I'm aware of all that.
So I asked nicely if it was okay if I did their lawns for them. I said ‘I don’t want
to step on your toes’, and that I don't like people mowing my lawns, you know
(laughing), and I said ‘I was more than happy to do them’, and he popped out
and said ‘yeah if you like.’ You know it was just nice, and I enjoyed doing it.
The Two Whare (Tāngata Whenua and Tāngata Tiriti) Governance Model
Equitable governance systems that reflect the context of the ageing in place
organisation are important for healthy ageing in place organisations.
The VEBV: TKM has a two whare (house) (Tāngata Whenua and Tāngata Tiriti)
model with Māori and European / Pākehā co-chairs and coordinators. The creation
of VEBV: TKM’s two whare governance model began when Ruth Gerson met with
the woman who would become the current Māori co-chairperson on the board. In
the interview with her she said:
I had a meeting with Ruth, basically, she had come to share with me about
the Eastern Bay Villages, and the reasons why she felt it was an important
project for elders within this region. Her coming to see me was the
important first step to see if the local iwi were going to support the Eastern
Bay Villages. So, once we had that discussion, I had a meeting with the
elders who supported what Ruth had brought to the table. I was very much
in support of it because of the needs of the elderly that I had seen in the
community. From where I sat in the community, I saw a lot of our elderly
who were staying at home, and who didn’t want to go into rest homes. The
more I learnt about it, and the way it was likened to a village, and how
people were looking after each other, I thought that it was no different to
us on the marae. As we do with manaakitanga (expressing kindness and
respect for others), whanaungatanga (relationship, connection, and a sense
of family) and how we are caring for our elders in the marae setting.
Providing an overview of the VEBV: TKM’s governance structure one of the board
members said:
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We have a two-house model; so, we have equal representation of Tāngata
Whenua and Tāngata Tiriti partners. And we try really hard to look at any of
the issues that come up in the context of – ‘what does a partnership really look
like?’ And I think we are the only organisation in our region that actually is
structured that way. So, all of our meeting protocols, champion both sides of
the treaty. Though we don't always open every meeting with a karakia
(song/prayer), we might open a meeting with a poem, a Rudyard Kipling poem
or something like that. It's always that we can learn from each other, and there
is a structure and process in place.
The VEBV: TKM’s two whare model relies on the good will of the board members
and their openness to ongoing learning about what true partnership means.
Currently board members are in discussion about doing Te Tiriti o Waitangi – the
Treaty of Waitangi training, which has been important for the Māori co-chair of
the VEBV: TKM, as she said:
If I'm stepping into the co-chair role with its responsibilities, I want to make
sure that the whole of the board understands the two whare model. Because
I have a different perception of it than they do. So, I’m making sure that
we are all on the same page. Personally, I think that we need to do the
training (Te Tiriti training), because without that understanding then yeah
it can all tip over.
The VEBV: TKM is a registered charity, and in their meetings the board works on
a consent agenda. This is so that, as a board member explained:
we don't waste a lot of time going over minutes, and financials and things like
that, because all that gets sent out. Our meetings are mostly focused on new
ideas, addressing any particular issues, or how are we progressing our strategic
plan. So, we very much use that meeting time, that coming together time, not
to rehash things that have happened in the past, but to look forward. Our
meeting protocol is all around respect, and it's almost like, are you familiar
with the Edward de Bono hats? Okay, so, so nobody ever talks over the top of
anybody else, we’re always extremely respectful. And if your view is different,
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then the opportunity is for you to listen to another point of view, and consider
other options. It's a very, very respectful board, extremely respectful.
What members like about the VEBV: TKM, and why they
remain members
Relationality and the development of friendships
Of all the things that participants liked about being VEBV: TKM members, the most
important appeared to be the opportunity to make new friends and have regular
opportunities to connect with them. As mentioned earlier, all of the participants
had experienced a major and sometimes traumatic event in their lives that led to
loneliness and isolation and being afraid to reach out to new people. For some this
was exacerbated by continuing ill health, lack of transport or funds, and self-
consciousness. Participants also mentioned a lack of trust or fear of others, or fear
of not being able to manage relationships because of ill health, shyness, or
awkwardness around people, this was particularly so for people who had been
isolated for a long time. The VEBV: TKM’s different activities provide a range of
entry points starting with the least challenging, which are the weekly morning
teas, games afternoons, and presentations on a range of subjects such as healthy
eating. Then there are longer activities such as visits to art galleries or gardens
outside of Whakatāne, where members travel together in the VEBV: TKM van. As
individuals become more comfortable with each other and the VEBV: TKM they
may be matched with each other depending on their skills and what help is
required. Sometimes this is facilitated and sometimes it happens organically. A
board member detailed aspects of the way that relationality develops in the VEBV:
TKM saying:
It’s all about building the relationship and explaining what you need and if
you can’t do that in such a way that allows someone to say ‘oh I can help
you with that’, then you’re doing it all wrong. It’s something that we could
probably do a bit more work on, in terms of the conversations and how to
ask, how to put it out there that ‘actually this is what I need’. It might not
just be as simple as how - I can’t change my light bulbs or tap washers
anymore. It might be more complex than that, and how do you put that
into words, and who do you trust enough to ask. Trust is huge, but I believe
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by showcasing the members and what they’re capable of, and by telling
their story there is an opportunity for people to think, ‘oh they’re not that
different from me, and I could actually sit alongside them and get to know
them a bit better.’ Just being able to tell your story in such a way that you
are approachable, you’re not just that person on the other side of the table,
you’ve had experiences in life.
The idea of show casing VEBV: TKM members is something that is being
considered by the VEBV: TKM board with suggestions that it could happen in
sharing circles, or as feature stories in the newsletter. The rationale being that it
will help strengthen relationships and trust between members. However, the
board member explained that VEBV: TKM members may need support to tell their
stories, as she explained:
You need to enable and equip people to tell their story, otherwise they may
not be understood. If they can’t be understood then their needs can’t be
met. So, by not telling their story you’re doing them, as a member, a
disservice. Because how can people help you if they don’t understand. If
you’re trying to create and build relationships there has to be a level of –
‘who am I’, ‘where am I from’, ‘what are my values’, all of those things are
really important, and just proving a platform for that, whether it’s in a
sharing circle, in the newsletter, in an interview. It’s a way of alleviating
that isolation, vulnerability aloneness.
A story that Gillian, one of the workshop participants, told about helping a fellow
member/friend, Maria, who she knew had health problems, illustrates how
friendships develop and are maintained. Gillian was driving home and saw her
friend in a local shopping area so stopped and asked if she needed help. Her friend,
Maria was trying to enrol at a local doctor’s office but because of a disability she
lives with she wasn’t able to fill out the forms. Gillian helped her and supported
her to get the tests she needed. Some weeks later at the Monday morning tea
Gillian spoke of needing help to clean her windows, and a few days later Maria
arrived at her home with her bucket and squeegee and cleaned all of Gillian’s
windows. When the job was done Maria and Gillian shared a cup of tea.
Additionally, once such friendships develop, members will connect outside of the
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VEBV: TKM activities, regularly meeting for lunch, or checking in with each other
via phone or text.
The VEBV: TKM activities
Include a weekly Monday morning tea and Thursday games afternoon; a monthly
shared meal, day trips and presentations on a range of topics, including
Alzheimer’s education, and legal advice from Baywide Law. Members are also
supported to create their own groups and these include: Edgecumbe and Taneatua
coffee mornings, the ukulele and line dancing groups, the walking group the
Walkie Talkies, and a newly formed men’s group. Participants spoke of how much
they enjoyed these activities, how they were informative, and how they provided
the opportunity to make friends. However, there was the suggestion when
comparing another organisation in the Eastern Bay with the VEBV: TKM that the
scope of the latter’s activities is inhibited by limited funds. Nonetheless
participants were very enthusiastic about the choice of activities provided by the
VEBV: TKM. This was emphasised by Renata when speaking about an outing to
Kawerau, “last year we went to a big stadium in Kawerau, where we had games
and it was an all-day event, and Wow, was that fun!” More information can be
found here: https://www.virtualeasternbayvillages.org.nz/events-programmes
Gaining help, information, and support, and offering help, information,
and support
Participants spoke about the benefits of being able to access help, support, and
information and in turn offer help and support, and share information that resulted
from being VEBV: TKM members. Members informally share aspects of their lives
with each other and this ranged from recommending a movie they’d just seen, or
a good doctor, to gardening and internet tips. Importantly this sharing acted as a
social lubricant and was pivotal in the development of friendships and community.
Sharon spoke of the pleasure of spending time with a fellow member/friend when
her friend was teaching her how to knit woollen bed socks. This happened after
Sharon had supported her friend when her husband was ill. Mary described how a
friend from the VEBV: TKM taught her and others about Māori culture and protocol,
which she was keen to learn because of their visits to local marae. VEBV: TKM
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members gain this information and support informally as friendships develop, or
more formally when they are matched with each other by the VEBV: TKM
coordinators.
Also, information is shared by the VEBV: TKM coordinators with members, this
includes such things as a list of trustworthy handypeople who will do odd jobs and
aren’t too expensive. Additionally, members can make suggestions for activities
or specific help, such as the need for digital literacy, transport and funerals, which
have led to the creation of the “Digital Buddies,” the “Accessible Transport
Solutions, Waka Eastern Bay,” and the whanau led funerals/tangihanga projects,
run by the VEBV: TKM’s sub-committees. It is important to note that this support
and information is offered in what Sharon called a “personalised way.” Here she
explains this through her description of how it was for her when she first joined
the VEBV: TKM:
I think it's the confidence, and I think too if you haven't done anything like
that, you're not sure how people will react to you, or how you would feel,
whether you’d feel comfortable or not. I think basically, yeah, confidence
has a lot to do with it and feeling that you've got the ability to actually pass
anything on or actually you know, get to, to be involved or to talk to people.
I know when I first started my confidence was quite low. I didn't say a hell
of a lot but as time went on, I listened to the conversation and made odd
comments where things cropped up that I might have known or whatever,
and so you know it takes time to build that confidence up you know, and I
enjoy their company. Yeah, it’s really good, you hear what they've been up
to and things like that, and they ask what you've been up to and what's
happening it's yeah, it was really nice.
This “personalised” approach relates to members feeling welcome and being
regularly informed about the VEBV: TKM’s different activities (this happens via
email and a hard copy newsletter as some members, don’t have smart phones or
computers). Also, that members are encouraged to join activities or provide
support but don’t feel pressured, that their talents, skills and abilities are
acknowledged, which provides agency and builds self-esteem (Brandtstadter,
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Wentura & Greve, 1993), and that they can engage at their own pace. Additionally,
if issues between members arise that these are dealt with swiftly, and in private,
by the coordinators in a respectful and non-judgmental way.
Theme Three
The benefits for the VEBV: TKM members of participating in
the workshop’s contemplative and creative practices
This section contains three sub-themes: 1. The reasons participants attended the
workshop, 2. Previous experience of art and meditation, 3. The workshop practices
elicited heightened self-awareness.
- While art-making and meditation were not entirely new for some of the
workshop participants none had experienced the Meditative Process Art
(MPA) method (Please see: Appendix 2) before. Despite it being entirely
new for them the participants spoke of enjoying and gaining benefit from
the MPA method’s practices.
- Bearing in mind that the MPA method was new for all the participants, it
appears that the scaffolded design of the workshop, where participants
moved from preliminary to more complex practices, helped them readily
engage with the workshop practices.
- Participants had different reasons for attending the workshop, such as
curiosity about art and meditation. The benefits they gained from these
practices like heightened self-awareness, suggest possible new VEBV: TKM
activities, such as art-making and meditation. These could also be useful in
all ageing in place organisations. Please see: Klimecki et al.’s (2019) review
of meditation for healthy ageing, and McFadden and Basting’s (2010) report
on healthy ageing and creative engagement.
- The workshop practices elicited heightened self-awareness, which led to
participants realisations about themselves, including how they had changed
as a result of becoming a VEBV: TKM member. The changes, revealed
through their making and reflection on their art works, occurred both in the
workshop and through VEBV: TKM membership. Change through art making
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is something that Malchiodi (2012) emphasises in her exploration of
creativity and ageing, while Lander-McCarthy and Bockweg, 2013 speak
about the use of contemplative and creative practice to introduce the
concept of “transcendence” as a more holistic criterion for measuring
successful and healthy ageing.
- The sharing at the beginning and end of the workshops supported increased
understanding and heightened empathy between participants, suggesting
the benefits of including contemplative art, sharing circles, and similar
practices, in the VEBV: TKM, and other ageing in place organisations. While
speaking of a different setting Berg-Weger and Morley (2020) confirm the
benefits of sharing circles for older people.
Although none of the participants had experienced the Meditative Process Art
(MPA) method before the workshop, some had practiced meditation and/or done
art at school, or participated in craft activities. Nonetheless, the particular
combination of Process Art and gentle mediation was very new for the participants.
As Mary said, “it was an absolute new experience for me doing that workshop.”
Concurring Fiona said: “I really thought, you know that you’d sit there, and fold
your legs and you’d meditate through the mind and the soul, I didn’t realise the
mahi (work) that went with it. But I thought, ‘no I’ll give it go – I’ll give it a try.’
And I was actually so glad that I did because it blew me away!” Some of the
participants like Peter were initially apprehensive, as he recounted, “Well, when I
walked in there, it was funny, because you had everything down there, all the
pens or paints, it looked pretty impressive to tell you the truth. And I was looking
and thinking oh,’ what am I going to do?’ But I do remember thinking ‘this is
going to be fun,’ and I was quite happy, it was good.”
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The reasons participants attended the workshop
There were a variety of reasons that participants attended the art and meditation
workshop, ranging from curiosity, to a long-held desire to return to the art making
they had done in their youth. Barbara came to the workshop to learn how to
express her ideas ‘visually,’ or as she described it, “to try and find myself within
myself.” As Peter explained he felt uncertain and awkward about art-making but
he was keen to try something new, as he said, “what I’ve found, with Eastern Bay
Villages stuff you do need to give them a chance. So what if you don't know about
it, give it a chance it will open up your mind? And you might see something you
haven't seen before? It does make a difference.” Like Peter, Sharon thought she
would give the workshop ‘a go,’
because she was curious about what
would happen, despite saying to
herself ‘What are they trying to do?’
Describing why she came to the
workshop Gillian said, “Oh, because I
love anything to do with thinking and
the mind. Anything to do with thinking
outside of the square.” Clarissa simply
said when ask why she attended,
“because I love art.” She then
elaborated further and said that after
the workshop she had spoken with the
coordinators about having art classes,
and the suggestion was reinforced
after a visit to a local art gallery.
A workshop participant working with the Visual Library
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Previous experiences of art and meditation
Interestingly when asked if she had
meditated before Gillian, who is a
deeply spiritual woman said, “yes to
the meditation – always, anywhere,
anytime!” Like Gillian, Renata said she
was attracted to the workshop because
of the art, as she confirmed, “I'm into
arts and crafts and everything like
that, I just love that sort of thing, and
when painting was mentioned, I was
like, yes I’m in!” Mary attended the
workshop because she wanted to
support research with older people, as
she explained, “I felt it is worthwhile
because there are quite a few people
who live on their own, and it's good for
them to mix with others you know?
A workshop participant in the morning session of the workshop
And it's a chance to see what problems the others have and how to solve them.”
All of the participants spoke about enjoying the day-long workshop despite some
of them saying they felt tired at the end of it. Speaking of the workshop Peter said
“I enjoyed the day and I still remember it.” He also said he wanted to do the
workshop again, and described how he is planning to take up painting as a result
of the workshop, “I’ve still got it in my mind, and I'm going to…I haven't done it
yet, but I think of it every second day. And I'm going to get some of that big white
paper and some paints, and I'm gonna go like this and like that”, laughing he
mimed moving a paintbrush backward and forward.
Other participants said they enjoyed the art making, and since the workshop the
VEBV: TKM coordinators have discussed running art workshops for members.
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Several of the participants spoke of finding the meditation very relaxing and
helpful, with Peter reflecting that he’d used the meditation to relieve pain on a
family trip, and had described one of the meditation techniques to his wife and
daughter, as he outlined, “I was saying what to do and I was giving them the –
smmmmmm (he breathes in) cool air going in, warm going out? Feeling on the
inside,…I used it up at the Coromandel when I was there, when I was in pain.”
There is an increasing awareness of the benefits of meditation and other
contemplative practices for older people as outlined by Nilsson, Bülow & Kazemi,
2015, and Yuen & Baime, 2006.
The workshop practices elicited heightened self-awareness, about
participants lives and impacts of joining the VEBV: TKM
In addition to the benefits gained and pleasure participants experienced in the
workshop, they also described how working with the MPA method led to
heightened self-awareness, and realisations about aspects of their lives, and
impacts of joining the VEBV: TKM. Here Peter describes his insight:
Well, I'm thinking that in the art workshop, there was a lot more involved
than art. Like where we went to, and that was a good thing. You can actually
go from that to something more, maybe another little inch forward to
something else, as well, something that’s a little bit cooler. You know, it's
a bit of a movement thing really.
The structure of the workshop, with introductory art and meditation practices in
the morning leading to longer practices in the afternoon, was designed to scaffold
participants experience and to elicit subjective/affective/somatic awareness, or
“felt knowing” (Morgan & Abrahamson, 2018) related to the change and
transformation that participants experienced through joining the VEBV: TKM.
Fiona’s two art works depicting how she felt before and after joining the VEBV:
TKM, visually express change, with expressive mark making, cross hatching,
circling, and fragmented lines a feature of her ‘before’ artwork. There is also a
large block of colour with a set of scales inside of it and a mass of circling white
lines partly obscuring the scales. The scales are an important symbol for Fiona, as
her astrological sign is Libra, and she uses the scales to represent herself and her
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subjective sense of being in or out of balance. Here Fiona explains what her
artwork represents:
Oh, I’m unbalanced, yes, before I come to EBV, way before I come on board
there I very unbalanced. I was always tipping up. I was very shy, very
unbalanced and I was a very quiet, and stand offish. I didn’t know how to
get involved with others, it has taken me quite a few months before I found
that balance.
In her “After the VEBV: TKM” artwork, Fiona illustrates the changes she
experienced since joining the VEBV: TKM by having more white space, coloured
dots, and a stylised sun, which provides a much lighter tone to the work.
Describing this work she said:
That’s me after the EBV, when I got really involved with the ladies, I just
feel as though I was fitting in with them. I’m always happy when I come in,
they always know when I’m not happy or they tell me, ‘oh you look a bit…,’
I’m happy, I love having fun, I love laughing, laughing with the others. I
enjoy listening to our ladies, what they do on their weekends, or what they
do with themselves. And I’m able to share with our ladies now. To actually
talk in front of them, I’m not shy or don’t have to feel uncomfortable, it just
feels so good today with the EBV.
Finally, when she saw her two art works together, Fiona articulated the change
she saw, “I’m OK, I’m actually OK because I’m very balanced, totally balanced,
I’m not tipped up.” Like many of the participants Fiona was describing both the
realisation that resulted from making the artworks, and the changes she has
experienced through becoming a member of the VEBV: TKM.
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Fiona’s Before and After the VEBV: TKM artworks. “Before the VEBV: TKM” is on the left and “After
the VEBV: TKM” on the right.
The afternoon session of the workshop, where the ‘before and after’ art works
were made, concluded with a sharing circle, as these opportunities to share
experiences of the contemplative art, is a central feature of the MPA method. The
sharing not only grounded the participants’ subjective experience but it resulted
in heightened empathy and understanding between the participants, which Sharon
describes here:
“I think a lot of them were very open
about what they were thinking and a
couple were a bit shy, including myself.
But I think it made you realise that people
feel the same way as you feel. That you're
not the only one that feels like that. It
makes you realise that you're not unique
in the way you feeling that other people
have those feeling too. I think it makes
you realise that, that yeah, that
everybody needs somebody or something
around so you don't feel lonely.”
My Spirit” by Sharon
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Sharon’s articulation of links between sharing and loneliness, and the benefits of
sharing are confirmed by Berg-Weger and Morley (2020 in their “Loneliness in old
age: An unaddressed health problem” article. In it they speak about the ‘loneliness
epidemic’ older people suffer and recommend the Circle of Friends programme
developed at the Central Union for the Welfare of the Aged at Helsinki University,
in the early 2000s. The Circle of Friends is built on a model of group rehabilitation,
with the aim being to alleviate and prevent loneliness in older adults, see, Jansson
& Pitkälä, 2021.
Them e four
Rea lisations and change resulting from participation in the
workshop
Highlighting features of the VEBV: TKM’s successful model of ageing in
place
There are two sub-themes in this section, 1. The participants use of art practices
such as symbol and mark making to express subjective experience, and 2. How
experience of the contemplative art practices led to heightened self-awareness
and change, so revealing important features of the VEBV: TKM, as illustrated by
the participants art works and poems. This second section is introduced by
participants’ realisations and is then divided across three sub-themes: a)
Idiosyncratic use of symbols; b) Sophisticated use of symbols; c) Art-making
revealed repressed feelings and provided a means to reflect on these feelings.
Leading on from the last section on the heightened self-awareness that resulted
for workshop participation, this section focuses on the insights and change
workshop participants experienced. Their descriptions related both to, insights and
changes they experienced in the workshop, and those that resulted from joining
the VEBV: TKM. The art works completed in the second half of the workshop that
depicted how participants felt before and after joining the VEBV: TKM clearly
illustrate the changes participants experienced. Additionally, the preliminary art
works created in the first half of the workshop, starting with a self-portrait, then
a series of symbols depicting participants felt understanding of their body, mind,
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spirit and feelings, power, and pleasure and strength, also revealed important
subjective aspects of participants understandings of themselves.
Clarissa – “My Emotions” on the left and “My Mind” on the right.
1. The participants use of art practices to express
subjective experience
Eliciting subjective experience and enhancing self-awareness may not
immediately seem relevant for ageing in place organisations but there is a growing
awareness of the need for the provision of these kinds of experiences for healthy
ageing, and for what Lander-McCarthy & Bockweg (2013) call “transcendence”.
While there are multiple aspects of transcendence Lander-McCarthy & Bockweg
(2013) propose that self-transcendence is an “inherent process that is a gradual,
nonlinear expansion of conceptual boundaries; that is, one’s personal limits or
internal rules and expectations of oneself, others, and the world” (2013, p. 86).
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With the outcomes of transcendence being “a sense of meaning in life, well-being,
life satisfaction, and a decreased fear of death” (ibid).
Clarissa, “My Emotions” on the right, Clarissa, “My Spirit” on the left
As the participants progressed through the workshop their comfort and ability with
the workshop practices increased. This was for both the art and meditation
practices, with the meditation allowing participants to enter a relaxed and
contemplative state, and the art helping to materialise, or stabilise the internal
mix of somatic, affective, historical, psychological, and spiritual experience
encountered in the contemplative consciousness that they entered through
meditation. Fiona’s description of the symbol she created to represent her spirit
offers insight into the ability of process art and meditation to access the deep,
sometimes unconscious feelings participants had about themselves. Fiona’s
symbol is a flower with separated petals and explaining what it meant to her she
said, “there are those white shapes, then I’m scattered with the petals, that’s
when my mind, my brain is a bit scattered, so that’s where I go for the white,
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that’s my protection” Fiona who
describes herself as a “visionary,” drew
white shapes on 4 of the petals of her
flower to represent her ancestors who
provide safety and protection. Each of
the participants readily developed a
deeply personal meaning system using
colour, symbol and mark making. Colour
for Peter had always been important, so
in the workshop he quickly created a
personal symbol system based on colour.
Here he describes the meaning behind
the stripes of colour on his artwork about
how he felt after joining the VEBV: TKM:
Peter, “After the VEBV: TKM”
Yeah the red one is going out to a friend’s place and planting some trees
and stuff like that. And the blue one is more like going to Opotiki and seeing
the sea and looking at the new wharf area, the Marina that they're making.
The green one is just a nice little chat somewhere where we've walked along
and meet a few people and we’ve just chatted for a little while. And then
we’ve had a bit of a break and then there’s the long orange one where we
met again.
2. How experience of the contemplative art practices led to
heightened self-awareness and change
Art works created in workshops first session illustrate ways that participants
understand different aspects of themselves, for example what gave them a sense
of power, and what provided strength and pleasure. Gaining this kind of self-
awareness is important for older people, and those working with them in ageing
in place organisations (Flood & Phillips, 2007). The longer practices in the second
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half of the workshop provided important information about participants experience
before coming to the VEBV: TKM, and therefore what kind of supports they needed
and what the EBV: TKM could provide. For example, becoming a member of the
VEBV: TKM has helped Barbara with her anxiety. When sharing her work with the
other artists at the end of the workshop Barbara explained that, “Before joining
the Eastern Bay Villages I felt uncertain, shy, nervous. But after attending several
meetings I felt less worried and much calmer.”
Peter visually described himself as being in a bubble before joining the VEBV: TKM.
He said he felt OK in this bubble, but through creating his “After joining the VEBV:
TKM” work he realised that there was much more he could have in his life, as he
said, ““Since I've joined Eastern Bay Villages, I‘ve found a lot more colour. A lot
more, opening, a lot more opportunities. So, it’s been really good and I've met
some very lovely people, it's been awesome.”
When speaking about her artwork that describes how she felt before joining the
VEBV: TKM Fiona said: “This is me here before I came to the EBV, very
unbalanced, I wasn’t myself, I was very unsure, there was no trust, there was no
trust at all. I didn't know how to get along with people. I was closed up for a long
time, unable to open-up, to share what was going on.” Fiona then spoke about
the changes she experienced after joining the VEBV: TKM saying, “and today with
the EBV, I just love it. I love being around people, I love sharing with others, I
have opened up quite a lot, I’m not shy anymore. I’m able to say what I want to
say and this is what the EBV is all about. We’ve got voices, we’ve got choices,
we’re allowed to voice whatever we want, and just be ourselves.”
a) Idiosyncratic use of symbols
Like Peter and Fiona other participants used colour, mark-making, and symbols to
express subjective experience, aspects of their lives, and experiences of the VEBV:
TKM. Some also used symbolised elements of the natural world to express feelings
and ideas. For example, Mary’s self-portrait consisted of a symbol of herself as a
tree, with her roots reaching down into the earth and her branches reaching out
to others. While in her work symbolising her emotional life, Mary used blue lines
at the bottom right of the work, depicting her deeply felt emotions as though lying
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hidden in the ocean, but above the ocean she drew the sun to describe her
optimism about life, for as she said, “never give up because the sun always rises
again.” Like Mary, Clarissa used natural symbolism drawing from native plants to
express aspects of her cultural beliefs. She also used mark-making, drawing a
series of blue lines and dots to create visual rhythm in her art work about her
mind. Explaining this Clarissa said, “it’s like taking little steps forward and back,
forward and back and forward. Yes, sort of trying things out, or moving in different
directions, or making up your mind whether you should or should not.”
b) Sophisticated use of symbols
Despite the workshop only being six hours long, participants developed
sophisticated symbols systems, with Sharon for example representing herself in a
deceptively simple self-portrait that had a double meaning.
Sharon, “I Am”
This work above has a yellow background with two black circles on top of two
white circles. It depicts how Sharon is looking through her own glasses at herself.
Here she explains what this artwork means: “It's like seeing myself through my
own glasses. Yeah, so it's just seeing myself and, it is the clouds in the sky, it
might sound strange, but yeah, the clouds because you know how clouds can have
those circular shapes around them. But its more about seeing myself through my
own glasses.” Sharon’s description of her spirit also offers insight into one of the
known benefits of using art for self-development/awareness, which relates to art
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being able to describe things that are hard to put into words (McNiff, 2008).
Sharon speaks about the colour she uses in her artwork about her spirit, and then
uses, “su su su” to express something about her spirit that is difficult to explain
but ably described in the moving orange lines of her art work. As she said, “I did
enjoy doing that one, it was just sort of the curves, and I just liked that orangey
colour. I thought it seemed to give a bit of spirit to it. It just sort of described a
different concept, it’s just this sort of su su su, and I quite liked the flips.”
c) Art making revealed repressed feelings and provided a means to
reflect on these feelings
During the process of making their art works as participants chose colours, marks,
and symbols to represent their feelings, and as they articulated the personal
meaning in their art works during the interviews, it became clear that participants
were working through repressed feelings. When Gillian spoke about the symbol
that represented her ‘Spirit’ she spoke about the importance of her religious
beliefs, which then led to her speaking about the challenges as a child of living
with parents who had opposing views about religion. When explaining what her
“Before the VEBV: TKM” artwork was about Sharon not only spoke about the way
she visually described the fragmentation in her life but how really “seeing” this in
her artwork led to her realisation of how difficult her life had been. As she said,
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“I can see…I think it comes down to the
sheer turmoil, of how things in my life
were bitsy and how they were in slight
chaos, at the time I didn’t really realise
to the extent of that. And it took me time
to realise that I was coming out of that.
I was coming out it and feeling better. I
think it’s sort of getting a bit better… I'm
trying to open up, I'd say I’m opening up
about my feelings and whatever, and
before that I wasn't, I didn't. I was well,
and truly not doing so. It's hard looking
back and sort of think crikey!”
Sharon, “I Am”
In addition to creatively readdressing difficulties in a personal history, or reflecting
on changes in participants lives, the contemplative art practices also revealed new
understandings of ageing. Barbara described this in her last artwork of the
workshop about her life since joining the VEBV: TKM. Describing her artwork which
was of a bird taking flight Barbara said, “She’s flying free, she's about to take off.
I'm taking off. I think I've come to a stage where I'm free, I can do anything I
like, there’s nothing, no inhibitions, nothing can stop me.”
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In Conclusion
There is a growing awareness of the need for the provision of practices that
heighten self-awareness for healthy ageing. Participants ready access to a
personal symbol language, and comfort with art and meditation that developed
quickly across the course of the project’s workshop highlights the suitability of
using contemplative art with older people for heighted self-awareness, and its
viability for use in ageing in place organisations. The benefits of art and meditation
for healthy ageing, including the ability of the arts to describe what is difficult to
put into words (Blumenfeld-Jones, 2012), are increasingly understood in ageing
research, including in the field of community and arts-based research with older
people. Creatively working with subjective experience, difficult histories, and
repressed feelings, allows older people to gain insight into their lives, and make
changes to support their healthy ageing.
The transformative power of art-making and contemplative art making is well
known in art therapy, and is increasingly being recognised in art-based research,
and in the field of healthy ageing (Clifford et al., 2021; Lawton & La Porte, 2013;
Miller, Potts, 2022; Stephenson, 2021; Watson et al., 2023). As our aims in this
community and arts-based research project were to identify the elements of the
VEBV: TKM’s success, we were pleased to find that for members of the VEBV:
TKM, using art and meditation was not only a pleasurable and useful experience,
but that their reflections, described above, have offered invaluable insight into
what makes the VEBV: TKM a successful ageing in place organisation.
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Acknowledgements
We would like to acknowledge all the members of the VEBV: TKM who embraced
this project from the beginning, and gave their time in interviews, and at the
contemplative art workshop. We are extremely grateful to Diane Turner, director
of the Te Tari Kaumātua, Office for Seniors, who saw the merit of this research
project and provided the funding necessary to conduct it, and complete the virtual
exhibition; to Ruth Gerzon, the founder of the VEBV: TKM. Ruth’s enthusiasm,
support, and introduction to members of her networks, underpin the success of
our project; to the VEBV: TKM board members, who approved our research on the
VEBV: TKM, and who participated in research interviews; to Jo, and Kylie VEBV:
TKM’s current coordinators who facilitated recruitment for the workshop, were
great supports on the day of the workshop, and helped with the interviews, and
many thanks to Ruth for taking the photographs and helping with the
refreshments. Many thanks to the research team it has been wonderful working
with you. Lastly, this project would not have been possible without the 8 wonderful
artists, who were courageous enough to attend a ‘contemplative art workshop’,
something they had not experienced before. We hope the outcomes of this project
will offer useful information for the VEBV: TKM, and all individuals and
organisations working with older New Zealanders, and older people everywhere!
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Publishing Company.
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IN-CONFIDENCE
Appendix One
The Virtual Eastern Bay Villages: Te Kokoru
Manaakitanga (VEBV: TKM)
https://www.virtualeasternbayvillages.org.nz/
The VEBV: TKM was founded in 2016 by Ruth Gerzon, the first VEBV: TKM
coordinator, after an experience caring for her elderly, socially isolated, uncle. As
Ruth lives in the Eastern Bay of Plenty this is where the initiative is sited. Ruth
started by inviting members of local government and community organisations,
and her colleagues and friends to a public meeting. She used a number of
platforms to publicise the VEBV: TKM, including her regular column in the “Grey
Matters” section of the Eastern Bay Life
(https://www.easternbayvillages.org.nz/wp-content/uploads/2018/07/EBV-July-
7.pdf). After the initial meeting, and many others, a steering committee was
formed, a paid administrator appointed in 2017, and a two whare (house) board
consisting of Māori and Pākehā co-chairs and coordinators was formed. This board
structure means that the VEBV: TKM is a two whare tangata Tiriti, Tangata whenua
co-governed organisation.
The word ‘virtual’ in the title of the VEBV: TKM is used because, while the VEBV:
TKM members are physically based in the Eastern Bay of Plenty, there isn’t an
actual ‘village’, rather activities happen in various locations in the Eastern Bay.
The VEBV: TKM’s central aim is to reduce isolation and vulnerability among older
people in the Eastern Bay, and to enable them to have a good quality of life as
they age in their own homes. From the beginning the VEBV: TKM board and
members have differentiated the VEBV: TKM from service provision. In contrast
members strengths and agency are emphasised, they are not passive recipients
of care but are encouraged to be active in decision making and to contribute their
skills and time to the VEBV: TKM, and their fellow village members. This
community-led development approach, supports members to build strong
connections and deep relationships based on shared passions and interests
(https://officeforseniors.govt.nz/our-work/age-friendly-communities/2-age-
54
IN-CONFIDENCE
friendly-case-studies/eastern-bay-case-
study/#:~:text=Eastern%20Bay%20Villages%2FTe%20Kokoru,and%20passive
%20recipients%20of%20care).
Ruth, who worked as the first VEBV: TKM coordinator for five years, handed over
her coordination role in 2022. Currently there are over 100 members of the VEBV:
TKM, who attend weekly catchups, games mornings in Whakatāne, trips out of
Whakatāne, and a variety of presentations on subjects ranging from healthy eating
to dealing with flooding in the Eastern Bay. Members have created offshoot groups
in other parts of the Eastern Bay, and their requests for support with new
technology, transport and home funerals has led to the creation of a variety of
programmes and aligned organisations focused on these topics. However, at the
heart of the VEBV: TKM is what its board members call “the knitting” – that is the
recognition of members strengths and skills, and support for members to share
these with each other. A grounding statement for the VEBV: TKM comes from
Cormac Russell, who developed asset-based community development, which calls
for us all “to create communities of interdependence with a welcome to the
stranger at the edge” (Russell, 2022).
55
IN-CONFIDENCE
Appendix Two
The Meditative Process Art (MPA) Method
Meditative Process Art (MPA) is an arts-based method for exploring psychosocial
aspects of individual and group experience. It is led by imagery, meditative
consciousness, and somatic, psychological and affective experience. The MPA
method employs central tenants and practices from process art, contemplative
science, and creative arts therapy (CAT). MPA engages the chance occurrence and
deep focus in art making from process art. This art movement from the 1960s
takes an anti-form approach and has its roots in Performance Art and the Dada
Movement. Contemplative science offers contemplative practice and research
findings. Particularly findings related to learning such as the heighten meta-
awareness and executive function gained from contemplative practice. The MPA
method also employs practices and theory from CAT, which is grounded in Jungian
psychology with its focus on accessing subjective or pre-conceptual experience.
Humanist psychologists and gestalt therapists expanded Jung’s work by including
somatic, affective, and psychological experience so paving the way for the
creative, holistic therapeutic approach of CAT.
The MAP method utilises the pedagogical scaffolding practice in which students
move from introductory to more complex concepts and tasks. It combines
meditation and art to support practitioners’ access to underlying feelings that they
assimilate using multimodal creative practices such as drawing, poetry and
movement. The efficacy of the MPA method results from its iterative cycles of:
reflection, creation, realisation, and application, facilitated by rounds of
meditation, creative practice, and story-telling. The meditation offers in-depth
access to practitioners’ pre-conceptual, somatic, affective, and psychological
experience, while the creative practice gives form to this experience. Reflection
and discussion then provide discursive space from which to view and cognize the
newly fashioned personal symbology. This is a meaning-making process in the
constructivist sense, in which practitioners’ self-awareness grows and their
realisations are solidified then embedded in new meaning systems.
56
IN-CONFIDENCE
Dr Morgan’s development of the MPA method evolved across a number of stages.
Starting with her integration of art and contemplative practice in creative self-
development classes she designed and facilitated in drug and alcohol rehabilitation
centres. Then in her community education work and finally in courses and lectures
in and outside of the academe. Through her research in contemplative inquiry Dr
Morgan identified links between the creative and contemplative state of
consciousness, which led to pedagogical experiments with the Embodied Design
Research Lab at UC Berkeley. This research revealed the educational and healing
potential of combining process art and contemplative practice and led the way for
Dr Morgan’s creation of the MAP method. The method has been trialled and refined
in collaboration with Dr Carter and colleagues in the Positively Women research
project at the Kirby Institute, UNSW, Sydney:
https://positivelywomenproject.com.au
Appendix One: Ministerial support letters for
Government stocktake
To be sent to the Ministers of Health, Housing, Transport, Internal Affairs, ACC
and Social Development and Employment.
DRAFT
Hon Minister name
Minister Portfolio
Parliament Buildings
Dear Minister Minister surname,
I am contacting you to raise awareness of an initiative I am progressing to address my priorities as
Minister for Seniors. Improving the lives of seniors, almost 870,000 New Zealanders aged 65 years
and over, is one of the priorities for the Coalition Government.
My priorities for the next three years in the Seniors portfolio include addressing cost of living
pressures, housing, and care and health services for older New Zealanders. I have directed my
officials to undertake a stocktake of services funded by the Government specifically for older people
in New Zealand. Understanding the services and supports already in place will inform future work to
make it easier for older people to access what they need. This could include, for example, a simple
guide for seniors to access the range of assistance available.
Services accessed by older people span a range of government portfolio areas, including yours. I
would like to request your support in completing the stocktake, and that of your officials.
I will keep you updated about the progress of this stocktake and any outcomes. The key findings
from the stocktake will be presented to me in September 2024. I expect to share the findings, and
any next steps, shortly after this time.
It will also be of interest to you that I have instructed the Office for Seniors to update the Better
Later Life Action Plan. This will set out the Government’s priorities for older people and will focus on
three areas: cost of living, housing and care and health services. I anticipate the findings of the
stocktake will inform development of the Action Plan. I expect to take an updated Action Plan to
Cabinet before the end of this year.
I appreciate your support in advancing the Government’s priorities and improving the lives of
Seniors.
Yours sincerely,
Hon Casey Costello
Minister for Seniors
The Aurora Centre, 56 The Terrace, PO Box 1556, Wellington
–Telephone 04-916 3300 – Facsimile 04-918 0099
A
ide-mémoire
Ca
binet paper
Date:
19 February 2024
Security Level
:
Cabinet Sensitive
For:
Hon Louise Upston, Minister for Social Development and
Employment
File
Reference:
REP/24/2/146
Annual General Adjustment 2024
Cabinet
Committee Cabinet Legislation Committee
Date of meeting 22 February 2024
Proposal
The paper seeks approval to submit to the Executive
Council two Orders in Council and four Amendment
Regulations to give effect to the 2024 Annual General
Adjustment (AGA).
Talking points •On 1 April main benefit levels, and most other forms of
supplementary assistance rates and thresholds, are
increasing by the 4.66 percent inflation rate for the
year ending December 2023.
•The Bill enabling the inflation adjustment for main
benefits is due to be passed this week and will ensure
that these rates rise in accordance with the cost of
living, rather than the previous measure of net
average wage growth.
•New Zealand Superannuation rates will increase by
inflation, which puts the couple rate at 67.02 percent
of the net average wage, meaning no additional wage
adjustment is required.
2
• The regulatory changes in this Cabinet paper will give
effect to the rates and threshold adjustments for 1
April 2024.
Impacts on
Crown
expenditure
The 2024 AGA amounts to a lower-than-forecast increase
in expenditure, mostly due to the Government’s decision
to index main benefits to inflation, rather than net wage
growth. The impact of using the actual CPI figure will be
incorporated in the forecast update for the Budget
Economic and Fiscal Update 2024.
The Ministry of Social Development expects the cost of
increasing benefit rates will be around $1,295.4 million
between 1 April 2024 and 31 March 2025. The majority of
this expenditure is the result of increases to New Zealand
Superannuation ($892.8 million) and income-tested
benefits and Student Allowances ($425.7 million).
AGA impacts for
clients
About 1.4 million clients are expected to receive increased
financial assistance as a result of the AGA. This includes
approximately:
• 903,300 people receiving New Zealand Superannuation
and Veteran’s Pension
• 378,700 working-age beneficiaries
• 45,000 students receiving Student Allowance
• 72,000 people receiving supplementary assistance
only.
For example, on 1 April 2024 the net rate of Sole Parent
Support will increase by $22.01, from $472.79 to
$494.80.
A single person, over 25, receiving Jobseeker Support will
have a net increase of $15.72 per week, from $337.74 to
$353.46.
A couple with children receiving Jobseeker Support will
see their net benefit rate increase by $28.24, from
$606.86 to $635.10 per week.
The net weekly couple amount of New Zealand
Superannuation will increase by $35.54, from $763.64 to
$799.18.
Other policy
changes being
progressed
The AGA is also progressing changes for two childcare
payments – the Guaranteed Childcare Assistance Payment
and Flexible Childcare Assistance.
3
through the
AGA
• The Guaranteed Childcare Assistance Payment will
increase to align with the highest rate of the Childcare
Subsidy. This payment is available to young parents to
support them with the costs of childcare while in
education or training.
• Flexible Childcare Assistance rates will increase by an
amount equivalent to cumulative inflation adjustments
from 2014. This payment supports parents with the
cost of informal childcare when formal care is not
available.
• Both payments will be annually indexed to inflation,
starting from the 2024 AGA.
MSD estimates that the increase to the Guaranteed
Childcare Assistance Payment (from a maximum payment
of $300 to a maximum payment of $319 per week) will
support the costs of childcare for 150 children of young
parents / caregivers in April 2024.
Around 540 families are expected to be supported by the
changes to Flexible Childcare Assistance in the 2024/25
year. For a family with two children, their payment will
increase from $75 to $96.03 per week from 1 April 2024.
Indexing these payments to inflation will ensure that they
keep pace with annual movements in inflation and retain
their real value over time.
Orders in
Council and
Amendment
Regulations
need to be
submitted to
the Executive
Council to give
effect to the
AGA
This paper seeks approval to submit six Orders in Council
and Amendment Regulations (outlined in Appendix One)
to the Executive Council to give effect to the above
changes.
While these Orders in Council and Amendment
Regulations have minor impacts on the Children, Tertiary
Education and Skills, and Health portfolios, the bulk of the
regulatory changes fall under the Social Development
portfolio. The Minister for Children, the Minister of Tertiary
Education and Skills, and the Minister of Health have
agreed for you to present this Cabinet paper on their
behalf [REP/24/2/109 refers].
Author: Katie Tollan, Policy Analyst, Income Support Policy
Responsible manager: Bede Hogan, Policy Manager, Income Support Policy
4
Appendix 1: 2024 Annual General Adjustment –
Ministerial responsibility for changes required
Legislation Overview of changes Minister
Responsible
Social Security (Rates of
Benefits and Allowances)
Order 2024
Updates rates and thresholds for main benefits
and New Zealand Superannuation and various
supplementary payments including the
thresholds for Disability Allowance.
Minister for Social
Development and
Employment
Social Security
Amendment Regulations
2024
Increases the rate of a funeral grant.
Increases the rates and thresholds for Childcare
and Out of School Care and Recreation Subsidy.
Increases payments to an educator for providing
a home-based education and care service to a
child.
Increases allowable cost limits for Temporary
Additional Support.
Student Allowances
Amendment Regulations
2024
Increases rates and thresholds for Student
Allowances and adjusts the abatement regime
for students who are single, under 24 years of
age and without children.
Minister of Tertiary
Education and Skills
Oranga Tamariki
(Minimum Rates of
Payment for Board and
Lodgings) Order 2024
Increases the Foster Care Allowance Minimum
Rates of Payment for Board and Lodgings. Minister for
Children
Health Entitlement Cards
Amendment Regulations
2024
Residential Care and
Disability Support
Services Amendment
Regulations 2024 (part
1)
Increases the thresholds for the Community
Services Card.
Adjusts the annual clothing and personal
allowances payable under the Residential Care
and Disability Support Services Regulations
2018.
Minister of Health
The Aurora Centre, 56 The Terrace, PO Box 1556, Wellington
–Telephone 04-916 3300 – Facsimile 04-918 0099
R
eport
Date:
2
1 February 2024
Security
Level:
IN CONFIDENCE
To:
Hon Louise Upston, Minister for Social Development and
Employment
2024 Annual General Adjustment Amendments to
Ministerial Directions and Welfare Programmes
REP/24/2/147
Purpose of the report
1 This report seeks your approval to amend two Ministerial Directions and nine
Welfare Programmes, through signature of the attached Instrument, to give
effect to decisions made as part of the 2024 Annual General Adjustment
(AGA).
Recommended actions
It is recommended that you:
1 note that you and the Ministers responsible for the Finance, Housing, Health,
Tertiary Education and Skills, Veterans, and Children portfolios have
approved new rates of payments including New Zealand Superannuation,
benefits, Student Allowances, Foster Care Allowance, and new rates and
thresholds for allowances and supplementary assistance [REP 24/2/109
refers]
2 note the adjustments to most forms of assistance will be given effect by
Orders in Council and Amendment Regulations which will come into force on
1 April 2024, subject to Cabinet and Executive Council confirmation on 26
February 2024
3 note that the amendments to Ministerial Directions and Welfare Programmes
need to be approved by you
2024 Annual General Adjustment Amendments to Ministerial Directions and Welfare Programmes 2
4 approve and sign the attached Instrument amending Ministerial Directions
and Welfare Programmes 2024 by 27 February 2024, so that officials have
time to arrange publication in the New Zealand Gazette by 3 March 2024,
before the Instrument comes into force on 1 April 2024
APPROVED / NOT APPROVED
5 direct your office to arrange for copies of the Instrument amending
Ministerial Directions and Welfare Programmes 2024 to be tabled in the
House of Representatives, as required by section 114 of the Legislation Act
2019
6 note that officials will arrange for publication of the Instrument amending
Ministerial Directions and Welfare Programmes 2024 in the New Zealand
Gazette and on the Ministry of Social Development’s external website at the
earliest opportunity, as required by section 74 of the Legislation Act 2019.
21 / 02 / 2024
Bede Hogan
Policy Manager
Income Support Policy
Date
Hon Louise Upston
Minister for Social Development and
Employment
Date
2024 Annual General Adjustment Amendments to Ministerial Directions and Welfare Programmes 3
Background
2 Rates and thresholds for most forms of social assistance are being adjusted
from 1 April 2024, in a process known as the Annual General Adjustment
(AGA).
3 As part of the 2024 AGA, joint Ministers have agreed to increase:
•main benefit rates in line with upwards movement in the Consumers Price
Index (CPI) of 4.66 percent
•rates of New Zealand Superannuation and Veteran’s Pension in line with
upwards movement in the CPI, which will set the net amount of New
Zealand Superannuation for a couple who both qualify at 67.02 percent
of the net average wage
•the hourly rate of the Home Help Programme by 1.98 percent, in line
with the increase in the adult minimum wage rate from $22.70 to $23.15
per hour
•income thresholds for hardship and childcare assistance, in line with the
5.28 percent movement in the net average wage
•most other forms of assistance, in line with movement in the CPI
[REP/24/2/109 refers].
A range of regulatory changes are required to give effect to
the AGA
4 The adjustments to most forms of assistance will be given effect by Orders in
Council and Amendment Regulations, which will come into force on 1 April
2024.
5 Cabinet and the Executive Council are due to consider the Orders in Council
and Amendment Regulations on Monday 26 February 2024.
6 Some Ministry of Social Development (MSD) assistance is provided through
Ministerial Directions and Welfare Programmes. These need to be amended
through a separate process to give effect to the adjustments. You have the
authority to approve amendments to these Ministerial Directions and Welfare
Programmes.
7 Once signed, the attached Instrument amending Ministerial Directions and
Welfare Programmes 2024 (the Instrument), will give effect to the agreed
adjustments and come into force from 1 April 2024.
8 Through Budget 2023, and reconfirmed by you in December 2023, there are
other policy changes being progressed alongside the AGA:
•the Guaranteed Childcare Assistance Payment (GCAP) will increase to
align with the highest rate of the Childcare Subsidy
•Flexible Childcare Assistance (FCA) rates will increase by an amount
equivalent to cumulative inflation adjustments from 2014
2024 Annual General Adjustment Amendments to Ministerial Directions and Welfare Programmes 4
• GCAP and FCA rates will be annually indexed to inflation, starting from
the 2024 AGA.
9 You have already agreed to and approved the amendments for FCA
[REP/24/2/090 refers]. However, the amendments required for GCAP need to
be progressed via the attached Instrument.
Overview of all regulatory changes
10 The following table summarises the regulatory changes that are included in
the attached Instrument. These changes will come into effect from 1 April
2024:
Table 1: Overview of regulatory changes included in the Instrument
Direction/
Programme
Intention of assistance
What you are approving
Direction in
relation to Special
Benefit
Provides grand-parented assistance to
clients who were receiving Special
Benefit prior to 1 April 2006, and who
continue to be entitled.
A 4.66 percent increase in
the standard costs used in
the assessment for Special
Benefit for recipients
without dependent children,
consistent with the CPI
increase.
Direction on
Advance
Payments of
Instalments of
Benefit
Provides advance payments of
instalments of a main benefit, Orphan’s
Benefit, Unsupported Child’s Benefit,
New Zealand Superannuation, or
Veteran’s Pension to meet immediate
needs.
A 5.28 percent increase in
the income limits,
consistent with net average
wage growth.
Family Start and
Early Start
(Childcare
Assistance)
Programme
Provides childcare assistance to families
who are enrolled in selected Family Start
or Early Start programmes.
A 4.66 percent increase in
the maximum hourly rate
of assistance, consistent
with the CPI increase.
Guaranteed
Childcare
Assistance
Payment
Programme
Provides financial assistance towards the
costs of early childhood education to
help:
- young parents receiving Young
Parent Payments, or who are the
spouses or partners of specified
beneficiaries, to comply with their
youth activity obligations; and
- young parents who are not
beneficiaries to return to, or remain
in, courses of secondary instruction.
An increase aligning with
the highest rate payable for
Childcare Subsidy, and CPI
adjustment of that rate.
2024 Annual General Adjustment Amendments to Ministerial Directions and Welfare Programmes 5
Direction/
Programme
Intention of assistance
What you are approving
New Employment
Transition Grant
Programme
Provides payments for parents who have
left the benefit system to enter into
employment, but:
- have a period where they are unable
to work because of sickness or a
dependent child’s sickness and paid
sick leave is unavailable to the
parent, or
- because of a breakdown in childcare
arrangements when paid sick leave
or annual leave is unavailable to the
parent to care for the child.
A 4.66 percent increase in
the daily rate and
maximum amount payable,
consistent with the CPI
increase.
Seasonal Work
Assistance
Programme
Provides non-taxable assistance to
clients who have moved from receiving a
benefit to seasonal employment and due
to adverse weather conditions are
unable to work and consequently lose
income.
A 4.66 percent increase in
the weekly rates and
maximum annual amount
paid, consistent with the
CPI increase.
Home Help
Programme
Provides financial assistance to clients
who require temporary part-time help to
complete tasks normally performed in
their homes.
A 1.98 percent increase to
the hourly rate that may be
paid to a home helper, in
line with the increase in the
adult minimum wage rate
effective from 1 April 2024.
Special Transfer
Allowance
Programme 2000
Provides financial assistance to clients
who were recipients of a Tenure
Protection Allowance who ceased to be
eligible for that allowance as Housing
New Zealand Limited sold the premises
where they were tenants to private
landlords.
An increase in the Average
Regional Rentals listed in
the Schedule.
Training Incentive
Allowance
Programme
Provides financial assistance to eligible
people receiving specified qualifying
benefits to enable them to undertake
education or training courses to increase
their skills for employment and improve
their employment outcomes in the
future.
A 4.66 percent increase in
the daily rate and
maximum amount payable,
consistent with the CPI
increase.
Special Needs
Grants
Programme
Provides non-taxable recoverable or
non-recoverable financial assistance for
clients to meet immediate and essential
needs.
A 5.28 percent increase in
the income limits,
consistent with net average
wage growth.
2024 Annual General Adjustment Amendments to Ministerial Directions and Welfare Programmes 6
Direction/
Programme
Intention of assistance
What you are approving
Recoverable
Assistance
Programme
Provides recoverable financial assistance
to non-beneficiaries on equivalent low
incomes for essential and immediate
needs, complementary to the advance
payments of instalments of benefit
available to beneficiaries under the Act.
A 5.28 percent increase in
the income limits,
consistent with net average
wage growth.
The 2024 AGA is exempt from the requirement to provide a Regulatory
Impact Statement
11 A Regulatory Impact Statement is generally required for Welfare Programme
and Ministerial Direction amendments, as they are considered secondary
legislation.
12 The Treasury’s Regulatory Impact Analysis team has determined that the
2024 AGA is exempt from the requirement to provide a Regulatory Impact
Statement. As Cabinet has delegated the authority to approve rate changes
to joint Ministers (as required under legislation, convention, or previous
Cabinet agreement), the impact analysis requirements do not apply.
Next steps
13 We seek your approval of, and signature to, the Instrument by 27 February
2024 in order to meet the 28-day rule. Officials will arrange for the
Instrument to be notified in the New Zealand Gazette once signed.
14 A copy of the Instrument will be published on MSD’s external website, as
required by section 74 of the Legislation Act 2019 and section 101 of the
Social Security Act 2018 as soon as practicable.
15 Upon your direction, your office can arrange for the Instrument to be tabled
in the House of Representatives as required by section 114 of the Legislation
Act 2019.
16 The updated Ministerial Directions and Welfare Programmes will be made
available on MSD’s external website as soon as practicable. This aligns with
the usual processes for publishing changes to secondary legislation on the
external website.
Appendix
Instrument amending Ministerial Directions and Welfare Programmes
Author: Katie Tollan, Policy Analyst, Income Support Policy
Responsible manager: Bede Hogan, Policy Manager, Income Support Policy
The Aurora Centre, 56 The Terrace, PO Box 1556, Wellington
–Telephone 04-916 3300 – Facsimile 04-918 0099
R
eport
Date:
9 February 2024
Security
Level:
IN CONFIDENCE
To:
Hon Nicola Willis, Minister of Finance
Hon Chris Bishop, Minister of Housing
Hon Dr Shane Reti, Minister of Health
Hon Louise Upston, Minister for Social
Development and
Employment
Hon Penny Simmonds, Minister for Tertiary Education and Skills
Hon Chris Penk, Minister for Veterans
Hon Karen Chhour, Minister for Children
2024 Annual General Adjustment to Rates and
Thresholds for Social Assistance
Purpose of the report
1 This report seeks your agreement to the following increases from 1 April
2024:
•rates of main benefits by upwards movement in the Consumers Price
Index of 4.66 percent
•rates of New Zealand Superannuation and Veteran’s Pension by increases
in the Consumers Price Index of 4.66 percent, which would set the net
married couple rate of New Zealand Superannuation at 67.02 percent of
the net average wage
•other rates and thresholds of assistance by upwards movement in the
Consumers Price Index for all groups of 4.66 percent or net average wage
growth of 5.28 percent.
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 2
Executive summary
1 The Annual General Adjustment (AGA) changes the rate of payment,
abatement threshold (the income above which a payment is reduced), or
entry threshold (income and asset levels that determine whether a person is
entitled to assistance). These adjustments may reflect a legislative
requirement, Cabinet decision, long-standing practice, or combination of each
of these. Adjustments are made to various rates and thresholds, including:
• benefits, including main benefits, hospital rates, and payments for those
caring for a child whose parents are unable to provide support
• New Zealand Superannuation and Veteran’s Pension
• Student Allowances and Student Loans
• some supplementary assistance (for example Childcare Assistance and
Accommodation Supplement)
• Community Services Card.
2 In 2002, Cabinet delegated the authority for approving AGA adjustments to
the Minister of Finance and the Ministers responsible for New Zealand
Superannuation, Veteran’s Pension, social security benefits and allowances,
the Community Services Card, and Student Allowances [CAB Min (02) 7/1A
refers].
3 This paper seeks your agreement to increase these rates and thresholds
from 1 April 2024. Decisions are required by 12 February 2024 to ensure
changes can be implemented by 1 April 2024.
4 Regulatory changes will be required in the Education, Social Development
and Employment, Children, and Health portfolios to give effect to these
increases. Officials recommend that the Minister for Social Development
and Employment present a paper to Cabinet on behalf of the Minister of
Tertiary Education and Skills, Minister of Health, and Minister for Children
on 26 February 2024.
How the rates will be adjusted
5 As agreed by Cabinet in December 2023, main benefits will be indexed to
the upwards movement in the Consumers Price Index (CPI), rather than
net average wage growth [CAB-23-MIN-0490 refers]. Cabinet also agreed
to consequentially increase the threshold of the Minimum Family Tax Credit,
in line with the upwards movement in the CPI. The Bill to enable this policy
change will be considered by Cabinet on Monday, 12 February 2024 and
will be passed under urgency the same week.
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 3
6 The net rates of New Zealand Superannuation and Veteran’s Pension will be
increased by 4.66 percent (the increase in the CPI), which will set the net
married couple rate at 67.02 percent of the net average wage.1
7 The increase in the CPI is used to ensure that rates and thresholds do not
have their real value reduced over time.2 As agreed by Cabinet, the CPI
increase to be used for the 2024 AGA is CPI ‘All Groups’ (i.e., headline
CPI). The increase in the CPI figure for the year ending 31 December 2023
is 4.66 percent.
8 The design of the social security system includes a number of links
between the rates and thresholds for certain types of assistance. This
means that changes to rates or thresholds for some forms of assistance,
whether based on upwards movement in the net average wage and/or the
CPI, will also flow through to an increase in the rates or thresholds for
other types of assistance.
Changes to Flexible Childcare Assistance and Guaranteed Childcare Assistance
Payment
9 Changes to the rates of Flexible Childcare Assistance and the Guaranteed
Childcare Assistance Payment were agreed via Budget 2023 including:
• increasing the Guaranteed Childcare Assistance Payment to align with the
highest rate of the Childcare Subsidy
• a one-off increase to Flexible Childcare Assistance rates equivalent to
cumulative CPI adjustments from 2014
• indexing both payments to CPI on 1 April each year, starting from the
2024 AGA.
10 These decisions were reconfirmed by the Minister for Social Development
and Employment in December 2023. Other than agreement to rate changes
via the AGA, no further decisions on these changes are required by joint
Ministers.
Financial implications for Government and clients from 1 April 2024
1 The AGA adjustment to Vote Social Development increases expenditure by an
estimated $1,295.4 million (net of tax, compared to no AGA adjustment),
representing the 12 months from April 2024 to March 2025. Most of this
1 There is a legislative requirement to adjust the net weekly couple rate of New Zealand
Superannuation by increases in CPI, and then further adjust this rate to ensure it is not less than
66 percent, or more than 72.5 percent, of the net average wage. A further adjustment will not be
required in the 2024 AGA, as the CPI adjustment by 4.66 percent will see this rate exceed the 66
percent minimum requirement.
2 Exceptions to this include income thresholds for Childcare Assistance and hardship assistance,
which will be indexed to upwards movement in the net average wage [CAB-21-MIN-0116 and
CAB-22-SUB-0129 refers].
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 4
expenditure is due to the legislatively required adjustments to New Zealand
Superannuation spending and income tested benefit spending. The estimates
will be adjusted as part of the Budget 2024 forecast round, along with the
effects of updated CPI and wage forecasts from the Treasury.
2 The combination of CPI and net average wage growth impacts means that
the fiscal costs over the next five years are expected to be $337.2 million
lower than expected expenditure based on the forecast in the Half-Year
Economic and Fiscal Update (HYEFU) CPI assumption of 5.13 percent.3
3 Based on current figures, about 1.4 million clients4 are expected to receive
increased financial assistance as a result of the 2024 AGA, with a small
number likely to receive less support due to intended flow-on impacts to
targeted support. For example, people may see a reduction in their
Accommodation Supplement because their main benefit increased through
the AGA.
Recommended actions
It is recommended that you:
1 approve new rates for main benefits, benefits paid to long-term hospital
patients, Orphan’s Benefit, Unsupported Child’s Benefit, Foster Care
Allowance Minimum Rates of Payment for Board and Lodgings, Student
Allowances and Student Loan Living Costs, to take effect from 1 April 2024,
based on the Consumers Price Index increase of 4.66 percent, as set out in
the Appendix
Agree
/ Disagree
Agree
/ Disagree
Agree
/ Disagree
Agree
/ Disagree
Hon Nicola Willis
Hon
Chris Bishop
Hon Dr Shane Reti
Hon Louise Upston
Agree / Disagree
Agree / Disagree
Agree / Disagree
Hon Penny
Simmonds
Hon Chris Penk
Hon Karen Chhour
3 Noting that the HYEFU 2023 assumed main benefits would be indexed to net average wage growth,
as per the policy at the time – the expenditure comparison is against HYEFU after replacing the
wage assumptions with CPI assumptions.
4 Depending on the type of assistance, the individual client count may include more than one
recipient. For example, married rates of Jobseeker Support.
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 5
2 approve new rates of New Zealand Superannuation and Veteran’s Pension to
take effect from 1 April 2024, based on the Consumers Price Index increase
of 4.66 percent, as set out in the Appendix
Agree / Disagree
Agree / Disagree
Agree / Disagree
Agree /
Disagree
Hon Nicola Willis
Hon Chris Bishop
Hon Dr Shane Reti
Hon Louise Upston
Agree / Disagree
Agree / Disagree
Agree / Disagree
Hon Penny
Simmonds
Hon Chris Penk
Hon Karen Chhour
3 note that, following Cabinet agreement in Budget 2023, the following
changes will also be progressed through the 2024 AGA (covered by
recommendation 4 below):
3.1 increasing the Guaranteed Childcare Assistance Payment to align with
the highest rate of Childcare Subsidy
3.2 a one-off increase to rates of Flexible Childcare Assistance equivalent to
cumulative CPI adjustments from 2014
3.3 annual indexation of both payments to the CPI from 1 April 2024
onwards
4 approve new rates for Guaranteed Childcare Assistance Payment and
Flexible Childcare Assistance to take effect from 1 April 2024, based on the
CPI increase of 4.66 percent and additional policy increases noted in
recommendation 3, as set out in the Appendix
Agree / Disagree
Agree / Disagree
Agree / Disagree
Agree / Disagree
Hon Nicola Willis
Hon Chris Bishop
Hon Dr Shane Reti
Hon Louise Upston
Agree / Disagree
Agree / Disagree
Agree / Disagree
Hon Penny
Simmonds
Hon Chris Penk
Hon Karen Chhour
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 6
5 approve new rates and thresholds for supplementary assistance, including
Temporary Additional Support, to take effect from 1 April 2024, based on a
CPI increase of 4.66 percent, as set out in the Appendix
Agree / Disagree
Agree / Disagree
Agree / Disagree
Agree /
Disagree
Hon Nicola Willis
Hon Chris Bishop
Hon Dr Shane Reti
Hon Louise Upston
Agree / Disagree
Agree / Disagree
Agree / Disagree
Hon Penny
Simmonds
Hon Chris Penk
Hon Karen Chhour
6 approve new thresholds for Childcare Assistance and Hardship Assistance, to
take effect from 1 April 2024, based on a net average wage growth increase
of 5.28 percent, as set out in the Appendix
Agree / Disagree
Agree / Disagree
Agree / Disagree
Agree /
Disagree
Hon Nicola Willis
Hon Chris Bishop
Hon Dr Shane Reti
Hon Louise Upston
Agree / Disagree
Agree / Disagree
Agree / Disagree
Hon Penny
Simmonds
Hon Chris Penk
Hon Karen Chhour
Recommendations 7-10 are for the Minister for Social Development and
Employment, Minister for Children, Minister of Tertiary Education and Skills, and
Minister of Health only
7 note that a Cabinet paper seeking approval to submit the required
regulatory changes and Orders in Council to give effect to these changes will
be provided for submission to the Cabinet Office on 15 February 2024 for
consideration by the Cabinet Legislation Committee on 22 February 2024 and
Cabinet and the Executive Council on 26 February 2024
8 note that this Cabinet paper will mainly affect the Social Development and
Employment, Children, and Tertiary Education portfolios, with minor changes
affecting the Health portfolio due to the Residential Care and Disability
Support Services Regulations and the Health Entitlement Cards Regulations
(the regulations for the Community Services Card)
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 7
9 agree that the Minister for Social Development and Employment will present
this paper on behalf of the Minister for Children, Minister for Tertiary
Education and Skills and Minister of Health
Agree / Disagree
Agree / Disagree
Agree / Disagree
Agree /
Disagree
Hon Dr Shane Reti
Hon Louise Upston
Hon Penny
Simmonds
Hon
Karen Chhour
10 note that the Treasury, Ministry of Housing and Urban Development,
Ministry of Health, Ministry of Education, Oranga Tamariki, Veterans’ Affairs
New Zealand and Inland Revenue have been consulted and support these
recommendations
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 8
For the Minister for Social Development and Employment only
11 agree to forward a copy of this report to Hon Simon Watts, Minister of
Revenue for his information.
Agree / Disagree
Hon Louise
Upston
Simon MacPherson
Deputy Chief Executive, Policy
Ministry of Social Development
Date
Hon Nicola
Willis
Minister of
Finance
Hon Chris
Bishop
Minister of
Housing
Hon Dr Shane
Reti
Minister of
Health
Hon Louise
Upston
Minister for Social
Development and
Employment
Date Date Date Date
Hon Penny
Simmonds
Minister for
Tertiary
Education and
Skills
Hon Chris
Penk
Minister for
Veterans
Hon Karen
Chhour
Minister for
Children
Date Date Date
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 9
Various rates and thresholds are adjusted each year as part
of the Annual General Adjustment (AGA)
4 The Annual General Adjustment (AGA) changes the rate of payment,
abatement threshold (the income above which a payment is reduced), or
entry threshold (income and asset levels that determine whether a person
is entitled to assistance).
5 These adjustments may reflect a legislative requirement, Cabinet decision,
long-standing practice or a combination of each of these.
6 The adjustments have occurred every year since the early 1990s.5
7 The AGA is carried out in two stages and the decisions for each stage are
made separately.
8 The decisions sought in this report cover most forms of assistance and are
to take effect from 1 April 2024,6 including:
• benefits, including main benefits, hospital rates, and payments for those
caring for a child whose parents are unable to provide support
• New Zealand Superannuation and Veteran’s Pension
• Student Allowances and Student Loans
• some supplementary assistance, e.g., hardship assistance income limits
• Community Services Card.
9 Decisions for the second stage, which covers the Residential Care Subsidy
and takes effect from 1 July 2024, will be progressed later.
Decisions are required across multiple Portfolios due to the
range of rates and thresholds in scope for the AGA
10 In 2002, Cabinet delegated the authority for approving AGA adjustments to
the Minister of Finance and the Ministers responsible for New Zealand
Superannuation, Veteran’s Pension, social security benefits and allowances,
the Community Services Card, and Student Allowances [CAB Min (02) 7/1A
refers].
11 Consequently, officials seek your agreement to increase rates and
thresholds from 1 April 2024.
12 Ministers need to make decisions outlined in this paper by 12 February
2024 in order to increase rates and thresholds on 1 April 2024.
5 In 2016, the CPI was negative. Most rates and thresholds were not adjusted. Typically, the
legislation provides that 1 April adjustments cannot reduce the rate payable.
6 All references to ‘from 1 April’, include on and from 1 April 2024.
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 10
13 The reason for such a tight response timeframe is due to the timing of the
release of wage data for the year ending December 2023 (released on 7
February 2024) and needing to meet Cabinet timeframes in accordance
with the 28-day rule.7 Minister responses by 12 February 2024 will allow
any rates that require Orders in Council or regulations to be amended to go
to the Cabinet Legislation Committee (LEG) on 22 February 2024 ahead of
Cabinet and Executive Council on 26 February 2024. This is the only
opportunity to seek Cabinet approval that would allow enough time to fulfil
the 28-day rule for notifying regulatory amendments in the New Zealand
Gazette.
14 The regulatory changes that are part of the AGA will mainly affect the
Social Development and Employment portfolio, as well as the Education
portfolio and Children portfolio, with minor changes to the Health portfolio
due to the Residential Care and Disability Support Services Regulations and
the Health Entitlement Cards Regulations (for the Community Services
Card).
15 Officials recommend that only the Minister for Social Development and
Employment present the Cabinet paper and instruments to the Cabinet
Legislation Committee (LEG). This is because the AGA process works on a
tight timeframe and having one Minister take the paper and instruments to
LEG, Cabinet, and the Executive Council will streamline the process.
Adjustments are mostly based on increases in the
Consumers Price Index (CPI) or net average wage growth
16 Most types of assistance are indexed to the CPI and/or the net average
wage, although a small number of adjustments are based on a Cabinet
decision for specified changes.
17 This section gives an overview of the CPI and the net average wage and
identifies applicable values that have been used for the 2024 AGA.
Consumers Price Index (CPI)
18 The CPI is a measure of inflation for New Zealand households, as it shows
changes in the price of a fixed range of goods and services over time.
Adjustments made using the CPI are based on the CPI (all groups) as
published by Statistics New Zealand (Stats NZ).
19 The AGA uses the percentage upwards movement for this definition of the
CPI, when comparing the CPI for the quarter ended 31 December (of the
year prior to the AGA) against the same quarter of the preceding year.
7 It is a general requirement of Cabinet that secondary legislation made by Order in Council must not
come into force until at least 28 days after it has been notified in the New Zealand Gazette. The
28-day rule reflects the principle that the law should be publicly available and capable of being
ascertained before it comes into force.
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 11
20 In the context of the 2024 AGA and this report, this means we have used
the upwards movement in the CPI for the year ending 31 December 2023,
and any references to the CPI can be taken to mean 4.66 percent.8
Net average wage growth
21 The net average wage is defined as the ordinary time weekly earnings per
full-time equivalent employee (less standard tax and ACC levies) that is
published by Stats NZ.
22 The net average wage may be used in one of two ways for the AGA:
• the net average wage, as a dollar value, that is released by Stats NZ prior
to 1 March in the year of adjustment; or
• the upwards movement in the net average wage, as a percentage, when
comparing the net average wage that is released by Stats NZ prior to 1
March in the year of adjustment against the same quarter of the
preceding year.
23 In the context of the 2024 AGA and this report, this means we have used
the net average wage data released on 7 February 2024 that covers the
year ending 31 December 2023 and:
• references to the net average wage means $1,192.40, and
• references to the upwards movement in the net average wage means
5.28 percent.9
Benefit adjustments
Main benefits
24 Main benefits10 are weekly benefits paid to people who are:
• currently unemployed (Jobseeker Support)
• unable to work due to sickness, disability, or caring responsibilities
(Supported Living Payment and Sole Parent Support)
• young people whose parents are unable to support them (Youth
Payment)
8 This is the rounded percentage; the calculations of the increases are based on the unrounded
percentage figure of 4.6550291 percent.
9 This is the rounded percentage; the calculations of the increases are based on the unrounded
percentage figure of 5.2798870 percent.
10 Main benefits that are increased through the AGA are those defined in Schedule 2 of the Social
Security Act 2018, and includes grandparented benefits such as the Domestic Purposes Benefit
and the Widow’s Benefit, per section 452A of the Social Security Act 2018 (note that section 452A
will be repealed and the definitions incorporated within section 453, as described in following
paragraphs).
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 12
• young parents aged 16–19 who are in need of financial assistance (Young
Parent Payment).
25 In December 2023, Cabinet agreed to adjust main benefit rates and other
assistance each year by increases in the CPI [CAB-23-MIN-0490 refers].11
Cabinet is due to consider the Social Security (Benefits Adjustment) and
Income Tax (Minimum Family Tax Credit) Amendment Bill to enact this
change on Monday, 12 February 2024, with legislation being passed under
urgency on Tuesday, 13 February 2024. Once passed, section 453 of the
Social Security Act 2018 will require main benefits to adjust by increases in
the CPI on 1 April each year. This means main benefits will increase by
4.66 percent for the 2024 AGA.
26 Cabinet also agreed to consequentially increase the threshold of the
Minimum Family Tax Credit (MFTC). The MFTC increases alongside main
benefit indexation as the current approach to calculating the MFTC ensures
sole parents are better off working and receiving the MFTC than they would
be receiving a benefit on an annual basis [CAB-21-MIN-0116.33 refers].
The MFTC threshold increase will be included in the same Bill that will
change the method of main benefit adjustment to increases in the CPI. It
will take effect on 1 April 2024.
Hospital rates
27 Legislation requires that weekly benefits paid to people who are long-term
hospital patients are adjusted by the CPI.
Caring for a child whose parents are unable to provide support
28 Legislation requires that the Foster Care Allowance Minimum Rates of
Payment for Board and Lodgings, and Orphan’s Benefit and Unsupported
Child’s Benefit (OB/UCB) are adjusted by the CPI. The rates of Foster Care
Allowance are set by the Chief Executive of Oranga Tamariki under section
363 of the Oranga Tamariki Act 1989, but the board and lodgings
component of the Foster Care Allowance is required to be adjusted by
Order in Council every year to reflect changes to the CPI.12
29 The Birthday, Holiday and Clothing allowances that are paid with OB/UCB
are also adjusted by increases in the CPI.
11 The assistance in scope of the section 453 CPI adjustment (which was previously in section 452A
and adjusted by net average wage growth) is: Jobseeker Support (including Housekeeper
Allowance), Sole Parent Support, Supported Living Payment (including clause 2, maximum income
for 25 percent blind subsidy), Youth Payment and Young Parent Payment (excluding incentive
payments) and grandparented rates of Widows’ Benefit and Domestic Purposes Benefit.
12 The Foster Care Allowance base rate is maintained at the same rate as the OB/UCB and these
rates will remain equivalent from 1 April 2024. Under the Oranga Tamariki Act 1989, this will be
done administratively through Oranga Tamariki internal processes. No additional legislative
change is therefore required apart from the CPI adjustment described above.
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 13
Changes to rates of Flexible Childcare Assistance and the Guaranteed
Childcare Assistance Payment being progressed through the 2024 AGA
30 The following changes were agreed by Cabinet via Budget 2023, with
implementation through the 2024 AGA:
• increasing the Guaranteed Childcare Assistance Payment to align with the
highest rate of the Childcare Subsidy – this payment is available to young
parents to support them with the costs of childcare, providing support for
a cohort of young people to remain in education or training
• a one-off increase to Flexible Childcare Assistance rates equivalent to
cumulative CPI adjustments from 2014 – this payment supports parents
with the cost of informal childcare when formal care is not available
• indexation of both payments to CPI on 1 April each year, starting from
AGA 2024.
31 The Minister for Social Development and Employment reconfirmed this
decision in December 2023 [REP/23/12/964]. Beyond the AGA rate update,
there are no further decisions required from joint Ministers for this change.
The Minister for Social Development and Employment will receive
secondary legislation for approval once joint Ministers have approved the
rates taking effect from 1 April 2024.
New Zealand Superannuation and Veteran’s Pension
adjustments
32 There is a legislative requirement to adjust the rates of New Zealand
Superannuation and Veteran’s Pension with effect from 1 April each year.13
33 The legislation also sets out a process that must be followed for adjusting
the rates:
• the net weekly rates must be adjusted on 1 April each year in line with
any annual percentage increase in the CPI for the year ending the
previous 31 December
• the net weekly amount payable to a married/civil union/de facto couple
must not be less than 66 percent, or more than 72.5 percent, of the net
average wage
• the single living alone and single sharing rates must be adjusted to be 65
percent and 60 percent of the net married couple rate respectively.
34 Following the CPI increase of 4.66 percent, the net weekly amount of New
Zealand Superannuation and Veteran’s Pension for each person of a couple
from 1 April 2024 would increase by $17.77 to $399.59 per week. The
13 Some rates of New Zealand Superannuation and Veteran’s Pension are adjusted using
discretionary provisions.
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 14
payment of $799.18 to the couple would be 67.02 percent of the net
average wage ($1,192.40).
35 Therefore, a further adjustment will not be included in the 2024 AGA, as
the CPI adjustment will result in these rates exceeding the minimum 66
percent requirement this year.
36 The single living alone and single sharing rates will be set at 65 percent
and 60 percent of this figure respectively.
Student Allowances and Loans adjustments
37 Support for living costs while studying is provided through:
• Student Allowances – this payment is a weekly grant for living costs for
full-time students from low or middle-income households
• the Student Loan Scheme (living costs component) – full-time students
can access a living costs component that is paid weekly – which is
available to students who do not qualify for Student Allowance, or as a
top-up if they do not receive a rate of Student Allowance that is equal to
or more than the maximum living costs amount.
38 Legislation passed in 2010 provides that rates of Student Allowances must
be adjusted for upward movement in the CPI on 1 April each year.
39 Student loan living costs have been CPI adjusted since 1 April 2009 [CAB
Min (08) 14/1(46) refers].
40 The parental income threshold and personal and combined income
thresholds are CPI adjusted each year by legislation.
41 The Student Allowance personal and combined income thresholds, as well
as the parental income threshold (the point above which parental income
reduces the amount of Student Allowance received by students under the
age of 24) have been CPI adjusted since 1 April 2019.
Remedial amendment to regulation 5 of the Student Allowance
Regulations
42 During the AGA process, officials identified an editorial error in regulation 5
of the Student Allowance Regulations. Current wording in regulation 5(1)
stipulates that parental income reassessments are only based on the
parental income threshold for students living away from their parental
home. As per the policy intent, this provision should distinctly reference the
income thresholds for students living both in their parental home and away
from their parental home.
43 As the parental income limits for both ‘at home’ and ‘away from home’
Student Allowances are the same ($1,315.65 per week from 1 April 2024),
there has been no impact. However, officials consider it appropriate to use
the AGA as an opportunity to remedy the error. Correcting the regulation
will mean that any potential future changes to the two thresholds are not
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 15
restricted by an unintentional omission in the legislation. This correction is
minor and policy neutral.
Supplementary assistance adjustments
44 The term ‘supplementary assistance’ refers to a wide range of different
payments that are provided for particular costs and are extended to those
with greatest need (subject to meeting eligibility criteria). These payments
are often received by beneficiaries, superannuitants and veteran
pensioners, but are also paid to some people who do not receive main
benefits (e.g., working people on low-to-middle incomes who may receive
Accommodation Supplement and Childcare Assistance).
Most supplementary assistance is CPI adjusted
45 Approximately 40 items of supplementary assistance are, by long-standing
practice, subject to annual adjustments by CPI, with increases to Childcare
Assistance, Disability Allowance, and Child Disability Allowance making up
most of the cost of Supplementary Assistance in Vote Social Development.
46 This CPI adjustment ensures that rates and thresholds do not have their
real value reduced over time. A CPI adjustment has occurred every year
since the early 1990s. Adjustments may include the rate of assistance
and/or income and asset-testing thresholds.
Home Help
47 Home Help is a payment that provides financial assistance to people who
require temporary part-time help to complete tasks such as laundry,
housework and food preparation. This could be because of a multiple birth
or because a person requires other domestic support.
48 The rate payable for Home Help is raised in line with the percentage
increase in the minimum wage, in accordance with a Cabinet decision made
in 2005 [CAB Min (05) 13/7(53) refers]. It is paid via Vote Social
Development. Increasing the Home Help rate in line with increases in the
minimum wage ensures that the programme continues to provide enough
assistance to pay wages for Home Help workers.
49 Cabinet approved an increase to the Minimum Wage of 2.0 percent in
January 2024 (from $22.70 to $23.15 per hour from 1 April 2024) [CAB-
24-MIN-0016 refers]. Therefore, the new Home Help rate will be $26.32
per hour (including holiday pay) from 1 April 2024 (up from $25.81).
Childcare Assistance income thresholds
50 Childcare Assistance income thresholds have been indexed annually by net
average wage growth since 1 April 2022 under Cabinet agreement. This will
continue to apply for the 2024 AGA.
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 16
Hardship assistance income limits
51 Income limits for Special Needs Grants, Recoverable Assistance Payments,
and Advance Payments of Benefit (‘hardship assistance’) have been
indexed to net average wage growth since 1 April 2023 (previously these
were indexed to CPI on 1 April each year) [CAB-22-SUB-0129 refers]. This
will continue to apply for the 2024 AGA.
52 Income limits for Emergency Housing Special Needs Grants, Transition to
Work Grants, Course Participation Assistance, Seasonal Work Assistance
and Funeral Grants, Community Costs Programme, and Flexible Funding
Programme (with child rates) are indexed to CPI.
Some supplementary assistance is not adjusted
53 Not all forms of assistance are adjusted each year. The list below outlines
some of the rates and thresholds that are not indexed:
• Accommodation Supplement (AS) cash asset levels (last adjusted in
1988)
• Accommodation Benefit
• AS maximum rates
• payment limits for various hardship costs
• Emergency Benefit/Hardship Benefits cash asset levels (last adjusted in
1991)
• Away from Home Allowance
• Participation Allowance
• Some payments associated with Youth Payment and Young Parent
Payment, e.g., the $10 incentive payment (for education, parenting and
budgeting obligations)
• the School and Year Start Up Payment and Establishment Grant
payments for Orphan’s Benefit and Unsupported Child’s Benefit carers
• rates of the Winter Energy Payment.
54 No decisions have been made to include adjustments to these rates in the
AGA and no funding has been allocated to these in the Half-Year Economic
and Fiscal Update (HYEFU). Any increase to these items would require
Cabinet approval and new funding.
Community Services Card adjustments
55 The Community Services Card (CSC) is available to low-to-middle income
earners to enable them and their families to access subsidised health
services.
56 Raising the income thresholds ensures that people on low-to-middle
incomes retain their eligibility for the subsidies provided by the CSC.
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 17
57 Increasing income thresholds in line with the 1 April 2024 CPI adjustment
is not expected to impact significantly on the overall number of people
eligible for the CSC. Some people who are currently over the threshold may
become eligible for the CSC from 1 April 2024. Those most likely to qualify
will be earners on lower incomes.
There are a number of consequential adjustments that also
need to be made as part of the AGA
58 The design of the social security system includes a number of links
between the rates and thresholds for different types of assistance. This
means that changes to rates or thresholds for some forms of assistance will
change the rates or thresholds for other types of assistance.
59 One example is the income threshold at which people stop receiving main
benefits (the ‘cut-out point’) is the same value as the income threshold at
which people have their Accommodation Supplement (AS) abated. This
threshold is set at the cut-out point for Jobseeker Support. This ensures
that people with earned income equivalent to Jobseeker Support receive
the same amount of AS as those who receive Jobseeker Support.
60 Examples of rates and thresholds that will be adjusted as part of the AGA
include:
• AS entry thresholds
• AS income abatement thresholds for non-beneficiaries
• AS income limits for New Zealand Superannuation and Veteran’s Pension
• Income limits for Emergency Housing Special Needs Grants, Transition to
Work Grants, Course Participation Assistance, Seasonal Work Assistance
and Funeral Grants, Community Costs Programme and Flexible Funding
Programme (with child rates), and for some Housing Support Products
such as bond grants and rent arrears assistance
• Maximum Social Rehabilitation Assistance Payments (based on the
maximum Disability Allowance rate)
• Maximum rate of Employment Transition Assistance (equivalent to single
Supported Living Payment rate)
• Special Assistance to the Rural Sector (equivalent to Jobseeker Support
rate)
• Student Allowance Transfer Grant (equivalent to the relevant benefit
payment).
The AGA amounts to a lower-than-forecast increase in
expenditure
61 Cabinet agreed to index main benefits by inflation resulting in an operating
balance impact of $669.527m from 2023/24 to 2027/28 [CAB-23-MIN-
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 18
0490 refers]. The savings arising from this decision is excluded from the
financial analysis in tables 1 and 2 because it was a policy change costing
and does not reflect the impact of the AGA.
62 As agreed through the Mini-Budget last year, savings from the change to
the indexation of main benefits impact Budget allowances (calculated based
on the most up-to-date costings available at the time of the decision, which
were themselves based on the HYEFU preliminary forecasts). The difference
between forecast CPI and the actual CPI figure used for the 2024 AGA will
not affect the Budget 2024 operating allowance. The impact of using the
actual CPI figure will be incorporated in the forecast update for the Budget
Economic and Fiscal Update 2024.
63 Changes to forecast expenditure in Benefit or Related Expenditure
appropriations are not managed against allowances, unless otherwise
agreed. Consistent with the established fiscal management approach, the
fiscal impact of policy decisions is managed against Budget allowances
unless Ministers agree otherwise. Accordingly, when Cabinet agreed to the
change to the indexation of main benefits, Cabinet also agreed that the
savings (as estimated at the time) from the change would be managed
against the Budget 2024 allowance. Any difference between the allowance
impact and the updated estimate flow through as a forecast change,
impacting fiscal indicators (e.g. the operating balance and net debt).
64 The combination of CPI and wage impacts means that the fiscal costs over
the next five years are expected to be lower than forecast in the HYEFU.14
65 It is important to note that the HYEFU projected benefit expenditure on the
assumption that main benefits would continue to be indexed to net average
wage growth. However, main benefits will be adjusted according to the
increase in the CPI for the year ending December 2023. Therefore, the
assumptions underpinning HYEFU projections for benefit expenditure and
actual expenditure differ.
66 Instead, Table 1 below indicates the difference in expenditure, comparing
an alternative HYEFU projection which has been remodelled by MSD to
assume that main benefits are indexed to the forecast CPI (5.13 percent),
with actual CPI adjustment (4.66 percent).
Table 1: Net of Tax Impact of the AGA (comparing actual CPI vs forecast
CPI) on benefit expenditure ($ million)
14 The CPI (All Groups) increase was forecast to be 5.13 percent at HYEFU, compared to the actual
CPI (All Groups) increase of 4.66 percent. Of note is that HYEFU 23 was based on net wage
growth (instead of CPI) under section 453A of the Social Security Act 2018. This assumed a
4.74% wage based increase. The average wage was forecast to be $1,546.57 at HYEFU,
compared to the actual average wage of $1,556.16.
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 19
2023/24
2024/25
2025/26
2026/27
2027/28
Five Year
Totals
NZ Superannuation
and Veteran’s
Pension ($22.2) ($83.8) ($63.8) -
-
($169.8)
Income Tested
Benefits and
Student Allowances ($10.7) ($40.1) ($41.1) ($41.5) ($42.0) ($175.4)
Supplementary
Allowances and
Grants $0.8
$3.1
$2.0
$1.5
$0.7
$8.1
Total Net Fiscal Cost
(Vote Social
Development)15 ($32.1) ($120.8) ($103.0) ($40.0) ($41.3) ($337.2)
67 While Table 1 above shows the expected impact on forecasts, Table 2
shows the full 12-month expected expenditure due to the AGA itself (that
is, compared to no AGA, and including the wage commitment for New
Zealand Superannuation and Veteran’s Pension).
68 The AGA adjustment to Vote Social Development increases expenditure by
an estimated $1,295.4 million, representing the 12 months from April 2024
to March 2025 (Table 2). Most of this expenditure is due to the legislatively
required adjustments to New Zealand Superannuation spending and
income tested benefit spending. The estimates will be adjusted as part of
the Budget 2024 forecast round, along with the effects of updated CPI and
wage forecasts from the Treasury.
15 Due to rounding, the yearly fiscal totals may not add up to the five-year totals.
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 20
Table 2: Expected expenditure due to the AGA ($ millions, net of tax) over
the next 12 months: 1 April 2024 to 31 March 2025
12 months expenditure
($ millions)
NZ Superannuation and Veteran’s
Pension
CPI impact
Wage commitment impact
$892.8
$0.0
Income Tested Benefits and Student
Allowances
$425.7
Supplementary Allowances and
Grants16 ($23.2)
Total Expenditure (for Vote Social
Development benefits)17 $1,295.4
There will be flow-on effects for particular groups arising
from the AGA
69 Based on current figures, about 1.4 million clients18 are expected to receive
increased financial assistance as a result of the AGA. This includes
approximately:
• 903,300 people receiving New Zealand Superannuation and Veteran’s
Pension
• 378,700 working-age beneficiaries
• 45,000 students receiving Student Allowance
• 72,000 people receiving supplementary assistance only.
70 As at 1 April 2024, the Sole Parent Support rate will be $494.80 per week
in the hand (an increase of 4.655 percent from $472.79 per week) while
the single Jobseeker Support rate for those over 25 will be $353.46 per
week (an increase of 4.654 percent from $337.74 per week) and a married
couple on Jobseeker Support with children will be $635.10 per week (an
increase of 4.653 percent from $606.86 per week).
16 Savings from Supplementary Allowances and Grants are caused by a person’s income increasing,
and consequentially their supplementary assistance payments (e.g., Accommodation Supplement)
reducing, as per the policy design.
17 Note that numbers in the table may not add exactly due to rounding.
18 Excluding New Zealand Superannuation, Veteran’s Pension, and Youth Payment, the individual
client count will include more than one recipient for couple rates of benefit. For example, couple
rates of Jobseeker Support.
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 21
People receiving Temporary Additional Support or Special Benefit
71 Temporary Additional Support and Special Benefit are both temporary
payments, made to top up a person’s weekly income to meet essential
costs. These payments can reduce when main benefits are increased.
However, it is expected that people receiving these payments will still
generally receive an increase in their income following the CPI adjustment
to main benefits.
Beneficiaries receiving Accommodation Supplement
72 Increasing main benefit rates will slightly reduce the amount of
Accommodation Supplement that many beneficiaries receive. In all cases
the reduction in Accommodation Supplement will be significantly smaller
than the increase in the rate of main benefit, leaving beneficiaries better off
overall.
73 This is an effect of the design of Accommodation Supplement, which
requires people to contribute a percentage of their benefit to
accommodation costs (25 percent for renters and boarders and 30 percent
for those paying mortgages). When a person receives an increase in
benefit, a portion is tagged toward accommodation costs. As a result of
this, the amount of Accommodation Supplement they receive slightly
reduces. This effect only applies to beneficiaries that are not receiving the
maximum rate of Accommodation Supplement.
Non-beneficiaries receiving Accommodation Supplement
74 Increasing entry thresholds will mean that some non-beneficiaries will
receive less financial assistance overall. In some cases, any reduction
resulting from an increase in the entry threshold will be offset by the
increase in the income threshold, which reduces abatement. The rise in the
cut-out point will also allow some currently ineligible non-beneficiaries to
become eligible for small amounts of Accommodation Supplement.
75 This higher entry threshold is the intended design of the system, where
people are expected to contribute a minimum proportion of their income to
their housing costs before they are eligible for extra financial support. This
also reflects an implicit assumption that the incomes of those in work are
likely to increase each year, so families are likely to be better off overall
after any wage increases.
Income-Related Rents and Income-Related Rent Subsidy
76 Many beneficiaries live in social housing properties and pay Income-Related
Rents. Increasing the rates of benefit that beneficiaries receive may
increase the amount of Income-Related Rent paid. Rent is charged at 25
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 22
percent of a tenant’s net income up to a certain threshold.19 For income
above this threshold, rent is charged at 50 percent of the additional net
income up until the market rental rate is reached.
77 Income-Related Rents are reviewed annually on the anniversary of the
commencement of their tenancy or their previous review and increases
require a period of notice. Adjustments to beneficiaries’ income made
because of the AGA will not affect a tenant’s rent until the annual rent
review or a change in circumstances (whichever occurs first).
78 Any increase in rent will be more than offset by the increase in their New
Zealand Superannuation or main benefit income so that beneficiaries will
be better off overall.
Emergency Housing Special Needs Grant contributions
79 Increasing the benefit rates that clients receive may increase the amount
of Emergency Housing contribution paid from their next Emergency
Housing Special Needs Grant, granted on or after 1 April 2024. Any
increase in contribution amount will be more than offset by the increase in
their New Zealand Superannuation or main benefit income so that they will
be better off overall.
Regulatory changes are required for the AGA
80 To give effect to the AGA changes being implemented on 1 April 2024,
Orders in Council and amendment regulations are required for rates of
main benefits and allowances, hospital rates, Student Allowances, New
Zealand Superannuation, Orphan’s Benefit, Unsupported Child’s Benefit,
supplementary assistance, and the Community Services Card. A Cabinet
paper will be provided for submission to the Cabinet Office by 15 February
2024 for consideration by Cabinet Legislative Committee (LEG) on 22
February 2024 and Cabinet and the Executive Council on 26 February
2024.
81 Welfare Programmes and Ministerial Directions that contain rates and
thresholds that are adjusted as part of the AGA also require amending.
These will be provided separately to the Minister for Social Development
and Employment by 22 February 2024 for approval by 26 February 2024.
19 For single tenants without children, the threshold is equivalent to the net New Zealand
Superannuation Living Alone rate; for sole parents and married couples, the threshold is
equivalent to the net New Zealand Superannuation Married couple rate.
2024 Annual General Adjustment to Rates and Thresholds for Social Assistance 23
Consultation
82 The Treasury, Ministry of Housing and Urban Development, Ministry of
Health, Ministry of Education, Veterans’ Affairs New Zealand, Oranga
Tamariki and Inland Revenue have been consulted on the AGA and all
agencies agree with the recommendations in this report.
File ref: REP/24/2/109
Author: Katie Tollan, Policy Analyst, Income Support Policy
Responsible manager: Bede Hogan, Policy Manager, Income Support Policy
Appendix
CPI General Adjustment Model (Version 24.4)
CPI General Adjustment Model
Version: CPI 2024 V24.4
7-Feb-24
Adjustment Date:
1-Apr-2024
Table 1
Ministry of Social Development
CPI General Adjustment Model
Main benefit rates
Table 1 NZ Superannuation / Veteran's Pension
Name
Opening Net
Rate
(tax at M)
Opening
Gross Rate
Opening Net
Rate
(tax at Sec)
Calculate
d Net
Rate (tax
at M)
Tax
Bracket
Calculated
Gross Rate
Calculated
Net Rate
(tax at Sec
17.5%)
1.01 Standard Rates
Single Living Alone 496.37$ 578.67$ 477.52$ 519.47$ 2 606.67$ 500.62$
Single Sharing 458.18$ 532.43$ 439.33$ 479.51$ 2 558.31$ 460.66$
Single Living Alone Premium 38.19$ 46.24$ 38.19$ 39.96$ 48.36$ 39.96$
Married, Civil Union or Defacto Couple (both qualify) each 381.82$ 439.79$ 362.97$ 399.59$ 2 461.41$ 380.74$
Married, Civil Union or Defacto Couple (both qualify) total 763.64$ 879.58$ 725.94$ 799.18$ 922.82$ 761.48$
Married, Civil Union or Defacto Couple (NQP included) each 362.92$ 417.04$ 344.07$ 379.82$ 2 437.44$ 360.97$
Married, Civil Union or Defacto Couple (NQP included) total 725.84$ 834.08$ 688.14$ 759.64$ 874.88$ 721.94$
1.02 Non Standard Rates
Married, Civil Union or Defacto Couple (NQP included pre
1/10/91) each
381.82$ 439.79$ 362.97$ 399.59$ 2 461.41$ 380.74$
Married, Civil Union or Defacto Couple (NQP included pre
1/10/91) total
763.64$ 879.58$ 725.94$ 799.18$ 922.82$ 761.48$
Partner in rest home 384.92$ 443.59$ 366.07$ 402.84$ 2 465.36$ 383.99$
Hospital Rate 52.89$ 59.08$ 48.76$ 55.35$ 1 61.75$ 51.08$
1.04 Personal Allowances for NZS and VP
Older People Receiving RCS 52.89$ 59.08$ 55.35$ 1 61.75$
People with Psychiatric or Intellectual Disabilities 77.08$ 86.11$ 80.67$ 1 90.12$
People with Physical or Sensory Disabilities 125.24$ 139.83$ 131.07$ 1 146.40$
Opening Rates: 01/04/2023
Calculated Rates: 01/04/2024
Ministry of Social Development
CPI General Adjustment Model
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Table 2
Ministry of Social Development
CPI General Adjustment Model
Main benefit rates
Table 2 Weekly Benefit Rates
Name
Opening Net
Rate
Opening Gross
Rate
Calculated
Net Rate
Calculated
Gross Rate
2.01 Jobseeker Support
Single 18-19 years old - at home 250.63$ 280.95$ 262.30$ 295.10$
Single 18-19 years old - away from home 294.18$ 333.74$ 307.87$ 350.33$
Single 20-24 years old 294.18$ 333.74$ 307.87$ 350.33$
Single 25 years and over 337.74$ 386.54$ 353.46$ 405.59$
Married, Civil Union or Defacto Couple (without children) each 287.35$ 325.46$ 300.73$ 341.68$
Married, Civil Union or Defacto Couple (without children) total 574.70$ 650.92$ 601.46$ 683.36$
Married, Civil Union or Defacto Couple with partner on benefit (with children) each 303.43$ 344.95$ 317.55$ 362.07$
Married, Civil Union or Defacto Couple with partner on benefit (with children) total 606.86$ 689.90$ 635.10$ 724.14$
Married, Civil Union or Defacto Couple with partner not on benefit or with partner receiving NZS or
Veteran's Pension (with children) total
303.43$ 344.95$ 317.55$ 362.07$
Sole Parent 472.79$ 550.24$ 494.80$ 576.91$
Special 88M(4) Rate - without children 287.35$ 325.46$ 300.73$ 341.68$
Special 88M(4) Rate - with children 303.43$ 344.95$ 317.55$ 362.07$
Grandparented Widow woman alone and DPB woman alone (granted before 15/7/2013) 348.59$ 399.69$ 364.82$ 419.36$
Student Hardship for 16-17 year olds single without dependent children 294.18$ 333.74$ 307.87$ 350.33$
Student Hardship for 16-17 year olds sole parent 472.79$ 550.24$ 494.80$ 576.91$
Student Hardship for 16-17 year olds Married, Civil Union or Defacto (without children) each 287.35$ 325.46$ 300.73$ 341.68$
Student Hardship for 16-17 year olds Married, Civil Union or Defacto (without children) total 574.70$ 650.92$ 601.46$ 683.36$
Student Hardship for 16-17 year olds Married, Civil Union or Defacto (with children) each 303.43$ 344.95$ 317.55$ 362.07$
Student Hardship for 16-17 year olds Married, Civil Union or Defacto (with children) total 606.86$ 689.90$ 635.10$ 724.14$
Calculated Rates: (CPI) 01/04/2024
Calculated Rates (wage): 01/04/2023
Ministry of Social Development
CPI General Adjustment Model
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Table 2
Name
Opening Net
Rate
Opening Gross
Rate
Calculated
Net Rate
Calculated
Gross Rate
Calculated Rates: (CPI) 01/04/2024
Calculated Rates (wage): 01/04/2023
2.02 Youth Payment
Single, 16-17 Year old 294.18$ 333.74$ 307.87$ 350.33$
Married, civil union or de facto couple (without children) each 287.35$ 325.46$ 300.73$ 341.68$
Married, civil union or de facto couple (without children) total 574.70$ 650.92$ 601.46$ 683.36$
Young Parent Payment
Sole parent 16-17 year old, living at home
or financially supported by parents or guardian (earning less than FTC threshold)
272.74$ 307.75$ 285.44$ 323.14$
Married, civil union or de facto couple both qualify (with children) each 303.43$ 344.95$ 317.55$ 362.07$
Married, civil union or de facto couple both qualify (with children) total 606.86$ 689.90$ 635.10$ 724.14$
Married, Civil Union or Defacto Couple with partner not on benefit (with children) total 303.43$ 344.95$ 317.55$ 362.07$
Sole parent 472.79$ 550.24$ 494.80$ 576.91$
2.03 Not Used
2.04 Supported Living Payment
Single 16-17 years old 322.61$ 368.20$ 337.63$ 386.40$
Single 18 years and over 384.92$ 443.73$ 402.84$ 465.45$
Married, Civil Union or Defacto Couple (without children) each 327.02$ 373.54$ 342.24$ 391.99$
Married, Civil Union or Defacto Couple (without children) total 654.04$ 747.08$ 684.48$ 783.98$
Married, Civil Union or Defacto Couple partner on benefit (with children) each 343.10$ 393.04$ 359.07$ 412.39$
Married, Civil Union or Defacto Couple partner on benefit (with children) total 686.20$ 786.08$ 718.14$ 824.78$
Married, Civil Union or Defacto Couple with partner not on benefit or with partner receiving NZS or
Veteran's Pension (with children) total
356.23$ 408.95$ 372.81$ 429.05$
Sole Parent 527.58$ 616.65$ 552.14$ 646.42$
Ministry of Social Development
CPI General Adjustment Model
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Table 2
Name
Opening Net
Rate
Opening Gross
Rate
Calculated
Net Rate
Calculated
Gross Rate
Calculated Rates: (CPI) 01/04/2024
Calculated Rates (wage): 01/04/2023
2.05 Sole Parent Support
Sole Parent 472.79$ 550.24$ 494.80$ 576.91$
2.06 Grandparented Widow and Domestic Purposes Benefit (granted before 15/7/2013): Paid Overseas
Woman Alone (Single Adult) 348.59$ 399.69$ 364.82$ 419.36$
Sole Parent 472.79$ 550.24$ 494.80$ 576.91$
2.07 Not Used
2.08 Orphans and Unsupported Childs Benefit (CPI adjusted)
14 years old and over 317.82$ 332.61$
10-13 years old 296.59$ 310.40$
5-9 years old 275.25$ 288.06$
Under 5 years old 273.36$ 286.08$
Ministry of Social Development
CPI General Adjustment Model
5 of 54
Table 3
Ministry of Social Development
CPI General Adjustment Model
Student allowances and student loan living costs maximum rates
Table 3 Student Allowance Rates
Name
Opening Net
Rate
Opening Gross
Rate
Calculated
Net Rate
Calculated
Gross Rate
Gross Rate
(Annually)
3.01 Single Students
Under 24, childless, living in parental home 257.53$ 289.31$ $ 269.52 303.85$ 15,800.20$
Under 24, childless, not living in a parental home 300.18$ 341.01$ $ 314.15 357.94$ 18,612.88$
Independent Circumstances Allowance 300.18$ 341.01$ $ 314.15 357.94$ 18,612.88$
24 or older, childless, living in parental home 291.64$ 330.66$ $ 305.22 347.12$ 18,050.24$
24 or older, childless, not living in parental home 342.82$ 392.70$ $ 358.78 412.04$ 21,426.08$
Single Student (1+ children) 483.83$ 563.62$ $ 506.35 590.91$ 30,727.32$
3.02
Married or partnered student - combined income between
$540.20 to $1124.98 for week
Childless - living in the same home as spouse or partner $ 179.42 $ 200.47 $ 187.77 $ 209.80 $ 10,909.60
Childless - not living in the same home as spouse or partner $ 224.66 $ 251.02 $ 235.12 $ 262.70 $ 13,660.40
1 or more supported children - living in the same home as spouse
or partner - either; not enrolled in more than half of a full-time
course OR is enrolled in more than half of a full-time course and is
eligible for but does not receive, or is not eligible for, a grant
$ 209.86 $ 234.48 $ 219.63 $ 245.40 $ 12,760.80
1 or more supported children - not living in the same home as
spouse or partner - either; not enrolled in more than half of a full-
time course OR is enrolled in more than half of a full-time course
and is eligible for but does not receive, or is not eligible for, a grant
$ 255.11 $ 286.38 $ 266.99 $ 300.78 $ 15,640.56
1 or more supported children - living in the same home as spouse
or partner - enrolled in more than half of a full-time course -
receives a grant
$ 194.66 $ 217.50 $ 203.72 $ 227.62 $ 11,836.24
1 or more supported children - not living in the same home as
spouse or partner - enrolled in more than half of a full-time course -
receives a grant
$ 239.88 $ 268.02 $ 251.05 $ 281.46 $ 14,635.92
Calculated Rates: 01/04/2024
Opening Rates: 01/04/2023
Ministry of Social Development
CPI General Adjustment Model
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Table 3
3.03
Married or partnered student - childless - combined income
not more than $540.20 for week
Spouse or partner enrolled in more than half of a full time course -
either; receives grant OR does not receive grant but is eligible -
childless
300.18$ 341.01$ 314.15$ 357.94$ 18,612.88$
Spouse or partner enrolled in more than half of a full time course -
does not receive and is not eligible for grant - childless
342.82$ 392.70$ 358.78$ 412.04$ 21,426.08$
Spouse or partner not enrolled in more than half of a full time
course - childless
600.33$ 704.83$ 628.28$ 738.71$ 38,412.92$
3.04
Married or partnered student with 1 or more supported
children - combined income not more than $540.20 for
week
Spouse or partner enrolled in more than half of a full time course -
does not receive and is not eligible for a grant - 1 or more
supported children
483.83$ 563.62$ 506.35$ 590.91$ 30,727.32$
Spouse or partner enrolled in more than half of a full time course -
does not receive, but is eligible for, a grant - 1 or more supported
children
330.60$ 377.88$ 345.99$ 396.54$ 20,620.08$
Spouse or partner enrolled in more than half of a full time course -
receives grant - 1 or more supported children
315.40$ 359.46$ 330.08$ 377.25$ 19,617.00$
Spouse or partner not enrolled in more than half of a full time
course - 1 or more supported children
630.78$ 741.74$ 660.14$ 777.33$ 40,421.16$
3.05 Other Allowances
Accommodation Benefit (varies between regions) Up to $60.00 Up to $60.00
Accommodation Benefit, Sole Parents - Entry Threshold - Rent/Board
152$ 160$
Accommodation Benefit, Sole Parents - Entry Threshold - Mortgage 183$ 192$
Accommodation Benefit, Sole Parents (1 child) - Cut out - Area 1 1,776$ 1,807$
Accommodation Benefit, Sole Parents (2+ children) - Cut out - Area 1
2,056$ 2,087$
Accommodation Benefit, Sole Parents (1 child) - Cut out - Area 2 1,456$ 1,487$
Accommodation Benefit, Sole Parents (2+ children) - Cut out - Area 2
1,716$ 1,747$
Accommodation Benefit, Sole Parents (1 child) - Cut out - Area 3 1,256$ 1,287$
Accommodation Benefit, Sole Parents (2+ children) - Cut out - Area 3
1,476$ 1,507$
Accommodation Benefit, Sole Parents (1 child) - Cut out - Area 4 1,156$ 1,187$
Accommodation Benefit, Sole Parents (2+ children) - Cut out - Area 4
1,316$ 1,347$
Ministry of Social Development
CPI General Adjustment Model
7 of 54
Table 3
Calculated Threshold: 01/04/2024
Name
3.06 Parental Income Abatement Threshold
Weekly Parental Income 1,257.13$ 1,315.65$
Annual Parental Income 65,370.76$ 68,413.80$
Weekly Parental Abatement Change point - At Home 66.26$ 114.25$
Weekly Parental Abatement Change point - Away from Home 236.87$ 292.74$
Calculated Cut-Out Points: 01/04/2024
Name
3.07 Parental Income Cut-Out Point
At Home 118,936.35$ 124,474.45$
Away From Home 127,808.07$ 133,756.29$
Calculated Threshold: 01/04/2024
Name
3.08 Personal and Combined Income Thresholds
Weekly Personal Income(abatement threshold) 258.08$ 270.10$
Weekly Combined Income Threshold – Dependent Spouse or Partner
516.16$ 540.20$
Weekly Combined Income Threshold – Earning Spouse or Partner 1,074.94$ 1,124.98$
Calculated Threshold: 01/04/2024
Name
Calculated Gross Threshold
Opening Gross Threshold
Opening Threshold: 01/04/2023
Opening Gross Threshold
Calculated Gross Threshold
Opening Threshold: 01/04/2023
Opening Cut-Out Points:
01/04/2023
Calculated Gross Annual Cut-Out
Opening Gross Annual Cut-Out
Calculated Weekly
Maximum
Opening Threshold: 01/04/2023
Opening Weekly Maximum
Ministry of Social Development
CPI General Adjustment Model
8 of 54
Table 3
3.09 Student Loan Living Cost Weekly Maximum
Student Loan Living Cost Weekly Maximum 302.32$ 316.39$
Calculated Threshold: 01/04/2024
Name
3.10 Student Loan Scheme Deduction
Student Loan Scheme Deduction - Paycycle 1 439.00$ 464.00$
Student Loan Scheme Deduction - Paycycle 2 439.00$ 464.00$
Student Loan Scheme Deduction - Paycycle 3 439.00$ 464.00$
Opening Threshold: 01/04/2023
Opening Weekly Threshold
Calculated Weekly
Threshold
Ministry of Social Development
CPI General Adjustment Model
9 of 54
Table 4
Ministry of Social Development
CPI General Adjustment Model
Miscellaneous rates and payments
Table 4 Supplementary Assistance
Calculated Rates: 01/04/2024
Name Opening Rate Calculated
Rate
4.01 Child Disability Allowance
Child Disability Allowance 56.60$ 59.23$
4.02 Training Incentive Allowance Maximum Rate
Weekly maximum rate 129.71$ $ 135.75
Annual maximum rate 5,188.40$ 5,430.00$
4.03 Disability Allowance
Standard Disability Allowance (Maximum)
75.10$ $ 78.60
Special Disability Allowance 46.84$ $ 49.02
4.04 Foster Care Allowance (board payments)
Child 14+ years 317.82$ $ 332.61
Child 10-13 years 296.59$ $ 310.40
Child 5-9 years 275.25$ $ 288.06
Child 0-4 years 273.36$ $ 286.08
Family Home 301.00$ $ 315.01
4.05 Birthday Allowance OB/UCB
Child 14+ years 158.91$ $ 166.31
Child 10-13 years 148.30$ $ 155.20
Child 5-9 years 137.63$ $ 144.03
Child 0-4 years 136.68$ $ 143.04
Opening Rates: 01/04/2023
Ministry of Social Development
CPI General Adjustment Model
10 of 54
Table 5
Ministry of Social Development
CPI General Adjustment Model
Miscellaneous rates and payments
Table 5 Childcare Subsidy and OSCAR Subsidy Payments
Calculated Rates: 01/04/2024
Name Opening Rate Calculated
Rate
5.01 Childcare Subsidy
Hourly Rate - Rate 0 6.10$ $ 6.38
Hourly Rate - Rate 1 4.86$ $ 5.09
Hourly Rate - Rate 2 3.40$ $ 3.56
Hourly Rate - Rate 3 1.90$ $ 1.99
Maximum Weekly - Rate 0 305.00$ 319.00$
Maximum Weekly - Rate 1 243.00$ 254.50$
Maximum Weekly - Rate 2 170.00$ 178.00$
Maximum Weekly - Rate 3 95.00$ 99.50$
Opening Rates: 01/04/2023
Ministry of Social Development
CPI General Adjustment Model
11 of 54
Table 5
Calculated Rates: 01/04/2024
Name Opening Rate Calculated
Rate
Opening Rates: 01/04/2023
5.02 OSCAR Subsidy
Hourly Rate - Rate 0 6.10$ 6.38$
Hourly Rate - Rate 1 4.86$ 5.09$
Hourly Rate - Rate 2 3.40$ 3.56$
Hourly Rate - Rate 3 1.90$ 1.99$
Maximum Weekly (Term Time) - Rate 0 122.00$ 127.60$
Maximum Weekly (Term Time) - Rate 1 97.20$ 101.80$
Maximum Weekly (Term Time) - Rate 2 68.00$ 71.20$
Maximum Weekly (Term Time) - Rate 3 38.00$ 39.80$
Maximum Weekly (Holidays) - Rate 0 305.00$ 319.00$
Maximum Weekly (Holidays) - Rate 1 243.00$ 254.50$
Maximum Weekly (Holidays) - Rate 2 170.00$ 178.00$
Maximum Weekly (Holidays) - Rate 3 95.00$ 99.50$
5.03 Guaranteed Childcare Assistance Payment
Hourly Rate 6.00$ 6.38$
Maximum Weekly Rate 300.00$ 319.00$
Ministry of Social Development
CPI General Adjustment Model
12 of 54
Table 5
Calculated Rates: 01/04/2024
Name Opening Rate Calculated
Rate
Opening Rates: 01/04/2023
5.04 CCS and OSCAR Thresholds
Rate 0 - 1 child 1,009.00$ 1,062.00$
Rate 0 - 2 children 1,160.00$ 1,221.00$
Rate 0 - 3+ children 1,299.00$ 1,368.00$
Rate 1 - 1 child 1,837.00$ 1,934.00$
Rate 1 - 2 children 2,113.00$ 2,225.00$
Rate 1 - 3+ children 2,358.00$ 2,482.00$
Rate 2 - 1 child 1,990.00$ 2,095.00$
Rate 2 - 2 children 2,281.00$ 2,401.00$
Rate 2 - 3+ children 2,557.00$ 2,692.00$
Rate 3 - 1 child 2,144.00$ 2,257.00$
Rate 3 - 2 children 2,450.00$ 2,579.00$
Rate 3 - 3+ children 2,756.00$ 2,902.00$
5.05 Flexible Childcare Assistance
Weekly Base Rate 25.00$ 32.01$
Weekly Rate - 1 Child 50.00$ 64.02$
Weekly Rate - 2 Children 75.00$ 96.03$
Weekly Rate - 3 Children 100.00$ 128.04$
Weekly Rate - 4 Children 125.00$ 160.05$
Weekly Rate - 5+ Children 150.00$ 192.06$
Ministry of Social Development
CPI General Adjustment Model
13 of 54
Table 6
Ministry of Social Development
CPI General Adjustment Model
Miscellaneous rates and payments
Table 6 Maximum Weekly Amounts of Seasonal Work Assistance Payments
Calculated Rates: 01/04/2024
Total period of work missed (per
week)
Opening Rate Calculated
Rate
6.01 Maximum weekly amounts of Seasonal Work Assistance payments
8 hours or less 146.00$ $ 153.00
More than 8 and not more than 16 hours 292.00$ 306.00$
More than 16 and not more than 24 hours 438.00$ 459.00$
More than 24 and not more than 32 hours 584.00$ 612.00$
More than 32 hours 730.00$ 765.00$
Limit of payment 2,482.00$ 2,601.00$
Opening Rates: 27/11/2020
Ministry of Social Development
CPI General Adjustment Model
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Table 7
Ministry of Social Development
CPI General Adjustment Model
Miscellaneous rates and payments
Table 7 New Employment Transition Grant
Calculated Rates: 01/04/2024
Name Opening Rate Calculated
Rate
7.01 Category
Daily Rate 86.00$ 90.50$
Maximum Payment 860.00$ 905.00$
Opening Rates: 01/04/2023
Ministry of Social Development
CPI General Adjustment Model
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Table 8
Ministry of Social Development
CPI General Adjustment Model
Miscellaneous rates and payments
Table 8 Non-Taxable Annual Rates
Calculated Rates: 01/04/2024
Name Opening Rate Calculated
Rate
8.01 Clothing Allowance
Annual Amount 331.73$ 347.17$
8.02 Funeral Grants
Maximum Amount 2,445.37$ 2,559.20$
8.03 Payment on Death of a Veteran or Veteran's Spouse, Civil union or Defacto Partner
World War One Veteran 17,866.20$ $ 18,698.76
Other Veterans 7,085.77$ 7,415.97$
Veteran's Spouse, Civil union or Defacto Partner 5,403.11$ 5,654.89$
8.04 Blind Subsidy (Maximum Allowable Gross Annual Earnings)
Married, Civil union or Defacto Partner 27,430.97$
$ 28,707.89
Single Supplement 3,550.64$ $ 3,715.92
8.05 Blind Subsidy (Maximum Allowable Gross Weekly Earnings)
Married, Civil union or Defacto Partner 527.52$ 552.07$
Single Supplement 68.28$ 71.46$
Opening Rates: 01/04/2023
Ministry of Social Development
CPI General Adjustment Model
16 of 54
Table 9
Ministry of Social Development
CPI General Adjustment Model
Miscellaneous rates and payments
Table 9 Other Taxable Rates
Name
Opening Net
Rate
Opening
Gross Rate
Calculated
Net Rate
Calculated
Gross Rate
9.01 Housekeeper's Allowance
Maximum Amount 287.35$ 325.46$ 300.73$ 341.68$
9.02 Personal Allowances
Older People Receiving RCS 52.89$ 59.09$ 55.35$ 61.84$
People with Psychiatric or Intellectual Disabilities
77.08$ 86.12$ $ 80.67 90.13$
People with Physical or Sensory Disabilities 125.24$ 139.93$ $ 131.07 146.45$
9.03 Hospital Rate
Hospital Rate 52.89$ 59.09$ 55.35$ 61.84$
Opening Rates: 01/04/2023
Calculated Rates: 01/04/2024
Ministry of Social Development
CPI General Adjustment Model
17 of 54
Table 10
Ministry of Social Development
CPI General Adjustment Model
Benefit cut-out points, limits and thresholds
Table 10 NZ Superannuation / Veteran's Pensions and Weekly Benefit Rates
Name
Opening Gross
Weekly Cut-
Out
Opening Gross
Annual Cut-
Out
Net Weekly
Benefit Rate
Calculated
Gross Weekly
Cut-Out
Calculated
Gross Annual
Cut-Out
10.01 Jobseeker Support
Single 18-19 years old - at home 519.00$ 262.30$ 535.00$
Single 18-19 years old - away from home 581.00$ 307.87$ 600.00$
Single 20-24 years old 581.00$ 307.87$ 600.00$
Single 25 years and over 643.00$ 353.46$ 665.00$
Person who is Married, Civil Union or Defacto 981.00$ 300.73$ 1,020.00$
Married, Civil Union or Defacto Couple (without children) 981.00$ 601.46$ 1,020.00$
Married, Civil Union or Defacto Couple partner on
benefit (with children)
1,027.00$ 635.10$ 1,068.00$
Married, Civil Union or Defacto person with partner
not on benefit or with partner receiving NZS or
Vetaran's Pension (with children)
1,027.00$ 317.55$ 1,068.00$
Sole Parent 887.00$ 494.80$ 919.00$
Non-beneficiary Sole Parent 836.00$ 494.80$ 867.00$
Special 88M(4) Rate - without children 981.00$ 300.73$ 1,020.00$
Special 88M(4) Rate - with children 1,027.00$ 317.55$ 1,068.00$
Grandparented Widow woman alone and DPB woman
alone (granted before 15/7/2013)
710.00$ 36,890.00$ 364.82$ 733.00$ 38,096.00$
10.02 Not Used
10.03 Not Used
Cut-Out Points: 01/04/2023
Calculated Cut-Out Points: 01/04/2024
Ministry of Social Development
CPI General Adjustment Model
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Table 10
Name
Opening Gross
Weekly Cut-
Out
Opening Gross
Annual Cut-
Out
Net Weekly
Benefit Rate
Calculated
Gross Weekly
Cut-Out
Calculated
Gross Annual
Cut-Out
10.04 Supported Living Payment
Single 16-17 years 673.00$ 34,960.00$ 337.63$ 694.00$ 36,076.00$
Single 18 years and over 762.00$ 39,589.00$ 402.84$ 787.00$ 40,920.00$
Married, Civil Union or Defacto Couple (without
children)
1,146.00$ 59,581.00$ 684.48$ 1,190.00$ 61,842.00$
Married, Civil Union or Defacto Couple partner on
benefit (with children)
1,192.00$ 61,970.00$ 718.14$ 1,238.00$ 64,342.00$
Married, Civil Union or Defacto person with partner
not on benefit or with partner receiving NZS or
Veteran's Pension (with children)
1,230.00$ 63,920.00$ 372.81$ 1,277.00$ 66,384.00$
Sole Parent 966.00$ 50,186.00$ 552.14$ 1,001.00$ 52,011.00$
10.05 Sole Parent Support
Sole Parent 887.00$ 46,116.00$ 494.80$ 919.00$ 47,751.00$
10.06 Grandparented Widow and Domestic Purposes Beneft (granted before 15/7/2013): Paid Overseas
Woman Alone (Single Adult) 710.00$ 36,890.00$ 364.82$ 733.00$ 38,096.00$
Sole Parent 887.00$ 46,116.00$ 494.80$ 919.00$ 47,751.00$
10.07 Not Used
Name
Opening Gross
Weekly Cut-
Out
Opening Gross
Annual Cut-
Out
Gross
Weekly
Benefit Rate
Calculated
Weekly Gross
Cut-Out
Calculated
Annual Cut-Out
10.08 NZ Super/Veteran's Pension
NQS Included (after 1/10/91) 1,352.00$ 70,281.00$ 874.88$ 1,410.00$ 73,312.00$
NQS Included (pre to 1/10/91) 1,417.00$ 73,661.00$ 922.82$ 1,479.00$ 76,873.00$
Cut-Out Points: 01/04/2023
Calculated Cut-Out Points: 01/04/2024
Cut-Out Points: 01/04/2023
Calculated Cut-Out Points: 01/04/2024
Ministry of Social Development
CPI General Adjustment Model
19 of 54
Table 10
Calculated Cut-Out Points: 01/04/2024
Name
Opening
Gross
Personal
Income
Threshold
Opening Gross
Weekly Cut-
Out
Calculated
Gross
Personal
Income
Threshold
Calculated
Weekly Gross
Cut-Out
10.09 Youth Payment
Single, 16-17 Year old 258.08$ 308.08$ 270.10$ 320.10$
Married, civil union or de facto couple (without
children) total
258.08$ 358.08$ 270.10$ 370.10$
Young Parent Payment
Sole parent 16-17 year old, living at home
or financially supported by parents or guardian
(earning less than FTC threshold)
258.08$ 308.08$ 270.10$ 320.10$
Married, civil union or de facto couple (with children)
total
258.08$ 358.08$ 270.10$ 370.10$
Sole parent 258.08$ 308.08$ 270.10$ 320.10$
Cut-Out Points: 01/04/2023
Ministry of Social Development
CPI General Adjustment Model
20 of 54
Table 11
Ministry of Social Development
CPI General Adjustment Model
Benefit cut-out points, limits and thresholds
Table 11 Income Limits for Disability Allowance
Opening Limits: 01/04/2023 Calculated Limits: 01/04/2024
Name
Opening Gross Weekly
Threshold
Calculated Gross Weekly
Threshold
11.01 Circumstance
Single person aged 16 or 17 years without dependent children 631.50$ 660.90$
Any other single person without dependent children 786.69$ 823.31$
Person who is Married, Civil Union or Defacto with or without
dependent children
1,171.42$ 1,225.95$
Sole parent with 1 dependent child 880.73$ 921.73$
Any other sole parent 927.94$ 971.14$
Ministry of Social Development
CPI General Adjustment Model
21 of 54
Table 12
Ministry of Social Development
CPI General Adjustment Model
Benefit cut-out points, limits and thresholds
Table 12 Accommodation Supplement Entry Thresholds
Name
Rent/Board
25%
Mortgage
30%
Calculated
Net Benefit
Rate
Net Benefit Rate
with First Child
Family Tax
Credit (where
applicable)
Rent/Board
25%
Mortgage
30%
12.01 Jobseeker Support Without Children
Single 18-19 years at home 84.00$ 101.00$ 262.30$ 262.30$ 88.00$ 106.00$
Single 18-19 years away from home 84.00$ 101.00$ 307.87$ 307.87$ 88.00$ 106.00$
Single 20-24 years 84.00$ 101.00$ 307.87$ 307.87$ 88.00$ 106.00$
Single 25 years and over 84.00$ 101.00$ 353.46$ 353.46$ 88.00$ 106.00$
Married, Civil Union or Defacto Couple 144.00$ 172.00$ 601.46$ 601.46$ 150.00$ 180.00$
Grandparented Widow woman alone and DPB woman
alone (granted before 15/7/2013)
87.00$ 105.00$ 364.82$ 364.82$ 91.00$ 109.00$
12.02 Jobseeker Support With Children
Sole Parent 152.00$ 183.00$ 494.80$ 639.49$ 160.00$ 192.00$
Married, Civil Union or Defacto Couple 186.00$ 223.00$ 635.10$ 779.79$ 195.00$ 234.00$
Married, Civil Union or Defacto Couple, with non-qualified
partner (with children)
186.00$ 223.00$ 635.10$ 779.79$ 195.00$ 234.00$
12.03 Youth Payment Without Children
Single, 16-17 Year old 84.00$ 101.00$ 307.87$ 307.87$ 88.00$ 106.00$
Married, civil union or de facto couple (without children)
total
144.00$ 172.00$ 601.46$ 601.46$ 150.00$ 180.00$
Young Parent Payment With Children
Sole parent 16-17 year old, living at home
or financially supported by parents or guardian (earning
less than FTC threshold)
102.00$ 123.00$ 285.44$ 430.13$ 108.00$ 129.00$
Married, civil union or de facto couple (with children) total
186.00$ 223.00$ 635.10$ 779.79$ 195.00$ 234.00$
Married, Civil Union or Defacto Couple, with non-qualified
partner (with children)
186.00$ 223.00$ 635.10$ 779.79$ 195.00$ 234.00$
Sole parent 152.00$ 183.00$ 494.80$ 639.49$ 160.00$ 192.00$
Opening Thresholds: 01/04/2023
New Thresholds: 01/04/2024
Calculated Rates: 01/04/2024
Ministry of Social Development
CPI General Adjustment Model
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Table 12
Name
Rent/Board
25%
Mortgage
30%
Calculated
Net Benefit
Rate
Net Benefit Rate
with First Child
Family Tax
Credit (where
applicable)
Rent/Board
25%
Mortgage
30%
Opening Thresholds: 01/04/2023
New Thresholds: 01/04/2024
Calculated Rates: 01/04/2024
12.04 Not Used
12.06 Not Used
12.07 Sole Parent Support
Sole Parent 152.00$ 183.00$ 494.80$ 639.49$ 160.00$ 192.00$
12.08 Not Used
12.09 Not Used
12.10 Support Living Payments Without Children
Single 16-17 years 96.00$ 115.00$ 337.63$ 337.63$ 101.00$ 121.00$
Single 18 years and over 96.00$ 115.00$ 402.84$ 402.84$ 101.00$ 121.00$
Married, Civil Union or Defacto Couple 164.00$ 196.00$ 684.48$ 684.48$ 171.00$ 205.00$
12.11 Supported Living Payments With Children
Sole Parent 166.00$ 199.00$ 552.14$ 696.83$ 174.00$ 209.00$
Married, Civil Union or Defacto Couple 206.00$ 247.00$ 718.14$ 862.83$ 216.00$ 259.00$
Married, Civil Union or Defacto Couple, with non-qualified
partner
206.00$ 247.00$ 718.14$ 862.83$ 216.00$ 259.00$
12.12 NZ Super/Veterans Pension Without Children
Single Living Alone 124.00$ 149.00$ 519.47$ 519.47$ 130.00$ 156.00$
Single Sharing 115.00$ 137.00$ 479.51$ 479.51$ 120.00$ 144.00$
Married, Civil Union or Defacto Couple (both qualify) 191.00$ 229.00$ 799.18$ 799.18$ 200.00$ 240.00$
Married, Civil Union or Defacto Couple (NQS included) 181.00$ 218.00$ 759.64$ 759.64$ 190.00$ 228.00$
12.13 NZ Super/Veterans Pension With Children
Single Living Alone (1 child) 158.00$ 190.00$ 519.47$ 664.16$ 166.00$ 199.00$
Single Living Alone (2+ children) 158.00$ 190.00$ 519.47$ 664.16$ 166.00$ 199.00$
Single Sharing (1 child) 149.00$ 179.00$ 479.51$ 624.20$ 156.00$ 187.00$
Single Sharing (2+ children) 149.00$ 179.00$ 479.51$ 624.20$ 156.00$ 187.00$
Married, Civil Union or Defacto Couple (1 child) 225.00$ 270.00$ 799.18$ 943.87$ 236.00$ 283.00$
Married, Civil Union or Defacto Couple (2+ children) 225.00$ 270.00$ 799.18$ 943.87$ 236.00$ 283.00$
Married, Civil Union or Defacto Couple (NQS included) (1
child)
216.00$ 259.00$ 759.64$ 904.33$ 226.00$ 271.00$
Married, Civil Union or Defacto Couple (NQS included)
(2+ children)
216.00$ 259.00$ 759.64$ 904.33$ 226.00$ 271.00$
Ministry of Social Development
CPI General Adjustment Model
23 of 54
Table 13
Ministry of Social Development
CPI General Adjustment Model
Benefit cut-out points, limits and thresholds
Table 13
Name
Rent/Boar
d 25%
Mortgage
30%
Rent/Boar
d 25%
Mortgage
30%
First
Calculated
Net Benefit
Rate
Second
Calculated
Net Benefit
Rate
First
Calculated
Net Benefit
Rate
Second
Calculated
Net Benefit
Rate
First Child
Family Tax
Credit
Rent/Boar
d 25%
Mortgage
30%
Rent/Boar
d 25%
Mortgage
30%
13.01 Not Used
13.02 NZS/VP and Supported Living Payment
NZS/VP and SLP 177.00$ 213.00$ 219.00$ 262.00$ 399.59$ 342.24$ 399.59$ 372.81$ 144.69$ 185.00$ 223.00$ 229.00$ 275.00$
SLP and NZS/VP 177.00$ 213.00$ 219.00$ 262.00$ 342.24$ 399.59$ 372.81$ 399.59$ 144.69$ 185.00$ 223.00$ 229.00$ 275.00$
13.03 NZS/VP, Jobseeker Support or Non-Beneficiary
NZS/VP and JS/Non-Beneficiary 167.00$ 201.00$ 206.00$ 247.00$ 399.59$ 300.73$ 399.59$ 317.55$ 144.69$ 175.00$ 210.00$ 215.00$ 259.00$
JS/Non-Beneficiary and NZS/VP 167.00$ 201.00$ 206.00$ 247.00$ 300.73$ 399.59$ 317.55$ 399.59$ 144.69$ 175.00$ 210.00$ 215.00$ 259.00$
13.04 Not Used
13.05 Not Used
13.06 Supported Living Payment and Jobseeker Support or Non-Beneficiary
SLP and JS/Non-Beneficiary 154.00$ 184.00$ 196.00$ 235.00$ 342.24$ 300.73$ 359.07$ 317.55$ 144.69$ 161.00$ 193.00$ 205.00$ 246.00$
JS/Non-Beneficiary and SLP 154.00$ 184.00$ 196.00$ 235.00$ 300.73$ 342.24$ 317.55$ 359.07$ 144.69$ 161.00$ 193.00$ 205.00$ 246.00$
Accommodation Supplement Entry Thresholds for Married, Civil Union or Defacto Couples Being Paid Different Half Benefit Rates
Calculated Rates: 01/04/2024
Opening Thresholds: 01/04/2023
New Thresholds: 01/04/2024
Without Children
With Children
Without Children
With Children
Without Children
With Children
Ministry of Social Development
CPI General Adjustment Model
24 of 54
Table 14
Ministry of Social Development
CPI General Adjustment Model
Benefit cut-out points, limits and thresholds
Table 14
Name
Rent/Board
25%
Mortgage
30%
Calculated
Net Benefit
Rate
Net Benefit Rate with
First Child Family Tax
Credit (where
applicable)
Rent/Board
25%
Mortgage
30%
14.01 Jobseeker Support
Without children 84.00$ 101.00$ 353.46$ 353.46$ 88.00$ 106.00$
1 or more children 152.00$ 183.00$ 494.80$ 639.49$ 160.00$ 192.00$
14.02 Supported Living Payment
Without children 96.00$ 115.00$ 402.84$ 402.84$ 101.00$ 121.00$
1 or more children 166.00$ 199.00$ 552.14$ 696.83$ 174.00$ 209.00$
14.03 NZ Super/Veterans
Living Alone (without children) 124.00$ 149.00$ 519.47$ 519.47$ 130.00$ 156.00$
Living Alone (1 child) 158.00$ 190.00$ 519.47$ 664.16$ 166.00$ 199.00$
Living Alone (2+ children) 158.00$ 190.00$ 519.47$ 664.16$ 166.00$ 199.00$
Sharing (without children) 115.00$ 137.00$ 479.51$ 479.51$ 120.00$ 144.00$
Sharing (1 child) 149.00$ 179.00$ 479.51$ 624.20$ 156.00$ 187.00$
Sharing (2+ children) 149.00$ 179.00$ 479.51$ 624.20$ 156.00$ 187.00$
Opening Thresholds: 01/04/2023
Calculated Rates: 01/04/2024
New Thresholds: 01/04/2024
Accommodation Supplement Entry Thresholds - Married, Civil Union or Defacto Partner at home whose
partner is in subsidised long term residential care
Ministry of Social Development
CPI General Adjustment Model
25 of 54
Table 15
Ministry of Social Development
CPI General Adjustment Model
Benefit cut-out points, limits and thresholds
Table 15
Accommodation Supplement Cut-Out Points for Non-Beneficiaries
Name
Opening
Per Week
Opening
Per Year
Maximum
Entitlement
Income
Threshold
Calculated
Per Week
Calculated
Per Year
15.01 Area One
Single 18-19 years old - at home 1,303.00$ 67,756.00$ 165.00$ 665.00$ 1,325.00$ 68,900.00$
Single 18-19 years old - away from home 1,303.00$ 67,756.00$ 165.00$ 665.00$ 1,325.00$ 68,900.00$
Single 20-24 years old 1,303.00$ 67,756.00$ 165.00$ 665.00$ 1,325.00$ 68,900.00$
Single 25 years and over 1,303.00$ 67,756.00$ 165.00$ 665.00$ 1,325.00$ 68,900.00$
Married, Civil Union or Defacto Couple (without children) total 1,921.00$ 99,892.00$ 235.00$ 1,020.00$ 1,960.00$ 101,920.00$
Sole Parent (1 child) 1,776.00$ 92,352.00$ 235.00$ 867.00$ 1,807.00$ 93,964.00$
Sole Parent (2+ children) 2,056.00$ 106,912.00$ 305.00$ 867.00$ 2,087.00$ 108,524.00$
Married, Civil Union or Defacto Couple (with children) total 2,247.00$ 116,844.00$ 305.00$ 1,068.00$ 2,288.00$ 118,976.00$
15.02 Area Two
Single 18-19 years old - at home 1,063.00$ 55,276.00$ 105.00$ 665.00$ 1,085.00$ 56,420.00$
Single 18-19 years old - away from home 1,063.00$ 55,276.00$ 105.00$ 665.00$ 1,085.00$ 56,420.00$
Single 20-24 years old 1,063.00$ 55,276.00$ 105.00$ 665.00$ 1,085.00$ 56,420.00$
Single 25 years and over 1,063.00$ 55,276.00$ 105.00$ 665.00$ 1,085.00$ 56,420.00$
Married, Civil Union or Defacto Couple (without children) total 1,601.00$ 83,252.00$ 155.00$ 1,020.00$ 1,640.00$ 85,280.00$
Sole Parent (1 child) 1,456.00$ 75,712.00$ 155.00$ 867.00$ 1,487.00$ 77,324.00$
Sole Parent (2+ children) 1,716.00$ 89,232.00$ 220.00$ 867.00$ 1,747.00$ 90,844.00$
Married, Civil Union or Defacto Couple (with children) total 1,907.00$ 99,164.00$ 220.00$ 1,068.00$ 1,948.00$ 101,296.00$
Opening Cutouts: 01/04/2023
Calculated Cutouts: 01/04/2024
Ministry of Social Development
CPI General Adjustment Model
26 of 54
Table 15
Name
Opening
Per Week
Opening
Per Year
Maximum
Entitlement
Income
Threshold
Calculated
Per Week
Calculated
Per Year
Opening Cutouts: 01/04/2023
Calculated Cutouts: 01/04/2024
15.03 Area Three
Single 18-19 years old - at home 963.00$ 50,076.00$ 80.00$ 665.00$ 985.00$ 51,220.00$
Single 18-19 years old - away from home 963.00$ 50,076.00$ 80.00$ 665.00$ 985.00$ 51,220.00$
Single 20-24 years old 963.00$ 50,076.00$ 80.00$ 665.00$ 985.00$ 51,220.00$
Single 25 years and over 963.00$ 50,076.00$ 80.00$ 665.00$ 985.00$ 51,220.00$
Married, Civil Union or Defacto Couple (without children) total 1,401.00$ 72,852.00$ 105.00$ 1,020.00$ 1,440.00$ 74,880.00$
Sole Parent (1 child) 1,256.00$ 65,312.00$ 105.00$ 867.00$ 1,287.00$ 66,924.00$
Sole Parent (2+ children) 1,476.00$ 76,752.00$ 160.00$ 867.00$ 1,507.00$ 78,364.00$
Married, Civil Union or Defacto Couple (with children) total 1,667.00$ 86,684.00$ 160.00$ 1,068.00$ 1,708.00$ 88,816.00$
15.04 Area Four
Single 18-19 years old - at home 923.00$ 47,996.00$ 70.00$ 665.00$ 945.00$ 49,140.00$
Single 18-19 years old - away from home 923.00$ 47,996.00$ 70.00$ 665.00$ 945.00$ 49,140.00$
Single 20-24 years old 923.00$ 47,996.00$ 70.00$ 665.00$ 945.00$ 49,140.00$
Single 25 years and over 923.00$ 47,996.00$ 70.00$ 665.00$ 945.00$ 49,140.00$
Married, Civil Union or Defacto Couple (without children) total 1,301.00$ 67,652.00$ 80.00$ 1,020.00$ 1,340.00$ 69,680.00$
Sole Parent (1 child) 1,156.00$ 60,112.00$ 80.00$ 867.00$ 1,187.00$ 61,724.00$
Sole Parent (2+ children) 1,316.00$ 68,432.00$ 120.00$ 867.00$ 1,347.00$ 70,044.00$
Married, Civil Union or Defacto Couple (with children) total 1,507.00$ 78,364.00$ 120.00$ 1,068.00$ 1,548.00$ 80,496.00$
Ministry of Social Development
CPI General Adjustment Model
27 of 54
Table 16
Ministry of Social Development
CPI General Adjustment Model
Benefit cut-out points, limits and thresholds
Table 16 Accommodation Supplement Non-Beneficiary Abatement Thresholds
Opening Rates: 01/04/2023
Calculated Rates: 01/04/2024
Name Opening Gross Rate Calculated
Gross Rate
16.01 Non-beneficiary
Single 18-19 years old - at home 643.00$ 665.00$
Single 18-19 years old - away from home 643.00$ 665.00$
Single 20-24 years old 643.00$ 665.00$
Single 25 years and over 643.00$ 665.00$
Married, Civil Union or Defacto Couple (without children) total
981.00$ 1,020.00$
Married, Civil Union or Defacto Couple (with children) total 1,027.00$ 1,068.00$
Sole Parent 836.00$ 867.00$
Ministry of Social Development
CPI General Adjustment Model
28 of 54
Table 17
Ministry of Social Development
CPI General Adjustment Model
Table 17 Income Exemption - Home Base Care
Opening Rates: 01/04/2023
Calculated Rates: 01/04/2024
Name Opening Rate Calculated Rate
17.01 Per Child Per Hour
Base Rate 4.17$ 4.36$
Miscellaneous rates and payments
Ministry of Social Development
CPI General Adjustment Model
29 of 54
Table 18
Ministry of Social Development
CPI General Adjustment Model
Special benefit assessment standard costs
Table 18 Special Benefit Standard Costs - For those Without Children ONLY
Opening Std. Cost: 01/04/2023
Name Opening Std. Cost
Calculated
Net Benefit Rate
Calculated Std.
Cost
18.01 Jobseeker Support and Non-Beneficiaries Without Children
Single 18-19 years at home 109.29$ 262.30$ 114.38$
Single 18-19 years away from home 109.29$ 307.87$ 114.38$
Single 20-24 years 109.29$ 307.87$ 114.38$
Single 25 years and over 152.34$ 353.46$ 159.43$
Married, Civil Union or Defacto Couple 285.84$ 601.46$ 299.15$
Grandparented Widow woman alone and DPB woman alone (granted before
15/7/2013)
161.03$ 364.82$ 168.53$
18.03 Not Used
18.04 Not Used
18.05 Not Used
18.06 Not Used
18.07 Emergency Benefit
16-17 years at home 109.29$ 262.30$ 114.38$
18.08 Supported Living Payments Without Children
Single 16-17 years 145.63$ 337.63$ 152.41$
Single 18 years and over 206.68$ 402.84$ 216.30$
Married, Civil Union or Defacto Couple 377.05$ 684.48$ 394.60$
18.09 Supported Living Payments (Caring for a patient requiring care) without children
Single 16-17 years 145.63$ 337.63$ 152.41$
Single 18 years and over 206.68$ 402.84$ 216.30$
Half Married, Civil Union or Defacto Couple 161.03$ 342.24$ 168.53$
18.10 NZ Super/Veterans Without Children
Calculated Rates: 01/04/2024
Ministry of Social Development
CPI General Adjustment Model
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Table 18
Opening Std. Cost: 01/04/2023
Name Opening Std. Cost
Calculated
Net Benefit Rate
Calculated Std.
Cost
Calculated Rates: 01/04/2024
Single Living Alone 206.98$ 519.47$ 216.61$
Single Sharing 206.98$ 479.51$ 216.61$
Married, Civil Union or Defacto Couple 377.62$ 799.18$ 395.20$
Ministry of Social Development
CPI General Adjustment Model
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Table 19
Ministry of Social Development
CPI General Adjustment Model
Table 19
Opening Std. Cost: 01/04/2023 Calculated Rates: 01/04/2024
Name Opening Std. Cost Calculated Std. Cost
19.01 Combination
NZ Super and Jobseeker Support 240.80$ 252.01$
NZ Super and Supported Living Payment 347.36$ 363.53$
Supported Living Payment and Jobseeker Support 270.50$ 283.09$
Special benefit assessment standard costs
Special Benefit Standard Costs - For Those Without Children ONLY Being Paid Different
Ministry of Social Development
CPI General Adjustment Model
32 of 54
Table 20
Ministry of Social Development
CPI General Adjustment Model
Table 20 Community Services Card Income Thresholds
Opening Thresholds: 01/04/2023
Name Opening Threshold Increase
Calculated
Threshold
20.01 Circumstance (other than NZS)
Single in shared accommodation 31,705.00$ 1,476.00$ 33,181.00$
Single living alone 33,646.00$ 1,567.00$ 35,213.00$
Married, Civil Union or Defacto Couple
(without children)
50,313.00$ 2,343.00$ 52,656.00$
2-person family 61,455.00$ 2,861.00$ 64,316.00$
3-person family 75,645.00$ 3,522.00$ 79,167.00$
4-person family 87,269.00$ 4,063.00$ 91,332.00$
5-person family 98,687.00$ 4,594.00$ 103,281.00$
6-person family 111,255.00$ 5,179.00$ 116,434.00$
Each additional person above 6 people 11,277.00$ 525.00$ 11,802.00$
20.02 New Zealand Superannuation - Circumstance
Single in shared accommodation 33,713.00$ 1,570.00$ 35,283.00$
Single living alone 35,861.00$ 1,670.00$ 37,531.00$
Married, Civil Union or Defacto Couple
(without children)
53,821.00$ 2,506.00$ 56,327.00$
2-person family 61,455.00$ 2,861.00$ 64,316.00$
3-person family 75,645.00$ 3,522.00$ 79,167.00$
4-person family 87,269.00$ 4,063.00$ 91,332.00$
5-person family 98,687.00$ 4,594.00$ 103,281.00$
6-person family 111,255.00$ 5,179.00$ 116,434.00$
Each additional person above 6 people 11,277.00$ 525.00$ 11,802.00$
Benefit cut-out points, limits and thresholds
Calculated Thresholds: 01/04/2024
Ministry of Social Development
CPI General Adjustment Model
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Table 21
Ministry of Social Development
CPI General Adjustment Model
Miscellaneous rates and payments
Table 21 Civil Defence Scheme
Opening Rates: 01/04/2023
Calculated Rates: 01/04/2024
Name Opening Payment Calculated Payment
21.01 Evacuees Billeted
Single (under 25 years) 220.64$ 230.90$
Single (25+) 253.31$ 265.10$
Married, Civil Union or Defacto Couple (without children)
431.03$ 451.10$
Married, Civil Union or Defacto Couple (with children) 455.15$ 476.33$
Sole Parent 354.59$ 371.10$
21.02 Evacuees Not Billeted
Single (under 25 years) 294.18$ 307.87$
Single (25+) 337.74$ 353.46$
Married, Civil Union or Defacto Couple (without children)
574.70$ 601.46$
Married, Civil Union or Defacto Couple (with children) 606.86$ 635.10$
Sole Parent 472.79$ 494.80$
Ministry of Social Development
CPI General Adjustment Model
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Table 22
Ministry of Social Development
CPI General Adjustment Model
Benefit cut-out points, limits and thresholds
Table 22
Opening Limits: 01/04/2023 Calculated Limits: 01/04/2024
Name
Opening Gross Weekly
Income Limit
Calculated Gross Weekly
Income Limit
22.01
Seasonal Work Assistance, Course Participation Assistance,
Transition to Work Grant, Community Costs Programme,
Flexible Funding Programme (with child rates only),
Emergency Housing-SNG
Single person aged 16 or 17 years without dependent children 584.36$ 611.56$
Single person aged 18+ years without dependent children 671.59$ 702.85$
Person who is Married, Civil Union or Defacto with or without
dependent children
975.49$ 1,020.90$
Sole parent with 1 dependent child 814.95$ 852.89$
Any other sole parent 858.59$ 898.56$
Opening Limits: 01/04/2023 Calculated Limits: 01/04/2024
Opening Gross Annual
Income Limit
Calculated Gross Annual
Income Limit
22.02 Recoverable Assistance Payments Annual Limits
Single person aged 16 or 17 years without dependent children 40,763.32$ 42,915.60$
Single person aged 18+ years without dependent children 46,848.36$ 49,322.00$
Person who is Married, Civil Union or Defacto with or without
dependent children
68,047.20$ 71,639.88$
Sole parent with 1 dependent child 56,849.00$ 59,850.44$
Any other sole parent 59,893.60$ 63,055.72$
Income Limits for Advance Payments of Benefits, Special Needs Grants, Recoverable
Assistance Payments, Funeral Grants, Seasonal Work Assistance, Course Participation
Assistance, Transition to Work Grant, Community Costs Programme and Flexible Funding
Programme
Ministry of Social Development
CPI General Adjustment Model
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Table 22
Opening Limits: 01/04/2023 Calculated Limits: 01/04/2024
Name
Opening Gross Weekly
Income Limit
Calculated Gross Weekly
Income Limit
Opening Limits: 01/04/2023 Calculated Limits: 01/04/2024
Opening Gross Annual
Income Limit
Calculated Gross Annual
Income Limit
22.03
Funeral Grant Payment Annual Limits – Deceased person
with a surviving partner
Surviving partner, 16-17 years (without children) 30,386.72$ 31,801.12$
Surviving partner, 18+ years (without children) 34,922.68$ 36,548.20$
Surviving partner with 1 child 42,377.40$ 44,350.28$
Surviving partner with 2+ children 44,646.68$ 46,725.12$
Opening Limits: 01/04/2023 Calculated Limits: 01/04/2024
Opening Gross Annual
Income Limit
Calculated Gross Annual
Income Limit
22.04 Funeral Grant Payment Annual Limits – Deceased child
Parent is single, 16-17 years (with no other children) 30,386.72$ 31,801.12$
Parent is single, 18+ years old (with no other children) 34,922.68$ 36,548.20$
Parent is in a marriage, civil union or de facto relationship (with or
without other children)
50,725.48$ 53,086.80$
Parent is single with 1 other child 42,377.40$ 44,350.28$
Parent is single with 2+ other children 44,646.68$ 46,725.12$
Opening Limits: 01/04/2023 Calculated Limits: 01/04/2024
22.05
Advance Payment of Benefit and Special Needs Grants
Weekly Income Limits
Opening Gross Weekly
Income Limit
Calculated Gross Weekly
Income Limit
Single person aged 16 or 17 years without dependent children 783.91$ 825.30$
Single person aged 18+ years without dependent children 900.93$ 948.50$
Person who is Married, Civil Union or Defacto with or without
dependent children
1,308.60$ 1,377.69$
Sole parent with 1 dependent child 1,093.25$ 1,150.97$
Any other sole parent 1,151.80$ 1,212.61$
Ministry of Social Development
CPI General Adjustment Model
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Table 23
CPI General Adjustment Model
Benefit cut-out points, limits and thresholds
Table 23
Opening Limits: 01/04/2023
Calculated Limits: 01/04/2024
Name Opening Asset Limits Calculated Asset Limits
23.01 Special Benefit, Advance Payment of Benefit, Special Needs Grants (including Emergency Housing SNGs), Recoverable Assistance, Temporary Additional Support,
Community Costs Programme, Course Participation Assistance, Transition to Work Grant and Flexible Funding Programme (with child rate only)
Single person without dependent children 1,279.35$ $ 1,338.90
Married, Civil Union or Defacto with or without dependent children
and Sole Parents
2,131.73$ $ 2,230.96
23.02 Seasonal Work Assistance Programme, New Employment Transition Grant Programme, and Student Allowance Transfer Grant Programme
Single person without dependent children 1,279.35$ $ 1,338.90
Person who is Married, Civil Union or Defacto with or without
dependent children
2,131.73$ $ 2,230.96
Sole parent with 1 dependent child 1,679.84$ $ 1,758.04
Any other sole parent 1,804.47$ $ 1,888.47
23.03 Funeral Grants (cash assets exemption)
Person who is Married, Civil Union or Defacto with or without
dependent children and Sole Parents (Does not include Single
2,131.73$ $ 2,230.96
Cash Asset Limits for Special Benefit, Advance Payment of Benefits, Special Needs
Grants, Recoverable Assistance Payments, Seasonal Work Assistance Programme, New
Employment Transition Grant Programme, Funeral Grants (cash assets exemption),
Temporary Additional Support, Course Participation Assistance, Transition to Work
Grant, Student Allowance Transfer Grant Programme, Community Costs Programme,
Flexible Funding Programme
Ministry of Social Development
CPI General Adjustment Model
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Table 24
Ministry of Social Development
CPI General Adjustment Model
Miscellaneous rates and payments
Table 24 Care Supplement Rates
Opening Supplements: 01/04/2023
Name Opening Care Supplement
Foster Care
Board
Payment
Orphan's or
Unsupported Child's
Benefit
Calculated
Care
Supplement
### Age Bracket
Child aged 14 years or older -$ 332.61$ 332.61$ $ -
Child aged 10 to 13 years -$ 310.40$ 310.40$ $ -
Child aged 5 to 9 years -$ 288.06$ 288.06$ $ -
Child aged 0 to 4 years -$ 286.08$ 286.08$ $ -
Note: Care Supplement no longer payable from 1 April 2009
Calculated Supplements: 01/04/2024
Ministry of Social Development
CPI General Adjustment Model
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Table 25
Ministry of Social Development
CPI General Adjustment Model
Miscellaneous rates and payments
Table 25 Maximum Weekly Rates of Special Assistance to the Rural Sector
Opening Assistance: 01/04/2023
Name Opening Rural Assistance
Jobseeker
Support
Calculated Rural
Assistance
25.01 Circumstance
Single 18-19 Years, at home 250.63$ 262.30$ 262.30$
Single 18-19 Years, away from home 294.18$ 307.87$ 307.87$
Single 20-24 Years 294.18$ 307.87$ 307.87$
Single 25+ Years 337.74$ 353.46$ 353.46$
Married, Civil Union or Defacto Couple (without
children) total
574.70$ 601.46$ 601.46$
Married, Civil Union or Defacto Couple (with children)
total
606.86$ 635.10$ 635.10$
Sole Parent 472.79$ 494.80$ 494.80$
Calculated Assistance: 01/04/2024
Ministry of Social Development
CPI General Adjustment Model
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Table 25
Opening Assistance: 01/04/2023
Name Opening Rural Assistance
Jobseeker
Support
Calculated Rural
Assistance
Statutory
Reference
Calculated Assistance: 01/04/2024
Cut-Out Points: 01/04/2023 Calculated Cut-Out Points: 01/04/2024
Name Opening Gross Weekly Cut-Out
Opening
Gross Annual
Cut-Out
Net Weekly
Benefit Rate
Calculated
Gross
Weekly Cut-
Out
Calculated
Gross Annual
Cut-Out
Incom
e Test
25.02 Circumstance
Single 18-19 Years, at home 411.00$ 262.30$ 423.00$ 6
Single 18-19 Years, away from home 455.00$ 307.87$ 468.00$ 6
Single 20-24 Years 455.00$ 307.87$ 468.00$ 6
Single 25+ Years 498.00$ 353.46$ 514.00$ 6
Married, Civil Union or Defacto Couple (without
children) total
735.00$ 601.46$ 762.00$ 6
Married, Civil Union or Defacto Couple (with children)
total
767.00$ 635.10$ 796.00$ 6
Sole Parent 633.00$ 494.80$ 655.00$ 6
Ministry of Social Development
CPI General Adjustment Model
40 of 54
Table 26
Ministry of Social Development
CPI General Adjustment Model
Benefit cut-out points, limits and thresholds
Table 26
NZS Rates: 01/04/2024 Calculated Income: 01/04/2024
26.01 Couples with NQS/NQP included on or after 1 October 1991
Annual NZS rate for couple with NQS/NQP included on or after 1.10.91 (gross) 45,493.76$
Annual NZS rate for Person who is Married, Civil Union or Defacto (gross) 23,993.32$
Difference 21,500.44$
Minimum additional income that is advantageous to exclude the NQS/NQP (gross) 39,034.91$
26.02 Couples with NQS/NQP included before 1 October 1991
Annual NZS rate for couple with NQS/NQP included before 1.10.91 (gross) 47,986.64$
Annual NZS rate for Person who is Married, Civil Union or Defacto (gross) 23,993.32$
Difference 23,993.32$
Minimum additional income that is advantageous to exclude the NQS/NQP (gross) 42,596.17$
Additional Income Limits Making it Advantageous to Exclude NQS/NQP
Ministry of Social Development
CPI General Adjustment Model
41 of 54
Table 27
Ministry of Social Development
CPI General Adjustment Model
Miscellaneous rates and payments
Table 27 Social Rehabilitation Assistance Programme
Opening Payments: 01/04/2023
Name Opening Payment
Maximum
rate of
Disability
Allowance
Maximum rate of
Accommodation
Supplement
(single person)
Calculated
Payment
27.01 Area
Area One 260.10$ 78.60$ 165.00$ 263.60$
Area Two 200.10$ 78.60$ 105.00$ 203.60$
Area Three 175.10$ 78.60$ 80.00$ 178.60$
Area Four 165.10$ 78.60$ 70.00$ 168.60$
Calculated Payments: 01/04/2024
Ministry of Social Development
CPI General Adjustment Model
42 of 54
IN-CONFIDENCE#
Table 28
Ministry of Social Development
CPI General Adjustment Model
Miscellaneous rates and payments
Table 28 Income Support For Live Organ Donors
Opening Rates: 01/04/2023
Calculated Rates: 01/04/2024
Name Opening Payment Calculated Payment
28.01 Excluding Childcare Costs
Single 18-19 years old - at home
Single 18-19 years old - away from home
Single 20-24 years old
Single 25 years and over
Married, Civil Union or Defacto Couple (without children) each
Married, Civil Union or Defacto Couple (without children) total
Married, Civil Union or Defacto Couple (with children) each
Married, Civil Union or Defacto Couple (with children) total
Sole Parent
28.02 Childcare Assistance
Each child under the age of 14 years
Ministry of Social Development
CPI General Adjustment Model
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IN-CONFIDENCE#
Table 29
Ministry of Social Development
CPI General Adjustment Model
Table 29 Family Tax Credit and Accommodation Supplement Maxima
Opening Rates: 01/04/2023 Calculated Rates: 01/04/2024
Name Opening Rate Calculated Rate
29.01 Family Tax Credit Rates
First or only child: 0 - 15 years 136.94$ 144.30$
First or only child: 16 years or older 136.94$ 144.30$
Second or subsequent child: 0 - 12 years
111.58$ 117.56$
Second or subsequent child: 13 - 15 years
111.58$ 117.56$
Second or subsequent child: 16 years or older
111.58$ 117.56$
Accommodation Supplement Maxima: 01/04/2024
29.02 Accommodation Supplement Maxima
Area 1
1 person household 165.00$
2 person household 235.00$
3+ person household 305.00$
Area 2
1 person household 105.00$
2 person household 155.00$
3+ person household 220.00$
Area 3
1 person household 80.00$
2 person household 105.00$
3+ person household 160.00$
Area 4
1 person household 70.00$
2 person household 80.00$
3+ person household 120.00$
Opening Rates: 01/04/2023 Calculated Rates: 01/04/2024
Name Opening Rate Calculated Rate
29.03 Best Start Tax Credit
Best Start Tax Credit 69.85$ 73.61$
Miscellaneous rates and payments
Ministry of Social Development
CPI General Adjustment Model
44 of 54
IN-CONFIDENCE#
Table 30
Ministry of Social Development
CPI General Adjustment Model
Table 30 Temporary Additional Support
Opening Rates: 01/04/2023
Calculated Rates: 01/04/2024
Name Opening Rate Calculated Rate
30.01 Essential Household Item
Dining suite 36.44$ 38.14$
Beds (including mattresses) 36.44$ 38.14$
Combined fridge-freezer,or fridge, or 1 freezer, or
fridge & freezer
28.83$ 30.17$
Lounge suite 36.44$ 38.14$
Stove 28.83$ 30.17$
Television set 27.31$ 28.58$
Vehicle repayment 77.93$ 81.56$
Portable heaters 19.72$ 20.64$
Washing machine 28.83$ 30.17$
Laundry/laundrette Costs 28.83$ 30.17$
Dryer 28.83$ 30.17$
Accommodation loading 30.94$ 32.38$
Miscellaneous rates and payments
Ministry of Social Development
CPI General Adjustment Model
45 of 54
IN-CONFIDENCE#
Table 31
Ministry of Social Development
CPI General Adjustment Model
Table 31 Civil Defence Accommodation Costs
Opening Maximum Rate: 01/04/2023
Calculated Rates: 01/04/2024
Name
Opening Weekly
Maximum Rate
Opening Daily
Maximum Rate
Calculated
Weekly
Maximum Rate
Calculated Daily
Maximum Rate
31.01 Evacuee in Billeted Accomodation
Single Adult 224.00$ 32.00$ 241.00$ 34.43$
Married, Civil Union or Defacto Couple (with or without
children)
375.00$ 53.57$ 408.00$ 58.29$
Child 112.00$ 16.00$ 120.50$ 17.21$
[Based on average board costs reported by Accommodation
Supplement recipients]
31.02 Evacuee in Tourist Accommodation
Single Adult 1,227.00$ 175.29$ 1,280.00$ 182.86$
Married, Civil Union or Defacto Couple (without children) 1,294.00$ 184.86$ 1,350.00$ 192.86$
Married, Civil Union or Defacto Couple or Sole Parent (with
children)
1,525.00$ 217.86$ 1,591.00$ 227.29$
Miscellaneous rates and payments
Ministry of Social Development
CPI General Adjustment Model
46 of 54
IN-CONFIDENCE#
Table 32
Ministry of Social Development
CPI General Adjustment Model
Table 32 Home Help Programme
Opening Maximum Rate: 01/04/2023
Calculated Rates: 01/04/2024
Name Maximum Hourly Gross Rate Maximum Hourly Gross Rate
32.01 Home Help Programme
Home Helper (Excluding Holiday Pay) 23.90$ 24.37$
Home Helper (Including Holiday Pay) 25.81$ 26.32$
Miscellaneous rates and payments
Ministry of Social Development
CPI General Adjustment Model
47 of 54
IN-CONFIDENCE#
Table 33
Ministry of Social Development
CPI General Adjustment Model
Table 33
Opening Rates: 01/04/2023 Calculated Rates: 01/04/2024
Name Opening Rate Calculated Rate
33.01 Early Learning Payment
Maximum payment rate for each child 9.09$ 9.51$
Maximum weekly payment (20 hours)
for each aged 18 months to 36 months
181.80$ 190.20$
Miscellaneous rates and payments
FAMILY START AND EARLY START (Childcare Assistance), [aka Early Learning Payment]
Ministry of Social Development
CPI General Adjustment Model
48 of 54
IN-CONFIDENCE#
Table 34
Ministry of Social Development
CPI General Adjustment Model
Miscellaneous rates and payments
Table 34 Maximum Weekly Rates of Employment Transition Assistance
Opening Rates:
01/04/2023
Calculated Rates:
01/04/2024
Name Opening Rate Calculated Rate
34.01 Maximum Weekly Rates of Employment Transition Assistance
Single 16-17 years old 322.61$ 337.63$
Single 18 years and over 384.92$ 402.84$
Married, Civil Union or Defacto Couple (without children) each
327.02$ 342.24$
Married, Civil Union or Defacto Couple ( without children) total
654.04$ 684.48$
Married, Civil Union or Defacto Couple (with children) each 343.10$ 359.07$
Married, Civil Union or Defacto Couple (with children) total 686.20$ 718.14$
Sole Parent 527.58$ 552.14$
Ministry of Social Development
CPI General Adjustment Model
49 of 54
IN-CONFIDENCE#
Table 35
Ministry of Social Development
CPI General Adjustment Model
Benefit cut-out points, limits and thresholds
Table 35 Accommodation Supplement Income Limits for NZ Superannuation/Veterans pension
Opening Limits: 01/04/2023
Calculated Limits: 01/04/2024
Name
Opening Gross Weekly
Threshold
Calculated Gross Weekly
Threshold
35.01 Circumstance
Single person 671.59$ 702.85$
Married, civil union or defacto couple (with or without children) 975.49$ 1,020.90$
Sole parent with 1 dependent child 814.95$ 852.89$
Sole parent with 2 or more dependent children 858.59$ 898.56$
Ministry of Social Development
CPI General Adjustment Model
50 of 54
IN-CONFIDENCE#
Table 36
Ministry of Social Development
CPI General Adjustment Model
Table 36 Residential Care Subsidy
Opening Rate: 01/07/2023 Calculated Rates: 01/07/2023
Name
Opening Unrounded
Rate
Opening Rounded Rate Calculated Rounded Rate
36.01 Residential Care Subsidy Income-from-Assets Exemption
Rate 1 1,187.727896$ 1,188.00$ 1,188.00$
Rate 2 2,375.455792$ 2,376.00$ 2,376.00$
Rate 3 3,563.183689$ 3,564.00$ 3,564.00$
36.02 Residential Care Subsidy Thresholds
Threshold A 273,627.410368$ 273,628$ 273,628$
Threshold B 149,844.223292$ 149,845$ 149,845$
Miscellaneous rates and payments
Ministry of Social Development
CPI General Adjustment Model
51 of 54
IN-CONFIDENCE#
Table 37
Ministry of Social Development
CPI General Adjustment Model
Table 37 Average Regional Rents Information For Special Transfer Allowance
Opening Rate: 01/04/2023 Calculated Rates: 01/04/2024
Name
Opening 1
Bedroom Rent
Opening 2 Bedroom
Rent
1 Bedroom
Rent 2 Bedroom Rent
37.01 Average Regional Rents
Auckland Region 409.00$ 509.00$ 426.00$ 535.00$
Wellington Region 377.00$ 487.00$ 430.00$ 548.00$
Rest of New Zealand 306.00$ 396.00$ 329.00$ 426.00$
Miscellaneous rates and payments
Ministry of Social Development
CPI General Adjustment Model
52 of 54
IN-CONFIDENCE#
Table 38
Ministry of Social Development
CPI General Adjustment Model
Table 38 Work Bonus
Name
Rate Week 1 Week 2 Week 3 Week 4 Week 5 Week 6 Week 7 Week 8
38.01 Sole Parent Support 1 2 3 4 5 6 7 8
Sole Parent Support 494.80$ 494.80$ 394.80$ 294.80$ 194.80$ 94.80$ -$ -$ -$
38.02 Supported Living Payment Rate Week 1 Week 2 Week 3 Week 4 Week 5 Week 6 Week 7 Week 8
Single 16-17 Years 337.63$ 337.63$ 237.63$ 137.63$ 37.63$ -$ -$ -$ -$
Single, 18 Years 402.84$ 402.84$ 302.84$ 202.84$ 102.84$ -$ -$ -$ -$
Sole Parent 552.14$ 552.14$ 452.14$ 352.14$ 252.14$ 152.14$ 52.14$ -$ -$
Married, civil union or de facto couple (without children) Total 684.48$ 684.48$ 584.48$ 484.48$ 384.48$ 284.48$ 184.48$ 84.48$ -$
Married, civil union or de facto couple (without children) Each 342.24$ 342.24$ 292.24$ 242.24$ 192.24$ 142.24$ 92.24$ 42.24$ -$
Married, civil union or de facto couple (with children) Total 718.14$ 718.14$ 618.14$ 518.14$ 418.14$ 318.14$ 218.14$ 118.14$ 18.14$
Married, civil union or de facto couple (with children) Each 359.07$ 359.07$ 309.07$ 259.07$ 209.07$ 159.07$ 109.07$ 59.07$ 9.07$
Miscellaneous rates and payments
Ministry of Social Development
CPI General Adjustment Model
53 of 54
IN-CONFIDENCE#
Table 39
Ministry of Social Development
CPI General Adjustment Model
Table 39 Clothing Allowance for Unsupported Child's Benefit and/or Orphans Benefit
Opening Rate: 01/04/2023 Calculated Rates: 01/04/2024
Name
Clothing rate
(weekly)
Clothing rate (4-
weekly)
Clothing rate
(weekly)
Clothing rate (4-
weekly)
39.01 Age of child
0-4 years 23.92$ 95.68$ 25.03$ 100.12$
5-9 years 27.13$ 108.52$ 28.39$ 113.56$
10-13 years 33.50$ 134.00$ 35.06$ 140.24$
14+ years 40.19$ 160.76$ 42.06$ 168.24$
Miscellaneous rates and payments
Ministry of Social Development
CPI General Adjustment Model
54 of 54
The Aurora Centre, 56 The Terrace, PO Box 1556, Wellington
– Telephone 04-916 3300 – Facsimile 04-918 0099
R
eport
Date:
2
8 November 2023
Security
Level:
BUDGET SENSITIVE
To:
Hon Louise Upston, Minister for Social Development and
Employment
Indexing main benefits to inflation
Purpose of the report
1 This report seeks your decision on indexing main benefits to inflation and
discusses two options.
Executive summary
2 The Coalition Government has committed to indexing main benefits to
inflation (upwards movement in the Consumers Price Index (CPI)) for the
Annual General Adjustment (AGA) on 1 April 2024. This would change the
current legislative requirement to index main benefits to net average wage
growth.
3 Stats NZ will release CPI data on 24 January 2024 and wage data on 7
February 2024. The Ministry of Social Development (MSD) will use these
figures to determine the amount by which main benefits and other assistance
are increased for the 2024 AGA.
4 Current forecasts indicate that inflation will be higher than net average wage
growth for the 2024 AGA, meaning that if main benefits are indexed to
inflation from 1 April 2024, there will be an initial cost of $36.049 million for
fiscal years 2023/24 and 2024/25 and savings of $669.527 million over the
forecast period. By comparison, indexing main benefits to inflation from the
2025 AGA will incur no initial cost and will achieve $925.019 million in savings
over the forecast period. Both savings estimates are significantly lower than
what was included in your fiscal plan ($2,042 million). We understand that
the Treasury has advised the Minister of Finance of these savings estimates.
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Indexing main benefits to inflation 2
5 Compared to net average wage growth, indexing main benefits to inflation
will result in:
• savings over the forecast period
• the value of main benefit rates being maintained relative to the cost of
living
• lower main benefit rates in the long-term
• slower progress in achieving child poverty targets as set by the Child
Poverty Reduction Act 2018
• main benefit rates increasing at a rate that is not aligned with growth in
employment income and New Zealand Superannuation.
6 Officials have developed two options to achieve the Government’s
commitment. These options balance the commitment to a 2024
implementation, and maximising savings over the forecast period:
• Option 1: index main benefits to inflation from 1 April 2024 via an
urgent legislative process, with savings of $669.527 million over
the forecast period. This option prioritises a 2024 implementation but
incurs an initial cost and a legislative amendment would have to be
passed under urgency to meet 2024 AGA deadlines.
• Option 2: index main benefits to inflation from 1 April 2025 via a
truncated legislative process in 2024, with savings of $925.019
million over the forecast period. This option delays the
implementation date but maximises the potential savings and avoids
passing legislation under urgency.
7 Officials considered alternative approaches to achieving the commitment but
decided not to propose them as options as they do not provide certainty for
an annual adjustment mechanism or ensure savings through the Mini Budget
process. Officials also considered that Option 1 or 2 could broadly achieve the
outcomes of these approaches.
8 Officials are available to discuss this advice. Based on your decision, MSD will
work with the Treasury on any implications for the Mini Budget process,
including the process and timing for seeking Cabinet agreement to your
preferred option.
Recommended actions
It is recommended that you:
1 note that the current forecast indicates inflation will be higher than net
average wage growth for the 2024 Annual General Adjustment (AGA)
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Indexing main benefits to inflation 3
2 indicate whether you want to progress one of the following options in the
Mini Budget process
EITHER:
2.1 Option 1: index main benefits to inflation from 1 April 2024 via an
urgent legislative process, with savings of $669.527 million over the
forecast period
AGREE / DISAGREE
OR
2.2 Option 2: index main benefits to inflation from 1 April 2025 via a
truncated legislative process in 2024, with savings of $925.019 million
over the forecast period
AGREE / DISAGREE
3 note that based on your decisions, the Ministry of Social Development will
work with the Treasury on any implications for the Mini Budget process,
including the process and timing for seeking Cabinet agreement to your
preferred option
4 agree to forward this advice to the Minister of Finance
AGREE / DISAGREE
5 agree to forward this advice to other Ministers involved in the AGA process
(Housing, Tertiary Education and Skills, Health, Veterans, and Children).
AGREE / DISAGREE
Simon MacPherson
Deputy Chief Executive
Policy
Date
Hon Louise Upston
Minister for Social Development and
Employment
Date
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Indexing main benefits to inflation 4
The Government has committed to indexing main benefits to
inflation from 1 April 2024
9 The Government has committed to indexing main benefits to inflation
(upwards movement in the Consumers Price Index (CPI)) from the 1 April
2024 Annual General Adjustment (AGA). An overview of the AGA process is
attached at Appendix 1.
10 For the purposes of this paper:
• inflation refers to any percentage movement upward in the CPI for the
December quarter, compared with the December quarter of the preceding
year
• CPI means the Consumers Price Index (all groups) published by Stats NZ
• average ordinary time weekly earnings means average ordinary time
weekly earnings (per full-time equivalent) as determined by the
Quarterly Employment Survey produced by Stats NZ (after the deduction
of standard tax, and ACC earner levies, payable as at 1 April of the
following year, on those earnings)
• net average wage growth refers to any percentage movement
upwards in net average ordinary time weekly earnings for the December
quarter, compared with the December quarter of the preceding year
• main benefits means types of assistance listed in section 452A (Orders
in Council: mandatory annual average weekly earnings adjustment of
rates of main benefits) of the Social Security Act 2018,1 which are listed
in paragraph 13 of this report.
The Social Security Act 2018 currently requires main benefits
to be adjusted by net average wage growth
11 There is a long historical precedence for the indexation of main benefits. From
1989 to 2010, main benefits were adjusted by Cabinet agreement each year
(except in 1991) without any legislative requirement. In 2010, the
Government legislated for annual adjustments of main benefits to inflation.
12 The rationale for the legislative requirement was to provide certainty of
annual adjustments and a legislative assurance that main benefit rates would
not decrease. Despite having different indexation regimes, an additional
reason for legislating annual benefit adjustments was to align practice with
New Zealand Superannuation (NZS) in providing a legislative requirement for
1 This definition is different to the statutory definition of ‘main benefits’ in schedule 2 of
the Social Security Act. ‘Main benefits’ is used differently in this paper to capture the types
of assistance that would be impacted by changing the current requirement to index by net
average wage growth in section 452A of the Social Security Act.
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Indexing main benefits to inflation 5
indexation [SOC (10) 13 refers].2 Annual adjustments of NZS rates have
been required in legislation since 1993.
13 Since 2020, legislation has required main benefits to be indexed to net
average wage growth. Section 452A of the Social Security Act requires that
the following types of assistance must be adjusted by net average wage
growth on 1 April each year:
• Jobseeker Support
• Sole Parent Support
• Supported Living Payment
• Youth Payment and Young Parent Payment
• Grandparented rates of Widows’ Benefit and Domestic Purposes Benefit
• Blind Subsidy threshold
• Housekeeper’s Allowance.
14 Section 452A only allows for an adjustment on 1 April that does not reduce
the rate payable. This means that main benefit rates cannot be decreased via
the AGA, even if average ordinary time weekly earnings reduce over the
relevant period.
15 Section 453 of the Social Security Act lists items of assistance that must be
indexed to percentage movements in the CPI on 1 April each year. To legislate
for main benefits to be indexed to inflation, section 452A must be repealed
and main benefits would be inserted into section 453. This requires a primary
legislative amendment.
There are flow-on considerations for other types of assistance
16 There are other types of assistance that are consequentially impacted by
changes to how main benefits are indexed. The fiscal impacts can range from
minor to significant, and largely depend on the size of the recipient cohort
and the amount payable. The following list (non-exhaustive) demonstrates
some of the types of assistance impacted by changes to main benefit
indexation.
• Accommodation Supplement (AS) abatement thresholds for non-
beneficiaries. These thresholds are linked to the Jobseeker Support
abatement regime, meaning any change to Jobseeker Support rates via
2 There is a legislative requirement to adjust NZS rates (on 1 April each year) by annual
increase in the CPI, and consequently ensure the net weekly amount of NZS payable to a
couple is not less than 66 percent, or more than 72.5 percent, of the net average wage (a
‘wage band’). the single living alone and single sharing rates must be adjusted to be 65
percent and 60 percent of the net married couple rate respectively.
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Indexing main benefits to inflation 6
indexation will impact the point at which non-beneficiary AS begins to
abate.
• Income related rents. Income related rents for public housing tenants
are generally calculated to be 25 percent of the household income. If
main benefits are increased at a lower rate when compared to the status
quo, a higher rate of Income Related Rent Subsidy will be paid through
Vote Housing and Urban Development.
• Minimum Family Tax Credit (MFTC). This tax credit provides a
financial incentive to ensure low income working families remain better
off financially in full-time work than they would be on a main benefit. For
the tax credit system to work as intended, the lower limit of the MFTC
must increase according to the increase in main benefits to maintain rate
relativities and work incentives. Therefore, a lesser increase to main
benefits will mean a lesser increase in the MFTC, ultimately resulting in
less expenditure over time.
17 Most MSD assistance that will be consequentially impacted by indexing main
benefits to inflation has been accounted for in the costings for this paper.3
The impact on the MFTC has not be accounted for in this paper. You and the
Minister of Revenue will receive advice separately on the main benefit
indexation impacts for the MFTC within wider advice on Working for Families.
Some items are indexed to net average wage growth, separately to the
indexation of main benefits
18 Income limits for both Childcare and Hardship Assistance4 have been indexed
to net average wage growth as Cabinet practice since 2021 and 2022,
respectively. An amendment to section 452A will not impact the net average
wage adjustment of these thresholds on 1 April.
19 Childcare and Hardship Assistance is paid to a range of people, including low-
income working families. Indexing these income limits to net average wage
growth means that eligibility for this assistance is maintained relative to the
growth in income of the receiving cohort.
20 If you would like to receive advice on changing the indexation settings for
Childcare and Hardship Assistance, MSD can provide this in time for the 2025
AGA.
3 The modelling does not include the fiscal impact on Special Needs Grants, Recoverable
Assistance Payments for Non-Beneficiaries, or the Emergency Housing contribution.
4 Hardship Assistance includes Advance Payments of Benefits, Special Needs Grants, and
Recoverable Assistance Payments for Non-Beneficiaries.
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Indexing main benefits to inflation 7
Forecasts indicate that inflation will be higher than net
average wage growth for the 2024 Annual General
Adjustment, but lower over the forecast period…
21 Over the long-term, inflation tends to be lower than net average wage
growth. Prior to 2021, the last time inflation was higher than wages was
following the increase to goods and services tax (GST) in 2010. However,
from time-to-time, it is possible for inflation to exceed wage growth. For the
AGA in 2022 and 2023, inflation was higher than net average wage growth.
22 Stats NZ will release the CPI data on 24 January 2024 and gross wage data
on 7 February 2024.5 These figures will be used to determine the overall
percentage adjustments for the 2024 AGA.
23 For main benefit adjustments, MSD calculates a net figure from the gross
wage figure released by Stats NZ. The calculation applies the PAYE tax and
ACC earner levies to determine net average wage growth. The Treasury uses
the gross wages figure when producing periodic fiscal updates and MSD
converts this to a net figure for our forecasting models.
24 The Treasury’s 2023 preliminary Half-Year Economic and Fiscal Update
(preliminary HYEFU) indicates that inflation will be higher than net average
wage growth for the 2024 AGA. As preliminary HYEFU remains sensitive due
to its high level of restriction, it has only been used in modelling the impact of
the policy change on the operating balance. We cannot provide you with the
CPI and net average wage estimates over the forecast period while
preliminary HYEFU remains sensitive.
25
… meaning an initial cost to government if main benefits are
indexed to inflation from 1 April 2024
26 The Treasury’s preliminary HYEFU shows that indexing main benefits to
inflation will incur an initial cost of $36.049 million for fiscal years 2023/24
and 2024/25 before savings begin to accumulate (Table 2). The initial cost in
the first two fiscal years constrains the amount of total savings to $669.527
million over the forecast period.
5 Wage data will be converted to an after-tax figure before growth is calculated.
s9(2)(f)(iv)
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Indexing main benefits to inflation 8
Table 2: Impact on the operating balance if main benefits are indexed to
CPI from 1 April 2024 (preliminary HYEFU 2023)
$m – increase / (decrease)
2023/24 2024/25 2025/26 2026/27 2027/28 Total
Total impact 14.342 21.707 (118.085) (243.509) (343.982) (669.527)
By comparison, indexing main benefits to inflation from the
1 April 2025 AGA would have no initial cost and achieve
greater savings over the forecast period
27 As inflation is forecast to be lower than wage growth by April 2025, officials
have modelled an alternative implementation date of 1 April 2025. Indexing
main benefits to inflation from 1 April 2025 is not expected to incur an initial
cost and would lead to greater savings ($925.019 million) over the forecast
period.
Table 3: Impact on the operating balance if main benefits are indexed to
inflation from 1 April 2025 (preliminary HYEFU 2023)
$m – increase / (decrease)
2023/24 2024/25 2025/26 2026/27 2027/28 Total
Total impact - (36.350) (177.940) (303.815) (406.914) (925.019)
28 The greater savings achieved in Table 3 (compared to Table 2) is because the
modelling assumes that main benefits remain adjusted to net average wage
growth in 2024. Indexing to net average wage growth in 2024 means main
benefits start at a lower level for adjustments from 2025, which ultimately
leads to greater savings over the forecast period.
29 Tables 2 and 3 are based on assumptions made for the preliminary HYEFU
forecast. These amounts will be revised, based on the final publication of
HYEFU and MSD will work with the Treasury to determine implications for the
Mini Budget process. The CPI and wage data figures published by Stats NZ in
January and February 2024 will determine the actual impact on Crown
expenditure for the 2024 AGA.
30 The savings estimates for both Options 1 and 2 are significantly lower than
the savings of $2,042 million included in your fiscal plan. We understand that
the Treasury has advised the Minister of Finance of these savings estimates.
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Indexing main benefits to inflation 9
Indexing main benefits to inflation will achieve savings and
maintain benefit rates relative to the cost of living
31 The savings achieved from indexing main benefits to inflation will mean
funding will be available to address other Government priorities that support
households with a high cost of living
32 One of the key purposes of the benefit system is to provide financial
assistance to support people when out of work, and to help alleviate
hardship. Indexing main benefits to inflation and ensuring beneficiary
incomes do not decline in real terms is a key lever to fulfil this purpose.
33 CPI indexation would align main benefit adjustments with the current inflation
adjustments for Student Allowances, Working for Families Tax Credits,
Orphan’s Benefit, and Unsupported Child’s Benefit. The relativities between
these items of assistance and main benefit rates would keep pace with each
other.
There will be other implications, including lower main benefit
rates in the long-term and slower progress in child poverty
reduction
34 Adjusting main benefits by inflation means that beneficiary incomes will be
lower in the long-term. PREFU modelling estimates a notable difference in
rates if main benefits are indexed to inflation, compared to net average wage
growth. Although incomes will be maintained in real terms through CPI
indexation, it would lead to a growing gap between main benefits and
working incomes over the long-term (assuming wages continue to grow over
time). A forecast adjustment to main benefit rates, comparing net average
wage growth and CPI indexation from 2024 is attached at Appendix 2.
35 Officials expect that indexing main benefit rates to inflation (the lower
measure when compared to net average wage growth over the forecast
period) would result in slower progression toward child poverty targets as set
by the Child Poverty Reduction Act 2018. The impact of changing indexation
methods on child poverty rates is likely to be modest at first but will increase
over time. When main benefits were indexed to wage growth in 2020,
modelling estimated that around 5,000 fewer children would be below the
BHC50 poverty thresholds by the last year in the forecast period (at that
time).6
6 Before Housing Costs 50 percent moving line: measures the number and percentage of
children living in households with less than 50 percent of the median equivalised
disposable income before housing costs for the financial year.
s9(2)(f)(iv)
s9(2)(f)(iv)
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Indexing main benefits to inflation 10
Officials have identified two options for indexing main
benefits to inflation, which trade off a 2024 implementation
timeframe with maximising savings
36 Due to the forecast indicating that CPI will be higher than net average wage
growth for the 2024 AGA, an immediate change to indexation settings will
result in an initial cost to government. We understand this may not align with
your fiscal objectives. Officials have developed two options which balance
achieving the Government’s commitment and maximising savings.
Option 1: index main benefits to inflation from 1 April 2024
37 This option would reflect the fiscal plan of indexing main benefits to inflation
by 2024. The advantage of this approach is that it clearly fulfils the
commitment and strongly signals your preference for inflation as an
adjustment measure.
38 However, this option will incur a cost estimate of $36.049 million in the first
two fiscal years and result in higher base rates for main benefits for future
adjustments (compared to a net average wage growth adjustment in 2024).
This would constrain the total savings over the forecast period to total net
savings of $669.527 million.
39 To repeal the current requirement to adjust by net average wage growth and
insert main benefits into section 453, Cabinet must agree to amend the Social
Security Act under urgency to meet the 2024 AGA timeframes. The legislative
amendment must be passed by 8 March 2024 at the latest to meet IT
deadlines. However, ideally, the urgent legislative process would be
undertaken before the end of 2023 to enable sufficient time to meet the
necessary legislative milestones for the 2024 AGA.
40 Should you agree to Option 1, MSD will work with the Treasury and the
Parliamentary Counsel Office to meet Mini Budget and legislative timeframes.
Option 2: index main benefits to inflation from 1 April 2025
41 Indexing main benefits to inflation from 2025 allows you to fulfil your
commitment a year later than intended. However, compared with Option 1,
implementation on 1 April 2025 is expected to achieve greater savings over
the forecast period ($925.019 million) that could be accounted for in the Mini
Budget process (subject to Cabinet agreement). This would also maintain
legislative capacity for other initiatives that are due to be progressed in the
short-term (between now and April 2024).
42 Option 2 also avoids passing legislation under urgency. Although the
legislative process would likely be truncated, it still provides for a more
fulsome process with a higher amount of public and parliamentary scrutiny.
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Indexing main benefits to inflation 11
Alternative approaches to achieving the Government’s commitment
were considered but officials decided not to propose them as options
43 When developing this advice, officials worked through several other
approaches to index main benefits to inflation, which are described below.
44 Retain the current legislative framework for the 2024 AGA and ‘top
up’ main benefits to inflation. Repeal the legislative framework in
time for the 2025 AGA.
• This approach would have avoided urgent legislation and would have
indexed main benefits to inflation from 2024 (like Option 1).
• This approach was discounted as it incurs the same cost as forecast for
Option 1 and delaying the primary legislative amendment may not
strongly signal the commitment of inflation as a preferred adjustment
mechanism.
45 Pass legislation under urgency to index main benefits to inflation but
retain flexibility for when the change commences (2024 or 2025) via
Order in Council.
• This approach would have required main benefits to be indexed to
inflation by 2025 at the latest, but the change could commence in 2024
by Order in Council.
• This would signal the commitment to CPI indexation but provide flexibility
in determining the commencement date after the release of wage data in
early February 2024.
• This approach was discounted as it still required passing legislation under
urgency, despite the possibility of 2025 commencement. The forecast
indicates that the fiscal outcomes achieved by this approach could
ultimately be achieved by Option 2.
46 Repeal section 452A under urgency, but do not insert a legislative
requirement to adjust main benefits to inflation.
• This approach would involve removing section 452A in time for the 2024
AGA, and the authority for indexing main benefits to inflation would be
authorised by Cabinet practice. Depending on the nature of the practice,
it could provide savings. It would also allow for flexibility in responding to
economic changes (e.g. if CPI was considerably high in a year of fiscal
constraint).
• The legislative requirement to adjust main benefits each year is an
important part of providing security in maintaining the value of main
benefit rates over time and is aligned with the indexing requirement for
NZS. A policy change of such significance would desirably be undertaken
via a full legislative process to allow for appropriate parliamentary and
public scrutiny.
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Indexing main benefits to inflation 12
Next steps
47 Officials are available to discuss the advice in this paper.
48 Based on your decision, MSD will work with the Treasury on implications for
the Mini Budget process, including the process and timing to seek Cabinet
approval for your preferred option.
49 MSD can provide further advice on the process for the legislative amendment,
either immediately should you choose Option 1, or in early 2024 should you
choose Option 2.
Appendix
50 Appendix 1: Summary of the Annual General Adjustment process
51 Appendix 2: Forecast main benefit rates (PREFU 2023)
File ref: REP/23/11/891
Author: Katie Tollan, Policy Analyst, Income Support Policy
Responsible manager: Bede Hogan, Manager, Income Support Policy
Released under the Official Information Act 1982
Appendix 1: Summary of the Annual General Adjustment process 1
Appendix 1: Summary of the Annual
General Adjustment process
The Annual General Adjustment (AGA) occurs on 1 April
every year
1 The AGA involves an adjustment to benefit rates and thresholds on 1 April
every year. The AGA ensures that social assistance payments retain value
over time.
2 Under the Social Security Act 2018, main benefits must be increased by the
upwards movement in the net average wage each year.
3 The Social Security Act also requires the hospital rates of main benefits, and
rates of Orphan’s Benefit/Unsupported Child’s Benefit to be adjusted by the
upwards movement in the Consumers Price Index (CPI) (compared to the
upwards movement in the CPI in the same quarter of the preceding year).
4 There is also a legislative requirement to adjust the rates of New Zealand
Superannuation and Veteran’s Pension with effect from 1 April each year,
following a prescribed process:
• the net weekly rates must be adjusted on 1 April each year in line with
any annual percentage increase in the CPI for the year ending the
previous 31 December
• the net weekly amount payable to a married/civil union/de facto couple
must not be less than 66 percent, or more than 72.5 percent, of the net
average wage
• the single living alone and single sharing rates must be adjusted to be 65
percent and 60 percent of the net married couple rate respectively.
5 The Oranga Tamariki Act 1989 requires the Foster Care Allowance (FCA)
Minimum Rates of Payment for Board and Lodgings be adjusted by the CPI.
6 Further, the Education and Training Act 2020 requires Student Allowances to
be adjusted by upward movement in the CPI on 1 April every year.
7 Adjustment of other rates, allowances and thresholds is authorised by a
Cabinet delegation. This includes Student Loan living costs, Community
Services Card income thresholds, and approximately 40 items of
supplementary assistance (e.g. Disability Allowance).
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Appendix 1: Summary of the Annual General Adjustment process 2
The process for updating the rates requires legislative
change
8 In 2002, Cabinet delegated the authority for approving AGA adjustments to
the Minister of Finance and the Ministers responsible for New Zealand
Superannuation, Veteran’s Pension, social security benefits and allowances,
the Community Services Card and Student Allowances [CAB Min (02) 7/1A
refers].
9 The rates that are adjusted are contained in various Schedules to Acts,
Regulations, Ministerial Directions and Welfare Programmes. Any change to
rates requires the relevant legislation to be changed.
10 The delegated authority from Cabinet provides the policy authority to make
the necessary legislative amendments.
The process also requires the involvement of several
Ministers
11 Alongside the Minister for Social Development and Employment, the other
Ministers involved with the AGA are: Finance; Housing; Tertiary Education
and Skills; Health; Veterans; and Children. The Minister of Finance is involved
because of the financial implications of the AGA, while the other Ministers are
involved because of the relevant rates and thresholds that are part of the
AGA process as follows:
• Minister of Housing – Accommodation Supplement (entry thresholds),
social housing thresholds and limits
• Minister for Tertiary Education and Skills – various Student Allowance and
Student Loans thresholds and rates
• Minister of Health – Community Service Card income thresholds and
various Residential Care Subsidy related rates
• Minister for Veterans – Veteran’s Pension rates
• Minister for Children – Foster Care Allowance, Orphan’s Benefit,
Unsupported Child’s Benefit and related payments.
The AGA has fixed dates and a tight timeframe
12 Stats NZ will release the CPI figure on 24 January 2024 and average wage
data on 7 February 2024.
13 The final rates and thresholds adjusted via the AGA must be confirmed by 8
March 2024 to update IT systems and enable payments to be made from 1
April 2024.
14 Table 1 outlines the key actions and provisional dates for the 2024 AGA. The
dates are subject to confirmation of the Cabinet meeting schedule.
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Appendix 1: Summary of the Annual General Adjustment process 3
Table 1: Key actions and provisional dates (subject to the confirmation of
the Cabinet meeting schedule) for the 2024 AGA
Provisional date To Whom Item Date Required
8 February 2024 All Ministers Joint report
requesting approval
of the new rates
9 February 2024 -
response required to
MSD
13 February 2024 Minister for
Social
Development
and
Employment
Final Cabinet
Legislation Committee
paper for amending
rates
Due at Cabinet Office
by 10am Thursday
15 February 2024
22 February 2024 Cabinet
Legislation
Committee
Legislation paper to
amend rates is
considered
23 February 2024 Minister for
Social
Development
and
Employment
Report on
amendments to
Welfare Programmes
and Ministerial
Directions
26 February 2024 -
response required to
MSD to meet 28-day
rule
26 February 2024 Cabinet and
Executive
Council
Legislation paper to
amend rates is
approved
Final date for AGA changes
8 March 2024 MSD must finalise
adjustments for IT
systems
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