Hugh Frazer Adjunct Professor, NUI Maynooth Coordinator, EU Network of independent experts on social inclusion

1. European Federation for Street ChildrenFighting against child poverty and promoting social inclusion as a priority for implementing EU social policy in Central and Eastern European Member States Hugh Frazer Adjunct Professor, NUI Maynooth Coordinator, EU Network of independent experts on social inclusion

2. My overall thesis • Effective strategies for street children need to be set in the context of effective overall strategies to promote the social inclusion of all children • better for prevention • better for gaining widespread public support in favour of children THUS • You should press your Member States in their 2008-2010 NSRSPSI to develop a comprehensive strategy on child poverty and social exclusion and to include within this a specific sub-objective and set of actions on street children

3. A Growing Priority for the EU • Since 2001 child poverty has become a growing priority within the EU • EU’s Social Inclusion and Protection Process 2001-2010 • aim: “to make a decisive impact on the eradication of poverty by 2010” • EC Communication on Rights of Child (July 2006) • recognition of children’s rights and social inclusion in EU’s objectives in 2007 Lisbon Treaty • Why? • Scale and persistence of problem • Threat to fundamental rights • Ageing population • Negative impact on economic and social development • Enlargement

4. Extent and nature A complex and multi-faceted issue • Child poverty is linked to: • Inadequate income • Lack of work and inadequate income supports • Poor access to essential services • housing/environment, health care, child care, social services • Limited developmental and participation opportunities • education and sport/recreational/cultural activities • And can be compounded by: • Discrimination and segregation • immigrant & some ethnic minorities (especially Roma), asylum seekers • children with disabilities • Homelessness, • Violence & exploitation • Domestic violence, trafficking & sexual exploitation, child labour • Institutionalisation • Crime and drug/alcohol abuse • Indebtedness • Isolation (both rural isolation, urban ghettoisation) • Gender inequality • Interconnectedness of problems leading to multiple deprivation • Intergenerational inheritance

5. Extent and nature Some key findings • Shared problem but great variety in extent and intensity across EU Member States • Children are at greater risk of poverty than adults • MS where extent is greatest are also often where problem is most severe

6. THE EXTENT OF THE PROBLEMAt-risk-of-poverty rates in EU-27 (%), total pop. & children, 2005  19 million children at risk (adults 16%) great variety between countries (also v. different thresholds)

7. Monthly at-risk-of-poverty threshold (illustrative values) for a household with 2 adults and 2 children, EUR and PPS, 2005

8. DEPTH OF POVERTYAt-risk-of-poverty rates in the EU (%), vs. at-risk-of-poverty gap, children, 2005countries with highest rates tend to also be those with high intensity

9. Mean deprivation index in economic strain + enforced lack of durables dimension, by household type, SILC 2005 Source: Eurostat, EU-SILC survey year 2005.

10. Main Groups at Risk • Lone parent households • 35% of children in lone parent families are at risk of poverty in EU (ranges from 20% to 57%) • Large households (3+ children) • 25% of children in large families are at risk of poverty (ranges from 9% to 47%) • Jobless households • but also those in low paid and insecure employment • High risk for immigrant and ethnic minority children (especially Roma)

11. Children At Risk of Extreme Poverty • children living in/leaving institutions • children with a disability • victims of violence, abuse and trafficking • unaccompanied migrant children • child forced into child labour • children with parents working abroad • homeless/street children

12. Preconditions for effective action

13. Political priority and public support- make children and families in general and child poverty in particular a political priority HOW? • promoting the inclusion of children or the eradication of child poverty can be included as a specific goal or priority in a country’s programme for government or in key policy documents like National Development Plans or Partnership Agreements; • a Minister can be appointed with particular responsibility for co-ordinating and developing policies in relation to children; • a political commitment to develop a strategy for children can be made; • tackling child poverty can be made one of the 3 or 4 key objectives in social inclusion strand (NAPs/inclusion) of a Member State’s National Report on Strategies for Social Protection and Social Inclusion.

14. Commitment to children’s rights and to anti-discrimination • UN Convention on the Rights of the Child • puts the needs of the child at the centre of policy making • puts the focus on addressing the specific needs of the child here and now and not just on improving the position of their families and the communities in which they live • provides a useful framework for developing a comprehensive strategy to prevent and reduce child poverty • mix of survival rights, development rights, protection rights and participation rights • puts the focus on the best interests of the child and on accountability and responsibility of both national authorities and families to ensure this • puts a focus on the importance of adopting and enforcing strong legislation against discrimination as an essential element in preventing and reducing poverty and social exclusion • recognises the role of the family in promoting the well-being of the child • promotes respect for the views of the child and their participation NB - EC Communication on Children’s Rights (July 2006); - adoption of Angelelli Report by European Parliament on 16th January 2008; - recognition of children’s rights and social inclusion in EU’s objectives in Lisbon Treaty

15. Clear objectives, priorities and targets - 1 • A key element in developing a strategic approach to tackling child poverty is the establishment of clear priorities including the setting of specific goals and targets • “Efforts to tackle poverty – of children and overall – gain leverage if underpinned by overall quantified objectives that are based on an evidence-based diagnosis of the main causes of poverty and exclusion in each Member State”. EC Joint Report on Social Protection and Social Inclusion 2008, Brussels, 2008 • Why set targets? • a significant political statement of purpose and ambition in terms of eradicating poverty and social exclusion which can lead to increased policy effort; • a goal against which to measure progress and thus a means of creating a dynamic process characterised by openness and accountability; • a tool for promoting awareness of the process and thus for encouraging and mobilising all actors in support of it; • a focal point around which to concentrate the efforts of policy makers and practitioners. • NB The EC has provided a useful paper on setting targets in its guidance note for the 2008-2010 NRSSPSI[1] and Marlier, Atkinson et al include an extensive discussion on target setting in The EU and Social Inclusion (Policy Press, 2007)

16. Clear objectives, priorities and targets - 2 • An overall objective might be: • make a significant reduction in the number of children at risk of poverty and social exclusion by 2010; or, • significantly reduce the proportion of children experiencing basic deprivation (or experiencing persistent poverty) by 2010. • Objectives in relation to specific policy domains could cover things such as: • ensure that all children have an adequate minimum level of income; • reduce the number of children living in jobless households; • ensure that all children stay in education until 16 or reduce the number of children dropping out of school; • increase the healthy life expectance at birth; • increase access to basic health and social services; • reduce the number of children living in substandard accommodation; • ensure that all children have access to cultural, sporting and recreational activities.

17. Clear objectives, priorities and targets - 3 • Objectives in relation to particularly vulnerable groups of children could cover things such as: • improve the position of Roma children/children from an ethnic minority/children of migrants/children with a disability/children from a lone parent family to ensure that they achieve the same average standard of living and access to services as all children in the country; • make a decisive reduction in the number of homeless or street children; • reduce the number of children living in institutions; • ensure that all unaccompanied children awarded a status within that country have access to a systematic programme of integration. • Process objectives could include areas such as: • ensure that children experiencing poverty, their families and the organisations that work with them are involved in the development, implementation and monitoring of the national strategy; • develop arrangements to ensure that children living in poverty have a voice in matters which affect them and that their views will be given due weight in accordance with their age and maturity; • ensure that children have the information necessary to access essential services and rights; • strengthen the institutional arrangements for mainstreaming and coordinating efforts to eliminate child poverty across all areas and levels of government; • develop effective local networks or partnerships of government agencies, social partners and NGOs to coordinate the delivery of policies and programmes to promote the inclusion of children; • identify and address gaps in data and analysis on child poverty and social exclusion; • develop clear procedures for monitoring and reporting on progress on child poverty

18. Policy Mainstreaming and Coordination • Mainstreaming • integrating a concern with the well-being and social inclusion of children into all relevant areas of policy-making • requiring all Ministries to include promoting social inclusion in general or the social inclusion of children in particular into the objectives of their ministry; • appointing an official in each Ministry who is responsible for social inclusion issues; • requiring all policies to be proofed before they are adopted for their potential impact on the social inclusion of children and/or on children generally and also monitoring their impact subsequently; • creating a committee of the cabinet to ensure political coordination; • creating a high-level committee of senior officials to regularly review progress and to link a strategy on child poverty or social inclusion with other key national strategies and programmes; • making child poverty a key priority in the annual budgetary process; • creating a committee or working group of officials from all ministries to meet regularly to prepare a strategic approach, to oversee its implementation and to ensure that it is monitored and evaluated. In some countries this may also include representatives from regional and local government, social partners, NGOs and experts • See: K. O’Kelly and I. Litewska, Better Policies, Better Outcomes: Promoting Mainstreaming Social Inclusion, Combat Poverty Agency, 2006

19. Mobilisation and involvement of all actors • Why? • Better and more informed policy making • Mobilises a broader range of resources and actors who can contribute to implementing policies • Better monitoring of policies

20. Involving children in decision making - 1 • Why involve children • UNCRC Article 12.1 [“States Parties shall assure to the child who is capable of forming his or her own views the right to express those views freely on all matters affecting the child, the views of the child being given due weight in accordance with the age and maturity of the child”.] • Recognition of children as actors in their own right with a right to be heard • Ideas, experience and insights that improve adults understanding of problems and thus better decision making • Reinforces a sense of children having rights • Promotes empowerment and personal development of the child • A way to counter abuse of power by adults

21. Involving children in decision making - 2 • Making it happen • Build consultative & participative opportunities from the bottom up • start in the family • from schools, youth organisations to children and young people’s fora (e.g. Ireland), young people’s parliaments (e.g. Cyprus, Portugal) • role of Ombudspersons • preparation of NAPs/inclusion (underdeveloped to date) • European networks (e.g. Eurochild/European Parliament receptions • Surveying children’s opinions • Participative research projects consulting children living in areas of high poverty NB See Eurochild and Euronet for good practice guidelines on consultation and participation

22. Good Research and Data • Essential for • good analysis and diagnosis of the problem • effective monitoring of progress • making comparisons with other countries • Data needs to be • high quality • timely • based on appropriate multidimensional indicators • quantitative and qualitative • longitudinal so as to measure changes over time and long-term impact • Specific monitoring tools for most vulnerable children • Not covered by standard surveys • Use administrative/register sources • Institute regular collection and monitoring of data

23. A Comprehensive Policy Framework There is no one solution • a multidimensional, comprehensive and joined-up policy approach and coordinated delivery is necessary to address the complexity of the issue 4 Key elements 1. Ensure an Adequate Income • increase access of parents (especially women) to employment • reconciling work and family life – flexible working – targeted training and activation – incentives to employers • make work pay for parents • minimum wage – retaining benefits on moving into work - in-work benefits – reducing employment traps – prioritising tax reliefs – reducing costs associated with employment - raising skills levels – reducing irregular employment • provide adequate income support to families with children 2. Improve Access to Services • decent housing and safe environment • access to health and social services for all children • inclusive education systems which counter/prevent educational disadvantage • early education - preventing school drop out - integrating minorities - reducing financial barriers • affordable, high quality child care • affordable transport

24. A Comprehensive Policy Framework 3. Ensure Care and Protection • early intervention and support to vulnerable families • effective child protection services for children at risk • deinstitutionalisation and support in the community 4. Promote Participation • opportunities to participate in social, cultural, sporting & recreational activities

25. 3 cross-cutting themes • Early intervention • aim at ensuring the best start in life for every child by combining early education with childcare, health and family support services, parental outreach and employment advice for disadvantaged families • Balance universal and targeted policies • “. . . it would seem that the most successful Member States are those that adopt a predominantly universal approach based on a strong belief in preventing problems arising and in ensuring equal opportunities for all children backed up as necessary by targeted policies to address particular extreme situations – a sort of tailored universalism. While there may be pressure in Member States with the most severe problems to focus on alleviation it is nevertheless true that the structural nature of the phenomenon makes it urgent to combat poverty and social exclusion under a more preventative approach as well.”[Tackling child poverty and promoting the social inclusion of children in the EU: Key lessons, 2007] • Balance prevention and alleviation • policy can seek both to reduce the extent of societal inequalities in childhood socio-economic circumstances, and to weaken the linkages between those circumstances and the opportunities that people face as they pass through education system and into the labour market

26. “the (EU) countries achieving the best outcomes are those that perform well on all fronts, notably by combining strategies facilitating access to employment with enabling services (child care, etc.) and income support.” [Child poverty and well-being in the EU, SPC, 2008]

27. Effective delivery - 1 Partnership/networking and participation • partnership and dialogue at local levels help with the identification of problems and disadvantaged groups, in directing social assistance and in activating people experiencing poverty and social exclusion The local dimension • support needs to be close to where people are and needs to be coordinated and integrated at point of delivery • vital to involve local actors in the preparation, implementation and monitoring of plans • define clearly the roles and responsibilities of the different levels of governance and ensure that they are mutually reinforcing Continuity and creating pathways for progression • some families and children may only need particular help and assistance intermittently or in the short term • others will need longer-term and consistent support which fosters their personal growth and development over time, Thus ensure that services are developed with a long-term perspective

28. Effective delivery - 2 Flexible and tailored responses • services need to be delivered in ways that respond to the needs of each child and their family. i.e. flexible and delivered in a way that is tailored to meet their particular needs. A community development approach • deliver policies and programmes in ways which empower people and avoid stigmatising them • community development can: • contribute significantly to “strengthening the quality of community life in disadvantaged communities by promoting strong family, social and community networks and a healthy infrastructure of community and voluntary organisations • empower parents and children who are at risk of exclusion and isolation • help parents and children to act together to change their situation and to work together with others to overcome barriers to their active participation in society such as poverty, lack of access to resources, rights, goods and services and discrimination Regular monitoring and reporting • increases accountability • encourages continuous improvement

29. Summary5 key points • five essential actions to ensure an effective strategy 1. Make the social inclusion of all children and the reduction of child poverty a high political goal and establish institutional arrangements for mainstreaming and coordinating policy efforts to promote the social inclusion of children across all policy domains and in all key policy documents. In doing so, invest in building the capacity of national, regional and local administrations to deliver policies in a co-ordinated manner on the ground in partnership with children living in poverty, their parents and the organisations that work with them. 2. Develop effective income support schemes that will guarantee that all families with children have an income sufficient to live life with decency and will ensure their personal development. In working towards this first focus on raising the incomes of those who are in acute poverty and those at risk of being long-term in poverty. 3. Assist the transition to work for unemployed parents with young children and those parenting alone through a combination of education and employment measures, affordable and accessible childcare and income supports. Give especial attention to those experiencing extreme and long-term poverty. 4. Increase the access of children living in poverty to essential services (especially housing, child care, health services, family and social services and education) so as to ensure their well-being and personal development. Give a particular priority to intervening early to support children and families in acute poverty and at risk of living in persistent poverty. 5. Ensure that there is effective legislation in place to promote children’s rights and to counter discrimination against children and families from ethnic minorities (especially the Roma) and that appropriate institutional arrangements are in place to enforce anti-discrimination legislation and to promote their inclusion in mainstream society.

30. At the end of the day preventing and reducing child poverty is an essential task for all countries. It is an investment not only in the rights and well-being of children but in the human and social capital of a nation and thus in its future economic, social and cultural well-being. Child poverty and exclusion will not disappear without well planned and coherent strategies to promote the inclusion of children. Progress involves making a conscious choice to prioritise and invest in children and their families. Conclusion

31. Some useful sources • EU Social Inclusion Commission web site at http://ec.europa.eu/employment_social/spsi/child_poverty_en.htm • Social Protection Committee, Child Poverty and Well-Being in the EU Current status and way forward, European Commission, 2008 • H. Frazer, E. Marlier, Tackling child poverty and promoting the social inclusion of children in the EU: Key lessons, European Commission 2007, available at http://www.peer-review-social-inclusion.net/policy-assessment-activities/reports/first-semester-2007/synthesis-report-2007-1/ • E. Marlier, A. Atkinson, B. Cantillon, B. Nolan, The EU and Social Inclusion: Facing the challenges,The Policy Press, 2007