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This report from New Zealand to the Commission for Social Development, United Nations pertains to the review and appraisal of the Madrid International Plan of Action on Ageing. It responds to the request from the United Nations for member states to report on actions undertaken since the Second World Assembly on Ageing in 2002. The report focuses on government achievements that relate closely to the New Zealand Positive Ageing Strategy, as well as highlighting associated work that has been completed and significant policy development.
This report has been prepared by the Office for Senior Citizens, of the Ministry of Social Development (MSD). The Office for Senior Citizens (the Office) was established in 1990 to support the Minister for Senior Citizens to advocate at Cabinet for the wellbeing of older people today and in the future. The Office leads, monitors and promotes the New Zealand Positive Ageing Strategy, develops policy and legislation to advance and protect the rights and interests of older people and provides second opinion policy advice on issues that affect older people.
The Office for Senior Citizens regularly consults with older people in the community through a network of 39 Volunteer Community Co-ordinators (VCCs). The VCCs bring together people from different cultures, backgrounds and community organisations to participate in projects that contribute to policy development. The VCC programme was developed in 1999 in the International Year of Older Persons. The VCC network is a key link between the community, the Office for Senior Citizens and the Minister for Senior Citizens.
Another important source of advice for the Minister for Senior Citizens is the Minister for Senior Citizens’ Advisory Council. This Council is an independent body of five committed and community minded older people who have been appointed by the Minister for Senior Citizens. The Council participates in the development of Government policy for older people by providing confidential advice to the Minister for Senior Citizens. Members of the Advisory Council meet six times a year at the Office for Senior Citizens.
The Ministry of Social Development, Te Manatu Whakahiato Ora, provides strategic social policy advice to the New Zealand Government and provides social services to more than one million New Zealanders. It has a number of policy and operational arms.
The Office for Senior Citizens works closely with other sections of MSD that have responsibility for policy and programmes impacting on older people, particularly the Older People’s Policy team. The key role of this team is to develop policy that has impacts for older New Zealanders, particularly on retirement income, employment and strategic policies to help New Zealand accommodate the ageing population.
An Older People’s Network (OPN) operates within MSD for senior officials to meet regularly to share information on current work related to older people and provide peer support for policy and programme development. A wide range of officials across the Ministry with an interest in older people are part of the network.
Work and Income is the operational arm of the Ministry of Social Development and is responsible for the payment of social security benefits, and New Zealand Superannuation, and offers employment services. It is worth noting that an important feature of New Zealand society is that it operates a universal superannuation scheme for people aged 65 and over who meet residential requirements. New Zealand Superannuation is not income or asset tested. This unique superannuation policy has been in place since the Social Security Act was passed in 1938.
International Services administers the assessment and payment of pensions to people who come to New Zealand from overseas, and assists New Zealanders who leave the country to obtain benefits and pensions overseas.
Specialist Services include War Pension Services that administer payment of war pensions, concessions, and rehabilitation loan payments to all veterans, reflecting the unique nature of Military Service.
Family and Community Services has responsibility for contracting with Elder Abuse and Neglect Prevention service providers. It is also responsible for a programme called ‘SAGES’, which facilitates older people to act as mentors to younger people and families.
The Centre for Social Research and Evaluation (CSRE) has responsibility for providing the evidence base for developing policy and programmes within MSD. Since 1999, CSRE has carried out a major research programme that aims to develop a comprehensive description of the living standards of New Zealanders.
The population of older people in New Zealand is projected to increase dramatically over coming years. The 2006 Census measured that people aged 65 and over make up around 12 percent of the population (515,690 people). This figure is projected to rise to around 20 percent in 2026 and increase further to 25 percent in 2051.
New Zealand has an increasingly diverse ethnic population. While European remains the largest group, there were significant increases in the Asian and Pacific peoples population groups recorded in the 2006 Census compared with the previous census taken in 2001.
Since the mid 1970s life expectancy at age 65 has grown steadily for both genders in New Zealand, this is projected to increase over the next 50 years. Mäori and Pacific peoples’ life expectancy is reported to be lower than European, Asian or other population groups.
MSD research shows that the average living standards of older New Zealanders are higher than those of the population as a whole and that there has been little change in the average living standards of older New Zealanders since 2000 (New Zealand Living Standards 2004). While there is little difference in the average living standards of older men and women, older single women suffer some degree of hardship compared with older single men. Home ownership, assets and low housing costs continue to be associated with good living standards among older New Zealanders. The current favourable living standards of older New Zealanders are partly attributable to government policies over previous years that assisted home ownership and asset accumulation.
There are four main government strategies that assist older people in New Zealand. They are:
The New Zealand Positive Ageing Strategy (the Strategy) was launched by the Minister for Senior Citizens in 2001. The Strategy demonstrates the Government’s commitment to older people. The Strategy provides a framework within which all policy with implications for older people can be commonly understood and developed. The framework incorporates broad principles that guide the development of policies and services from a wide range of central and local government agencies. It also identifies key areas that contribute to positive ageing.
The Strategy encourages older people to participate in their communities and recognises the value of their knowledge, skills and experience. The Strategy identifies 10 positive ageing goals that were developed through nationwide consultation with key stakeholders and older peoples groups. Each year, an action plan is developed in which central, regional and local government agencies identify projects they will be undertaking that link to the positive ageing goals, and an annual report on the previous year’s action plan is considered by Cabinet.
The goals of the New Zealand Positive Ageing Strategy are:
The Strategy was initially developed to report on the actions of central government agencies. Since 2002 the Strategy has been extended to include actions undertaken by local government authorities to provide information on positive ageing initiatives in their community plans.
New Zealand has 16 regional councils and 73 local authority areas. Each year more of these local government bodies are developing positive ageing policies and actions to contribute to the Strategy. To date, 21 local authorities have signed up to the New Zealand Positive Ageing Strategy framework to advance its goals. The Office for Senior Citizens is focused on working with non-participating local government authorities to encourage their involvement.
Since the New Zealand Positive Ageing Strategy was launched in 2001 many policies and programmes have been developed by central and local government to improve the lives of older people in New Zealand. One important network that works to advance the aims of the Positive Ageing Strategy is the Interdepartmental Policy Network. This network, established by the Office for Senior Citizens, meet bi-monthly for central government department representatives to discuss relevant policy progress and issues affecting older people.
An independent review of the Strategy was undertaken by the New Zealand Institute for Research on Ageing (NZiRA) in 2005. The review showed that significant progress has been made toward achieving the positive ageing goals (New Zealand Positive Ageing Strategy Progress Report 2006, MSD)
Good health is critical to wellbeing. Without good health people are less able to enjoy their lives to the fullest extent, their options are limited and their general levels of contentment and happiness are likely to be reduced.
Good health has two core dimensions: how long people live and the quality of their lives. As well as enjoying long lives, people want to be free from pain, suffering and incapacity that result from injury or illness (Social Report 2006, Ministry of Social Development). The Health of Older People Strategy was launched in 2002 and is consistent with the New Zealand Positive Ageing Strategy goal two: equitable, timely, affordable and accessible health services for older people.
The primary aim of the Health of Older People Strategy is to develop an integrated approach to health and disability support services that is responsive to older peoples’ varied and changing needs. This approach, the integrated continuum of care, means that an older person is able to access services at the right time, in the right place and from the right provider (Ministry of Health, 2002). Funding was devolved from central government to District Health Boards in 2003 to progress the integrated continuum of care at local level.
Three key drivers for change led to the Health of Older People Strategy’s development:
The Health of Older People Strategy was developed in collaboration with an expert advisory group and consultation with older people and communities throughout New Zealand. It identifies key objectives and the actions necessary to be undertaken by policy makers, service funders, planners and providers to achieve the health of Older People Strategy’s vision by 2010.
Major health achievements since 2002 include:
Transport is a critical part of New Zealand’s infrastructure. New Zealand has two main islands with rural and urban communities that have a range of transport needs. Successive governments have worked in a variety of ways to address the various transport issues.
The New Zealand Transport Strategy was launched at the end of 2002. The Transport Strategy is underpinned by the principles of sustainability, integration, safety and responsiveness and has five key objectives. One of these objectives, ‘improving access and mobility’ is highly relevant to older people and consistent with the goals of positive ageing. It relates directly to New Zealand Positive Ageing Strategy goal four: affordable and accessible transport options for older people.
There is a link between the ability to participate in community activities and lack or limited access to transport. One of the aims of the Transport Strategy is to solve transport problems that increase social isolation.
Issues of mobility are paramount for older people. Investigating the problems associated with transport infrastructure, the design and layout of vehicles, and physical access to stops and stations are key features of the Transport Strategy.
The Total Mobility Scheme has been in place for many years in a number of New Zealand cities and rural areas. It provides a government subsidised door-to-door transport service for people with physical impairments that limit their mobility. A review and reform of this service is being undertaken with the aim to increase quality and consistency of this scheme as well as to consider changing population needs in the future (Ministry of Transport, 2004).
Some of the major achievements in transport since 2002 include:
In 2003, the New Zealand Institute for Research on Ageing (NZiRA), in conjunction with the Office for Senior Citizens, conducted research on transport and older people. This led to the publication of the ‘Coping Without a Car’ report (NZiRA and Office for Senior Citizens) in 2004 and ‘How Will You Get Around When you Stop Driving’ pamphlet in 2005 (NZiRA and Office for Senior Citizens).
Affordable housing is important for older people’s wellbeing. The majority of older people in New Zealand own their own home. Other older people live in accommodation such as rented private homes, retirement villages, low cost community based housing and frail older people live in residential care facilities.
The New Zealand Housing Strategy was launched in 2005. The Housing Strategy provides a framework and direction for government activity in the housing sector through to 2015. The Housing Strategy's programme of action is divided into seven areas, with area seven addressing the diverse housing needs of particular population groups, including older people (Department of Building and Housing, 2005).
Since the Housing Strategy's launch, Housing New Zealand Corporation (HNZC) has
co-ordinated the development of a housing work programme for older people, drawing on initial consultation during the Housing Strategy's development, the Health of Older People Strategy, and input from agencies with an interest in the diverse housing needs of this group.
The housing work programme comprises a range of primary and supporting initiatives that aim to improve housing outcomes for older people and is relevant to New Zealand Positive Ageing Strategy goal three – affordable and appropriate housing options for older people and goal five – older people feel safe and secure and can age in place.
Achievements and key initiatives under the housing work programme for older people include:
The New Zealand Government has three strategic priority themes for the next decade: Economic Transformation, National Identity and Families – Young and Old. The Families – Young and Old theme has five interdependent sub-themes one of which is ‘Positive Ageing’. Government departments need to take these themes into account in their planning processes.
The Government’s commitment to the Families – Young and Old priority theme has resulted in additional funding allocated for programmes that assist older people, such as increased funding for home based support services and residential care for older New Zealanders.
In 2002 New Zealand appointed its first Commissioner for Equal Employment Opportunities (EEO). An Equal Employment Opportunities Unit was then established within the Human Rights Commission. The Unit is responsible for providing advice and leadership on EEO activities, monitoring and evaluating EEO progress and leading discussions about EEO issues. With the removal of age discrimination in employment occurring in 1999 with the Human Rights Act, the establishment of the EEO Commissioner is helping to support the achievement of goal nine of the New Zealand Positive Ageing Strategy – elimination of ageism and the promotion of flexible work options.
The Retirement Villages Act 2003 legislation relates to positive ageing goal three - affordable and appropriate housing options for older people. The Act introduces new rights and protections for older people who live in or are thinking of living in a retirement village. The Act introduced new responsibilities for operators of retirement villages to disclose more information to residents and potential residents on contractual terms and agreements including oversight mechanisms and complaints and disputes procedures so that older people can make informed choices.
In 2003, the Government announced the decision to progressively remove asset testing of older people living in long-term residential care from July 2005. This change removes the inequity that existed, as younger people requiring care do not have to contribute from their assets in a similar way. The Social Security (Long Term Residential Care) Amendment Act was passed in 2004 and changes were implemented from 2005. This amended legislation means that older people retain more of their assets, thus making progress towards achieving the following positive ageing goals:
• Goal one: secure and adequate income for older people
• Goal two: equitable, timely, affordable and accessible health services for older people
• Goal three: affordable and appropriate housing options for older people.
The New Zealand Superannuation and Retirement Income Amendment Act was passed in 2005. The Act legislates for a three-yearly review by the Retirement Commissioner on the Government’s retirement income policy, rather than the previous review cycle of six years. This amendment works to further the achievement of positive ageing goal one - secure and adequate income for older people.
The Government has implemented a range of policies and programmes to help older people since 2002 to advance the wellbeing of older people. Some examples include the following:
The Government has announced the introduction of the SuperGold Card by August 2007. The SuperGold Card recognises the contribution that senior citizens make to New Zealand and will offer easy access to government sector entitlements and local government services. Card holders will also be able to use their card to enjoy commercial discounts with participating businesses. There are over half a million older people in New Zealand who will be eligible for a SuperGold Card.
Home Equity Conversion (HEC) schemes offer a way for older people to draw on the equity in their homes for a variety of purposes. The Office for Senior Citizens is leading a project to establish an industry code of practice for HEC schemes to enable older people to access these schemes with confidence that there are appropriate checks and balances in place. Recommendations will be made to Government on an industry code of practice for HEC schemes in May 2007.
An enduring power of attorney (EPA) is a document, in the form specified in the Protection of Personal and Property Rights Act 1988, which gives the attorney power to act for the donor in the event the donor becomes mentally incapable. The Protection of Personal and Property Rights Amendment Bill is currently before the New Zealand Parliament with proposals to amend legislation relating to enduring powers of attorney. These amendments will provide better protections for vulnerable older people under the law and safeguard their interests and wellbeing.
The Ministry is carrying out a review of its delivery of services to older people. The purpose is to ensure that the Ministry's services meet the needs of older clients in the future, in view of the likely pressures on services that will emerge with the ageing population. The Ministry is particularly focusing on options that will allow services to be flexible and responsive to the changing needs of clients. Recommendations regarding future service delivery options are to be identified in 2007.
New Zealand has a number of possible research areas from which to consider undertaking a participatory research study with older people and this will be determined in the coming months. Some of the research might be drawn from work already underway where older people are the research participants, such as that being undertaken by the University of Waikato.
Other areas of consideration will include working with the Volunteer Community Co-ordinators to gather feedback from older people on various issues. One possible research enquiry might be to look at the impacts of the New Zealand Positive Ageing Strategy on older people. While older people were involved significantly when the Strategy was developed in 2001, a review of the goals of the Strategy might be a useful piece of participatory research to evaluate the relevance of the actions under each of the positive ageing goals.
Centre for Social Research and Evaluation research team within the Ministry of Social Development and New Zealand Institute for Research on Ageing (NZiRA) and the Families Commission have are a number of research projects in progress and others that are currently under consideration. The research projects that are underway are as follows.
Ageing in Place - the project has included the development of an issues paper on the concept of ageing in place in New Zealand. This has been followed up with fieldwork using a case study approach that has included interviews with 18 older people living in the community (and on average two support people in each case). The project is investigating the factors that support people to age in place and will identify how government can best support these mechanisms. Reporting will be completed in early 2007.
SAGES – this programme provides training and support for older volunteers to mentor young or vulnerable families with a view to providing practical support and transfer of knowledge and skills. The programme is being delivered by non-government organisations in a range of locations across the country. The project is currently being evaluated by CSRE. The evaluation is formative in nature and is investigating set-up and process issues as well as touching on participants’ views on the programme.
Ageing and Employment - a funding bid has been submitted that would allow the team to develop and run a joint survey with the Department of Labour exploring issues of employment and retirement for older people. The survey would expressly investigate support mechanisms for supporting older people who wish to work. The development work for this bid has established and strengthened links with a wide range of other agencies and other organisations with interests in this area.
Based on an exploration of the perceptions and needs of older people themselves, through focus groups, and incorporating the perspectives of professionals who are in a position to improve road safety for this growing population group.
The aims of this project are to identify environmental, behavioural, health, and other factors that contribute to increased fire risk for persons aged 65 and over ("older people"), to improve fire safety and prevention initiatives, and to reduce their vulnerability to residential fires. The research involves focus groups with older people.
The purpose of this research is to identify the types of financial needs experienced by people receiving the Residential Care Subsidy, over and above what is provided for by the subsidy, and to investigate whether and how these costs are being met. It will include interviews with older people in residential care.
The objectives of the project are:
This project aims to:
A representative sample of community-dwelling adults aged 55 to 70 years will be surveyed over time by postal questionnaires and interviews, with follow-ups every second year. Sixty in-depth interviews have recently been completed and are now being analysed.
The Families Commission has recently issued a request for a research project proposal to explore risk and protective factors associated with elder abuse and neglect in New Zealand. This research is expected to be completed this year.
The New Zealand Positive Ageing Strategy reinforces Government’s commitment to promote the value and participation of older people in communities. Older people are important members of society and have the right to be afforded dignity in their senior years. They have skills, knowledge and experience to contribute to society and the expected growth in the proportion of older people during the coming decades will provide New Zealanders with a valuable resource. Further, continued participation in older age has benefits for the individuals concerned, the community and the country as a whole.
The aim of the Positive Ageing Strategy is to improve opportunities for older people to participate in the community in the ways that they choose. This will be achieved through identifying barriers to participation and working with all sectors to address these, while balancing the needs of older people with the needs of younger and future generations.
[1] http://www.stats.govt.nz/store/2006/07/national-population-projections, Statistics New Zealand, 2004
[2] New Zealand Living Standards 2004, Ministry of Social Development, 2006
[3] The New Zealand Positive Ageing Strategy, Ministry of Social Development, 2001
[4] The New Zealand Positive Ageing Strategy Progress Report 2006, Office for Senior Citizens, Ministry of Social Development, 2006
[5] Health of Older People Strategy, Ministry of Health, 2002
[6] The New Zealand Transport Strategy, Ministry of Transport, 2004
[7] Coping Without a Car, New Zealand Institute for Research on Ageing and Office for Senior Citizens, Ministry of Social Development, 2004
[8] How Will You Get Around When You Stop Driving, New Zealand Institute for Research on Ageing and Office for Senior Citizens, Ministry of Social Development, 2005
[9] The New Zealand Housing Strategy, Department of Building and Housing, 2005
[10] Demographic Aspects of New Zealand’s Population Ageing, Statistics New Zealand, 2005
[11] 2006 Social Report: Indicators of Social Wellbeing in New Zealand, Ministry of Social Development, 2006
