The Aurora Centre, 56 The Terrace, Wellington 6011 – Telephone +64 4 916 3300

Report Date: 24 April 2020 Security Level: Sensitive

To: Hon Tracey Martin, Minister for Children

File reference: REP-OT/20/4/083

Oranga Tamariki Budget 2020: COVID-19 Response and Recovery Fund Bids

Purpose of the report

1 This report updates you on how Oranga Tamariki is internally funding additional support for whānau with children at risk of harm due to COVID-19 and seeks your agreement to lodge bids for emergency caregiver assistance for the ‘near-term matters’ funding package to respond to the COVID-19 pandemic.

Executive summary

2 Children are among those most at risk of experiencing psychological trauma and behavioural difficulties after traumatic events like the COVID-19 pandemic. Prior to the pandemic, children and young people known to Oranga Tamariki will have had experiences that reduce their resilience and make them less likely to be able to adjust after the COVID-19 pandemic. For example, they are more likely to experience instability and disruption and to have had attachment disturbances and traumatic events occur in the past.

3 We are anticipating higher levels of children, young people, families and whānau will need support, and more complex and new needs will emerge quickly as unemployment and economic disruption increases quickly.

4 We expect that more families will therefore need more support. That support will need to address more complex needs.

5 Given this evidence base, we expect that we will need to provide and caregivers to mitigate the impact of the COVID-19

pandemic on whānau with children at risk of harm, and to reduce the number of children coming into care

6 Treasury has released guidance on the process for ‘near-term matters’ where Ministers are seeking funding to respond to and recover from the pandemic. The Minister of Finance will be taking a paper to Cabinet on 11 May 2020 seeking agreement to fund the package of ‘near-term matters’. Departments need to submit and upload into CFISnet bids for this package by 10am Tuesday 28 April 2020. Near-term matters are to support the first two of the three waves of pandemic response, which are:

Wave 1: Fighting the virus and cushioning the blow (from now for the next six months)

Wave 2: Positioning for recovery (to be implemented from around May 2020 onward)

Wave 3: Resetting and revitalising the economy (supporting significant and long-termchange).

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7 Due to COVID-19, Ministers decided on 6 April 2020 to put the Priority packages on hold and will instead proceed with just the Cost Pressure and ”Other” packages.

We are unaware at this stage about plans for public announcements.

8 Due to COVID-19, the cost profile for Oranga Tamariki has also shifted substantially. We are no longer funding travel and movement of children. Services related to social workers and staff has reduced, and planned recruitment, which will be required in the longer term, has slowed.

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10 We have already spent $3.350m on the Wave 1 costs of COVID-19. For example, we have spent $1.6 million on providing hygiene packs to whānau.

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12 We have identified a need to provide emergency support to caregivers, to support them to continue to provide placement stability, love and support to our children and young people. Our costings suggest that these initiatives will cost $210 million, which will require additional funding from the COVID-19 Response and Recovery Fund to implement them

13 We are seeking your agreement to submit bids to deliver emergency financial assistance support for caregivers to respond to the hardship and risk of placement breakdown created as a result of COVID-19. This requires new funding and cannot be met from reprioritised baselines. It encompasses four elements:

entitling Foster Care Allowance caregivers to 20 days of paid respite

increasing the base rate of the Orphan’s Benefit (OB), Unsupported Child Benefit (UCB)and Foster Care Allowance by $25 per week per child

enabling short-term caregivers to access OB/UCB, provided they meet the other legislativecriteria

extending Birthday and Christmas Allowances to OB and UCB caregivers.

14 The Joint Venture for Family and Sexual Violence is seeking funding to support children who experience violence, of which $8.1million is intended for Vote Oranga Tamariki.

15 We had previously advised you that we may need to seek additional funding for our NGO, iwi and Māori organisation partners following the move to Alert Level 4. However, the recently approved additional $30 million to support local Civil Defence Management as well as the community funding and increased funding for Whānau Ora means that this additional support is not required.

16 You may want to update the Minister of Finance on the proposed package of initiatives to respond to impacts of COVID-19 on children and young people, families, caregivers and

This letter would signal to the Minister of Finance how Oranga Tamariki is planning to

to respond to the COVID-19 pandemic. Attached is a draft letter to the Minister of Finance for your feedback.

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Oranga Tamariki Budget 2020: COVID-19 Response and Recovery Fund Bids 3

Recommended actions

It is recommended that you:

1 note that the Treasury has released guidance on the new process for ‘near-term matters’ where Ministers are seeking funding to respond to and recover from the pandemic

2 note that departments are required to submit and upload into CFISnet bids for this package by 10am Tuesday 28 April 2020

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5 m

6 agree that Oranga Tamariki submit the following bids to meet additional costs of Wave 1 and Wave 2 response to the pandemic:

6.1 $3.248 million for entitling Foster Care Allowance (FCA) caregivers to 20 days of paid respite

Agree / Disagree

6.2 $46.668 million for enabling short-term caregivers to access OB/UCB, provided they meet the other legislative criteria

Agree / Disagree

6.3 $16.931 million to extend Birthday and Christmas Allowances to OB and UCB caregivers

Agree / Disagree

6.4 $143.066million for increasing the base rate of the Orphans Benefit (OB), Unsupported Child Benefit (UCB) and FCA by $25 per week per child

Agree / Disagree

7 note that the Joint Venture for Family and Sexual Violence is seeking funding to support Children who experience violence - $8.09m is intended for Vote Oranga Tamariki

8 note that you previously agreed that that Oranga Tamariki will provide you with a draft Cabinet paper providing more details on the time-limited support package for whānau with intensive or complex needs [REP-OT/20/3/063 refers]

9 note that Oranga Tamariki considers the recently approved additional $30 million to support local Civil Defence Management as well as the Ministry of Social Development community funding and increased funding for Whānau Ora means that this additional support is not required

10 agree that, subject to your feedback, that we work with your office to send the attached letter to the Minister of Finance describing a proposed package of initiatives to respond to impacts of COVID-19 on children and young people, families, caregivers

Agree / Disagree

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Oranga Tamariki Budget 2020: COVID-19 Response and Recovery Fund Bids 4

11 agree that the decision referred to in recommendation 8 is no longer required.

Agree / Disagree

Anita West Date

Deputy Chief Executive Policy and Organisational Strategy

25/04/2020

Hon Tracey Martin Minister for Children

Date

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Children are among those most at risk of psychological trauma and behavioural difficulties after traumatic events, like the COVID-19 pandemic

17 Prior to the pandemic, children and young people known to Oranga Tamariki will have had experiences that reduce their resilience and make them less likely to be able to adjust after the COVID-19 pandemic.1,2 For example, they are more likely to experience instability and disruption and to have had attachment disturbances and traumatic events occur in the past.

18 We are anticipating higher levels of children, young people, families and whānau will need support, and more complex and new needs will emerge quickly as unemployment and economic disruption increases quickly

19 Additionally, we have already seen the impact that the COVID-19 situation (such as community stress, psychological trauma, and financial insecurity) has had on rates of family violence.3 Overseas experience shows a related increase of more than 30 percent in reported family harm.

20 We know that Māori are disproportionately represented in our core populations of interest, and are at greater risk of poor health and other social outcomes associated with the COVID-19 pandemic situation. This makes it especially important that any response or recovery activity that we take for children and young people of interest to Oranga Tamariki needs to invest in what works for Māori, and be driven from both the national and local levels, working in partnership with our iwi and Māori providers.

21 We expect that there will be an increased need for early and intensive intervention to prevent children coming into care. Specifically:

Approximately 95,0004 children and young people and their families and whānau havemultiple, often complex needs that lead to them coming to the attention of OrangaTamariki. These include the combined impacts of long-term unemployment, low income,unaddressed physical and mental health needs, parental alcohol and drug addiction andfamily violence. COVID-19 will act as a potent multiplier for many of the existing factors,and we expect more whānau will come to our attention or require additional community-based support.

Of this group, the number of whānau who require intensive support is also likely toincrease. We also expect that for children who are in care with a current plan to returnsafely home, the impacts of COVID-19 on their whānau may impact on their ability to bereturned safely to their culture and community without increased support.

22 We are hearing from our NGO, iwi and Māori partners that they need additional support to respond to the pandemic. While they have been able to adapt quickly to respond to COVID-19, the pandemic is exacerbating existing issues around workforce capacity and the ability to co-ordinate and collaborate across the sector, and they expect those pressures to increase over time.

23 Our strategic partners have also expressed concern that the impact of COVID-19 on whānau already in need will only intensify those needs, and they are concerned that social services and health services are not as joined-up on the ground as they need to be.

1 See Schonfled et al., 2016 https://pediatrics.aappublications.org/content/pediatrics/136/4/e1120.full.pdf

2 Disasters are “one-time or ongoing events of human or natural cause that lead groups of people to experience stressors including the threat of death, bereavement, disrupted social support systems, and insecurity of basic human needs such as food, water, housing, and access to close family members.. Hedlund, 2016 https://www.eqrecoverylearning.org/assets/downloads/learning-from-msd-contribution-canterbury-earthquake-recovery-efforts.pdf

3 Rest of the World Insights: Family Harm, Justice National Incident Management Team, 31 March 2020

4 Estimated from Child Wellbeing Model. Used as basis for Early Intervention Budget 2020 Bid.

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24 Our 2019 survey prior to the pandemic, found that they needed more support with managing children’s health, mental health and dealing with behaviour issues. It also identified that they needed additional financial support. The pandemic has increased this need - our pulse survey of caregivers identified that they needed more support to meet the additional costs of having children at home and reduced income. There is a significant risk that the increased pressure and hardship placed on caregivers will lead ot increased placement breakdowns.

25 Given the evidence base and what we are hearing from our partners, we expect that, we will need to provide additional financial support caregivers to mitigate the impact of COVID-19 on whānau with children at risk of harm, and to reduce the number of children coming into care.

Treasury has released guidance on how to seek funding for ‘near-term matters’ relating to the COVID-19 pandemic

26 Treasury has released guidance on the new process for ‘near-term matters’ where Ministers are seeking funding to respond to and recover from the pandemic. The Minister of Finance will be taking a paper to Cabinet on 11 May 2020 seeking agreement to fund the package of ‘near-term matters’. Departments need to submit and upload into CFISnet bids for this package by 10am Tuesday 28 April 2020.

27 Funding requests for the ‘near-term matters’ package must meet the following criteria:

funding is needed as a direct result of COVID-19;

funding is needed outside of the normal budget cycle to support the response and/orrecovery from COVID-19; and

the additional costs cannot be managed from existing baselines.

28 All funding requests must also focus on at least of one of the following three waves (with waves 1 and 2 being the focus for the 11 May 2020 paper):

Wave 1: Fighting the virus and cushioning the blow (from now for the next six months)

Wave 2: Positioning for recovery (to be implemented from around May 2020 onward)

Wave 3: Resetting and revitalising the economy (supporting significant and long-termchange).

29 In a change from early guidance, the scope of what will be considered as part of the ‘near-term matters’ process includes expenditure that needs to start in the 2019/20 fiscal year and initiatives with expenditure starting after the 2019/20 fiscal year.

All Budget Priority Packages are on hold, but the decisions on cost-pressure bids that have been taken will be funded

30 The Budget 2020 process originally split Budget initiatives into Cost Pressures, Priority Areas (A to E) and “Other” spending initiatives. Due to COVID-19, Ministers decided on 6 April 2020 to put the Priority packages on hold, and to instead proceed with just the Cost Pressure and ”Other” packages.

31 Appendix One summarises the funding that Oranga Tamariki will receive through the cost-pressure and other decisions. Appendix Two summarises the funding that Oranga Tamariki was seeking through the original Budget 2020 Priority D Budget package, which will not be funded. We are unaware at this stage about plans for public announcements.

32 The Minister of Finance has clarified that Budget 2020 initiatives can be resubmitted under the ‘near-term matters’ process if there is a clear link to COVID-19.

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We have already spent $3 million on the Wave 1 costs of COVID-19,

38 The table below summarises the new spending that Oranga Tamariki is funding through reprioritisation of its baseline.

Approved CV19 related

2019/20

($ million)

Hygiene packs for Whānau $ 1.600

Family Violence Clearing House contribution $ 0.100

Devices to support home learning $ 0.150

Additional corporate costs (e.g. employee assistance programme, personal protective equipment, additional cleaning costs) $ 1.500

Total $ 3.350

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40 COVID-19 will multiply the combined impacts of long-term unemployment, low income, unaddressed physical and mental health needs, parental alcohol and drug addiction and family violence.

41 We may see an increase in the number of whānau who are eligible for our intensive intervention service. The number of whānau with children at risk of harm is likely to increase due to household stress and whānau may need more support when children return home

42 Iwi have indicated that they and Māori organisations are already working in new ways to address the complex needs of whānau in their rohe. They see the COVID-19 recovery to be an opportunity not to return to 'business as usual‘, but towards a step change giving them a greater role in how services are commissioned and delivered for whānau Māori.

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44

We are seeking your agreement to submit bids to meet emergency financial assistance for caregivers to respond to COVID-19

46 In addition to the priorities identified to be funded from reprioritisation and the 2019/20 surplus, we need to seek additional funding for a set of targeted initiatives to support the caregiver system to ensure it continues to provide placement stability, love and support to our children and young people. Our costing suggest that these initiatives will cost $210 million, which will require additional funding from the COVID-19 Response and Recovery Fund if we

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are to implement them. If agreed, this funding will be delivered directly into the hands of caregivers and children.

47 Caregivers take on a critical role in supporting children who are unable to be cared for by their parents. The need for placement stability is even more critical right now due to the compounding impact of COVID-19 on children and young people.

48 The focus of these initiatives is ensuring caregivers continue to be able to provide safe and stable homes at a time of increased pressure and hardship. It responds to caregiver’s feedback that they need more support to meet the additional costs of having children at home and reduced income.

49 We have developed a set of four initiatives to stabilise the support caregivers provide to children and young people and reduce the risk of placement breakdown. These are outlined below and described in the attached templates.

Entitling FCA caregivers to 20 days of paid respite – $3.25m for Vote Oranga Tamariki

50 This initiative seeks funding to enable caregivers of children in state care to continue to receive the FCA while the child they care for is in respite, for up to 20 days per year per child. This initiative would cover the period 1 June 2020 to 31 June 2021.

51 Current practice guidance requires that payments to a child’s usual FCA caregiver stop when that child is with a respite caregiver for more than two days. Instead, the respite caregiver receives the full amount of FCA.

52 This initiative is critical as:

COVID-19 makes it is more difficult for caregivers to maintain placements.5 In thesesituations, caregivers may need to access respite care to ensure placement stability andensure the safety of their households/bubbles. The duration of respite care is likely to bemore than two days.

Caregivers are facing increased financial and emotional pressure as well as stress due toCOVID-19 restrictions, including:

increased household expenditure

potential income instability and loss of employment

challenges with providing educational and therapeutic support to children who have suffered trauma and have complex needs

lack of opportunity for children to connect with their whānau

reduced ability to draw on natural networks for support.

Stopping financial assistance while the child is in respite places additional financialpressure on caregiving households and could deter caregivers from taking up respite. Thegeneral costs associated with caring for a child do not stop when the child is not in thehome.

53 We note that there are no limitations placed on OB/UCB payments in the same way as FCA payments (where payments stop if the child is away for more than two days). For example, OB/UCB caregivers would continue to receive their payments if their child needed to temporarily stay with someone due to their caregiver being affected by COVID-19. This is

5 Caregivers may be affected by COVID-19 if they have COVID-19, are required to be in self-isolation, are part of an at-risk

group (eg, those over 70 years), are an essential worker, need to look after another dependent person, or are financially

impacted as a result of COVID-19.

Oranga Tamariki Budget 2020: COVID-19 Response and Recovery Fund Bids 10

because the arrangement is temporary, and the caregiver would still be considered the child’s principal caregiver.

Enabling short-term caregivers to access OB/UCB, provided they meet the other legislative criteria – $0.108 for Vote Oranga Tamariki and $46.6 for Vote Social Development over four years

54 This initiative seeks funding to enable caregivers who may provide care for less than 12 months to access the OB or UCB. It would remove the requirement from the Social Security Act 2018 that the caregiver must be likely to be the principal caregiver of the child for at least

one year from the date of the application for the payment (the ’12-month rule’).

55 Other legislative requirements would still apply, including that the child’s parents must be dead, missing or have a long-term serious disablement for OB, or that there must have been a family breakdown for UCB.

56 This initiative has an implementation date of 1 July 2021 to allow for IT and legislative changes.

57 Modifying the 12-month rule is critical as:

The 12-month rule is currently a barrier to some caregivers accessing the support they needwhen they take on the care of a child who is unable to be cared for by their parents. Theassumption of a minimum 12-month placement does not reflect the expected reality ofmany caregiving situations while New Zealand is responding to the COVID-19 pandemic,where expected placement duration may not be known or may be a short-termarrangement. The inability for these caregivers to access support also places excessivefinancial burden on these caregivers who may already be facing financial and emotionalstress from the impact of COVID-19.

We are expecting to see an increase in family breakdowns. Evidence indicates theprevalence of family harm is expected to rise in New Zealand as a result of containmentand isolation measures. Where these issues fall below what would be required to bring achild into formal state care, we need to ensure we have mechanisms in place for peoplewho may need to take on the care of a child because of a breakdown within the familyamid the pandemic. Under the current requirements, providing evidence that thearrangement is likely to be more than 12-months is a significant barrier to supportingthese arrangements where the duration may be unknown or short-term.

Extending Birthday and Christmas Allowances to OB/UCB caregivers – $0.108 for Vote Oranga Tamariki $16.8m for Vote Social Development over four years

58 This initiative would extend the Birthday and Christmas Allowances, which are currently only available to FCA caregivers, to OB and UCB caregivers.

59 The implementation date for this initiative would be April 2021. This is to allow enough time to undertake required IT and legislative changes.

60 The wellbeing of children remains a priority during the pandemic. Restrictions on movements, contact with friends and family, and access to public services such as libraries and playgrounds is likely to affect the wellbeing of many children. Being able to celebrate and enjoy significant events in a child’s life is an important part of being able to provide children who are unable to live with their parents the same experiences as other children. It also contributes to their overall wellbeing, identity and feeling of inclusion within a family, which is even more critical during this time.

Oranga Tamariki Budget 2020: COVID-19 Response and Recovery Fund Bids 11

Increasing the base rate of caregiver payments by $25 per week per child – $28.5m for Vote Oranga Tamariki and $114.5m for Vote Social Development over four years

61 This initiative seeks funding to increase the rates of the Foster Care Allowance (FCA), OB and UCB by $25 per week per child, with an implementation date of 1 July 2020.

62 Caregivers are facing additional or increased basic costs due to having more people in their home because of self-isolation and/or lockdown. The financial pressure placed on these households is expected to continue as New Zealand moves into the recovery phase. An increase to the rates of FCA/OB/UCB is required to help cushion the impact and support caregivers through the recovery phases of COVID-19.

63 An increase is critical now to: help to ensure caregivers are better equipped to manage the impacts of COVID-19, and in

particular to enable them to continue to meet the reasonable costs of caring for a child,including safety equipment, and support greater placement stability

help address the significant underlying issue that the rates of OB/UCB/FCA do not coverthe costs that caregivers face when caring for a child who is unable to be cared for bytheir parents

ensure that the rates of payment maintain alignment with other financial assistanceprovided by government.

The Joint Venture for Family and Sexual Violence is seeking funding to support Children who experience violence – $8.09m is intended for Vote Oranga Tamariki

64 In addition to the package of internal initiatives and the new funding for caregivers above, we are also seeking funding support via the Joint Venture for Family and Sexual Violence. This is similar to the bid previous lodged as part of Budget 19 but has been adapted to meet the additional needs due to the COVID-19 pandemic.

65 This initiative supports both Wave 1 and Wave 2. This funding fulfils an unmet need for what is likely to be an increased number of children experiencing family violence during the COVID-19 response and recovery period. The proposal responds to expected increased service demands and allows providers to meet the bespoke needs of individual children.

66 The bid will enable the funding of services for children and young people who are experiencing family violence, who are being identified through multi-agency community response sites (eg Whāngaia Ngā Pā Harakeke and Integrated Safety Response sites).

67 The funding will purchase services in two ways. The first is by topping up funding to existing children’s services providers who are not currently adequately funded to respond to the therapeutic needs of children when they are identified through family violence response sites. It will also be used for funding bespoke services, for example a psychologist through a flexi-fund arrangement. These kinds of services are not currently funded as part of the service provision in family violence response sites.

68 This is a variation of the proposed Budget 2020 bid, where the funding was intended to be

appropriated through Vote Police. We have worked with Police to refine the bid in response to

COVID-19. The contracting costs that Oranga Tamariki will administer are now proposed to be

appropriated into Vote Oranga Tamariki.

We had previously advised you to seek funding for our partners following the lockdown, but we are now not recommending this

69 On 31 March 2020, we advised you that as we move out of lockdown, there was a need to look at funding a dedicated response for whānau with children at risk of harm who require intensive support coming out of Alert Level 4. You agreed that Oranga Tamariki provide you with a draft

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Cabinet paper providing with more details on a proposed time-limited support package for whānau with intensive or complex needs [REP-OT/20/3/063 refers].

70 Since then, Government has announced a $30 million package to support local Civil Defence Management teams to respond to local food and welfare needs. Previously, Government had announced the funding for a new MSD community grant and re-prioritisation of $15 million to Whānau Ora commissioning agencies. These new investments will help to meet the immediate needs of whānau with children at risk of harm who require intensive support.

71 We consider additional funding is not required to support these whānau in the immediate response to COVID-19, A Cabinet paper for a time-limited support package for these whānau is also now not required and we recommend you rescind your decision that Oranga Tamariki provide you with a draft Cabinet paper.

Next steps

72 Subject to your agreement to the proposals outlined we will submit the attached templates to the Treasury and upload them into CFISnet before the deadline of 10am Tuesday, 28 April, 2020. We will provide your office with the final copies of the bids before they are uploaded.

73 You may want to update the Minister of Finance on the proposed package of initiatives to respond to impacts of COVID-19 on the children and young people, families, caregivers

Attached is a draft letter to the Minister of Finance for your feedback.

74

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Appendix 1: Oranga Tamariki Cost Pressure Funding

Cost Pressure Initiatives Operating Expenditure

2019/20 2020/21 2021/22 2022/23 2023/24

& outyears

$ millions $ millions $ millions $ millions $ millions

Maintaining Current Outcomes for Needs of Children in Oranga Tamariki Care (Demand Cost Pressure) - 26.606 23.154 10.580 10.376

Supporting Continued Operations of Oranga Tamariki ( Corporate Cost Pressure) - 23.203 23.856 24.436 25.247

Supporting the Compliments, Complaints and Suggestions system - - 1.200 1.200 1.200

Ensuring the Provision of Personal Information Under the Privacy Act 1993 and the Management of Claims and Complaints - 0.300 0.300 0.300 0.300

Supporting Social Service Delivery for Community Services Providers - 9.692 12.000 16.000 20.000

Total - 59.801 60.510 52.515 57.123

Other Initiatives Operating Expenditure 2019/20 2020/21 2021/22 2022/23

2023/24 &

outyears

$ millions $ millions $ millions $ millions $ millions

Supporting the Crown Response to the Abuse in Care Inquiry - 5.964 - - -

Total - 5.964 - - -

Cost Pressure Initiatives Capital Expenditure

2019/20 2020/21 2021/22 2022/23 2023/24

& outyears

$ millions $ millions $ millions $ millions $ millions

Demand Cost Pressures for Oranga Tamariki (Children’s Cost Pressures)

- 0.275 - - -

Corporate Cost Pressure for Oranga Tamariki

- 3.000 8.000 7.000 8.390

Total Capital Expenditure - 3.275 8.000 7.000 8.390

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Appendix Two: Original Oranga Tamariki Priority D Budget 2020 Package.

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