REPORT “Specific recommendations as to how a European report on poverty and social exclusion might be carried out” - by HUGH FRAZER, Director of the Combat Poverty Agency, Dublin (Ireland)
Strasbourg, 28 April 1994
Steering Committee on Social Policy - Project III.5 on Human Dignity and Social Exclusion
CDPS III.5 (94) 2
Table of Contents
SUMMARY AND OVERVIEW
1. INTRODUCTION
2. RECOMMENDATIONS ON THE PURPOSES TO WHICH A COUNCIL OF EUROPE REPORT MIGHT BE PUT AFTER ITS COMPLETION
3. THE RECOMMENDED OBJECTIVES OF THE REPORT
4. METHODS OF PRODUCING A EUROPEAN REPORT ON POVERTY
5. FINANCIAL RESOURCES
Appendix 1 - Other Possible Purposes
Appendix 2 - Review of Existing Poverty Reports
Appendix 3 - Acknowledgements
SUMMARY AND OVERVIEW 
This is the final report of the preparatory consultancy on a European Report on Poverty and Social Exclusion. It has been prepared for the Council of Europe's Steering Committee on Social Policy (CDPS) by Mr Hugh Frazer, who is the Director of the Combat Poverty Agency in Ireland.
The brief given to the consultant was to advise the CDPS on how best to implement the Council of Europe's decision to prepare a European Report on Poverty and Social Exclusion. In particular the consultant was asked to advise on the possible purposes to which such a report might be put, its possible objectives, the possible methods of preparing such a report and the financial and human costs involved. This final report of the consultancy makes specific recommendations on all these matters.
Purposes to which such a Report might be put
In recommending the purposes to which a Council of Europe report might be put after its completion the report emphasises the need to take into account the role and structures of the Council, to avoid duplication with other initiatives and to be realistic and not overly ambitious. As a result the report recommends that three purposes should be prioritised. These are:
· to increase governments' awareness and understanding of the growth of poverty and social exclusion across Europe in order to encourage an intensification of their efforts to combat poverty and social exclusion;
· to assist governments, and also other organisations, to develop more effective policies, programmes and structures for preventing and combatting poverty and social exclusion;
· to strengthen the Council of Europe's role in combatting poverty and social exclusion with a particular emphasis on setting standards in relation to basic social rights and promoting increased monitoring and reporting of the efforts of governments to combat poverty and social exclusion.
In addition the report also recommends that a Council of Europe report should be used to increase public awareness of the nature and extent of poverty and social exclusion and the measures necessary to tackle them.
Objectives of the Report
The report assesses possible objectives for a European report against three key considerations: the purposes to which the report will be put; the distinctive features of the Council of Europe (especially its role in the protection and promotion of human rights and its wide geographical spread); and the extent to which an objective would be new and distinctive and has not been adequately covered by some other report. On this basis the report recommends and describes in some detail three main objectives. These are:
· to review the main trends in poverty and social exclusion across Europe and to analyze the main processes involved in the context of the rapid economic, political and social changes taking place;
· to describe and analyze the connection between poverty and social exclusion and the denial of basic rights and to establish a clear framework of social rights to counter poverty and social exclusion;
· to establish concrete principles for successful action to combat poverty and social exclusion.
Methods of Producing a European Report
The report recommends that the process of producing a European report should aim for the maximum possible involvement of the Council of Europe and its constituent parts, national governments, European and national NGOs, relevant sections of the European Union and independent experts and academics. It recommends that CDPS should establish a Project Committee involving these different elements to oversee the development of the research project. It would meet three times during the course of the project to receive progress reports, make recommendations, comment on draft documents and to approve the final report for submission to CDPS. In addition it also suggested that there should be a Resource and Advisory Group consisting of nominated officials from each of the Council's directorates who would act as link people for the research team.
It is recommended that a research team be appointed to undertake the work involved. It is stressed that the researchers should encompass a range of experience and expertise and should reflect the different parts of Europe. The importance of a gender balance is also stressed. In particular it is proposed that a full time Research Coordinator be appointed for two years to coordinate and manage the different parts of the research project. A team of four researchers should be engaged on a half-time basis for two years. They will each take a group of countries. They will be responsible for preparing the overview report on their region and a report on concrete principles and standards for successful action to combat poverty and social exclusion. A Specialist Research Assistant should be engaged on a half-time basis for two years to assist on the aspect of the research dealing with poverty, social exclusion and the denial of social rights.
The research methodology makes provision for a combination of desk research and visits to experts, NGOs and officials in the different countries. It specifically involves national governments contributing to the process. There is also provision for consultations in each country with NGOs working with those who are living in poverty and are socially excluded.
There is a detailed two year schedule of work. In Year 1 the researchers will concentrate on producing a review and analysis of the main trends in relation to poverty and social exclusion and a document detailing the connection between poverty and social exclusion and the denial of basic rights. In Year 2 the emphasis will be on solutions - that is on establishing concrete principles and standards for successful action to combat poverty and social exclusion and on making specific recommendations on rights. This schedule should allow for the report to be translated and printed in time for a major conference before the end of 1995.
Financial Resources
It is estimated that the total budget required for the research project will be in the region of 5,392,000 French Francs (1993 prices). It is also recommended that provision should be made for a follow up programme for one year after the research is completed.
Conclusion
Given the extent of poverty and social exclusion in Europe;
Given the real pain and hardship that this causes to very many people;
Given the serious threat this poses to human rights, social stability and democracy;
It is strongly urged that the Council of Europe makes its proposed Report on Poverty and Social Exclusion in Europe a major priority for the whole Council and devotes the resources necessary to achieve it.
1. INTRODUCTION
1.1 This final report of the preparatory consultancy on a European Report on Poverty and Social Exclusion has been prepared for the Council of Europe's Steering Committee on Social Policy (CDPS) by Mr Hugh Frazer, who is the Director of the Combat Poverty Agency in Ireland. It follows on and builds on two earlier reports: a preliminary report (CDPS III.5 (92) 2), which was discussed at the CDPS meeting of 4-6 November 1992 in Strasbourg, and a progress report (CDPS III.5 (93) 1), which was compiled in January 1993.
1.2 The origin of this report lies in the Council of Europe's decision to secure the preparation of a European Report on Poverty and Social Exclusion. The Committee of Ministers entrusted this project to the Steering Committee on Social Policy. To assist them in this process the CDPS decided to commission a preparatory consultancy to advise on:
· the objectives of the report
· possible methods of achieving it
· the financial and human resources involved.
The consultant was asked to approach this task in two stages. First, he was asked to prepare a preliminary report presenting choices to the CDPS. Then, in the subsequent progress report and in this final report, he was asked, on the basis of decisions taken by the CDPS at their meeting on 4th November 1993, to prepare a more detailed proposal making specific recommendations as to how a European Report on Poverty and Social Exclusion might most effectively be prepared, with programme and costs.
1.3 The progress report (CDPS III.5 (93) 1) took on board the decisions and comments made by members of CDPS at the meeting of 4th November. It also incorporated findings from subsequent meetings in France and Poland which were arranged by CDPS members Dominique Labroue and Radoslaw Markowski. The progress report also took into account information and ideas from meetings with ATD Fourth-World in Pierrelaye and the European Centre for Social Policy and Research in Vienna. The progress report has now been incorporated into this final report. In addition this final report also takes into account a number of meetings in Prague organised by Mr Aleš Uchytil, Head of the International Department of the Ministry of Labour and Social Affairs in the Czech Republic and in Bratislava organised by the Section for International Relations of the Ministry of Labour, Social Affairs and Family of the Slovak Republic headed by Mr Michal Greslik. This final report also takes on board some comments on the progress report which were made from within the Council of Europe.
The help and advice of all those experts and organisations who assisted the consultant during the course of the various visits outlined above and also during the first part of the research project is gratefully acknowledged. Full details are given in Appendix 3.
1.4 In undertaking this preliminary consultancy the researcher has understood poverty and social exclusion to be closely linked. Poverty in Europe today is about being excluded and marginalised from the general standard of living and way of life that is the norm for other people in one's country and facing a constant struggle to live with dignity. Thus, people are living in poverty if their income and resources are so inadequate as to preclude them from enjoying a lifestyle which would be regarded as acceptable by society in general. Such a definition takes into account that people have social, emotional and cultural needs as well as basic physical needs. In particular it emphasises that poverty is about exclusion, isolation and powerlessness as well as lack of money.
1.5 The structure of this report is based on the brief the consultant was given. There are four main sections.
· The first suggests the purposes to which such a report might be put after its completion.
· The second recommends the main objectives of such a report.
· The third outlines the methods of producing such a report.
· The fourth details the financial resources required to produce such a report.
2. RECOMMENDATIONS ON THE PURPOSES TO WHICH A COUNCIL OF EUROPE REPORT MIGHT BE PUT AFTER ITS COMPLETION
2.1 The range of purposes to which a Council of Europe report on poverty could be put after its completion are extensive. In assessing these three criteria are critical. They are:
· first, that the purpose should be consistent with the role, status and structures of the Council of Europe;
· secondly, that the purpose is not being adequately addressed by other organisations;
· thirdly, that there is some possibility that the purpose can be achieved and that it is realistic and not overly ambitious.
As a result of applying these criteria three purposes stand out. These are:
· to increase governments' awareness and understanding of the growth of poverty and social exclusion across Europe in order to encourage an intensification of their efforts to combat poverty and social exclusion;
· to assist governments, and also other organisations, to develop more effective policies, programmes and structures for preventing and combatting poverty and social exclusion;
· to strengthen the Council of Europe's role in combatting poverty and social exclusion with a particular emphasis on setting standards in relation to basic social rights and promoting increased monitoring and reporting of the efforts of governments to combat poverty and social exclusion.
In addition to these three core purposes a report could also be used to increase public awareness of the nature and extent of poverty and social exclusion and the measures necessary to tackle them.
2.2 Increase Governments' Awareness and Understanding of the Growth of Poverty and Social Exclusion across Europe:
There is now an extensive body of evidence that poverty and social exclusion are growing problems in all European countries. While the problems are more acute in some countries than others all are affected in some degree by some or all of the following problems: high unemployment; long-term unemployment; areas of towns and cities becoming urban ghettos; rural decline and emigration; breakdown of traditional family structures and supports; homelessness; a growing elderly population; increased numbers of migrants and refugees.
In the developed countries of the European Union and Scandinavia it is clear that the rapid pace of industrial and technological change is creating new and intense forms of poverty and social exclusion. Traditional family structures and networks in many southern European countries are coming under pressure as increased industrialisation takes place. In the former Eastern block countries dramatic economic, political and social restructuring is resulting in increased poverty and social exclusion, which could become entrenched if effective policy responses are not developed. Furthermore, the significant increase in migration that is resulting from the major changes in Europe is likely to generate new forms of poverty affecting many countries.
While governments are doing many things to address poverty and social exclusion, in many cases the intensity and seriousness of the problem have not been fully appreciated, nor have governments fully understood the extent to which it is now a common problem across Europe. In addition many governments do not yet seem to be fully aware of the extent to which entrenched poverty can generate negative economic, social, political and cultural outcomes for society. It can lead to pain and misery for many people, to a denial of human rights and dignity, to increased alienation and exclusion from institutions of society, to a growth in intolerance, prejudice and racism and ultimately to increased social instability and a weakening of democratic society.
While the scale of the problems and the underlying causes are not primarily the fault of particular governments, but rather of wider social and economic forces, they can be exacerbated or diminished by the actions of governments. In particular it is clear that traditional economic assumptions that poverty and social exclusion will be solved by the benefits of economic growth trickling down to those affected is no longer valid. In spite of the growing evidence, many Governments have been slow to fully understand this, and to recognise the need for new policies and new approaches.
Thus a primary purpose to which a European report should be put is to convince Governments that poverty and social exclusion represent a key challenge and to encourage them to have the imagination and vision to make tackling it a much higher priority both individually and collectively.
A report which has this purpose merits a high priority for four reasons.
First, the Council of Europe is an intergovernmental body, and it is thus appropriate that influencing the member governments should be a key target of any report.
Secondly, it is clear that other organisations have not been entirely successful in convincing governments of the urgency of the problems and there is a need to do more in this regard.
Thirdly, just because the Council is a European body, it can show that the problems are shared in common, if in different degree, across Europe. This may make it easier for governments to acknowledge them, when on a national level such acknowledgement may seem like an admission of failure.
Fourthly, by highlighting the extent to which governments are not meeting their obligations as members of the Council of Europe in relation to social rights, it can be used to increase the pressure on governments to do more.
On the negative side is the fact that it often takes far more than a report to mobilise governments. However, given the moral and ethical force of the Council of Europe and its ability to give leadership across a wide range of countries it can add a very significant extra dimension to the efforts to get a higher priority for these issues.
2.3 Assist Governments, and also Other Organisations, to Develop More Effective Policies, Programmes and Structures:
A report which highlights what is being done in different countries to combat poverty, and which identifies which approaches and which structures appear to work best, and which are unsuccessful, or indeed create or perpetuate poverty, could be very helpful to governments when they are attempting to develop more effective and humane policy responses and to establish priorities.
It could also be useful to regional and local government, and to non governmental organisations involved in combatting poverty, by alerting them to new forms of poverty and social exclusion and sharing with them new and more effective methods of combatting social exclusion.
Thus, in the more developed economies, experience of responding to concentrations of poverty and social exclusion in cities, or to the growth in long-term unemployment, or changing family structures and the growth of lone parent families, or the decline of peripheral rural areas, could be shared.
The emerging economies of central and eastern Europe could learn from the undue dependence of some countries on "trickle down" theories, and gain ideas of how to ensure a balanced and sustainable approach to development that combines economic and social development. They could also gain ideas from the experience of other countries on what division of competencies between central and local government and between the state, the private sector and non-governmental organisations is best for preventing and addressing poverty and social exclusion. They could learn from the experience in other countries of how to reinforce family structures and networks and to build local communities through community development type approaches.
Such a report could provide the basis for the Council of Europe to provide technical and educational assistance to member countries on developing effective integrated and decentralised approaches to combatting and preventing poverty and social exclusion.
Using a report for such a purpose is in keeping with the Council of Europe's normal ways of operating. There are currently many examples of the Council trying to identify best practice in a particular area (e.g. social security, adult education or health services) and to make this available to different countries. The achievement of this purpose should be a priority.
To ensure this the Council should:
· allocate staff time and sufficient resources for a two year follow up period to promote and disseminate the reports findings across Europe through a series of national seminars and meetings with key policy makers and officials;
· devise a system of technical assistance to assist governments in developing effective and integrated anti-poverty strategies based on the findings of the report.
2.4 Strengthen the Council of Europe's Role in Combatting Poverty and Social Exclusion:
Any report should be used within the Council of Europe to increase awareness of poverty and social exclusion. It should especially be used to increase understanding of the link between social rights and poverty and social exclusion. It should thus be used to ensure that tackling poverty becomes a key consideration in all the Council's work. In particular it is suggested that it is used:
· to help to set directions and priorities for the work of the different directorates within the Council;
· to highlight the extent to which governments are not complying with provisions in the European Social Charter and point to the need to strengthen control and monitoring procedures;
· to provide the Council with a basis for regular monitoring of the efforts of Governments to counter poverty and social exclusion;
· to persuade Governments to get involved in regular reporting on their efforts to counter poverty and social exclusion and so to complement and link with the European Community's Observatory on Social Exclusion and to extend this process Europe wide;
· to contribute important information and ideas about how countering poverty and social exclusion can be incorporated in the current review of the European Social Charter;
· to provide the basis for a recommendation or convention on combatting poverty and social exclusion.
Such strengthening of the role of the Council in combatting poverty is an obvious purpose to which any report should be put, given the commitment of the Secretary General to increasing the Council's involvement and profile in this area. This will be particularly the case if any report concentrates on the connection between poverty and the denial of basic rights.
Already much of the existing work of the Council touches on these issues : the adoption of Recommendation 1196 (1992) of the Parliamentary Assembly, on 'severe poverty and social exclusion: towards guaranteed minimum levels of resources',    1 ; the Charleroi Declaration by the Standing Conference of Local and Regional Authorities of Europe on 'The exclusion of poverty through citizenship'(5-7 February 1992); the Nottingham Declaration by the Standing Conference of Local and Regional Authorities on 'social housing, the homeless and the poorly-housed in Europe'(28-30 October 1992); and the focus of the Board of the European Youth Centre and Foundation on social exclusion - all these demonstrate an interest and openness to increase the focus on these issues.
What is needed now is a much greater integration and coordination between the different sections of the Council on the issue of poverty and social exclusion, to ensure that its impact in this area is enhanced. The report, and indeed the process of producing it, could be a very important means of achieving this.
2.5 Increase Public Awareness:
In addition to these three specific purposes to which the report should be put, it could also be used in a wider way to increase public awareness of the seriousness and urgency of addressing poverty. This would contribute to fostering increased solidarity with those experiencing poverty and social exclusion, and encourage them that their voice and experience are beginning to be listened to more widely and sympathetically.
It would also contribute to building a more favourable climate in which governments can take action to address the issues. However, it would need to be done in a responsible and restrained way, with the backing of governments so that they do not feel threatened or pressurised by such an initiative.
To achieve greater public awareness will require the report to be more than just another report from the Council. It will need to be made a major priority by the Council of Ministers and the Secretary General.
Significant time and resources will need to be allocated to publicising and disseminating the findings of the report.
There are three particular ways which the Council could use the report to increase public awareness. These are:
· first, the report could be launched with the backing of prominent people (c.f. the Brandt Report) and thus win widespread media coverage;
· secondly, the Council could use it as a basis for discussions with influential groups and opinion formers in society (e.g. the media, the social partners, the churches, politicians and local authorities);
· thirdly, the Council could work in conjunction with the network of non governmental organisations and other individuals and groups who are involved in addressing issues of poverty and social exclusion. This could have the added benefit of making more NGOs aware of the Council and they in their turn could do more to push their national governments to implement the various Council instruments.
GIVEN THE EXTENT AND URGENCY OF THE PROBLEM IT IS RECOMMENDED THAT THE COUNCIL SHOULD DECIDE TO MAKE THE COMMITMENT AND TO ALLOCATE THE RESOURCES NECESSARY TO USE A REPORT IN THIS WAY AS WELL AS FOR THE THREE PRIORITY PURPOSES OUTLINED ABOVE.
2.6 In the preliminary stages of the research, a number of other possible purposes to which a report might be put were considered. These were: to give a greater voice to those who are experiencing poverty and marginalisation; to assist non-governmental organisations to strengthen their efforts to combat poverty; and to encourage other European institutions to consider the implications of a report for their work. While all these could be useful spin offs and, in particular, while a report could certainly give encouragement to all those affected that their voice is beginning to be heard, they do not seem to be a central priority. The arguments in relation to each of these possible purposes are detailed in Appendix 1.
3. THE RECOMMENDED OBJECTIVES OF THE REPORT
3.1 Having taken account of the purposes to which the report will be put (see chapter 2 above);
Having considered the particular expertise and distinctive approach that the Council of Europe can bring to the subject of poverty and social exclusion - i.e. the Council's leading role in the protection and promotion of human rights and the breadth of its membership which bridges the countries of the European Union, the Nordic Council, former member States of the former Council for Mutual Economic Assistance and neutral nations;
Having ensured that any report will provide a new or distinctive approach to poverty and social exclusion which will not duplicate other reports (see Appendix 2);
Having considered the views of members of the Steering Committee on Social Policy (CDPS);
it is recommended that the Council of Europe's report on poverty and social exclusion should have three main purposes. These are:
· to review the main trends in poverty and social exclusion across Europe and to analyze the main processes involved in the context of the rapid economic, political and social changes taking place;
· to describe and analyze the connection between poverty and social exclusion and the denial of basic rights and to establish a clear framework of social rights to counter poverty and social exclusion;
· to establish concrete principles for successful action to combat poverty and social exclusion.
3.2 Review and Analysis of the Main Trends In Poverty and Social Exclusion:
This objective will involve drawing on and synthesising all the many different sources of data and the different reports and analyses, to establish what are the emerging trends in poverty and social exclusion across Europe. This overview will be important in setting the context for other aspects of any report. It will also be new and original in providing a trans- European view of poverty and social exclusion which would complement the many national and regional studies that exist.
Such an overview will thus add to the overall picture and understanding of poverty and social exclusion in Europe.
Such an overview will:
· establish who are the main groups experiencing or at risk of poverty and social exclusion (e.g. the homeless, migrants, gypsies, the isolated elderly, the long-term unemployed and their families, lone parent families);
· document the main similarities and differences between and within different areas of Europe;
· analyze what is the impact and what are the main implications for poverty and social exclusion of the major economic, political and social changes taking place in European countries - i.e. rapid economic and technological change, the fundamental political and economic changes in Central and Eastern Europe, demographic changes and changes in family structures;
· establish clearly what are the main processes taking place that are excluding people; why some people and communities are increasingly excluded and trapped in poverty while others escape; why some children are more at risk of 'inheriting' poverty than others - this will involve looking at aspects of poverty and exclusion in a more qualitative way and trying to establish what are the factors that make a difference to people in apparently similar income situations, such as family support, savings and lifestyle factors;
· analyze the consequences and costs for society of widespread poverty and social exclusion, with particular emphasis on the constraints they impose on economic growth and development, and the extent to which they lead to increased political instability and the undermining of democratic structures.
· identify the extent to which women are most affected by poverty and social exclusion and have to cope with and manage its consequences, and the degree to which this results from basic gender inequalities;
It is important to note that this overview will concentrate on establishing main trends and on revealing qualitative insights, rather than on trying to quantify exact numbers in poverty, or producing a series of national reports. The existing data is too patchy for this, and to undertake or commission major national studies would be beyond the resources of the Council. However, the overview could usefully highlight those countries where data on poverty and social exclusion is inadequate, and emphasise the importance of setting standards in this regard, and so help to encourage Governments to ensure that relevant data is collected and analyzed at regular intervals. Indeed it could provide a basis for complementing and extending the current monitoring process in Member States of the European Union, which is currently being undertaken by the European Union's Observatory on Social Exclusion, to the whole of Europe. For instance a set of questions could be devised which each country would use as a basis of reporting on progress they were (or were not) making in combatting poverty and social exclusion.
A good overview and analysis of the main trends will be crucial in trying to convince governments of the need to prioritise the issue of poverty and social exclusion, and to look at it more closely.
3.3 Describe and Analyze the Connection between Poverty and the Denial of Basic Rights:
Poverty curtails people's ability to participate fully in society and to enjoy full effective rights of social, political and civil citizenship. Thus the purpose behind this objective will be to make explicit the extent to which those living in poverty are progressively excluded from exercising their full rights and responsibilities as citizens, and are denied basic social rights, and are unable to live with human dignity.
It will provide a basis for the Council of Europe to speak out clearly on the unacceptability of poverty and social exclusion, and the extent to which it undermines human solidarity, and to stress that what is involved is an issue of basic rights, not just a matter of charity, economics or politics.
In particular this objective will involve:
· describing and analysing the ways those experiencing poverty and social exclusion suffer a denial of rights and have their human dignity undermined;
· identifying which groups and individuals are most at risk of having their rights denied;
· documenting the processes and mechanisms that lead to an accumulation of insecurities and the curtailment of a range of rights;
· developing a clear understanding and analysis of the interconnections, interdependence and indivisibility of a range of rights;
· establishing and prioritising a clear minimum level of rights that are necessary if poverty and social exclusion is to be avoided;
· documenting the gap between current standards set by the Council of Europe in various fields of social rights, and the actual practice on the ground in different countries, and identifying ways the Council's control and monitoring procedures might be strengthened;
· identifying rights that are not adequately provided for in the European Social Charter, and ways they could be included.
This objective is very close to the Council's core concern with rights. It is an approach that has not been developed in detail at a European level in any other report. However, in addition to the Council's own expertise in this area, there is a certain amount of work being done around the issue of social rights which could be built on - see for instance the Wresinski Report on 'Grande Pauvreté et Précarité économique et sociale' in France, The Exclusive Society: Citizenship and the Poor by Ruth Lister for the Child Poverty Action Group and The Welfare of Citizens: developing new social rights edited by Anna Coote for the Institute of Public Policy Research in the United Kingdom and Making Social Rights a Reality for the Combat Poverty Agency in Ireland. It is also an objective which will provide a very useful tool for encouraging governments to give poverty a higher priority and showing them how a greater attention to social rights can help to prevent exclusion. It will provide the Council with a very useful basis for future action in this field. It will also be helpful in creating a greater public awareness of the impact of poverty.
IT IS AN AREA IN WHICH THE INVOLVEMENT AND INSIGHTS OF THOSE EXPERIENCING POVERTY AND SOCIAL EXCLUSION WILL BE ESSENTIAL.
3.4 Establish Concrete Principles and Standards for Successful Action to Combat Poverty and Social Exclusion and Promote Reporting by Governments:
This objective will involve identifying the approaches that appear to work best in both combatting and preventing poverty and social exclusion. At the same time it will also be useful to identify approaches that don't work or have a negative impact. The objective will include both policies and programmes that work, and structures and mechanisms that lead to more effective and integrated local and national responses. It will not be possible to cover all policies and programmes, and some concentration on selected key areas will be necessary.
The selection of these areas will depend to some extent on the main trends and issues emerging from the overview. However, it is likely that the following issues will be a priority for examination:
· how to ensure the better integration of economic, social and cultural policies and programmes with a view to preventing and correcting some of the negative effects of the economic system, and so limiting poverty and social exclusion;
· which policies and programmes best help to avoid the exclusion from mainstream society of those experiencing prolonged unemployment, and to assist their reintegration;
· what is the best division of competencies between national and regional/local authorities in developing policies and programmes to prevent and address poverty and social exclusion, and to what extent should the principle of subsidiarity be applied when deciding on the division of responsibilities;
· how best to ensure an effective balance and coordination between the role of the state, non-governmental organisations, family and community structures, and the private sector, in combatting poverty;
· what is the specific contribution that non governmental organisations can make to tackling poverty and social exclusion, and what is the most appropriate legal and policy framework for maximising their contribution;
· how to address the reality that in many countries women, as managers of the household budget, as rearers of children, who often have poorer access to the labour market and who are often financially dependent on men, carry a disproportionate part of the burden of poverty;
· how to maintain and preserve family and community support structures during a period of economic transition and at a time of changing demographic patterns;
· how best to address the growing phenomenon of the concentration of poverty and deprivation in particular urban communities, and to avoid them developing in those transitional economies where this phenomenon has yet to occur;
· how to cope with rural decline and the effects of rapid agricultural changes and modernisation;
· how to ensure that basic data is collected that provides a basis for calculating an adequate minimum income for all citizens, and the best ways of ensuring that such a minimum is guaranteed;
· what are the best ways of ensuring that increased migration, which is in part caused by poverty, does not result in lasting poverty or the denial of basic rights as citizens;
· how best to ensure that the rights of ethnic and cultural minorities such as gypsies are guaranteed and that they are enabled to live with human dignity without discrimination or exclusion;
· how best to ensure that those affected are involved in the development and implementation of policies and programmes to combat poverty and social exclusion.
There is now a considerable body of practical experience and ideas across Europe to draw on. In fulfilling this objective it will be possible to draw on this and to provide a framework or set of basic guidelines and principles for Governments and other organisations on how best to address poverty and social exclusion. Such an exercise will create the basis for the Council to provide advice and technical assistance to member countries on how they might develop effective and comprehensive programmes to combat poverty. It will also provide a means for emerging economies to learn from the successes and failures of the more developed economies.
4. METHODS OF PRODUCING A EUROPEAN REPORT ON POVERTY
4.1 The process the Council uses for compiling a report on poverty will be vital in determining the impact it makes. If it is organised carefully the process itself will contribute significantly to increasing awareness of and commitment to tackling poverty both within the Council and within Member states.
A key strength that the Council brings to the production of a report is the range of different sectors and interests it is in a position to involve.
It is important that this potential is maximised. It will undermine the credibility of the report if the process is unduly dominated by any one particular interest or group. Interests that should be involved include:
· national governments and their officials;
· the Parliamentary Assembly;
· the different directorates within the Council;
· the Standing Conference of Local and Regional Authorities of Europe;
· relevant NGOs and European networks of NGOs representing the views of those affected by poverty and social exclusion and their national counterparts;
· the European Community and in particular those involved with its poverty programmes and observatories;
· relevant experts and academics.
It will also be important that the researchers involved in the project encompass a range of knowledge and expertise and reflect the different parts of Europe. A gender balance will also be important. If these considerations are taken into account the report will be much more likely to win widespread attention and support.
In outlining a methodology for the report it is assumed that the report will take two years to compile.
4.2 Project Committee: CDPS should appoint a special committee to oversee the development of the research project. This should consist of the following:
· 2 members of CDPS
· 1 representative from each of the Council's relevant Steering Committees     2
· 1 representative of the Standing Conference of Local and Regional Authorities
· 1 representative from the Parliamentary Assembly
· 2 representatives from relevant NGOs
· 2 independent experts
It will be important to ensure that the Project Committee is balanced in terms of gender and that there is a reasonable mix of expertise and a broad geographical representation.
This committee would meet 3 times during the course of the project to receive progress reports, make recommendations, comment on draft documents and to approve the final report for submission to CDPS. It would be convened by the research coordinator.
4.3 Resource and Advisory Group: This would consist of a nominated official from each of the Council's directorates. Those nominated would act as link people for the research team. They would be consulted separately or collectively as the research coordinator decides.
4.4 Research Staff:
i) Research Coordinator: A full time research coordinator should be engaged (either as a temporary member of staff of the Council of Europe or as an independent consultant) for the two year period to coordinate and manage the different parts of the research project. This person would have overall responsibility for bringing together material from the different contributors (see "research team" and ''specialist research assistant'' below) into an integrated draft. The person would also directly undertake consultations with and review documents produced by trans European organisations (both inter-governmental and non governmental).
This person will require:
· a wide-ranging understanding of poverty and social exclusion and a well established track record in this area;
· a proven ability to analyze and synthesise material from different sources;
· skills in presenting information and recommendations in a concise, persuasive and accessible manner;
· expertise in developing policy proposals;
· the ability to relate to policy makers, researchers and experts involved in tackling issues of poverty and social exclusion;
· a commitment to listening to the views and experience of those affected by poverty and social exclusion;
· excellent organisational skills;
· a good understanding of the respective roles of national governments, local and regional authorities and non governmental organisations;
· a knowledge of the Council of Europe and an understanding of the role it can play in addressing poverty and social exclusion.
· fluency in French or English and a working knowledge of the other language - additional European languages would be helpful.
ii) Research Team: A team of four researchers should be engaged on a half-time basis over the period of the project. They will each take a group of countries and be responsible for preparing the overview report on their region and a report on concrete principles and standards for successful action to combat poverty and social exclusion. They will also be expected to assist with the planning of national consultations involving NGOs and those affected by poverty and social exclusion. The researchers will work to the research coordinator and will be expected to assist with drafting the overall report as well as contributing the inputs on their own area.
Ideally the research team should encompass a range of relevant disciplines such as economics, sociology and social policy research. They should have a good track record on researching and writing on poverty related issues. At least one of the researchers should have a knowledge of non governmental organisations. They should demonstrate a commitment to listening to the views of those affected by poverty and social exclusion. The team should reflect an equitable geographical distribution as well.
iii) Specialist Research Assistant: This person will be engaged (or seconded by the Council) on a part-time basis to assist with implementing the work on poverty, social exclusion and social rights. Initially he/she will prepare a background paper and framework for consultations on this issue. Later he/she will assist the research coordinator in organising national consultations involving NGOs and those affected by poverty and social exclusion. He/she will then be involved in analysing the outcome of the consultations and assisting the Research Coordinator in preparing specific recommendations in conjunction with Council of Europe experts.
4.5 Methodology
i) Overview and Analysis of Main Trends: This will involve pulling together all the information and data that is available across Europe. A lot of this will already exist in written form but in some countries, particularly some Central and East European countries, material will be limited. It will be important to supplement desk research with meetings with experts, NGOs and government officials in the different countries. By grouping the countries into four groups and by involving a team of four researchers several advantages will accrue. First, it will be possible to take account of differences between countries. Secondly, it will be possible to ensure a mix of expertise and experience. Thirdly, there is the possibility of a positive dynamic developing as a result of a group of people working together. The research coordinator will be able to complement the pictures from the different regions by concentrating on the information that is available on a pan-European basis from organisations like the European Union, the OECD, European NGOs and networks and the Council itself.
ii) Poverty and the Denial of Basic Social Rights: The involvement of those experiencing poverty and social exclusion, and the organisations representing them, will be vital in achieving this objective. The first task will be to draw on existing material from within the Council of Europe, and from NGOs like ATD Fourth-World, to identify initial categories of rights that are being curtailed as a result of poverty and exclusion. From this a questionnaire will be framed. This will be intended to elicit from those affected by poverty and social exclusion specific examples of how their rights have been denied, any additional categories of rights that should be included and some sense of which rights they see as most fundamental.
The next step will be for the Research Coordinator to commission an expert or a particular NGO in each country to undertake a series of consultations with organisations working with those who are socially excluded. The extent of such consultations will depend to some extent on the stage of development of NGOs in different countries. In EU Member States the member networks belonging to the European Anti Poverty Network could provide an appropriate mechanism.
Once the information comes back from the NGOs it will be analyzed and a comprehensive report will be compiled. This will document the actual experience of people whose basic rights are undermined by poverty, and will provide a clear statement of the unacceptability of poverty and social exclusion as it leads to the denial of rights. It will highlight the extent to which existing rights guaranteed by the Council of Europe are being undermined by poverty and social exclusion, and the failures of governments to meet their obligations. Consultations will then take place with Council of Europe experts and other experts with a view to preparing a clear set of recommendations on rights. This will include assessing what strengthening of the instruments available to the Council is necessary. Proposals will then be fed back to NGOs for further discussion with those affected by poverty and social exclusion. The proposals will be refined in the light of their comments, and the section on rights finalised.
iii) Establish Concrete Principles and Standards for Successful Action to Combat Poverty and Social Exclusion and Promote Reporting by Governments: The group of researchers responsible for working on the overview will also have the task of implementing this objective. The first step will be to look at the experience of the European Union Observatory on Social Exclusion and other evidence available on positive lessons emerging. From this they will devise a set of questions designed to elicit what measures are being undertaken in each country by national government, regional and local authorities, and NGOs, to combat poverty and social exclusion and what success is being achieved. A questionnaire will then be sent to national governments. In addition the four researchers will consult with experts, NGOs and local government representatives in their group of countries. The results of the questionnaires to governments and the consultations will then be compiled and written up for the final report by the team of researchers.
4.6 Schedule of Work
Year 1
Review and Analysis of Trends
Month 1 Team meet and agree approach and 1st meeting of project committee
Months 1 - 3 Desk research on each region and on overall European trends
Months 5 - 8 Visits to officials, experts,
NGOs in each country and to trans European organisations
Months 9 - 10 Drafting of regional reports
Month 11 Meeting of team to discuss overview
Months 11 - 12 Drafting of overall review;
2nd meeting of project committee; agreement on key themes for next stage
Social Rights
Months 1 - 6 Desk research and meetings with Council of Europe and other experts in order to produce paper outlining the connection between poverty and social rights and the production of a framework for consultations with NGOs
Months 7 - 12 National Consultations involving NGOs and those affected by poverty and social exclusion
Year 2
Establishing Concrete Principles and Standards
Month 1 Discuss, agree and distribute questionnaire to national governments
Months 2 - 6 Research Team members to consult with experts, ngos, local government representatives in their countries
Months 7 - 8 Drafting of findings from each group of countries
Months 9 - 11 Synthesise regional reports and produce overall set of guidelines and recommendations; 3rd meeting of project committee
Months 10 –12 Revise and finalise this section of report
Social Rights
Months 1 - 2 Synthesise the material from national consultations
Months 3 - 4 Consult with Council of Europe experts and other experts with a view to suggesting a clear set of recommendations on rights
Months 5 - 8 Feedback suggestions to NGOs for further discussion with those affected by poverty
Months 9 - 10 Revise proposals on rights in light of comments
Months 10 - 12 Finalise section of report on social rights
5. FINANCIAL RESOURCES
5.1 Research Budget: It is estimated that the total research budget for this project will come to 5,392,000 French Francs    3 (see below).
Research Coordinator *
1 person full time for 2 years 1,200,000
Research Team
4 persons half-time for 2 years 1,800,000
Specialist Research Assistant
1 person half-time for 2 years 280,000
Travel, Subsistence and Overheads ** 600,000
National Consultations (28 x 54,000) 1,512,000
_________
TOTAL 5,392,000
* The costs of researchers include provision for pay related social insurance and pension. Salaries are calculated on the basis of Council of Europe scales. The Research Coordinator has been equated to a Principal Administrative Officer scale, the four research team posts to an Administrative Officer scale and the Specialist Research Assistant to an Administrative Assistant scale.
** In calculating the subsistence costs a Council of Europe subsistence rate of 700 French Francs per day has been allowed for.
Team of 4 Experts: It is presumed each expert will spend 5 days in year 1 and 5 days in year 2 in each country he/she is responsible for visiting. This involves a total of 280 days. In addition each expert will spend 9 days at meetings in Strasbourg or some other convenient point (i.e. 2 days at the outset of the project, 3 days at the midway point and 4 days finalising the project). TOTAL 221,000
Research Coordinator: This person will probably be based in the Council of Europe. It is envisaged that he/she will visit each of 4 experts for 2 days each in both years and will have another 20 visits over the two years (to EU, UN, OECD, ILO, relevant conferences and some of the national consultations). TOTAL 25,200
Research Assistant: He/she will also be based in the Council of Europe. It is estimated that the Research Assistant might spend up to 12 days visiting experts and attending some of the national consultations). TOTAL 8,400
Project Committee: It has been presumed that most of the Project committee members will not need to be reimbursed for expenses. However, the 2 representatives from NGOs and the 2 independent experts will need to be reimbursed for 3 meetings in Strasbourg. TOTAL 8,400
In calculating travel it is estimated that there are 120 return journeys involved in the above meetings. While it is impossible to estimate at this stage the proportion of rail and plane travel an average figure of 2,700 French Francs has been assumed. TOTAL 324,000
This progress report assumes that a lot of basic overheads (telephone, office space, photocopying etc) can be covered from the Council of Europe's own resources. They have not been provided for here. However 12,800 has been allowed for contingencies.
Thus the total for Travel, Subsistence and Overheads is calculated at 600,000 French Francs
5.2 Publication and Follow up: It is strongly recommended that there is a specific budget allocated at this stage for producing and disseminating a high quality and easily accessible final report and popular summary.
There should also be a budget for a follow up programme for one year. At a minimum this will require one person full time to coordinate and initiate follow up.
Appendix 1 - Other Possible Purposes
In addition to the four purposes to which a report might be put after its completion which were recommended in Chapter 2 three other purposes were considered in the early stages of this research. These are detailed below.
Give a Greater Voice to those who are Experiencing Poverty and Marginalisation: A report on poverty and marginalisation could be used to empower those living in poverty and gain them a greater say in the decisions that affect them.
This is certainly an important objective in the overall struggle against poverty and social exclusion. It is very important that those who experience the problems are listened to. However, there are limits to how far a report from the Council can be used to significantly advance this important goal. Because the Council is primarily an inter-governmental and inter-parliamentary institution it does not have the mechanisms itself for involving those who are living in poverty in its workings. It can of course be influenced by them indirectly but that will depend more on the effectiveness of voluntary organisations representing them than on any report. Furthermore, empowering those in poverty is something that has to initially take place at a very local level over an extended period of time. This can then be expanded to national and European levels by the formation of networks. However, such developments cannot and should not be imposed from above. This then does not merit a very high priority in the purposes to which a report may be put. However, the report could certainly give encouragement to all those affected that their voice is beginning to be heard.
Assist Non-Governmental Organisations to Strengthen their Efforts to Combat Poverty: The Council could promote and progress the report with non-governmental organisations in order to alert them to new forms of poverty and social exclusion and to share with them new and more effective methods of combatting social exclusion. This could have the added benefit of making more NGOs aware of the Council and they in their turn could do more to push their national governments to implement the various Council instruments.
This could be a useful way to use any report as the Council has a considerable number of NGOs affiliated and contacts with many others who participated in the Colloquy in December 1991. Furthermore, there are many NGOs concerned with poverty who would welcome an ongoing dialogue with the Council and would be greatly encouraged by it. However, to be effective such an approach would require the commitment of considerable staff and resources over an extended period of time.
Encourage other European Institutions to Consider the Implications of a Report for their Work: The report could be promoted with other important elements in the European organisational architecture: the UN (and its agencies located in Europe), the Nordic Council; the Baltic Council; the ILO and the OECD.
It seems appropriate that the Council should try and influence other major European institutions. Certainly there could be a useful add-on effect with national governments by following this route. However, given that each of these institutions has its own agenda and given that a Council of Europe report is likely to concentrate on different aspects of the problem this would seem a useful additional purpose but not a very high priority.
Appendix 2 - Review of Existing Poverty Reports
Many reports on poverty and social exclusion have been compiled in Europe over the past three decades.i These have been assembled principally by national governments and State agencies; national and international non-governmental organizations (NGOs); the research community; and the European Union. There is no point in the Council of Europe duplicating work which has already been carried out. Indeed, it should be a principle of this report that it does not replicate work already carried out.
Reports by the European Union are perhaps the most relevant in both volume and influence. These can be subdivided into the reports, views and documentation of the Commission and the other institutions of the Union; those of the three anti-poverty programmes funded by the Commission (1975-80; 1984-9 and 1989-94); and those of the Observatories, particularly the Observatory on Social Exclusion, set up by the Commission after 1989. There is thus a high level of circulation of information about poverty in the European Union and between its member States.
Outside of the European Union the picture becomes less clear. There are a number of relevant national studies and quite a lot of information is available on Scandinavia. However, the rapid changes in the transitional economies of Central and Eastern Europe means that detailed up to date data is only available in some countries. Also the situation is changing so rapidly that any data becomes rapidly out of date.
The Council of Europe itself has built up a considerable amount of information through its recent work on poverty and social exclusion, in particular as a result of the December 1991 colloquy, Towards greater social justice in Europe: the challenge of marginalisation and poverty, and its work on issues like social security, migration, adult education, family structures, unemployment and homelessness.ii Furthermore, the Parliamentary Assembly has demonstrated renewed interest in poverty.iii
In addition to the information available in the Council of Europe and the European Union it is also important to note that the OECD has a certain amount of relevant data, particularly on economic trends and developments. There are also a number of specialist European networks, non governmental organisations and researchers, mainly in EC countries, which have relevant information on specific issues like homelessness, position of lone parents, migrants and unemployment.
Overall the picture is of a considerable amount of relevant information on poverty, particularly in the European Union. While, the data on the extent of poverty and social exclusion is patchy efforts are being made by Eurostat to address this issue. At present there is certainly sufficient information in most member states of the EC to establish the main trends. There is also a growing body of information about what Governments are doing to address particular aspects of poverty and social exclusion. In addition there is an increasing body of qualitative information from NGOs (e.g. ATD Fourth-World) and researchers which documents the experience and insights of those living in poverty. However, the picture is much more patchy in relation to the rest of Europe.
Overall four main gaps appear to exist. These are first, the absence of any pulling together of all the different reports and the setting of all of this in the context of the economic restructuring taking place in the world economy and the political and economic upheavals in central and eastern Europe. Secondly, there is a lack of specific analysis of the processes which cause people to become increasingly excluded and marginalised and why some people below particular poverty lines appear to fare worse than others. Thirdly, there is relatively little work documenting the extent to which poverty and social exclusion undermine people's basic human rights, limit their ability to participate and consequently reduce them to second-class citizenship. Fourthly, there is no systematic pulling together of all the different practical lessons that have been learned in different countries.
Appendix 3 - Acknowledgements
The researcher received considerable assistance during the course of this consultancy from many organisations and experts. Their help and advice is gratefully acknowledged.
In the first part of the consultancy he was assisted by Mr Brian Harvey, who is an expert on European NGOs involved in the field of poverty and social exclusion. His expertise and hard work were very important in preparing the preliminary report (CDPS III.5 (92) 2) to a very tight time schedule.
The following experts gave very helpful advice during the preliminary phase.
Mike Allen European Network for the Unemployed
Ruth Brand Arbeiterwohlfahrt Bundesverbrand
Chris Brooks OECD
Noreen Byrne European Single Parents Network
Bruno Carton European Commission
Triona Nic Giolla
Choille European Anti-Poverty Network - Ireland
David Donnison Glasgow University
Damien Killeen Strathclyde Anti Poverty Alliance
Dora van Loo European Commission
Brian Nolan Economic and Social Research Centre
Denise O'Hara European Young Christian Democrats
Quintin Oliver European Anti-Poverty Network
Diana Robbins current editor of Social Europe
Graham Room EC Observatory on Social Exclusion
S. Singelsma European Commission
Jean Tonglet ATD Fourth-World
Charles Vella Professor, H. San Raffaele, Milan
Ilona Vercseg Hungarian Association for Community Development
Marie-Francoise
Wilkinson European Anti-Poverty Network
Invaluable assistance was also received from officials of the Council of Europe. In particular from Mr. Marquardt, Mr. Millich, Mr. Scicluna, Mr. Tonelli, Mr Murray, Mrs Rolandi-Ricci, Mr. Tessari, Mr. Marziale, Mr. Nagel, Mr. Hartland, Mr. Fuchs and Mr. Zardi.
At the CDPS meeting on 4th November 1992 it was suggested that the consultant should incorporate a number of further meetings. In particular it was suggested that he should visit some of the East European countries particularly Poland, the Czech Republic and the Slovak Republic. The assistance of Radoslaw Markowski, Aleš Uchytil, Michal Greslik and Mrs Kubolova and Council of Europe officials in organising these most useful and informative visits is gratefully acknowledged. The assistance of Dominique Labroue in organising a very helpful visit to France is also acknowledged with thanks. At the suggestion of Council of Europe officials worthwhile and instructive visits were also arranged to ATD Fourth-World's International Headquarters in France and to the European Centre for Social Welfare Policy and Research in Vienna. The help of the following experts and organisations who the consultant met during the course of these visits was very much appreciated.
France
Bruno Groes UNIOPSS
Pierre Vanlerenberghe Commissariat General au Plan
Eugen Brand,
and colleagues ATD Fourth-World (International Headquarters)
Poland
Radoslaw Markowski
and colleagues Ministry of Labour and Social Policy
Miroslaw Ksiezopolski Institute for Social Policy, Warsaw University
Jan Kordos GUS, Central Statistics Office
KLON Data base on Polish Non Governmental Organisations
Joanna Starega-Piasek Deputy Minister responsible for Welfare policy
Austria
Peter Melvyn and
Helmut Wintersberger European Centre for Social Welfare Policy and Research
Czech Republic
Aleš Uchytil,
George Kopjpko,
Petr Visek Ministry of Labour and Social Affairs
Mrs Grolova Diakonie
Ms Kopeckova Salvation Army
Ms Hranacova and
colleagues Prague District 10
Petr Rohlena Czech Catholic Charity
Jan Lorman and
colleagues ZIVOT 90
Slovak Republic
Miloslav Hettes
and colleagues National Association of Towns and Communities
Ondrej Herec Ministry of Labour, Social Affairs and Family
Marta Keckesova Bratislava Area Office
Boris Sopira Ministry of Labour, Social Affairs and Family
A particular word of thanks is due to Robin Guthrie, Anna Gillett and Aida Fessler of the Council of Europe's Directorate of Economic and Social Affairs for all their support, advice and assistance during the course of the consultancy.
Finally, a special word of thanks and appreciation is due to my colleagues in the Combat Poverty Agency. Their support and encouragement as well as their patience and forbearance while this report was being compiled has been very much appreciated.
