Revised rent supports

An Saoi: The Dept. of Social Protection (formerly Dept. of SFA) has finally announced the revised rent supports, effective from now until Secember 2011. It is unfortunate that An tAire Ó Cúiv did not publish the Report on which the revised figures are based. The Report was prepared from, “Information from the Private Residential Property Board databases; the CSO Rental Indices, in addition to the various rental market reports was utilised. Consultation with certain local Superintendent Community Welfare Officers also took place as part of the review.” It certainly would make interesting reading.

It has been suggested in the past (and the Minister made reference to it in interviews) that rent support had become a floor in the private rental market. Our friends in Daft do a comprehensive quarterly report of advertised rent levels, see for example their Quarter 1 2010 Report . Agreed rents may be slightly lower, but this does not devalue the importance of these reports.

I decided to do a comparison between the requested rents and the level of rent supports. In Table 1 the rents quoted are for a two bed unit and the level of rent support is the maximum available for a one child family (one or two parent). The Discrepancy is the percentage difference between requested rent levels and the revised support levels.

Table 1

As can be seen the variation is quite considerable. It would also suggest that outside of urban Cork, Galway & Sligo, all of which have unusually high student populations, the level of rental support may be excessive and indeed acting to prevent rents falling.

In Table 2 the rents quoted are for a three bed unit and the level of rent support is the maximum available for a family with two children (one or two parent). Again, the Discrepancy is the percentage difference between requested rent levels and the revised support levels.

Table 2

The pattern is somewhat similar with the discrepancies in the student dominated markets of Sligo Galway & Cork standing out. In general the discrepancies are less than those in Table 1.


The rents listed above are of course from the first quarter of 2010 and it will be the third quarter before the announced reductions have fed into the system. The reductions in rent supports are to be welcomed but leaving the current levels in place until 2012 seems excessive. A further review of rent support levels in six months could yield substantial further savings to the State.

The Procrustean bed of statistics

Michael Taft: In Greek mythology the rogue Procrustes had an iron bed in which guests were invited to rest on. He would then hold them down and, if they were too large he would lop off their limbs; if they were too small he would stretch them. The last place you want to be is on Procrustes’ iron bed, especially if you don’t fit.

Suzanne Kelly brings the spirit of Procrustes’ iron bed to her table of statistics in today's Irish Times. She took households with a couple with two children and compared their net incomes in three different situations:

PAYE employee: €36,078
Self-employed: €35,159
Unemployed: €40,261

Wow. It would appear that if a below-average worker loses his or her job, or the self-employed see their business go down the tubes, they shouldn’t despair. They should celebrate their big income increase. These ‘facts’ led Suzanne to comment:

‘A social welfare package where the cash and benefits exceed wages will stop potential staff from returning to work when the economy lifts.’

Maybe. Except that Suzanne has put this set of statistics on a Procrustean bed where she has pulled and chopped them to fit her argument.

To arrive at the income for the unemployed scenario she includes Rent Supplement. This is a big item. It makes up €12,168, or over 30 percent of the total. Without this supplement, the couple would be on an income considerably below both the PAYE employee and the self-employed.

So how valid is it to put this Rent Supplement figure into the total for the unemployed? Not very. Not very at all.

The 2008 Social Affairs Annual Statistical Report shows that 95 percent of all those on Jobseekers Benefit do not receive Rent Supplement. When you add up all those on some form of unemployment payment (benefit and allowance), 90 percent do not receive Rent Supplement.

But for that small minority who do qualify, would they get this amount? €12,168? On average, no. In fact, they would get half that amount. The 2008 Social Welfare report, again, shows the 74,000 recipients of Rent Supplement receiving on average €5,953 a year (there is no breakdown by welfare payment). The reason why this is so much lower than the headline maximum rate is that Rent Supplement is rigorously means-tested.

So, we have a table that includes an item which only a very small minority of unemployed obtain and of those who did get it, on average they receive less than half the amount as the table states.

If Suzanne had included these caveats it wouldn’t have supported here statement. But, hey, if the facts don’t fit – just chop and stretch until they do, just like Procrustes. Of course, not many of his ‘guests’ survived the ordeal.

Placing citizenship centre-stage: Michael D's take on the debate and what's missing

Michael D. Higgins' opinion piece in today's Irish Times is well worth a read, especially in view of recent debates here on social welfare, rent supplements and the minimum wage. He writes:

Missing from the debate so far is any concept of citizenship. Indeed, former taoiseach Bertie Ahern reduced the debate on citizenship to a debate on volunteering, important but not the same thing. This is quite extraordinary in a republic. It is regarded as radical and unacceptable by the conservatives who cheered on the property rackets to speak of social security, of a floor below which citizens would not be allowed to fall. After all, the most extensive interview given on our public service broadcaster by the leading banker/gambler who did the most damage to Ireland’s financial reputation called for cuts in social welfare. Yet citizenship is what we should now be discussing. The more socially-concerned elements of the public surely do not want a return of more of the same.

Read the full piece here.

Lower Rents Still Higher Than Rent Supplement in Dublin

Nat O'Connor: Rents drop 17% over 12 months according to DAFT’s latest Rental Report. This headline will be referred to in the next Budget to justify cutting Rent Supplement payments. But it isn’t that simple.
As noted previously, the Rent Supplement maximum payment will cover a significantly different proportion of average rents, depending on what part of the country you live in. So people in some areas are more likely to be squeezed into poorer accommodation and/or to make further top-up payments from their social welfare than are their equivalents in other areas, by the mere chance of what administrative area they live in.

Another problem with the headline figures is that it is an average across all housing units, from one-bed studios to 5 bed+ houses. However, some detail is given on page 7 of the report based on the number of bedrooms in the dwelling. So, let’s illustrate what Rent Supplement will do for you (bearing in mind the limits of the available data):

A three-bed unit will cost an average of €695 in Waterford City, €780 in West Leinster, €1,273 in Dublin 8 or €1,486 in Dublin 1.

Rent Supplement for a family with 3 or more children is the highest possible Rent Supplement payment, and it varies across the administrative regions of the health services (who administer the payment). Including the family’s contribution of €103 per month, the maximum payment is €788 in Waterford City, €909 in Meath or €1,203 in Dublin.

So far so good, if you don’t live in Dublin. Maximum Rent Supplement covers average asking prices. But given that it has already been cut and rents have fallen, is there really much scope for cutting RS further? Also, it is a maximum, so a CWO can simply decide to pay a lower amount. Do we need a further blanket cut of payment ceilings? Dublin already lags behind by €70 per month in Dublin 8 or €283 per month in Dublin 1, which is a lot of money for a family on welfare. So there is a clear problem with how this payment is calculated. And if other social welfare payments are cut in the next Budget, people’s ability to pay for their housing will be put further at risk.

Now take the example of a one-bed housing unit, which will be an apartment in most cases. A one-bed will cost an average of €532 in Waterford City, €511 in West Leinster, €849 in Dublin 8 or €892 in Dublin 1.

Maximum Rent Supplement for a single person living on his/her own (plus contribution) will cover €571 in Waterford City, €571 in Meath or €632 in Dublin. So, it’s sufficient in Waterford or Meath, but €217 too low in Dublin 8 and €260 too low in Dublin 1 (and these are not the most expensive areas in Dublin either). There is a massive gap in Dublin between average rents and Rent Supplement, which is likely to force single people into the cheapest accommodation and to make further top-up payments from their welfare payments.

Some people will say that we should expect people on Rent Supplement to move into the cheapest accommodation. But let’s examine this logic.

If lower Rent Supplement forces people into the cheapest accommodation, the taxpayer ends up subsidising the worst flats, which are often owned outright and can undercut modern apartments (e.g. buy-to-let) in terms of low rent. It also increases ghettoisation, as families on welfare become priced out of large areas of Dublin. The fact that market rents are lowering is an opportunity to move people into better quality, modern apartments and to achieve a better social mix. These are stated goals of national housing policy.

Bedsits have been banned, which is a move towards higher quality standards in the private rented sector. But this means that rents will be higher. So, we have to look at how we meet those costs. Rent Supplement will cost an estimated €490 million in 2009. But part of the problem is the decision to pay near-market rent rates to private landlords, rather than take a long-term view and build (or acquire) more social housing, which very soon becomes a cheaper option for the taxpayer.

More Cutting Times (Rent Supplement)

Nat O'Connor: Today’s Irish Times suggests that rent supplement (along with child benefit) is being targeted for cuts by the Special Group on Public Service Numbers and Expenditure Programmes (aka 'An Bord Snip Nua').

Rent supplement is a reasonably large area of expenditure in the national budget. The 2009 Revised Estimates for Public Services give a total spend of nearly €11 billion for Social and Family Affairs, of which the package of supplementary welfare allowances make up €1.1 billion or around 10%. Rent supplement is estimated at €490 million; that is, 4.5% of welfare spending. This represents a steady increase in recent years; for example, it has increased from €151 million in 2000, when rent supplement represented 2.8% of a total social welfare expenditure of €5.3 billion.

The Comptroller and Auditor General conducted a value for money exercise about rent supplement, published in April 2006. Without going into the detail here, the report noted that the payment was not being used for its original, temporary purpose, but is relied on for long-term housing by many households. The long waiting time for social housing can partially explain this situation.

Now, it is generally acknowledged that rents are currently in decline, although there is a lack of available data. Frustratingly, the state body, the Private Residential Tenancies Board (PRTB) has a great deal of information in its database about the actual level of rent paid that could provide a detailed rental index. Likewise Revenue and the Department of Social and Family Affairs may have data on rent levels that could be used to construct a rental index. A limited picture of current rents is available through DAFT, but this data is limited to asking prices not actually paid rent, and only applies to properties currently to let through the DAFT website. Nevertheless, it is possible to use the DAFT report (Quarter 1, 2009) to show the limits of the current level of rent supplement.

DAFT gives an average monthly rent for every county in Ireland, with a breakdown of this information for the larger cities. Although Rent Supplement might be expected to be paid to properties at less than average rent levels in some cases, it is reasonable to assume that rent supplement will provide an equivalent level of support across the country.

This does not appear to be the case, as there is a wide range of difference in how much of average rent will be covered by rent supplement in different areas.

For example, maximum rent supplement for a single person or couple sharing a dwelling varies from €66 to €92 per week. Although this variation is meant to be in line with different rent levels across the country, the payment – plus the €24 weekly contribution the household makes – represents anything from 37% of the average rent level of South County Dublin or 46% in Galway City to 78% of average rent levels in Leitrim or 79% in Laois.

A single person on his/her own is paid a maximum of €85 to €122 per week, depending on the area. Adding the €24 weekly contribution, this equates to 47% to 103% of average rents, depending on where the person is living.

What this variation shows is that there is seemingly a poor alignment of rent supplement with local rent levels (despite the regional rent supplement maximums). This means that households in some areas are much less well supported than households in other areas. One basic anomaly is the fact that average rent levels vary considerably in the city versus the county in Cork, Galway, Limerick and Waterford, but rent supplement remains the same. Similarly, rent levels vary enormously across Dublin, yet there is only one level of rent supplement for the capital, which essentially means that people who rely on rent supplement are effectively excluded from living in large sections of the city.

In this context, it is worth reminding ourselves of the overall aim of Government’s housing policy, which is to “enable every household to have available an affordable dwelling of good quality, suited to its needs, in a good environment and as far as possible at the tenure of its choice”.

It is true that rent supplement levels for families with two or more children can be above the average market rent in some cases. However, caution must be exercised in interpreting this, as rent levels for larger houses are also going to be above average.

It is a very simplistic argument for the Government to make that rents have decreased across Ireland, hence it can universally reduce rent supplement. Cuts across the board will fail to address the fact that rent supplement is already distributed in an illogical and unfair manner. Not least, some of the most vulnerable people (especially single people) already do not receive sufficient assistance to pay for decent housing in many areas. Organisations such as Threshold and the Peter McVerry Trust have long pointed to the fact that many households are required to top-up their rent with additional payments, leaving them with very little to live on.

The Government may have some margin to reduce rent supplement in a few cases. The Comptroller and Auditor General’s value for money report noted that landlords have no incentive to ask for less than the maximum payable and it is possible that the maximum may now be above average in a small number of areas. But the Government can only reasonably proceed to lower rent supplement if its decision is based on good evidence of local rent levels. The current wide variations suggest that the levels of rent supplement are not evidence-based.

Given that the Government has access to data with which it could generate a much more sophisticated national rental index, why is it not using this data in order to more fundamentally revise the level of payments based on local rent levels?

If the Government simply introduces cuts across the board, this indicates to me that not only are they unfairly punishing some of Ireland’s most vulnerable households, but they are incapable of the basic competence required to operate the rent supplement system as it stands, never mind developing an alternative housing policy that would be more sustainable and give the taxpayer a tangible asset (like social housing) for the large amount of money currently paid out to private landlords.
Dr. Nat O'Connor is Policy Analyst with TASC