What we heard
- The values of the public management system need updating.
- The process for updating the system’s values needs to be inclusive.
- A strengths-based approach is needed to achieve wellbeing for everyone.
- Advantage for some means disadvantage for others.
- Te Ao Māori and Te Tiriti challenge the existing values of the public management system.
- A wellbeing approach needs to be grounded in human rights.
Submitters were particularly interested in the wellbeing approach taken in the interim report. We received several endorsements for our direction, as well as submissions who identified various areas of our concept that needed strengthening. Overall, submitters agreed that the underlying system assumptions need to be re-examined, and that this process must be inclusive and participatory.
The values of the public management system need updating
Some submitters agreed that the values of the public management system need to be updated. Submitters made the link between adherence to these values and the lack of prioritisation of wellbeing in policy and funding frameworks:
"[The] current settings favour efficiency and effectiveness as per new public management approaches rather than enacting human rights- based approaches, which work to achieve freedom and dignity for all. If new values and assumptions were founded in human rights-based approaches, which recognise the inherent value, worth and dignity of every single individual and community, the barriers of discrimination and power imbalances could to some extent be mitigated." (Aotearoa New Zealand Association of Social Workers, sub. DR141, p. 2)
These submissions highlighted some of the existing structures holding these values in place, as well as examples of where changes are occurring.
Investment—not ‘fiscal discipline’—should be a priority
Several submissions agreed that the predominance of ‘low debt orthodoxy’ inhibits the development of competing economic value frameworks that prioritise holistic wellbeing and the needs of the collective. One submitter explained some of the ways in which this tension manifests:
"Rather than relying on long-held assumptions about how to deliver ‘fiscal discipline’, the Government needs to adopt a strategic- investment led approach to policymaking, particularly in the context of the climate transition. This fundamentally needs to move from an incremental to a transformational approach… that is Government-led and based on risk-opportunity analysis that, in particular, focuses on the most vulnerable first, appropriately partners with Māori and targets transformational investment in a way that reduces inflationary and cost-of-living pressures." (Rewiring Aotearoa, sub. DR128, p. 7)
However, one submission did caution the Commission that changing the current fiscal rules and processes could make persistent disadvantage worse:
"Our current fiscal rules and processes are essential to provide both macro-economic stability and micro-economic flexibility. Without them we face serious economic risks, including the exacerbation of permanent disadvantage." (Peter Winsley, sub. DR 131, p. 2)
Values are already shifting in the public management system
Several submissions suggested that values are already changing in the system, albeit within siloes. The Association of Salaried Medical Specialists (sub. DR 153) suggests that models from the health sector could be adapted across the public management system:
"We have recommended the adoption of a Health in all Policies (HiAP) approach. The aim of HiAP is to ensure health, wellbeing, sustainability, and equity issues are explicitly addressed in all policy, planning and decision- making processes to improve health outcomes and mitigate health disparities." (Association of Salaried Medical Specialists, sub. DR153, p. 2)
The process for updating the system’s values needs to be inclusive
In our interim report, we recommended that a national conversation take place to reconsider the system’s underlying assumptions and values. This was a popular idea with submitters, although many of them saw obstacles to making a national conversation a reality. Many submitters suggested that guiding this process using the principles of He Ara Waiora could overcome these barriers and increase the conversation’s chances of success, and that changes to the public management system needed to be non-partisan.
A national conversation could be used to the update system values
Submitters agreed with the idea of a national conversation and had some suggestions about how to do it:
"[A national conversation] should not only be about the machinery of how wellbeing is delivered but also what wellbeing is, the priorities to be invested in, and not assuming that the three-yearly electoral cycle is sufficient mandate on its own. These conversations should not be one-offs, but an ongoing series of regular check-ins with the community about what matters to them and how they would like to see services and wellbeing delivered to them." (Waikato Wellbeing Project, sub. DR124, p. 11)
"The Commission is right to be exploring the Wellbeing in Wales Act as a model. While there will never be anything approaching a political consensus on means and values, the so-called Welsh model has provided for a degree of bipartisanship in agreeing upon the ends (i.e. wellbeing objectives). This provides some degree of consistent overall policy direction." (Taituarā, sub. DR121, p. 4)
… but there will be challenges in making the conversations inclusive
Submitters also shared reservations about the idea of a national conversation. These concerns were around the potential to create further divisions, and further entrench social inequities:
"Starting a national conversation about the values to adopt by saying that the dominant culture does not have the right values is probably not the best starting point… It is very easy for good intentions to create much harm (through othering)." (David King, sub. DR155, p. 6)
A national conversation should also ensure that privileged and powerful voices do not dominate the conversation:
"Enabling a national conversation, the co- creation of new system settings, and ongoing engagement in public accountability will only be possible if social partners are adequately resourced to participate. If this does not happen, then existing power imbalances will simply be reproduced." (New Zealand Council of Trade Unions, sub. DR134, p. 13)
Using the principles of He Ara Waiora may help make a national conversation successful
Many submitters expressed hope that He Ara Waiora, and the principles the framework encompasses, could be used as a tool for introducing and embedding values into the system that better enable wellbeing approaches:
"The vision expressed in He Ara Waiora is one that will benefit all in Aotearoa New Zealand. A framework that centres on the mana of individuals and communities sits at the heart of who we uniquely are as Aotearoa New Zealand and is to be embraced." (Kore Hiakai Zero Hunger Collective, sub. DR118, p. 1)
There was a consensus among submissions that it is important that frameworks and models are consistent across the system and that duplication of wellbeing frameworks is a symptom of a siloed and fragmented system:
"The existence of competing frameworks manifests itself in planning and action... We also concur with the conclusions of the McGuiness Institute that these are fragmented and overall hinder progress. We’d add that this is characteristic of areas beyond poverty and inequity. It’s perhaps also a reflection of the siloed nature of the policy process, and the incentives to short-termism." (Taituarā, sb. DR121, p. 4)
A non-partisan platform is needed to address persistent disadvantage
Several submitters said that politics has become a major barrier to addressing the issue of persistent disadvantage:
"Political debates on income support and social welfare policies over the last few decades have generally been a dialogue of the deaf between advocates focusing on raising benefits levels at one extreme and ‘work for the dole’ at the other. In reality, dealing with disadvantage and social mobility is more complex and neither increasing benefits nor increasing work readiness will work on their own." (Derek Gill, sub. DR148, p. 4)
One submitter suggested a way to build a non- partisan platform:
"The report should require cross-party definition of persistent disadvantage and commitment to the use of He Ara Waiora across the Public Management System." (New Zealand Council of Christian Social Services, DR 141, p. 3)
There was a suggestion that there are existing models for getting agreement across political lines, which could be emulated to enable governments to address intergenerational persistent disadvantage:
"A successful example of this is the Child Poverty Reduction Act 2018 which set long and medium term goals which had close to unanimous support across party lines." (Methodist Alliance, sub. DR117, p. 3)
A strengths-based approach is needed to achieve wellbeing for everyone
The interim report highlighted the importance of a strengths-based approach for promoting wellbeing in all communities, especially communities where services have concentrated on deficits. One submitter suggested deficit models can mask the structural drivers of disadvantage:
"Stigma and exclusion perpetuate structural and systemic inequities and add to the harm [and] trauma of the most vulnerable in our society." (Methodist Alliance, sub. DR117, p. 4)
A model for services that focuses on strengths can also improve trust in the system, which makes it more likely that people will access services:
"[A strengths-based approach] means that those being assisted are made aware of the options available to them and can opt to be supported on the pathway forward that they choose. Time again we hear that whānau facing hardship are not feeling able to trust a process. This becomes a barrier to them engaging with systems designed to support those at risk of persistent disadvantage." (FinCap, sub. DR135, p. 5)
Submitters told us that a strengths-based approach should be made explicit in funding and policy decisions:
"We recommend funding services that are trauma-informed… Multiple disadvantage and trauma are often interconnected and trauma-informed services are needed to break the continuum of harm. An example of this is the shift from the ‘Gang Intelligence Unit’ to the ‘Gang Harm Insights Centre’." (Methodist Alliance, sub. DR117, p. 7)
Advantage for some means disadvantage for others
Submitters told us that it would be worthwhile considering not only the strengths that exist in disadvantaged communities, but also to look at the dynamics of structurally advantaged groups. Several submitters suggested
that persistent disadvantage and systemic advantage is a zero-sum game, where costs for disadvantaged communities benefit those in more affluent positions:
"Power imbalances and assumptions that maintain the flourishing of some at the expense of others must be challenged, but this cannot be achieved if we focus consistently on the problem of poverty, without equally recognising the problem of excess and its impacts on the long-term wellbeing of our communities." (New Zealand Council of Christian Social Services, sub. DR120, p. 3)
The New Zealand Council of Trade Unions gave an example of how these dynamics play out:
"Housing is a case in point: by purchasing multiple houses to accumulate wealth, richer New Zealanders shrink the pool of available houses to purchase and contribute to driving home ownership out of reach for some." (New Zealand Council of Trade Unions, sub. DR134, p. 9)
Several submissions saw addressing both ends of the spectrum of advantage as the best approach going forward:
"We believe that equity can be achieved when the system that supports privilege is dismantled." (Association of Salaried Medical Specialists, sub. DR153, p. 1)
Te Ao Māori and Te Tiriti challenge the existing values of the public management system
Many submitters agreed that Te Ao Māori and Te Tiriti are important perspectives that challenge values, such as fiscal discipline, in the current system. Submitters pointed out that despite gaining momentum behind movements to better embed these perspectives in the system, the public management system needs strengthening and has been slow to move on this issue:
"SSPA would like to see the final report reflect a strong recommendation around how the public finance system can be strengthened to be more transparent, enable equitable outcomes for tangata whenua consistent with Te Tiriti o Waitangi, drive investment over the long-term to address persistent disadvantage, and prevent siloed vote appropriations from being a barrier to mauri ora." (Social Service Providers Aotearoa, sub. DR129, p. 10)
"The Social Security Act was amended as recently as 2018 and yet no where in the Act is there any reference to Te Tiriti o Waitangi. The Act is the foundations of the Social Security system but is entirely silent on Treaty obligations." (Poverty Free Aotearoa, sub. DR139, p. 2)
A wellbeing approach needs to be grounded in human rights
Some submitters talked about the need for the public management system to provide a social floor to prevent persistent disadvantage and recommended agreeing a set of human rights:
"A comprehensive policy commitment to wellbeing, as advocated for in the report’s recommendations, must be guided by our responsibility to uphold dignity, to provide an adequate standard of living, to enable access to housing, healthcare and education, and freedom from discrimination… we must ensure that our commitment to these rights and responsibilities are explicit in any discussion regarding the purpose of our public management system and the wellbeing of our people." (New Zealand Council for Christian Social Services, sub. DR120, p. 3)
One submission demonstrated how the current values of the public management system do not promote the dignity and rights of people:
"The current values underlying the Social Security Act are detrimental to the whole community. There is a need to move from charity to a rights-based approach. Even the debate over the level of benefits is unhelpful where the debate is reduced to arguing over whether a $30 increase is adequate or should the level be increased by $60." (Poverty Free Aotearoa, sub. DR139, p. 5)
Several submissions emphasised the notion that New Zealand’s obligations under United Nations human rights charters, such as the Declaration of Human Rights (UNDHR), the Declaration on the Rights of Indigenous Peoples (UNDRIP) and the Convention on the Rights of the Child (UNCRC) are vehicles for strengthening intergenerational wellbeing by establishing a ‘social floor’ or baseline standard of living (sub. DR117, 120, 122, 127, 129, 139, 141, 142, 150).