In conclusion, the reductions in disposable income from the changes described had been largely absorbed by people reducing their standard of living. Many of those interviewed for the study were in a situation of perpetual emergency. ... It is difficult to assess what proportion of the costs of the changes were being transferred to the Special Needs Grants and Special Benefit programmes. (Church et al, 1993, page 7)

There are also direct impacts on Palmerston North City Council services, although it is not the role of the Council's housing Liaison Officer to physically take clients to WINZ, this often occurs for a client to receive information or his/her entitlements. Council tenants have expressed the following concerns:

To address issues associated to the well-being of low income people in Palmerston North by identifying levels of poverty within the community and, for example, to advocate to organisations and government agencies to address such concerns by 30 June 2000.

The stories that were collected vary in length from around 20 words to 15 pages. They were collected by community groups and a Palmerston North City Council officer. Because the stories were collected by different agencies and in different ways, the information was collected in an unstructured manner. Not all of the 120 or so people who gave a story were asked the same questions; and so often only their main concern was recorded.

The stories cover a wide range of issues. Major concerns arising were:

These are not new concerns. Petrie quotes from a Department of Social Welfare Study (Performance and Efficiency in the Department of Social Welfare, December 1987) as follows:

Consumers were dissatisfied with service delivery because of slow service (queues, and delays in securing payments) insensitivity in dealing with the needs and problems of different consumers, lack of experienced counter staff, lack of privacy and amenities in reception areas, and the complexity and lack of information in entitlements and rights (in Petrie, 1998, page 13)

Although the problem in slow service appears to have been addressed, the other concerns raised in 1987 are concerns in Palmerston North in 1999. Some beneficiaries, including one who had worked for Income Support felt that some of the concerns have become more serious since the early nineties.
 

The stories were very diverse. One common thread, however, was that the vast majority involved major issues for the person telling the story.

Situations included judgements about what was a de facto relationship, disability, and more than one involved risk to safety of the people involved.

As is often the case for the stories collected, Department of Social Welfare studies have expressed similar concerns to those collected, as the following quote about "increased desperation" shows:

As well as coping with the seriousness of the issue involved, the beneficiary and the WINZ officer must also cope with the complexity of WINZ policy and legislation. The issue about what is a "de facto" relationship in terms of entitlement to benefits and legislation is an ongoing concern, and was mentioned by three respondents, one of whom is an advocate and works with a large number of people.

The Palmerston North concerns are expanded upon below. Specific details may have been changed to protect confidentiality of those involved.
 

Of the 134 stories collected, around half (58) mentioned staff attitude. Of these, many found staff uncaring (21) or rude (15).

Some of the comments about staff being uncaring were due to the sensitivity of the situation they were working with:

Three of the stories were about treatment of the recently widowed, one of which involved the suicide of a spouse who also killed her children. One of these cases was witnessed by an experienced community worker who wrote:

The same agency also provided two instances of good customer service, where the worker(s) showed an ability to listen and interpret a sensitive and complicated need.

Complaints about rudeness talked of being "treated like dirt", or "like a thief" or sarcastic comments, or being treated as "less than human". Some of these concerns centred around stereotyping:

Once again, Department of Social Welfare reports record this concern:

The effects of perceptions about staff attitude are felt by community groups such as foodbanks, as the following quote shows:

The quote also captures much of the shame people feel seeking help from WINZ, and the subsequent difficulty some have in accessing, let alone complaining, about their service.

Two stories recorded the powerlessness that people felt when dealing with WINZ. One of these related to a dispute over a washing machine. The customer wanted a special needs grant loan to fix part of her washing machine which had been given to her by her parents (after being over-hauled) and which the repair man felt was worth repairing. Her case manager felt she should buy another second hand machine at a saving of $100; but which the customer felt would be more likely to break down.

Another concern that was mentioned by some was a lack of trust:

Forty one stories inferred that WINZ had made what appeared to be mistakes.

Seven involved benefits being stopped due to error:

Nine stories involved staff having insufficient knowledge:

Seven stories concerned WINZ officers changing their story. Often this was due to a new case manager.

One story related to a decision changing within a matter of hours:

A Department of Social Welfare study on the Special Needs Grants and the Special Benefit had concerns about consistency which could throw some light on why decisions changed without any apparent reason:

Five stories related to receiving threatening letters to cut benefit unless information provided; but information had already been provided. One story is summarised below because it shows how problems of access, seriousness of situation and staff attitude all combine to compound the problem:

Another respondent wrote that they had faced the same problem, two years in a row. Each time it took them an average of seven actions to get the problem resolved. When describing the second incident, they wrote:

Two stories were about large debt accumulating at WINZ, that customers then had to pay off in weekly instalments. Another three concerns were about the apparent lack of accountability for WINZ staff who make mistakes.
 

This was another major issue with 24 people reporting problems in this area. Often this problem compounded other issues.

A number of stories concerned lack of access to case managers in an emergency. The Minister of Social Welfare stated `in parliament (December 1996) that policy requires that people with emergencies are seen immediately. In at least one case, a person requiring emergency dental care, went in on Friday and her case was heard the following Monday.
 

Twenty-four people reported this as an issue.

Many of the reports came from those speaking to the Council officer collecting the stories, when he asked whether they knew their full entitlements. This lack of information may have a bearing on WINZ legal obligations. . The court ruled:

A Department of Social Welfare Study reports on a paper by McKinnon submitted for an Honours degree in law at Victoria University:

Another Department of Social Welfare study states:

Thirty-four stories related to beneficiaries not receiving enough money. Twenty-three of these came from MUSA who listed 23 students who received extra assistance due to lack of money for people on student allowances. Stories related to extra costs due to medical conditions, and delays in receiving payment.

One complaint related to how special needs grants (which are usually given as interest-free loans) are only available if you buy "cheap and nasty" with the consequence that you have an increased likelihood of having to get another special needs grant to replace another household appliance. Other concerns related to insufficient financial recognition of people who find part-time work.
 

Thirty-two stories ranged over a great diversity:

Eight people referred to problems because their case managers were changing. One reported having between 4 and five in one year. Two mentioned the associated problems of going from a good case manager to one that was still learning or not so helpful.

Three wanted to change their case manager but were being discouraged from doing so.

In 1996, the Minister of Social Welfare stated in Parliament:

Thirteen people complained about WINZ system for displaying jobs. Under NZES, jobs were put up on notice-boards. Now they are put into two folders on a small desk. People have to queue to get access to the job folder, and then queue again to register their interest in a job. Frustration with this system compounds on other frustrations. A group of five people sent a signed submission which included the following:

There is increasing concern in the community about unmet needs of beneficiaries. The most obvious impacts of these concerns are on Foodbanks and the Advocacy Service. From the stories provided, it became apparent that most stories involved critical situations, and often complex situations.

From the information available it is difficult to determine what actions are due to policy and what is due to operational procedure. Obviously it is not a Palmerston North City Council role to advocate for individuals yet in order to determine whether policy was incorrectly applied in the above 120 stories, one would have to review each case. Judging from some of the comments collected, customers would need support from somebody with a strong knowledge of legislation and policy.

The complexity of the task faced by case managers should not be under-estimated: The stories show that WINZ staff have to make critical and complex decisions on a great diversity of situations. Examples included:

Health involving judgements about what were reasonable medical costs.

De facto relationships where people may be forced to live together due to cut in income.

Marital split-ups - including a case involving assets held by an overseas national;

Safety: especially relating to violent relationships;

Disability, for example, costs of repeated replacement of equipment.

Grief: for example recently widowed, including one instance of bereavement by suicide.

Replacement of major household items, including washing machines.

Debt management, as special needs grants are only given as a last resort.

Helping people out of difficult situations, for example a person in a small outlying township loses her job and needs a special needs grant to move to Palmerston North where she is closer to doctors, training and potential jobs.

Families with lots of problems and under stress, eg. families with sick children, high rent, and marital disputes, and disposable income of less than $40 per week.

Acceptable Housing, for example: Beneficiary needed to move due to threat of violence, and so needed grant to move. WINZ officer rang and wanted her to take cheaper houses in street where beneficiary did not want to live. WINZ told woman that she only need two-bedroom house because children did not need one bedroom each. Woman found another flat from HNZ and case manager helped after complaint to case manager's manager.

Changes in policy. Frequent changes in policy add to the complexity involved.

Once again, the issue of the complexity and seriousness of the judgements required by Income Support and new WINZ staff has been explicitly acknowledged in Department of Social Welfare Studies:

In terms of natural justice, it must be acknowledged that only one side of the story has been collected, and hence we cannot make statements about the competence of the work of WINZ or particular WINZ staff.

It is possible that WINZ is doing the best possible job within its legislative responsibilities. Palmerston North WINZ conducts a monthly survey of around 120 customers to measure customer satisfaction and regularly gains satisfaction rating of 85% or more. The work of WINZ is more the concern of central government. The impact of that work on the local communities has become a concern for local groups in Palmerston North and is an issue requiring advocacy from Palmerston North City Council.

Because of the impact that is being felt in the community, there is a need to lobby central government. The alternative is to become a passive recipient of the impacts of central government policy.

There is also a need to monitor the situation to determine if it is getting better. A more structured survey is needed to do this. The stories collected, while not providing a systemic view of problems do provide a strong basis for the developing a structured survey. The more structured survey could be run in May 2000.

Because the issue is also a national one, Palmerston North City Council should seek to combine with other councils to determine if they have similar concerns and to strengthen its lobbying.

Palmerston North City Council may also wish to consider: