To examine the contribution of public service delivery methods

To social exclusion in society

(The Case of Older people and Monaghan County Council)

BernadetteBradley

MA

April2014
I

A Dissertation submitted to the Institute of Public Administration, Dublin in part

fulfillment of the Master of Arts

To examine the contribution of public service delivery methods

To social exclusion in society
(The case of older people and Monaghan County Council)

Title:

Bernadette Bradley

Supervisor:

Mr. Tim O Sullivan

Date:

April 2014

II
2

Dedication
ThisthesisisdedicatedtotheolderpeopleofcountyMonaghaninrespectof
Theirwit,theirwisdomandtheirwarmth.

Growoldalongwithme,thebestisyettobe..

Robert Browning

III
3

Acknowledgements
I would like to express my deep gratitude to Mr. Tim O Sullivan, my research
supervisor, for his informed guidance, enthusiastic encouragement and useful critiques of
this research work. I would also like to thank Dr. Michael Mulreany for his advice and
assistance in the early days of this study. My grateful thanks are also extended to the
management of Monaghan County Council for affording me the opportunity to undertake
this project.
I would also like to extend my thanks to my colleagues and elected representatives in
Monaghan county council who kindly participated in this research, also to my colleagues
in other local authorities and community organisations in Monaghan I am very grateful
for your contribution.
Special thanks should be given to all the members and executive of Monaghan Older
peoples Network, their support, contribution and honesty throughout this study has been
invaluable.
Finally, I wish to thank my family, in particular my husband Liam & stepson Josh for
their support and encouragement throughout my study and my little daughter, Jinny who
has quite literally been part of this study programme from the beginning.

IV
4

Toexaminethecontributionofpublicservicedeliverymethods
Tosocialexclusioninsociety
(ThecasestudyofolderpeopleandMonaghancountycouncil)
BernadetteBradley
Supervisor:Mr.TimOSullivan
SocialexclusionisslowlyprogressinginIrishgovernmentpolicy.Fromveryhumbleand
somewhatconfusedbeginningssocialpolicyinIrelandin2014remainsapriorityfor
local and national government alike. The development of social inclusion policy has
broughtwithittheneedformoreinformationonthesubjectarea.Thisresearchsetoutto
addtotheinformationavailableonsocialexclusioninIreland.Theresearchfocusesona
lesser known area of social exclusion, access to services. The research attempted to
identify the barriers that exist in the current service delivery methods of Monaghan
countycouncil.Theidentificationofthebarrierswouldtheninformtheresearchonhow
services should be delivered to ensure everyone in the community can access them
without difficulty. The research study used a qualitative approach to gather the
experience of older people and those who advocate on their behalf with regard to
accessingservicesofMonaghancountycouncil.Thefindingsofthethesisdemonstrate
many barriers within current service delivery methods that create difficulty for older
people.Thefindingsalsopresentmanypracticalandachievablesolutionstotheproblems
identified.Thereviewofliteratureonthesubjectshedlittlelightonhowgovernments
can address the issue of social exclusion within their services. What this qualitative
approachshowsusisbytrulyputtingpeoplefirstwecanprovideamoreefficient,
effectiveandaccessiblepublicservice.

V
5

TableofContents

Chapter1Introduction............................................................................................1
Backgroundtotheresearch.............................................................................4
Aimoftheresearch................................................................................8
Scopeandlimitationsofresearch.................................................9
Chapter2LiteratureReview................................................................................11
Overviewofliteraturereviewed...................................................................11
Whatissocialexclusion?..............................................................................15
Whatissocialinclusion?..............................................................................19
Socialexclusionahistoricalperspective......................................................20
Thedevelopmentofsocialinclusionpolicy................................................22
TheemergenceofsocialinclusioninLocalgovernment.............................31
AprofileofMonaghanaruralcounty..........................................................35
Issuesinfluencingsocailexclusionofolderpeopleinruralcommunities37
Conclusion....................................................................................................43
Chapter3Methodology......................................................................................44
Selectinganappropriatemethodology..........................................................45
Researchdesign............................................................................................48
Sampling.......................................................................................................51
Datacollection..............................................................................................60
Dataanalysis................................................................................................72
Chapter4ResearchFindings&discussion.........................................................74
Catergorisingoffindings..............................................................................75
Discussiononfindings................................................................................101

Chapter5Conclusion.........................................................................................111
Introduction.................................................................................................111
Empiricalfindings.......................................................................................113
Theorecticalimplication.............................................................................115
Policyimplication.......................................................................................116
Recommendationforfutureresearch..........................................................117
Conclusion..................................................................................................118

AppendixAResearchparticipantinformationform(focusgroup)121
AppendixBResearchparticipantinformationform122
AppendixC Research participant Consent form

123

AppendixDLetterofInvitetoSemiStructuredInterviews124
AppendixE Focus groups questions & format

125

Appendix F semi structure interview questions & format

126

Bibliography127

Chapter one: Introduction

Background to Local Government in Ireland
The system of local government in Ireland was established on the backdrop on the desire
for political change and in response to the increasing social changes that were emerging
towards the beginning of the twentieth century. When the Local Government Act was
enacted in 1898 it was the culmination of many decades of work which assigned local
administration to elected county, urban and rural district councils. The Local Government
Act of 1898 essentially put an end to the control landlords had on local government in
Ireland.
Removing the political background to establishment of local Government system we
know today, local government was set up with a key role in proving much needed
services at local level. While the role of local government has evolved significantly since
1898 this remains the core objective of local government today.
In 2014, there are a wide range of services and supports provided by local authorities in
relation to the social, economic and cultural development. The role of promoting social
inclusion and equality is new to the functions of local government. The first Irish
government policy in the area of social inclusion was very much focused on elimination
of poverty and unemployment. There was little focus on local government and the role
they played in tackling social exclusion. In recent times however, efforts to address social
exclusion and poverty have moved towards a more equality focused agenda.

Operating from the concept that social exclusion is more than having no job or no money,
it is about having no opportunity. The goal is to bring about a more equal society, by
promoting, monitoring and implementing the right to equal treatment and the
accommodation of diversity, through institutional, administrative and legal reforms and
through programmes targeted at particular needs. Government of Ireland, (2001, p.2
1.15).This change in focus in government social exclusion brought local government into
the picture.
In contrast, social inclusion work of the late nineteenth and early twentieth century in
Ireland solely focused on eliminating the problem of the poor. It was anticipated through
the development of local social, health and sanitary services within the new local
government system the poverty problem would be eradicated. It is interesting to note that
the social problem of poverty and exclusion is very much present today despite over a
century of local government in Ireland.
What is social exclusion?
In its broadest definition social exclusion means to be excluded from society, to be on the
outside. The concept of social exclusion is much more complex. Social exclusion has
many forms, it is experienced by many different people and although the term may only
be around since the 1970s the exclusion of people in society is certainly not a new
concept. If we look back through history there have always been people on periphery,
outside the loop, excluded. Even within the bible we can see social exclusion of the leper
communities:

As long as they have the disease they remain unclean. They must live alone; they must
live outside the camp Leviticus, (13:46).The reasons why people find themselves
socially excluded today may differ in some way from the past, but what does remain is
that due to a lack of resources, financial or otherwise, in 2014, there are still people who,
like the lepers, must live outside the camp.
The theoretical definition of social exclusion is when someone, due to a lack of resources
and or income are excluded from participating in opportunities and activities experienced
by other people in society. People are living in poverty if their income and resources
(material, cultural and social) are so inadequate as to preclude them from having a
standard of living which is regarded as acceptable by Irish society generally.
Government of Ireland, (1997 p.3).
The reasons why someone finds themselves without the adequate resources financial or
otherwise, to fully participate in society can be singular or multidimensional. This
multidimensional aspect to social exclusion gives rise to the lack of awareness and
understanding of the social exclusion situation within society as a whole and more
specifically for this research within public service delivery.
Traditionally when we think of resources we think of financial or material resources:
money in your pocket, food in your belly and a comfortable home to live in. Social
exclusion and poverty are very closely linked, while inadequate financial resources

contribute significantly to social exclusion, there are many other contributing factors to
social exclusion in our society.
Factors such as having a disability, having insufficient literacy skills or being isolated
from social and community networks that provide information all contribute to the risk of
someone being socially excluded. There are particular groups in society who are more at
risk of experiencing social exclusion than others : people with a disability, lone parent
families, refugees and asylum seekers, Travellers, people who are long term unemployed
and older people, Government of Ireland, (1997). The factors influencing social exclusion
for these social groups are varied and multiple, in some cases people are part of more
than one of these groups which significantly increases their risk of poverty and social
exclusion. In the past decade the Irish government has begun to better understand the link
between poverty, exclusion and inequality which is slowly starting to be reflected in
government policy.

Background to the research

Despite being one of the poorest countries in the European Union through the 1970s and
1980s the Irish government didnt produce its first National Anti-poverty strategy until
1997. The focus of this strategy was primarily to reduce the extraordinarily high levels of
unemployment and emigration in the county during that time. It wasnt until the
publication of the governments National Action Plan against poverty and social inclusion
2001-2003 that the concept of social exclusion was introduced.

With the publication of the review of the National Anti-poverty strategy-Building an

inclusive society in 2002 a focus on addressing issues other than unemployment and
inadequate income were put forward.
The review of National Anti-poverty strategy identified the differences between poverty
and exclusion in urban and rural settings, Government of Ireland, (2002).
For the first time access to services was identified as a priority for the government The
National Office for Social Inclusion will be mandated to ensure that access to public
services and specified a services standard is developed, as a key strategy within NAPS.
Government of Ireland, (2002 P26 {37}).
The review of the national anti-poverty strategy in 2002 and preceding Employment
Equality Act 1998 and the Equal status Act 2000 began the process of social inclusion
that is still in development today. Heavily influenced by developments within the
European Union the Irish government began to explore the idea that perhaps society was
responsible for the social exclusion of people as opposed to the previously held notion
that those experiencing social exclusion where at fault themselves. The theory that
equality was simply part of life was eloquently captured by former Progressive Democrat
leader Michael McDowell, who claimed in an interview with the Economist magazine
that inequality is an inevitable part of society Clancy, (2010). Legislative changes
coupled with the establishment of dedicated government programmes to combat social
exclusion and disadvantage saw the emergence of a greater understanding of the needs of

some of the most vulnerable people in society. Since 1997 and the adoption of the first
national anti-poverty strategy, the promotion of social inclusion has remained as a key
national government policy objective.
The role and responsibility of local government for promoting social inclusion was first
introduced in the Local Government Act 2001. Local authorities were to have regard to
social inclusion while performing their duties and functions. This role was further
strengthened within the review of the National Anti-poverty strategy in 2002 which
brought about the establishment of Social Inclusion Units in local authorities.
The aim of the social inclusion unit was to help ensure that local authorities policies and
practices reflect the governments wider social inclusion agenda Fitzpatrick et al (2004).
This initiative recognised that barriers existed within local authorities and a focus on
addressing that social exclusion was important. Despite the introduction of social
inclusion as a function of the local government almost 15 years ago, there is still a
significant journey for local authorities to make in order to make their services easily
accessible to everyone in the community. Little has been done within local government to
identify the reasons why people find it difficult to access services or how those
difficulties could successfully be addressed. While social inclusion strategies have been
prepared and adopted in local government throughout the country, there has yet to be a
significant change in how local governments deliver their services.

Currently no central government policy on accessible service delivery or accessible

customer service in local government is in place. It is the opinion of the researcher that
until such time that the difficulties experienced by some when trying to avail of the
services and how to address those difficulties are highlighted, no real progress in can be
made. It was for this reason the researcher felt compelled to carry out this study.
As a social inclusion officer within the local authority, the researcher identifies that it is a
challenge to change service delivery methods without clear and specific evidence as to
why these delivery methods should change. There is an assumption within the public
service system that those who dont access services dont want or need them. The
researcher does not agree with this assumption. The researcher believes that there are
many people in Irish society that struggle with tasks that some of us take for granted,
skills such as reading, writing, walking, using a telephone, driving a car. As a service
provider, if these skills are taken for granted and services delivered accordingly anyone
who doesnt possess these skills will be excluded from independently accessing those
services. The researcher therefore thought it was necessary to explore local government
service delivery with a view to highlighting how service delivery methods currently in
use can present difficulties for some people and subsequent cause them to be socially
excluded.

The aim of the research

This research study will examine the possible contribution of public service delivery
methods to social exclusion in society. It is the opinion of the researcher that the manner
in which public services are delivered in Ireland contributes to the social exclusion of
certain people in society. While recognising that social inclusion is a relatively new area
of policy development, its felt there are significant gaps in information on social
exclusion and local government. The researcher believes this gap is impacting on
progress in social inclusion progress in local government.
The social inclusion agenda was not introduced to local government until the Local
Government Act 2001. Little is recorded on service delivery in local government and how
social exclusion presents itself within current service delivery. Unfortunately, in Ireland
information on access to services is not collected at the moment Caslin, (2008). To this
end this research will attempt to examine public service delivery methods and consider
how these methods cause or contribute to the social exclusion of people in society.
The public service in Ireland is a large and diverse organisation, while it is probably
accurate to estimate that for the most part public services organisations apply some or all
of the same service delivery methods. It is impractical for this study to try to examine the
public services in its entirety.

To achieve a reasonable understanding of the research subject this study will focus on the
services of local government, specifically Monaghan county council. The researcher is
aware that many people in society are at risk of social exclusion. The Government of
Ireland, (1997) identified as few as eight distinct target groups: children, young people,
women, older people, Travellers, people with Disabilities, Migrants and Members of
Ethnic minority groups). In order to ensure the research is manageable and achievable the
research will focus on one such target group: older people. The research will seek to
identify barriers that exist within the service delivery methods of Monaghan county
council and how those barriers prevent older people from accessing those services.
This will be achieved by investigating the experiences of older people in Monaghan in
trying to access the services of Monaghan county council through consultation with
representative older peoples group and older peoples advocacy groups.

Scope and Limitations of the research

It is not possible in a research study of this size to capture the experience of every older
person in Monaghan. In order to obtain a broad overview of the experience of older
people in accessing services of Monaghan county council the researcher decided to
conduct a series of focus group workshops with older people in county Monaghan.
Community Older peoples groups were identified through the Monaghan Community
forums older peoples network, a network of over 40 older peoples groups operating in
the county on a voluntary basis.

A series of semi-structured interviews were carried out with a number of people through
the course of their work engage regularly with older people. The participants selected to
participate in the research gave the study considerable insight into the experience of older
people in trying to access the services of Monaghan county council. The researchers
involvement in community development and social inclusion work within Monaghan
provided invaluable access to older peoples groups in the county and those who work on
their behalf.
As referenced previously in this chapter there are many groups in society more at risk of
experiencing social exclusion Government of Ireland, (1997). As this research is focused
on the experience of older people there are issues that impact on groups in society that
did not arise throughout the research. Given the target group and the geographical
location of this research it is expected that the research will highlight barriers and issues
that may only be evident among older people living in a rural, border county and may not
manifest in a similar research of older people living in a more urban environment. While
this places some limitations on the findings presented, the researcher is confident that the
absence of some issues experienced by other groups in society would not significantly
impact on the overall findings of the thesis

Chapter two: Literature Review

Introduction

10

The overall aim of this research is to improve service delivery within local government
for all members of the community. The research aims to identify how the service delivery
methods used within local government contributes to social exclusion in society. This will
be achieved by seeking to identify barriers to access within current service delivery. In
this context the research will explore the evolution of social inclusion in Irelands
government system, national and local. The efforts applied to tackle social exclusion and
the gaps that exist in literature that informs the social inclusion process in local
government service delivery. As social exclusion is a complex and multidimensional
concept it is imperative to narrow the focus of this research in order to reasonably
demonstrate the thesis.
Overview of literature reviewed.
There are many different definitions social exclusion in current and previous literature on
the subject. The definition of social exclusion has been one of many academic, policy and
political debate since the 1970s. In fact so much time has been dedicated to identifying a
common accepted definition of the concept of social exclusion progress in addressing and
combating this social problem has been slow and limited. For the purpose of this thesis
the researcher will work from the Government of Ireland, (2001) definition of social
exclusion.

11

People are living in poverty if their income and resources (material, cultural and social)
are so inadequate as to preclude them from having a standard of living which is regarded
as acceptable by Irish society generally. As a result of inadequate income and resources
people may be excluded and marginalised from participating in activities which are
considered the norm for other people in society. Government of Ireland, (2001, p, 2
1.15).
To prepare a valid and compelling thesis it is important the literature reviewed can
accurately put forward an informed debate on social exclusion in Irish local government
and previous and current attempts to address the issue. Literature available on social
exclusion is diverse, as the concept has much evolved over the past forty years. Some of
earlier literature on the subject presents as outdated and in some ways discriminatory by
comparison to more recent literature. This literature review examines the gradual
emergence of social policy across European and Irish governments, the subsequent
division of poverty and social exclusion in social policy development. Efforts by
government both national and local to address the issue of social exclusion in public
service also are considered in this literature review. The impact of social inclusion
measures introduced to local government in the context of these social policy
developments and current gaps in information on the research subject. This historical
mapping of policy development will aim to demonstrate the progression social exclusion
as priority for the Irish government and in turn local government.
As the research has a very specific geographical and target group focus existing literature
on social exclusion of older people in a rural county will also be reviewed.
12

As will be evident from reviewing the literature relating to social exclusion that will be
discussed further on this chapter, poverty and social exclusion are very much connected.
This thesis is focused on access to local government services. The research will be
limited to examining the lack of non material resources that contribute to social
exclusion. Non material resources in the context of this thesis refer to resources such as
skills, abilities and capabilities. It is the lack of these types of resources that prevents
people from accessing services, information and opportunities. Lacking material or
financial resources is a significant contributor to social exclusion and is the widely
identified as a key cause of social exclusion. In addition the lack of the other resources
can and does have an enormous impact on individuals ability to participate and enjoy
fully all opportunities in society. In order to put current thinking on social exclusion in
context in was essential to track the evolution of social exclusion theory and practice
from its origins to present day and the changes in thinking that occurred within that
timescale. Social exclusion policy remains a work in progress within the Irish local
government system and this is reflected in the literature reviewed.

13

Limitations within literature review

In reviewing the literature available it is clear there is a significant gap in information
relating to how social exclusion manifests within services of local government. The
researcher has been involved in social inclusion work within local government service
delivery for a number of years feels the lack of knowledge of the barriers service users
face when trying to access services is one of the key obstacles to progress in social
inclusion work of local government. It is not possible in this research to examine social
exclusion in all its forms, the many areas where is occurs, the many groups in society that
can be socially excluded. The limits of this literature review will be with regard to older
people in a rural county.
This literature review examines policies, publications and documents relating to social
exclusion in local government in Ireland and the national and European policy
developments that influenced them. The researcher decided not to review literature on
social inclusion policy evolution on an international level. This decision was for two
reasons firstly Irish local government is predominantly influenced and guided by national
and European policy development. Secondly to begin to review international social
policy in a thesis of this size would not be achievable. While local government policy is
slowly changing to reflect the needs of the communities they serve there still remains
significant gaps in research on this issue. The lack of available literature on the subject of
social exclusion within local government service delivery is reflected in the review.

14

This research seeks to address the deficit in knowledge about the barriers exist in service
delivery in local government by investigating the experiences of older people in trying to
access the services of Monaghan county council.

What is social exclusion?

Social exclusion and poverty traditionally were presented as a common issue in
government policy discourse. In early literature on social exclusion it is almost
impossible to find any reference to social exclusion that doesnt link the concept to
poverty. The origins of the word poverty can be traced back to the late 12c Oxford
English Dictionary (2013).The origins of the state of poverty are much older, even within
the bible we read For you always have the poor with you Matthew (26:11).
Social exclusion on the other hand is a relatively new concept in government policy, both
in Europe and Ireland. Unlike the term poverty there has yet to be a globally agreed
definition of what the term social exclusion means. Levitas, (2007) describes social
exclusion as complex and multi-dimensional. She claims It involves the lack or denial
of resources, rights, goods and services, and the inability to participate in the normal
relationships and activities, available to the majority of people in a society, whether in
economic, social, cultural or political arenas. It affects both the quality of life of
individuals and the equity and cohesion of society as a whole Levitas et al, (2007, p.9).
There are two very definite schools of thought to the concept of social exclusion.

15

The first and probably most understood being the idea that poverty and social exclusion
are one. Financial poverty very much dominates this school of thought. In this concept of
exclusion people are socially excluded when they lack the financial means to avail of the
same opportunities as others in society.
The second school of thought identifies social exclusion arising from discrimination,
from a lack of civil rights. This concept of social exclusion is the idea that people are
denied access to goods, services and information because of their race, age, gender,
disability, because of their social status. This concept of social exclusion is at the core of
this research document.
Social exclusion and poverty
Are social inclusion and poverty two sides of the same coin? Substantial research has
been carried out on this topic over the past twenty years. The literature reviewed from
this period indicates that poverty for most governments related to financial poverty, a lack
of financial resources. Most literature attributes this poverty to unemployment and low
educational attainment limiting the ability to secure employment. The most common
theory in Ireland and Europe throughout the 1970s and 1980s was that poverty and
social exclusion were the one phenomenon. Early European anti-poverty programmes
(1980-1989) specifically focused on provision of social welfare, housing, education and
employment programmes. Some groups in society were identified as being more likely to
experience poverty and social exclusion: early school leavers, lone parents, older people,
people with disabilities and ethnic minorities. Education and employment programmes
16

did reduce unemployment rates to some extent but it was the social research supported
through these poverty programmes that resulted in political debate and social policy
beginning to reflect social exclusion as a separate policy issue to poverty.

Social exclusion, rights based approach

To be socially excluded can be described as not being given a fair chance to take part.
There are many reasons why someone in society may not have the chance to take part.
Within the rights based approach to social exclusion, people experience social exclusion
due to discrimination. According to the Equality Authority, (2011) discrimination takes
on two forms. Direct discrimination is when someone is treated differently or less
favourably to someone else in a comparable situation. Indirect discrimination occurs as
when someone receives less favourable or different treatment by impact, or indirectly.
Such as a person being denied a service, because the manner in which is provided is not a
manner which that person can avail of Equality Authority, (2011).
The Equal status Acts 2000 & 2008 reduced the number of incidences of direct
discrimination and indirect discrimination in Ireland. It is now illegal to deny a service to
someone on the grounds on their race, religion, gender, age, sexuality, family status,
disability, membership of Travelling community or marital status. While this has been a
very effective piece of legislation, indirect discrimination is still an underlying issue
across many public and private services in Ireland today.
During 2012, the Equality Authority dealt with 8108 enquiries from the public on the
five pieces of legislation under its remit. Equality Authority, (2013 p.14). After general
17

queries, the largest numbers of complaints to the Equality Authority in 2012 were in
relation to provision of services. In the context of social rights, this form of social
exclusion the barrier to inclusion is created by someone or something else and not the
person who finds themselves excluded.
Social exclusion in Public services
Before equality legislation came into force direct discrimination was very evident in
society. A quick search on the internet will find reference to advertisements in 1960s
London display direct discrimination No blacks, no dogs, no Irish. Indirect discrimination
is more subtle and in most cases it is unconscious or indirect. Indirect discrimination as
previously stated indirect discrimination occurs as when someone receives less
favourable or different treatment by impact, or indirectly Equality Authority (2011). It is
the opinion of the researcher that in delivering services to the public, if you fail to
provide the service in a manner that enables someone to easily access that service then it
is a form of discrimination. Many different people are at risk of becoming socially
excluded. People with a disability, older people, ethnic minorities, Travellers, Lone
Parents, Lesbian Gay & Transgender people are all more likely to experience social
exclusion from a rights based context.

18

A person with a disability may have mobility or sensory impairments, if a service is not
provided in a format that allows a person with such impairments to access it the service
provider is indirectly discriminating against people with a disability.
Within local government, barriers to accessing services and information can be linked to
language, literacy, and physical or sensory ability. If service delivery methods do not
take these issues into account then it is inevitable that those experiencing difficulties in
these areas will experience difficulties when trying to access services.
The public service is obliged to provide services to the public, all the public and by
failing to provide services in a way that allows all the public to access them, we are
denying some people the right to that service or opportunity and consequently
contributing to the social exclusion of some.

What is social inclusion?

Social inclusion is the process that aims to enable each individual to have equal
opportunities to take part in society. Social inclusion sets out to put in place strategies,
polices and actions that remove the barriers and difficulties people face when trying to
access service, information and opportunities. Social inclusion is not about changing
individuals and communities so they can fit into society. It is about changing the way we
do things, so everyone in society is given the same opportunity.

19

Successful social inclusion is centered on the promotion of awareness of those who are
socially excluded, the difficulties they experience and how they can be removed. In
relation to Social exclusion, if the shoe does not fit, the shoe needs to change not the foot.
Social inclusion is not to be confused with New Public Management, which offered the
promise of improvements in administrative efficiency and performance through the
introduction of market-type conditions and ideas, Mac Carthaigh, (2012 p. 5). New
Public Management focuses on better outcomes for the consumer through better service
delivery and efficiency, social inclusion focuses on ensuring that the needs of all
customers are meet in terms of accessing services and information.

Social exclusion a historical perspective

Amartya Sen, (2000) traced the historical roots of the concept of social exclusion as far as
Aristotle; however the introduction of the term social exclusion within government
discourse and policy development is credited to the French Government of 1974.
Specifically, to the then Secretary of State for social action, Rene Lenoir. Lenoir (1974)
in his book Les exclus: Un franais sur dix {The excluded: One Frenchman out of ten}
stated that at least ten per cent of the French population were experiencing social
exclusion.

Lenoirs excluded were: mentally and physically handicapped, suicidal

people, aged individuals, abused children, substance abusers, and delinquent, single
parents, multi-problem households, marginal, asocial persons and other social misfits
Lenoir, (1974).

20

Unlike previous debate and opinion, Lenoir believed that social exclusion emerged as a
result of social and economic conditions and not personal responsibility. Lenoir viewed
social exclusion by exploring the links between people and the society they live in. He
attempted to move the debate on exclusion away from unemployment and poverty which
dominated previous debate and policy on exclusion. Lenoir felt the excluded were being
left behind and that government needed to improve conditions to accommodate those
who were excluded in order to improve social cohesion in the country. Lenoirs list of the
excluded is extensive but his concept of social exclusion brought about a significant
increase in debate and literature on the topic.
It began the debate within a government policy arena on how to address the needs of
those who were struggling to be fully included in society. Lenoir had many critics.
A lack of discipline in selection, combined with the energy and excitement with which
the concept has been advocated for adoption by its energetic adherents, has had the effect
of putting off some of the experts on poverty and deprivation. Sen.,(2000, p.2).
Academics struggled to clearly define social exclusion or even find relevance for the term
in policy development. Oyen, (1997) claimed social exclusion was a social problem
influenced by politicians of the time. Oyen was particularly damming in her 1997 paper
The contradictory concepts of social exclusion and social inclusion claiming in her
criticism of the theory of social exclusion that it was incepted by politicians for their own
good stating neither social exclusion, nor social inclusion, are analytical concepts,.

21

They are political concepts, and they have been introduced for political reasons. Oyen,
(1997, p. 63). Oyen believed that real poverty which was the true problem in society is
hidden by the term of social exclusion, They pick up the concept and are now running
all over the place arranging seminars and conferences to find a researchable content in an
umbrella concept for which there is limited theoretical underpinning. Oyen, (1997, p.63)
Dr Hilary Silver, (1994) questions the significance of exclusion in political and social
policy dismissing the concept as a political notion of the French Left government.
The expression is so evocative, ambiguous, multidimensional and elastic that it can be
defined in many different ways [therefore] it can serve a variety of political
purposes Silver (1994, pp. 536-41). The researcher feels if critics of Lenoirs concept of
social exclusion were more interested in the people who were deemed to be excluded in
society (Lenoir 1974) rather than political concepts then the area of social inclusion
policy would have developed at a much great speed.

The Development of Social inclusion policy in the European Union

Despite the critics, Ren Lenoirs idea of social exclusion was swiftly adopted across the
European Union challenging policy debate around poverty. Small poverty and social
cohesion programmes were introduced throughout the late 1970s and 1980s targeting
disadvantaged groups and exploring collaborative ways to address poverty and
unemployment. Generally, social issues received much less focus than economic issues in
the early days of the European Union, OCinneide, (2010).

22

In October 1972, prior to the enlargement of the EU, (which saw Ireland Denmark and
Great Britain join the European community), the heads of state of European Unions six
founding members met in Paris. The focus of this meeting was to discuss the future of the
European community from economic, monetary and social perspectives, and how to
ensure the successful integration of the new member states. The most significant output
of this Paris summit was the agreement that a greater focus in the area of social policy
was needed.
The heads of state agreed to attached as much importance in the future to the area of
social development as previously afforded to economic development European
Commission, (1972).Thus, it was the Paris summit commitment that began what was to
be a slow and steady development of social policy throughout Europe. The progression of
the social exclusion throughout Europe was slow it wasnt until the late 1980s early
1990s the EEC began to look at social exclusion from a point of view of discrimination.
The value of being able to easily access the services you require was recognised as a
means to social inclusion.
In September 1989 the council of ministers adopted a resolution to focus social exclusion
Council of the European Communities (1989).This resolution opened up a new
understanding of what social exclusion was and how social policy should reflect this new
understanding.

23

The then President of the European Commission emphasised that role the EU would take
to differentiate between poverty and social exclusion. Delors, (1993) stated although
exclusion includes poverty, poverty does not cover exclusion.
It wasnt until the early 1990s that the EEC began to view social exclusion as a separate
policy issue and began to link social exclusion with social rights.
Despite progress during the 1990s, it was the agreement of the Lisbon Strategy in 2000
that brought social inclusion high on the EU agenda. A ten year development plan 20002010 the Lisbon strategy included commitment within among all member states to
develop a Social Inclusion strategy.
This commitment to addressing social exclusion remains a priority within the European
Union today. In 2010 on the completion of the Lisbon strategy its successor, Europe
2020 Strategy 2010-2020 was adopted.
The Open method of co-ordination adopted in Nice in 2000 as a tool for meeting the
objectives of the Lisbon strategy has strengthened and enhanced social inclusion policy
development in Europe and subsequently Ireland. The OMC involves member states
sharing knowledge, experience and models of good practice in meeting social goals.
Ireland as one of the smaller member states, has certainly benefited and been influenced
from the wealth of knowledge and experience of social exclusion policy shared through
the Open method of co-ordination.

24

The Development of Social Inclusion policy in Ireland

Following decades of change during the period 1916-1937 when Ireland was establishing
itself as a nation, the problem of poverty remained a significant issue for the Irish
government. 1950s Ireland was blighted by emigration and unemployment and
deprivation. Government had little success in addressing the situation from an economic
or social point of view. A change of government in the late 1950s brought with it a
transformation in demography, economy and culture.

By the 1960s Ireland was

experiencing a time of great economic development. Employment rates increased,

universal second level education was introduced and a focus on improved health care was
key achievements of government.
Against the back drop of increased prosperity, inequalities in Irish society were exposed.
Existing systems of dealing with social needs and social problems were exposed as
being out of date and out of line with what people expected. O Cinneide, (2010 p.21).
The African-American civil rights movement in America which emerged in 1954 and the
conflict in Northern Ireland beginning in 1968 also contributed to greater awareness of
civil rights brought poverty onto the public agenda.

25

An introduction to poverty debate

One of the first public debates on poverty in Ireland took place at a conference on poverty
organised by a newly formed government advisory body, Council for Social welfare.
Held in Kilkenny in 1971 the conference covered four key areas of poverty:

The Concept of Poverty

The Extent of Poverty in Ireland

Families in Poverty

Rural Poverty.

The conference attendees made up primarily of politicians, members of the clergy and
civil servants discussed the topical issues relating to poverty in Ireland in 1971. Much of
the dialogue centered on financial poverty and how the government could attempt to deal
with the issue of poverty. A review of each of the conference papers, the points raised by
Professor James Kavanagh of UCD are the closest to todays thinking on poverty and
exclusion. In his paper, he encourages the widening of the concept of poverty so that it
will include not only bare subsistence nutritional levels (which has for many been
regarded as the indicator of the poverty line) or minimum subsistence income levels......
but the ordinary decencies of living, such as having a roof over ones head, health,

26

educational opportunity, recreational facilities, participation in decision making at

industrial or community level. These are basic human rights. Kavannagh, (1972 p. 374)
The Kilkenny conference and in particular the paper The Extent of Poverty in Ireland
prepared and presented by Seamus O Cinneide placed the issue of poverty in Ireland on
a national platform. In his paper O Cinneide (1971) estimated that as many as 24% of all
adults and 22% of all children under 16 in Ireland were living in poverty. The information
presented triggered a response that began the Irish governments approach to anti-poverty
and social exclusion.
Irelands first Anti-poverty programme
On joining the EEC (European Union) in 1973 Ireland began to take its lead on poverty
action from the work of the European Union. On the back of the adoption of the EU
Social Action Programme agreed by heads of state at the Paris summit in 1972, Irelands
first anti-poverty programme was introduced in 1974, European Commission, (1972).
The anti-poverty programme named, Pilot Schemes to Combat Poverty, ran from 19741980 was delivered by a national committee chaired by senior social worker Sister
Stanislaus Kennedy. The aim of the programme was to work in targeted communities to
identify the causes of and solutions to poverty in Ireland. In an interim report on the
progress of the pilot projects issued in 1978 committee chairperson Sister Stanislaus
states If however we substitute the word injustice for poverty there can hardly be any
disagreement about the fact that certain sections of our Irish society do not have equal
opportunity to educational, economic or social life chances.

27

Thus people like Travellers, single parent families, old and alone, tenants groups, the
unemployed, the youth of inner city areas, and the small farmers, small boat fishermen
and young people in remote rural areas are among the many at a serious disadvantage
National Committee on pilot schemes to combat poverty, (1978 {preface}). While it is
true to say that the Irish government followed European Union practice with regard to the
implementation of social exclusion and poverty policy, the final report of the pilot
schemes to combat poverty in Ireland 1974-1980 demonstrates progressive thinking and
attitudes towards poverty in Ireland. The final report on the anti-poverty programme
gives a good insight to the attitude towards poverty and exclusion at the time in Ireland.
This report recognised the role society, government and inequality played in social
exclusion. The Committee .... testify to the continuing realities of inequality and
injustice operating within the country National Committee on pilot schemes to combat
poverty, (1980, iii).
On completion of the pilot scheme in 1980, progress in social policy slowed down
significantly both in Ireland and Europe. A second European poverty programme didnt
come into effect until 1985, while in Ireland a change of government in 1977 saw more
conservative counsels prevail in Ireland O Cinneide, (2010).

28

Establishment of Combat Poverty Agency

The establishment of the Combat Poverty Agency on a statutory basis in 1986 began in
earnest government efforts to address and eliminate poverty and exclusion in Ireland.
With a brief for awareness raising and research into poverty, CPA would continue, until
its integration into the Department of Social and Family Affairs in 2008, to carryout
valuable research and consultation on social exclusion and poverty in Ireland. The work
of the Combat poverty agency informed and influenced many government policies during
its existence. While the first two poverty programmes of the EU (1975-1980 and 19841988) focused primarily on poverty and how best to eliminate it, the third poverty
programme (Poverty III) agreed in 1989, focused on social exclusion. This third
programme placed specific emphasis on statutory bodies and organisations and their
contribution to addressing social exclusion.
Irelands first national Anti-poverty Strategy
By 1995 the Irish government had committed to developing a National Anti-poverty
strategy. In 1997, Sharing in Progress, Irelands first national-Anti-poverty strategy was
launched. Much of this first National Anti-poverty strategy focused on tacking poverty
through measures to reduce long term unemployment and educational disadvantage. At
government policy level there still remained ambiguity on the definition of social
exclusion and poverty.

29

It wasnt until a review of the National Anti-poverty strategy Building an Inclusive

Society, was published in 2002 that social exclusion was identified as a separate policy
objective. Within Building an inclusive society, the national Office for Social Inclusion
was established in the Department of Social, Community & Family Affairs as part of the
framework for delivering Building an Inclusive society. The role of the Office for Social
Inclusion was to oversee the implementation of the national anti-poverty strategy.

For the first time he need for accessible public services was identified as part of the
overall approach to tackling social exclusion. Citizenship rights encompass not only the
core civil and political rights and obligations but also social, economic and cultural rights
and obligations that underpin equality of opportunity and policies on access to education,
employment, health, housing and social services. Government of Ireland,(2002 p. 20
{25}). In line with EU objectives agreed in Lisbon 2000 a National Action Plan against
Poverty and Social exclusion was developed in 2003 and subsequently in 2007 the
National Action plan for social inclusion 2007-2016 was agreed. These publications
further cemented the governments commitment to addressing poverty and social
exclusion in Irish society. Within The National Action plan for social inclusion 20072016 a greater emphasis was placed on those who are at risk of exclusion and poverty
Government of Ireland, (2007).

30

It set out targets for specific groups in society at risk of poverty and exclusion and
identified high level goals to achieve for those target groups. This approach began to look
at public services and information and how the role accessible services play in reducing
social exclusion.

The emergence of Social inclusion in local government

Traditionally the role of local government in the area of social inclusion was in
accommodation and housing and supporting those unable to meet their own housing
needs. Changes to local government, specifically with the publication of Better Local
Government Government of Ireland, (1996) the remit of local government in the area of
social exclusion expanded. One of the key principles within Better Local Government
(1996) focused on improved customer service, serving the customer better. The role of
local governments in social inclusion was further expanded when explicitly highlighted
in the Government of Ireland, (1997) National Anti-Poverty Strategy and in the revised
Government of Ireland, (2002) National Anti-Poverty Strategy Building an Inclusive
Society 2002. It was expected over time that local authorities will develop appropriate
social inclusion strategies at local level which will help underpin and strengthen the
national actions being taken. Government of Ireland, (2002 p 25 {34}).

31

Local government Act 2001

The 2001 Local Government Act formalized the social inclusion role of local
government by placing an obligation on local authorities to ensure social inclusion is
central to the design and delivery of their services and put in place specific programmes
to address and remove barriers for those who are excluded in todays society. This
obligation followed a number of important reforms, including the establishment of
Community and Enterprise Directorates in local authorities in 2000 to support the role
out of the County Development boards (CDB) which further enhanced the focus on social
inclusion in local government. Within the (CDB) structure, Social Inclusion Measures
(SIM) Groups were established as to coordinate social inclusion activity at local level. In
addition, in 2005 local authorities were requested to develop a strategic framework for
their social inclusion work by making social inclusion a core objective of their Corporate
Plans. The expectation being that social inclusion would become part and parcel of the
everyday work of elected members and staff.
Social inclusion Units
The introduction of social inclusion units within local authorities was first identified in
the Government of Ireland, (2000) National Development Plan (2000-2006).The aim of
the social inclusion units, initially piloted in 8 Local authorities was to instill a social
inclusion focus within practice and policy of local government. The visibility of a social
inclusion unit in local authorities with dedicated resources and staff was seen as an
appropriate tool for tackling social exclusion at a local level. The Pilot Social Inclusion
32

Units were established in 2001 were due to end to in December 2004 but was extended
following the publication of a review document highlighting the success of the Social
Inclusion units. Fitzpatrick et al (2004) concluded that the units added value to social
inclusion work in local authorities and gave a presence to the issue of social inclusion
within the local government structure. On the basis of this success it was also decided to
establish seven additional social inclusion units in seven different local authorities. The
overall role of social inclusion units were clearly outlined by central government.
However the delivery of those functions at local level varied.
The lack of consistency of approach and delivery across local authorities impacted on the
success of the social inclusion units. In the 2004 independent review of the Social
Inclusion Units this inconsistency was noted the varied nature of activity and experience
across local authorities and inconsistency of approach throughout the country.
Fitzpatrick et al (2004). The researcher managed a local authority social inclusion unit for
a four year period and agrees with this observation. Social inclusion units mostly operate
independently from central government, with vague direction and support. There is no
common understanding of how social exclusion manifests within a local authority setting.
The overall objective of social inclusion units was too broad and astonishingly improving
access to services was not listed as an aim for SIUs. In the 13 years since the first social
inclusion units arrived in local government improvements in the accessibility of services
has been slow.

33

It is the opinion of the researcher that in any social exclusion consultation exercise
carried out in any local authority area today, difficulty accessing services and information
would be identified as a significant problem. The key success of the social inclusion unit
programme is the presence they have given social exclusion within the local government
setting. There is now a degree of awareness of social exclusion among staff and elected
members alike.
The Disability Act 2005 (a model of good practice in social exclusion)
It is the opinion of the researcher that the obligation placed on local authorities within the
Disability Act 2005 has had a much greater impact on social exclusion in local
government than any other social policy initiative. The Disability Act 2005 was a
landmark piece of legislation for people with a disability in Ireland. For the first time
specific obligations were placed on local authorities to make their services, information
and buildings accessible. It is the view of the researcher that the strength of the Disability
Act 2005 was the application of the social model of disability in approach.
The Social model of identifies that it is the barriers created by society that prevent any
individual playing a part in society and not the individual or their disability. Harlan Hahn
(1986) sums up the social model of disability concisely as The failure of a structured
social environment to adjust to the needs and aspirations of citizens with disabilities
rather than from the inability of the disabled individual to adapt to the demands of
society. Hahn, H. (1986)

34

The implementation of the Disability Act 2005, unlike the social inclusion units, had very
clear objectives. Both financial and developmental support was made available from the
Department of Environment Heritage and Local Government. Through the work of a
dedicated member of staff charged with implementing the Disability Act 2005 a great
wealth of knowledge and understanding was developed within the staff and management
on accessibility of services. While it may presumed that the Disability Act 2005 only
supports people with a disability, this isnt the case, and the emphasis in the Disability
Act was on accessibility, accessibility for everyone. Accessibility relates to how easy or
difficult it is for someone to gain access to something. That something could be an office
building, a document, information, an event or a service. An accessible service is easy,
convenient and pleasant for people to do business and interact with.

A profile of county Monaghan, a rural county

Monaghan county council provides services to the geographical region of County
Monaghan, one of three counties of the province of Ulster located in the republic of
Ireland. The county shares the longest stretch of border with Northern Ireland of all
border counties. Predominantly a rural county, according to the 2011 census Monaghan
had a population 60,483, with almost 70% of this population living in a rural community,
a community with a population of 1000 or less CSO, (2011). Monaghan has a significant
older persons population. The CSO, (2011) tells us 14% of the countys population
35

were over 65, slightly higher than the national figure of 11.5%. Some parts of the county
have populations of double and almost three times the national figure for adults over 65.
What is even more significant, the age profile of the older population in the towns of
Ballybay and Clones is double the national figure in all age categories over 70, giving
Monaghan a much older, older population in comparison to the state. 66% of older people
in Monaghan rely on the state contributory or non contributory pensions for financial
support.
43% of those in receipt of state pensions were also receiving a living alone allowance. In
2011, 39.3 percent of people in the county registered as having a disability were aged 65
years and over. In the rural towns of Clones and Ballybay this figure was 48.7% and 40
% respectively CSO, (2011).
This rural and ageing population profile places great importance on the need to deliver
accessible public services. The location of people requiring services significantly impacts
on how services should be delivered. Scharf (2012) believes ageing in rural communities,
combined with economic decline and resulting location and diversity of communities
contributes to social exclusion.
Changing rural landscape
While the drumlins continue to dominate the geographical landscape of rural county
Monaghan, the social landscape of the county has changed dramatically in recent years.
The economic collapse nationally impacted dramatically on rural Monaghan. Emigration
of younger people has impacted on family networks, many older people are now without
the important social and support networks family bring. The declining population do to
36

emigration has also impacted on service provision. The closure of local services such as
post offices, Garda stations and shops creates difficulty for rural dwellers, in particular
older rural dwellers in accessing services. The vulnerabilities associated with ageing can
be further aggravated by the vulnerability of declining rural communities characteristics
by retreating services, creating a double jeopardy for rural dwelling older adults Caslin,
(2009 p. 4). The impact of rural dwelling on social exclusion is significant, particularly
for older people. Walsh & O Shea, (2008) relate how for older people in rural
communities the lack of resources, structures and services which form part of everyday
life, present more challenges as you grow older.

Issues influencing social exclusion of older people in rural communities

There are a number of factors that impact on the social exclusion of people living in rural
communities. While these issues are not unique to rural communities, or older people,
they are more likely to influence the social exclusion for older people living in a rural
community.
Access to services
Traditionally public services are located in areas of greater population masses. As
happens everywhere, large centres of population facilitate the easier and more costeffective provision of public services and accordingly people living in these areas have
relatively easy access to the conveniences of modern existence Government of Ireland,
(2010 p. 5).

37

In Monaghan location of public services is centered in Monaghan town to the north of

the county, with some smaller service outlets in the other four towns of the county.
Services of the county council, Health services, and education and training services,
larger social and recreational services are located in the largest town in the county,
Monaghan. In a county where public transport infrastructure in extremely weak, people
looking to access any of the key services must rely on their own transport means.
According to the CSO, (2011) the population of Monaghan town was 8,010 representing
approximately 14% of the countys population, with 86% of the population living outside
the key service centre of the county.
Access to transport
Access to services is closely linked with access to transport. The situation of people
living in small villages and rural areas is not so advantageous, access to public
transport is more limited and local secondary road networks can often be in need of
improvement. This reduces their ease of access to the same services...It impinges upon
their ability to benefit fully from modern society Government of Ireland, (2010 p 5).
County Monaghan is poorly serviced by public transport. Public transport providers, Bus
Eireann provide only five bus routes in county Monaghan (Route 65, 162, 166, 175, 182,)
four of which service Monaghan town, one servicing Clones town, and one servicing
Carrickmacross. A further eight services are provided on a weekly basis by the
government funded rural transport programme.

38

This programme provides vital access for older people to recreational services but gaps
in service provision still pose a problem in accessing other social, health and public
services. The remainder of the county is not serviced by public transport rendering access
to transport a critical issue in county Monaghan. Lack of transport has a greater impact on
older people, combined with a trend among older people of reduced mobility and sensory
difficulties reduces the capacity of older people to use their own transport means places
enormous difficulty for older people in accessing the services they need.

Literacy difficulties
The OECD (2013) Adult Skills Survey found 17.9% of Irish adults are at or below level 1
on a five level literacy scale. Someone at or below level on a literacy scale may have
problems reading basic information. The survey also found that adults over 55 have the
lowest level of literacy in the population. Monaghan has a lower than average rate of
literacy in comparison with the state figures. In 2006, 51% of the population in
Monaghan were recorded as having achieved lower secondary education only, 25% of
whom achieved primary level education only CSO, (2006). This is higher than the
national figure of 15.6% ceasing education at primary level and 19.2% ceasing education
at lower secondary level.

39

While the figure for the county are not dramatically higher than the national average,
there are areas of the county, particularly rural areas where percentage of the population
with primary education only are more than double the national average. (Mullyash
41.6%, Killynenagh 40.4%, Bragan 39% CSO (2006).
This figure is heavily influenced by two key factors. Traditionally a farming county,
many people (now in older age) left school at primary level to work on the family farm.
This is a particularly significant issue for older males in the county. Secondly, Monaghan
in the 1940s and 1950s had only four second level schools, based in the town centres of
Monaghan and Carrickmacross.

For many young people this required a long commute to and from school each day, the
difficulty and costs involved in accessing second level education resulted in many people
from rural communities ceasing their education in the local primary school.
Poor literacy and numeracy skills can greatly impact on an older persons daily life. The
NALA, (2009) report on A Study of Older People with Literacy Difficulties in Ireland
gives some insight into the impact of literacy difficulties in the life of older people. The
report states many respondents relied on support from friends and family in order to
participate in social and community events and activities NALA, (2009).

40

Poverty
Olderpeopleareamongoneofthemostvulnerablegroupsinsociety.Retirementfrom
employmentandrelianceonsocialwelfaresupportplacesolderpeoplemoreatriskof
poverty.AsurveycarriedoutbytheCentralStatisticsofficein2011onIncomeand
LivingConditionsontheElderly showed9.7%ofpeopleover65waslivingonthe
breadline.Thesurveyalsohighlightedthataverageincomesforolderpeoplehaddropped
by5%between2009and2011,withalmosttwothirdsoftheaverageolderpersons
incomecomingfromsomesocialwelfarebenefitsCS0,(2011).
Disability
Ageing brings with it increased health difficulties and mobility issues. Older people who
previously enjoyed good health may find themselves experiencing reduced mobility, or
impairment of the senses such as hearing and eyesight. These changes impact on a
persons ability to access services. Hearing loss can make using a telephone difficult
while impairments to eyesight make it difficult to read small print, information posters,
and application forms or sign posts. Mobility difficulties can reduce a persons ability to
negotiate steps and entrances and making their way around key service buildings. In
Monaghan in 2011, 7,184 persons were registered as having a disability of which 39.3
percent of the total were aged 65 years and over CSO (2011).
41

Increasing Technology
In recent years the use of technology in public services has dramatically increased. This is
reflected in government policy the current We will develop Ireland as a digital island
and first-mover when it comes to information technology by ensuring more progress on
e-Government Government of Ireland, (2011 p. 8). While this move into the technology
age is progressive there is a danger of older people being left behind.
Hardill, (2013) finds that a focused move by government to providing more services
online can significantly impact on older people who may get left behind in the digital
divide. Hardill, (2013) reports that while the number of older people using online services
is increasing the numbers are still significantly lower that other age profiles in society.
The ICT Household Survey CSO, (2012) reports that 53% of 60-74 year olds have never
used the internet, compared with 3% of those aged 1629.Some of the key issues
identified by Hardill (2013) that prevent older people from using online services
included: Lack of skills, lack of opportunities to gain the skills, fears about online
security, no access to IT facilities, no access to broadband and lack of awareness of
services available online, while there are clear cost benefits to moving public services
online to do so successfully governments must take in to account difficulties experienced
by some older people in accessing them, Hardill (2013)

42

Conclusion
What this literature show us is that while the reality that some people are socially
excludedinsocietyisnotnew,theworktoremovethisexclusionhoweverisstillinit
infancy.Theliteraturereviewalsohighlightstheneedforcontinuedprogressioninthis
field.Whiletheworkatinternationalandnationalleveltoaddresssocialexclusionhas
developedsignificantlyinthelastfortyyears,thereisstillmuchworktobedoneto
ensureallmembersofsocietyaregiventhesameopportunitytoparticipatefullyinall
social,culturalandeconomiclife.Despitechangesinequalitylegislationandagreater
focusonhumanandcivilrightsatagloballeveltherearestillmanypeoplewhoare
excluded.Thisresearchwillnotaddresstheglobalissueofinequalitybutitishopedthe
findingsandconclusionsinthispieceofworkcaninsomewayinfluencethemannerin
whichpublicservicesinIrelandaredeliveredandsubsequentlyimprovethequalityof
lifeforpeopleinIreland.

43

Chapter three: Methodology

Introduction
This research aims to examine social exclusion from a rights based approach in the
context of public service delivery. The aim of the research is to identify possible barriers
that exist within public service delivery that make it difficult for some people to avail of
the services they need. The public service is large, diverse and complex. A wide range of
services across the areas of health, education, social and recreational opportunities are
provided to the public on daily basis. It is not possible in a dissertation of this size to
examine social exclusion within the public service in its entirety. For this reason the
research will focus on the services of local government, specifically the services of
Monaghan County Council. Similarly, to examine social exclusion as experienced by all
targets groups most at risk is also unmanageable in this particular research project. To this
end, the research will focus on older people. As one of the most vulnerable groups at risk
of social exclusion in Irish society, the experience of older people accessing services of
Monaghan county council will give an overview of social exclusion within public service
delivery.

44

Context of the research

This research project will examine service delivery methods in Monaghan county council
in the context of social exclusion. It will seek to identify the barriers that exist within
current service provision that make it difficult or prevent people in society from availing
of those services. By identifying the barriers that exist, it is hoped to influence future
service delivery by highlighting how services can be improved to ensure accessibility for
everyone. The literature review highlights the significant gap in literature on the subject
of social exclusion in service delivery of local authorities in Ireland, therefore it is hoped
the findings of this research can contribute to the knowledge and literature on this area of
social inclusion and subsequently inform future policy on public service delivery.
The researcher intends the final dissertation to make a positive contribution to the process
of embedding of social inclusion practice in service delivery in Monaghan county council
and other local authorities. Given the commitment by both central and local government
to reduce social exclusion in Ireland this research project its both important and timely.

Selecting an appropriate Methodology

Research methods in the area of social science are usually divided into two main
methods: quantitative and qualitative. Social research typically involves the application
of one of two of these research methods and in some cases a combination of both
methods.
45

In approaching any research project it is essential to apply the most appropriate and
effective research methods to ensure the validity of the research and accuracy of the
findings. If a research project is to make a significant contribution to its subject matter it
is vital the correct methodology is applied.

Quantitative research methods

All research involves finding an answer to a question or looking to explain something.
Some research questions are easily answered through collecting and quantifying data on a
particular subject matter. This method of research is known as quantitative research.
Quantitative research is: Explaining phenomena by collecting numerical data that are
analysed using mathematically based methods in particular statistics Aliaga &
Gunderson, (2000). Quantitative research is closely linked to a positivist paradigm, in
other words the answer to a question is derived from scientific methods. The quantitative
research method typically, but not always uses questionnaires, surveys or structured
interviews to gather data. The numerical data is then analysed and compiled into
statistical data. Collecting data requires standardised measures so that data can fit into
predetermined categories to which numbers are assigned Patton (2002). The methods
used in quantitative research are defined and structured. This gives rise to a confidence in
the information produced. A key advantage of quantitative research is that it can be

46

administered and analysised quickly (although this can be costly). It can produce reliable
data that can be then usually applied to a larger population.
A researcher conducting a quantitative research will decide in advance what data he/she
is looking for and the research will be designed carefully prior to data being gathered.
This method is deductive in nature; typically the researcher has a hypotheses and wishes
to test its accuracy. Due to its very defined and structured approach the quantitative
research method is limited. There is no flexibility to explore a question further based on
an initial response from participants.

There is no depth to the investigation in quantitative research, human behavior or feeling

is not taken into consideration when researching any issues. In this way it is difficult to
assess whether variables or circumstance influenced participants when answering.
Qualitative research methods
In contrast qualitative data that is more typically used in research seeking to find answers
from examining human experiences and emotions. Qualitative research is more focused
on an in-depth approach to a research phenomenon. This research method goes beyond
the problem and explores issues and nuances may influence the problem. Qualitative
researchers are interested in understanding the meaning people have constructed, that is,
how people make sense of their world and the experiences they have in the world.
Merriam, (2009, p. 13). Qualitative research is more concerned with how people felt
when a certain social phenomenon happened, rather than where it happened, how many

47

people were involved. Qualitative research is about getting the picture Denscombe,
(2007) not just the facts.
Common data collection methods used in qualitative research are focus groups, informal
interviews, observation, and ethnographic participation/observation. Given its focus on
how something is experienced, human behavior and feeling qualitative research is often
used when research the area of social exclusion.

Research design
The objective of this research is to identify the barriers that exist in current service
delivery methods of Monaghan county council for older people in the county. In order to
fully understand the difficulties encountered by older people in accessing services it
seemed most appropriate to apply a qualitative approach to the project. Using older
people and their advocates as the data source this research fitted most appropriately
within a qualitative research approach. Qualitative research is particularly suited to
gaining insight into questions embedded in social and cultural communities. Holloway,
(2002). According to Le Compte and Schensul (1999)it is important that people tell their
stories and the meaning attached. The qualitative method is best suited to the area of
social exclusion. It pays attention to peoples everyday life which is the right
methodology to mirror social exclusion Holloway, (1997).
Social exclusion is a persons or a group of peoples experience in society. It is a complex
situation experienced in many different ways by many different people. If this research is
to address a gap in current literature and policy on social exclusion in public service

48

delivery to improve the outcomes for older people, it is important to ensure the
experience of older people is examined. It is also critical that the research describes the
impact of social exclusion within public service delivery on the daily life of older people
in Monaghan. To this end the qualitative method of research is most suitable. It is
common in social research to use more than one research method to collect data.

The use of more than one method of data collection may provide a better understanding
of the subject as it is viewed from different positions Cohen, Manion & Morrison,
(2007). The researcher felt knowledge of the quantity of older people who have difficulty
in accessing services would not have given insight into the nature of the difficulties or
any insight from older people on how to address these difficulties. For this reason the
researcher decided upon a single research method, a qualitative approach in this research
project. The researcher decided to conduct the research using a combination of desk
research on literature relating to social exclusion in government policy and direct
consultation with older people and their advocates. Consultation would be delivered
through a series of focus group sessions with older people and semi structured interviews
with people in the community work with or for older people. This research project uses a
community development approach, using the knowledge of the community to influence
change at local government level.

49

Literature review
Access to services is not an isolated problem; it is a characteristic of a wider issue of
social exclusion. The findings in the literature review demonstrate the scale and
complexity of social exclusion as a problem in society. The literature also highlights the
lack of information available on social exclusion within public service delivery and how
to address it. It is clear from literature reviewed on the evolution of social inclusion
policy in both European and Irish government that this is an area of policy in progress.
There remains a significant gap in published information on the specific nature of social
exclusion within public service delivery, how it impacts on people and how to the public
service can address the situation. From the literature review we can gain a good
understanding of social exclusion, what it means for those experiencing it and what it
means for policy makers and public service providers. However without significant
information on the barriers that exist within local government services and how they may
be addressed it will be difficult for any local authority to make any real change to service
delivery.
Considering the gap in the knowledge on social exclusion within public services it is was
necessary to gather the experience of older people in Monaghan with regarding to
accessing the services of Monaghan county council. It was necessary to ensure those who

50

use the services of Monaghan county council were the people engaged in the research.
The nature of social exclusion can mean some people, are disengaged from social
networks and opportunities provided by local community groups for this reason it was
also important to gather the experience of older people from the perspective of those who
advocate on their behalf.

Sampling
In all research methods sampling is important to ensure the validity and credibility of
the research. While sampling is much more systemic in quantitative research sampling
also plays an important role in qualitative research. Sample sizes in qualitative research
are typically small so in a county as small as Monaghan it was important to avoid
saturation in data collection. In this research the researcher didnt follow a particular
sampling methodology. The approach taken was to identify the key target groups the
researcher felt would best inform the research and contribute information that would
help meet the aims and objectives of the research. The sampling approach including
examined the best way to ensure the views of older people in Monaghan would be
adequately represented. It was neither possible nor practical to gather data from every
older person in Monaghan. Therefore a number of data collections sources that would
allow the researcher to obtain a representative and valid opinion of all older people in
the county were selected.

51

To identify older people in the county to engage in the research the first avenue was to
examine Monaghan Community Forum as a means of data collection. Monaghan
Community Forum is an umbrella community organisation representing the community
and voluntary sector in county Monaghan. A successful community organisation in
operation since 2001 it has a membership of over 400 community and voluntary groups
from across county Monaghan. Most recently the Community forum was involved in
establishing a sub-committee to represent the concerns of older people in Monaghan.
Established in 2012 Monaghan Older peoples network aims to raise issues of concern
affecting older people in the county. The network engages with statutory and non
statutory agencies to address issues of concern. It was therefore the first point of contact
to engage older people to participate in the focus group sessions.
For participation in semi structured interviews four specific sources were
identified:
(1)Elected representatives
(2) Front line staff of Monaghan county council
(3) Advocacy groups working with older people in the county.
(4) Social inclusion staff from other local authorities in the region.

52

The researcher felt that the selected sources of data collection would give sufficient
information on the experience of older people accessing the services of Monaghan
county council to inform the thesis.
Focus group sampling: Monaghan Older peoples network
Monaghan older peoples network has memberships of over two hundred and fifty older
peoples community groups and an executive committee of sixteen. Membership is made
up of older peoples groups, clubs and organisations from within Monaghan. The Older
peoples network is very active in the county and their representative role and active
presence in the county influenced the decision to approach them to become the source of
participants for the researchs focus group sessions. The researcher wrote to the
chairperson of the older peoples network outlining the nature of the research project and
a request to engage with the members of the Monaghan Older peoples network as part of
the research. Subsequently, the researcher was invited to attend a meeting of the older
peoples network executive. A short presentation was made to the meeting highlighting
the overall aims and objectives of the research. The researchers presentation clearly
outlined the specific requirements for older people engaging in the research and that all
information recorded at focus groups would remain confidential. Older people were also
encouraged that the findings of the research would have potential to improve service
delivery in the future. From this meeting it was agreed an invitation to participate in the
research would be forwarded to each group registered with Monaghan Older peoples
network.
53

In order to avoid hand picking groups to participate it was agreed that the first two groups
to respond would be selected to participate. It was also agreed that the older peoples
network executive itself would participate in a focus group.
This exercise resulted in focus groups being held with:
Drumkill day care centre
Drumkill day care centre is a busy community centre that provides a wide range of social,
medical and information services for older people in Threemilehouse, a small rural
village located approximately 8 miles from Monaghan town.

The centre provides

services for both men and women from Threemilehouse and surrounding areas on a daily
basis.
Doohamlet District Development group
Doohamlet is a small rural village in mid Monaghan; it is located approximately 20 miles
from Monaghan town. The village has a sizeable older population, many of whom live
alone. Doohamlet District Development group provide a wide range of supports and
social services for their members.
Monaghan Older peoples network executive
The executive has a membership of sixteen older people, representative of older people
groups throughout the county. Membership includes male and female older people from
both urban and rural community organisations in the county.

54

Semi-structured interviews sampling

While the voice of older people is the most important part of this research, it was
important to look at the issues of access to services from other angles. Community
consultation is an effective and powerful tool, however opinions can be localised and
personalised at times. One older persons negative experience of trying to access a
particular service may not accurately reflect that service. Engaging with other data
sources would add the opportunity to gain a much broader perspective of the research
subject.
To achieve this, a number of semi-structured interviews were carried out with key people
who come into regular contact with older people through the course of their work.
The wealth of knowledge and experience among the participants of the semi-structured
interviews would provide a valuable contribution to the research. As the literature review
highlighted, the information available on barriers to access of services within local
government is limited. To gather a broader perspective of the experience of older people
the researcher identified participants from the following groupings:

Front line staff of Monaghan county council

55

In selecting a sample from front line staff, the researcher chose to select staff from a
number of departments that provide services directly to older to people, or provide
services to older people as part of wider service user population. The services selected
represented service delivery in the areas of social housing, corporate affairs, community
supports, library service and the county Museum. The services selected would give
insight into service provision in a number of service settings and delivery methods. In
departments where one key member of staff provided the service, the researcher
approached them directly to request them to participate in the research. In departments
where numerous staff are involved in frontline service delivery the manager was
approached and requested to select a member of staff to participate.
Local authorities in the region
As this research focused on the services of local government and older people, the
researcher considered it worthwhile to interview social inclusion staff in other local
authorities. This would allow the researcher to assess if problems accessing services were
common across local authorities or whether issues raised in county Monaghan were
unique to this county. Cavan county council was selected due to its similarity to
Monaghan the context of being a rural border county with a significant older population.
In contrast, Fingal county council was selected, a local authority serving a large urban
area with a population with an average age of 30.4 years making it the youngest
population in the country.

56

Older peoples advocacy groups in County Monaghan

Advocacy plays a big role in social inclusion work in any community. Those who are
unable to speak up for themselves rely on others to make sure their voices and opinions
are heard. As highlighted in the literature review social inclusion policy is relatively new
in Irish government. Prior to the first National Anti-poverty strategy most social inclusion
work was delivered solely by community and voluntary organisations who worked with
local communities to lobby for change on behalf of the people they represented. There are
numerous organisations operating in an advocacy role in county Monaghan, some within
the broader social inclusion remit and others with a specific geographical remit
within the county. The researcher selected Monaghan Integrated Development Limited
and Monaghan Age Friendly Alliance as both have a countywide remit.
The researcher approached the community development team leader in Monaghan
Integrated development and Age Friendly Regional co-ordinator respectively to engage in
the research project.
Monaghan Integrated Development Limited
Monaghan Integrated Development Limited is government funded organisation which
delivers the Local Community Development Programme in Monaghan on behalf of the
Department of Environment Community & Local Government. This programme delivers
a programme of activities targeted at the most disadvantaged communities in Monaghan
focusing on long term unemployment and social exclusion.

57

Older people are a key target group of the programme and Monaghan Integrated
Development Limited has a dedicated programme working directly with social excluded
older people.
Monaghan Age Friendly Alliance
Monaghan became an Age Friendly county in 2011. An Age friendly county is a county
that promotes the social inclusion and well being of older people in the county.
Monaghan Age Friendly Alliance is a partnership of community, voluntary and statutory
representatives that work together to deliver Monaghan Age Friendly Strategy in the
county. Monaghan Age Friendly Strategy was developed following an in depth
consultation with older people in the county during 2011.
The actions outlined in the strategy document reflect the issues raised by the older people
of county Monaghan. A priority issue in the Age Friendly strategy is access to services
and information.

Elected representatives of Monaghan County Council

Elected members or councillors as they are locally known are primarily involved in
delivering the reserved functions of the local authority. Reserved functions are mostly
related to decisions regarding policy and budgetary matters. Councillors also carryout a
representational role on behalf of their constituents, this representational role makes the
local councillor an important contact for many people in the county who have difficulty

58

in negotiating and accessing the services of their local authority. For many people,
particularly older people, the local councillor is the first port of call when trying to access
services or information on public services. For this reason it was important to interview
members of the elected council as part of the research. Elected members have a good
understanding of most issues facing communities with regard to the local authority. The
input of elected members can provide important information regarding the barriers that
older people face in trying to access services. Monaghan county council has twenty
elected members, eighteen of the elected members are from the political parties Sinn Fein
(7) Fine Gael (7) & Fiona fail (4). It was important to gather the views of from each of
the three key political parties represented on Monaghan county Council.
The researcher approached an elected member from Sinn Fein, Fine Gael and Fianna Fail
parties, in selecting participant councillors the researcher approached members that had
been involved in social inclusion activities in the county council within the past year.

59

Data Collection
In addition to extensive desk research carried out as part of the literature review process
this research comprised of two key data collection methods. Data collection took place
over a six week period throughout January and February 2014.Three focus group sessions
took place with older people in county Monaghan. Each focus group had a minimum of
twelve participants and maximum of twenty in order to allow good contribution and
participation. Engagement with staff, elected member and advocates was carried out
through semi- structured interviews. A total of eleven participants participated in semistructured interviews. The interviews took place in February 2014. The interviews were
carried out using a number of methods: (1) Face to face (2) Telephone (3) Email. The
method selected depended on the availability of the participant.

Focus Groups design

In any research it is important the research tools are appropriate to the participants. In
deciding the most appropriate method to gather the views and experiences of older people
in Monaghan in accessing services in this context a focus group would be the most
appropriate to both the subject matter and the participating audience.

60

A focus group is when A number of people are asked to come together in a group to
discuss a certain issue Dawson (2007). There are a number of reasons why a focus group
format was selected.
A focus group allows the researcher to gather a large range of opinions and views on a
subject matter in a short space of time. It also allows for interaction among participants
that can encourage contribution from others.
The focus groups took place with established older peoples groups. The researcher
decided on this approach as participants were already familiar with each other and was
comfortable to speak out in a group setting. This may not have happened in a focus group
were participants didnt know each other previously. The researcher chose to host focus
groups in the community centre of the participating older persons group. In addition to
eliminating any costs involved in venue hire it also allowed all members of the group to
participate in an environment they were familiar with.

Implementation of focus groups

In advance of each focus group information on the research project, focus group format,
and consent forms were forwarded to the chairperson of the group. This allowed each
participant to have a good understanding of the purpose of the focus group the direction
of the questioning and assurance of confidentiality. Each focus group lasted for
approximately forty five minutes. Each followed the same format, a brief introduction to
the research project, its aims and objectives and purpose of the focus group. Some ground
61

rules were agreed with all participants, firstly all mobile phones being turned off to avoid
disruption and secondly each participants contribution was to be respected.
Each focus group was led by the facilitator supported by the chairperson in each group
who agreed to record the contributions as they were raised. Participants were also given
an opportunity to speak on a one to one with the facilitator at the end of the focus group if
there was something they wished to contribute but didnt wish to share in the focus
group.
A total of three questions were asked in each focus group. To open discussions the
facilitator asked participants if they were familiar with the services of Monaghan county
council. The purpose of this question was to familiarise participants with the services
provided by Monaghan county council and to ensure the discussion didnt turn to other
service providers. This opening question also relaxed participants who were a little
apprehensive about participating in such a formal process. The core of the focus group
centred on participants experience of accessing services of Monaghan county council.
How they felt when trying to get access to a service, whether any difficulties were
experienced. Questions were designed in an inclusive manner. Questions were
straightforward using clear simple language and avoiding unnecessary jargon.

The

facilitator promoted debate and discussion among all participants, ensuring no one
dominated the discussion and everyone was given an opportunity to speak. Focus groups
took place at a time of dissatisfaction with some government decisions regarding social

62

welfare secondary benefits for older people. The facilitator had to ensure the discussion
was kept on the topic of access to services and avoiding a public debate on current
government policy.
For most participants it was there first time taking part in a research focus group, the
facilitator had to keep the discussion moving to encourage continued participation. To
conclude, participants were asked to give advice to Monaghan county council on how
they could improve their services to make them easier for older people to access. This
question was used to encourage empowerment among the group, facilitating a community
development approach giving participants a feeling of contributing to change in their
communities.
A total of fifty three older people participated in three focus groups, with the largest
group being twenty. Participants represented a good geographical spread from urban and
rural dwellers. Gender mix was predominantly female, but each focus group had male
participants. All participants were over sixty five and twenty participants were aged
between seventy five and eighty five. All fifty three participants made at least one
contribution to the focus group.

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Semi-structured interviews design

To add validity to the research the researcher felt it was important to gather information
from sources other than older people. A number of other target sources were identified
from those involved in providing services to older people and those who advocate on
behalf of older people. The method of semi structured interviews was selecting to
complete this stage of the research. Semi-structured interviews are simply conversations
in which you know what you want to find out about and so have a set of questions to ask
and a good idea of what topics will be covered. Fylan, (2005, p 65).Compared to a
structured interview where questions are rigidly adhered to, questions in the semi
structured more open and flexible. The semi structured interview process allows the
participant to share their knowledge and experience on a particular topic. A semi
structured interview provides the researcher not only with an answer to a question but
also the reasons behind that answer. It is this flexibility that makes the semi-structured
interview most suitable to this research project. Semi structured interviews you get to
talk to people in order to find out about what they have experienced and what they think
and feel about something you are interested in Fylan (2005, p 72).The researcher
prepared an interview schedule listing simple questions related to the key topic areas to
be discussed in the interview process. The main objective of the semi structured interview
process was to gain insight into the experience of older people in accessing services from
the perspective of service providers and those who advocate on behalf of older people.

64

The questions selected were clear and straightforward in order to encourage free flow of
information. The questioning was very much focused on the opinion of the participant
based on their experience of engaging with older people in the course of their work.

Semi-structured interviews implementation

After selecting the relevant people the researcher wished to engage, a brief overview was
forwarded to each participant invited to participate. This overview set out the aims and
objectives of the project, what participating in the research entailed and the potential
outcome of the findings. Details of the proposed interview timetable, confidentiality
agreements and questions were forwarded to each participant in advance of the interview.
Eleven semi structured interviews were completed with four different targeted
participant groups: (1) Frontline staff of Monaghan county council (2) Older peoples
advocacy groups (3) Elected representatives and (4) Social inclusion officers in other
local authorities. Interviews took place face to face, over the telephone or via email
depending on the participants availability. A commitment of confidentiality was made to
each participant and an explanation for their selection in the research process. To ensure
consistency in data collection questions asked in the semi-structured interviews were
similar to those asked in the focus group sessions. However as the participants in the semi
structured interviews were participating in a professional capacity questions reflected the
professional setting of the interview process while still allowing for each individuals
opinion to be shared.

65

Three key questions were asked in each semi structured interview focusing on service
delivery within the local authority and the experience of older people in accessing the
same. Participants were given the opportunity to give detail of their own experience
either through providing a service directly or through supporting older people to avail of
a service. The facilitation skills of the researcher encouraged participants to be open and
honest in their response, especially if responses were critical of Monaghan county
councils service delivery. In conclusion participants were asked how they felt service
delivery could be improved to make it easier for services users to independently avail of
all service provided.

Ethical issues
Ethics are a matter of principled sensitivity to the rights of others Bulmer (2002).When
conducting a research project the researcher has a responsibility to those who participate
and contribute to the research data collection. It is important the contribution of a
participant is respected, valued and protected. Monaghan county council does not have
its own code of ethics with regard to social research, so for the purpose of this research
the researcher referred to Department of Health & Children, (2012) Guidance for
developing ethical research projects involving children. While the key focus of these
guidelines are related to children the core principles identified are relevant to any
vulnerable group in society. Regardless of agreed guidelines there are two key ethical
issues that concern any research project. They are consent and confidentiality.

66

Consent
An individuals participation in research should not arise from any pressure imposed by
the researcher. All participants should engage in the research of their own free will. To
ensure this is adhered to it imperative that participants are clear from the start on the
nature of the research, what their participation entails and what will be the output of their
contribution. In most cases written consent is secured through consent forms or similar,
but in some cases verbal consent may suffice.

Confidentiality
Confidentiality is an important component in any data collection instrument in qualitative
research. Participants must feel they can be open and honest about the research issue
without concern that their contribution may be brought to public attention or cause any
negative impact on them personally. This is extremely important with research where a
problem or difficulty is presumed in the thesis.

Ethical issues related to this research project

In the preparation, design and implementation of the data collection methods the
researcher closely followed the principles of good ethical practice in social research,
Department of Health & Children, (2012). The researcher considered in advance the
ethical issues that may arise within each of the targeted sources of data collection and

67

reflected those issues in the design and implementation process. There were a number of
ethical issues that had to be considered in this particular research. The researcher chose
four distinct targeted sources of data collection for this project. While each source
differed in their relationship to the researcher all sources required the same level of
responsibility to them.

Front line staff of Monaghan county council

As a researcher, approaching colleagues to participate in this research project required
their full understanding of the objectives of the research. It was the responsibility of the
researcher to make sure they fully consented to participate and give their very valued
opinion and experience on service delivery to older people. It was important they
understood their participation was not compulsory. Participants were advised that the
information put forward would contribute to improving current service delivery methods
for all service users. The validity of their contribution was very much linked to their
anonymity. It was crucial that through their participation staff could not be identified.
Prior to participation staff were assured that anything contributed would remain
confidential, examples of barriers would be used without reference to a particular service
or department of the county council therefore protecting the identity of front line staff.

Advocacy groups in Monaghan

68

Interagency work is a core part of social inclusion work. Monaghan county council
enjoys good relations with other service providers in the county both statutory and non
statutory. It was important those relationships were not jeopardised in the course of this
research project. As the nature of this research was to identify barriers or problems in the
current service delivery it was important participants from external agencies and
organisations were assured that constructive criticism and identification of issues was
welcomed and indeed encouraged.

Confidentiality was vital in this source of data collection as all agencies who took part
have a well established working relationship with Monaghan county council and are keen
to maintain this relationship into the future.
Elected representatives
While the elected members of Monaghan County Council are central to important
decision making processes of the county council they are removed from the day to day
management of services. It was therefore important to ensure elected representatives were
fully informed of the aims and objectives of the research and how it could potentially
improve service delivery in the future. An elected member in his/her criticism of a
particular service/department required anonymity in order to maintain good relations with
staff in future.

Older people living in County Monaghan

69

Many participants in the focus groups are tenants of the local authority their fears of
getting in trouble needed to be addressed through assurance of complete and total
confidentiality. The researchers role as social inclusion officer for Monaghan county
council brings her into regular contact with the older people who are members of the
older peoples groups that engaged in the focus groups. As the members know the
researcher personally it was important to relay to them that any negative feedback about
Monaghan county council would have no impact on relationships in the future.

Researcher bias
Instrumentation rigor and bias management are major challenges for qualitative
researchers employing interviewing as a data generation method in their studies.
Chenail,(2011, p.1). From the beginning of this thesis the researcher was aware of the
potential of researcher bias on the research project. The researcher works as the social
inclusion officer in the local authority. This role involves trying to embed social inclusion
practice within the services of Monaghan county council. As someone who is passionate
about social inclusion and acutely aware of the need to improve service delivery within
the public sector it was important this was not reflected in anyway in the questioning or
analysis of the data for this research project. In order to achieve this, the researcher
conducted the research from the perspective of an independent researcher with little or no
knowledge of Monaghan county council.

70

This required a lot of planning and preparation for the implementation of focus group and
semi-structured interviews to ensure questions asked did not reflect the opinions or
knowledge of the researcher.
According to Chenail, (2011) A usual procedure for testing the quality of an interview
protocol and for identifying potential researcher biases is the pilot study to test the
proposed methods for data collection. The researcher considered the option of a pilot
study when planning data collection but decided against this method as given the small
geographical area of the research it would limit the availability of participants to engage
in the research. The researcher explored an alternative option to test the data collection
methods.
To remedy these problems, investigators can turn to a pre-pilot study inquiry known as
interviewing the investigator Chenail (2011 p. 4). Using the interviewing the
investigator approach the researcher tested the worked with a colleague to test the
proposed questioning format. Using this approach it was identified that some questions
were perceived as negative in their wording and subsequently would influence the
response. Following this exercise the questions were amended to encourage a more open
and valid response from participants. Through the research project it was important to
ensure the researchers position as social inclusion officer within Monaghan county
council didnt not in any way influence the outcome of the focus groups or semistructured interviews. This was particularly relevant when interviewing staff and elected
members of Monaghan county council.

71

The questions used in both the focus groups and semi structured interviews were
designed and delivered in a manner that would encourage honest contribution as opposed
to answers participants felt the researcher wanted to hear. At all times through the data
collection process participants were advised to disregard the professional position of the
researcher and to approach their answers with a view to improving service delivery for
older people. The researcher is satisfied that the efforts made to overcome researcher bias
were successful.

Data Analysis
Bogdan and Biklen, (2007) explain data analysis as a systematic process of sifting and
arranging all information gathered during collection, to enable the presentation of what
have been discovered. There are many methods of data analysis employed in qualitative
research. The method used depends on the nature of the research and resources available
to the researcher. Before applying an analysis method to data collected it is important to
organise the data into a format that can be easily analysised. In this study the researcher
recorded the data collected into summary forms. Recording all data collected under each
question asked. To begin the process data collected in focus groups and semi structured
interviews were collated separately. In analysing the data collected in this research study
the researcher choose a combined method of analysis, thematic and comparative analysis
methods. Thematic analysis describes the process of identifying, analysing and reporting
patterns (themes) within data. It minimally organises and describes your data set in (rich)
detail. Braun and Clarke, (2006).

72

This analysis is inductive in that themes are generated from the data produced and not
from the researchers interpretation of the data. The researcher reviewed the data
collected, identified themes, and categorised them accordingly. Once the emerging
themes from both data collection methods were identified the researcher began the
second stage of data analysis, comparative analysis. Comparative analysis generates
knowledge about common patterns and themes within human experience Thorne (2000).

Comparativeanalysisinvolvestakingonepieceofdatacollectedandcomparingitwith
otherpiecesofdatacollected.Bycomparingdatatheresearchercanidentifysimilarities
anddifferencesbetweendatasources. Usingtheexperienceofservicedeliveryasthe
basisforcomparison,theresearchercomparedthedatacollectedfromfocusgroupswith
data collected from semi structured interviews and identified the similarities and
differencesindatawhichinformstheoverallanalysisoftheresearch.

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Chapter Four: Research findings & Discussion

Overview of findings
On completion of the analysis of data collected the process of presenting the findings
began. The data collection methods used in this research project was qualitative in design.
Focus group sessions took place in three separate locations throughout county Monaghan.
Semi-structured interviews were conducted with eleven individuals representing four
distinct target groups. In total, through the various forms of data collection 64 people
were engaged in this research project.
The breakdown of participants is as outlined below:
Description of participant
Older people (65+) full time resident in county Monaghan

Numbers
53

Full time staff in Monaghan County Council engagement in 4

frontline service delivery
Local Elected representatives of Monaghan County Council
3
Key staff in social Inclusion organisations supporting older 2
people
Social inclusion staff in other local authorities

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Categorising findings
In process of analysis, data was categorised under the questions asked and themes
emerging from within those questions. Themes identified are listed in the tables below.
Further detail of the emerging themes is outlined further on in the chapter.
Focus groups findings
1. Knowledge of services (Focus Groups)
Lackofengagementwiththecountycouncilasameansofaccessingservices
Lack of awareness of services available from Monaghan County council
Lack of awareness on where services are located, contact information etc
2. Experience of accessing services of Monghan County Council (Focus Groups)
Difficultieswithtelephonesystem
Difficultygainingaccesstoservices
Difficultlyfindingtherightstafftospeakto
Lackofprivacyincouncilofficeswhendealingwithstaff
Alotofassistancerequiredfromstaff
Complicatedprintedinformation
Movetowardsonlineservicesdifficultytouse

3. Suggestions for improved Service delivery (Focus groups)

Improvinginformationonservicesavailable
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ExplorealternativeInformationoutlets
Improvedtelephonesystem
Informationofficertoadviceonallservices
Moreawarenessamongstaffofneedsofsome
Privateconsultationarea
Simplermoreuserfriendlyinformation
Supportforpeopleinaccessingonlineservices
Breakdown of categorised findings
The purpose of the focus groups was to record the experience older people in trying to
access the services of Monaghan County Council and suggestions from service users of
how services can be made easier to access for older people living in the county. Questions
were asked to gauge:
1. The knowledge of services provided by Monaghan county council
2. The experience of accessing services of Monaghan county council
3. Their suggestions for improved service delivery based on their experience.

In the analysis of the data collected in the focus group sessions, the data was categorised
under the same three themes: (1) Knowledge of services provided by Monaghan county
council, (2) Experience of accessing services of Monaghan, (3) Suggestions for improved
service delivery.
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Details of findings under each theme are outlined below:

(1.) Knowledge of services provided by Monaghan County Council
Lack of engagement with the county council as a means of accessing services
The most common issue identified under this theme was the lack of engagement with the
county council (offices) as a means of accessing information or services. Nearly all
participants reported a reliance on others to assist them in accessing services of the
county council and other public services. In most instances participants would seek help
from their local community group or local elected representative instead of engaging
directly with the county council.

Probing this matter further highlighted a lack of

confidence to engage with the county council, participants felt more comfortable
approaching community leaders or elected representatives who would make the initial
contact with the county council. The general opinion within the focus groups was that the
county council building is not the first point of contact for older people when looking for
services or information related to the county council. An example of this arose through a
discussion on the recent changes to septic tank regulation.

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For the participants who were required to register their septic tank through these new
regulations none had contacted the county council directly to get information on the new
regulations, choosing instead to contact their local community group, Citizens
information office or elected representative. The majority of participants at the focus
groups were more likely to follow this route to accessing services rather than contacting
the county council directly. There is a sense of trust with local community groups and
elected representatives that isnt felt in the same way about service providers in general.
By the time participants made contact with the county council building either physically
or via the telephone they had received details and information on the services they were
looking for from another source. While the researcher expected the reliance of
community groups and elected members as a means of accessing services to emerge
within the research, the extent to which this issue arose within the focus groups was quite
surprising.
Lack of awareness on what services are provided by the county council
In all three focus groups there was a common theme of lack of awareness of what
services were provided by Monaghan council. There was a general confusion over
services provided by the Department of Social protection, Health Service Executive and
Monaghan county council. None of the participants in any of the focus groups could
identify a source of information about the services Monaghan county council provide.

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None of the participants in any of the focus groups were aware that the county library and
county museum services were part of the county council.
Participants who were also tenants of the county council were familiar with housing
related services provided but had limited knowledge of other services provided.
Information signage was raised frequently as a difficulty with many participants. There is
no information inside or outside council buildings to inform you of the services located in
that building. Many participants referenced calling to one council office only to find that
the particular service was delivered from another officer four miles away.

Other

participants found great difficulty navigating their way around council offices trying to
locate a particular department as there is no clear signage. The most common opinion in
the focus groups was that there was very limited knowledge on the full range of services
and activities provided by Monaghan county council or where to find this information.
Lack of information on how to access services
For participants that were in some way familiar with services provided by the county council there
were many difficulties reported on accessing those services. Difficulties finding the name of the person
to contact, where are they based? how to contact them? The lack of this information was source of
great stress and confusion. Many participants reported being told about a certain service
being available but found it very difficult to find out where or who to contact about
getting the services, leading to a reliance on other people to get the information for you.

(2) Experience of accessing the services of Monaghan county council

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Accessing services by telephone

Participants stated the importance of a telephone to them. The telephone is a vital tool
for older people in trying to access services and information on services. All
participants in the focus groups reported using the telephone to access services on a
regular basis. The telephone services provided by Monaghan county council presented
many difficulties for older people. Participants who had made contact with Monaghan
county council by telephone the following were the most common issues raised:
Initial greeting in Irish is very confusing
On being answered Monaghan County council telephone greeting is in Irish, this caused
huge difficulties for participants. Many didnt understand what was being said and hung
up thinking they had dialled a wrong number.
Touch button service difficult to follow instruction
While not in operation in the main council office of Monaghan county council, touch
button options phone services presents many difficulties for older people. The options
are given too quickly many participants had difficulty keeping up with the options on
offer and had to make a second or third phone call in order to receive the information.
The services being looked for were often not being listed in the menu option leading to
confusion over which option to choose as participants didnt know which department
the service they were looking for was located in.

Service users with hearing difficulties

Many participants found it difficult to hear the response when the telephone when
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answered, with no option to increase the volume people with hearing difficulties found
the telephone system very hard to use. The telephone system is not compatible with
hearing devices such as hearing aids and loop systems, people using hearing devices
found it very difficult to hear the telephone.
Cost of using telephone
Costs involved in being on telephone for lengthy period, many participants remarked on
how a low cost number was not available from the county council and due to other
difficulties in trying to get the right person/service costs of calls were high.
Accessing services face to face
Most participants generally preferred to talk to someone face to face when trying to get a
service there were many issues raised in the focus groups that caused difficulties for older
people trying to access the services face to face.

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Lack of Transport
The biggest issue raised with regard to face to face service provision was participants
lack of transport to allow them to avail of face to face services. Participants reported that
key services are located in the town centre and without transport to get there you must
rely on another means of accessing the services. Many participants prefer the personal
aspect of face to face service but unable to access this option easily.

Physical Access to services buildings

As all participants were over 65 reduced mobility was a significant issue for many
participants. Participants reported great difficulty getting into some buildings of the
council. Buildings with very steep inclines on approach or steps at the entrance meant
accessing the building without help was impossible. Others reported heavy doors into
buildings being a difficulty to open and close and without help they were unable to get
into the building. This was a particularly significant issue in buildings where there is no
intercom or means of letting someone inside know you are trying to enter the building.
Similar difficulties were reported on internal access in buildings, poor directional signage
as to where services were located presented problems. The main offices of Monaghan
County Council came in for particular criticism with regarding to signage and
information on where services are located. Services located at the top of stairs with no lift
available.

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This was reported many times about the main council building, however there is a lift
located on the ground floor, none of the participants knew this was available as no clear
signage is in place.
Finding the right staff to talk to
Participants reported a lot of difficulty in finding the right person to talk to about a
particular service. Many participants reported getting redirected to numerous staff
members before finding the person who could help which is very frustrating.
A number of participants referred to spells of bad weather when then were isolated in
their homes due to icy roads or frozen pathways making numerous calls to the council to
enquire about getting their access routes salted but found it impossible to contact the right
person.
Lack of privacy
Participants frequently reported a lack of privacy when dealing with front line staff in the
council. There was a strong sense of not wanting everyone knowing your business
Participants spoke of discussing very personal matters over a counter with other people
standing behind them. This was particularly an issue when discussing financial affairs
such a rent arrears or payment of water rates/household charge.

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Requiring assistance from Staff

Participants reported difficulty in approaching staff for help not wanting to burden staff
who appeared very busy. Other participants were embarrassed to ask for help preferring
to take information away with them and get help elsewhere. The frontline staff of the
county council were praised for their patience and support when older people were trying
to access services. Many participants reported the great efforts staff went to, to assist
them with forms or information.
In many cases staff assisted people in accessing services not related to the county council
such as health services, social welfare and community services. Many participants
reported looking for particular staff time and again to assist them.
Accessing services through printed information
The most common service provision method experienced by participants was printed
information. Printed information discussed included information leaflets, letters,
application forms, advertisements and posters. This form of service provision presented a
number of difficulties. Participants reported that print is always very small and difficult to
read, even with glasses. The layout of material was often complex and hard to follow.
Language was very complicated and participants were often unsure of what was being
asked of them or what was being offered. Some participants reluctantly reported having
difficulty reading and writing and found printed information very hard to understand.

Many participants reported information forms being returned to them due to incomplete

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information being submitted. Almost all participants had received help in trying to
understand printed information or complete application forms. A number of participants
approached the researcher at the end of each focus group session to discuss printed
information. These participants, nine in total told the researcher about literacy difficulties
they have that prevented them from independently accessing services or information in
written format. All nine participants had limited basic literacy but found information from
government very complicated.

None of these participants wanted their friends and

neighbours to know about their literacy difficulties.

Accessing Online services
The move towards online services presents the biggest difficulty for participants. There
was a general fear of computers with all but six participants reporting that they didnt
know how to use a computer. Of the participants who didnt know how to use a computer
most were reluctant or afraid to learn. Stating they were too old to be trying to learn
computer skills. One participant stated it was very unfair that at 82 she would have to
learn how to use a computer in order to get something she was entitled to. The
household charge payment came in for some considerable criticism. All participants had
received help from either family or community groups in completing the household
charge payment. All participants reported difficulties understanding the information
supplied. Participants who had computer skills reported difficulty in accessing services
online in their home due to poor broadband connections. Participants also reported a fear
of putting personal information such as bank card details on the internet.

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There was a general feeling among participants that they were being left behind when it
came to online services. Many participants felt the provision of services online only was
penalising older people and others who didnt have the skills.
(3) Suggestions for improved service delivery
Participants had a lot to contribute to the discussion on how services could be improved
and the county council could best provide older people with the information they need to
access a service easily. All participants reported that they would use the services of the
council directly if they knew a bit more about what they were looking for before they
went to the county council. Participants felt they would look stupid if they came across
any difficulties while visiting the council offices. Participants also felt that it would be a
very practical use of services and resources if the county council could provide
information on other social services such as social welfare, medical services, and
transport services. This would prevent people from having to travel to different offices to
gather information or application forms.

Out lined below are the key issues raised by participants on how Monaghan county
council could make their services easier for people to use.
Improving information on services available
Participants reported the great need for the county council and other public services
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providers to publicise the services they provide and how and where people can access
them. Participants felt that the county council and other service providers assumed the
people knew about the range of services and how to access them. It was felt that this
assumption led to the confusion and exclusion for many people. Many practical
suggestions for improving information services were put forward including:

Information outlets
Participants felt that more a targeted approach to providing information should be used.
Older people in Monaghan rely heavily on local information avenues to keep them
informed. Participants reported that rarely would any information on public services be
reported on local radio or community newsletters. Sometimes information would be
available in the Northern Standard (local newspaper) but it is often very complicated
and difficult to understand. There is never a name for people to contact if theyd like
more information or assistance. Better use of existing information methods should be
used. Information slots on community radio/parish bulletins and community group
newsletters could provide people with information in a user friendly way.

Services information booklet

A services booklet should be developed that clearly outlines all the public services of the
county council, where they are located, where you can get more information on each
services and a name and number of who to contact if you require more information. This

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could easily be distributed throughout the county and would be a great resource for
people, especially older people living on their own.
Information officer
Almost all participants suggested the appointment of an information officer in the county
council. This person could be the one stop contact for people trying to get information
about services or the council. They wouldnt need to know about every service but could
easily direct you to the person you need to speak to.
This person could also be available to assist people to complete application forms or
online forms. Older people felt that if it was this persons job to assist them or provide
information on a range of services then they wouldnt feel like they were burdening them
if they needed help.
Public information meetings
Participants suggested that if a new service or new way of accessing a service was being
introduced that an information meeting in local communities would be greatly beneficial.
A short information session in local communities answering any queries people may have
would be a great use of resources especially in a county where people have little access to
transport.

Participants made reference to the fact that they never see council staff in their
communities, one participant claimed it was very hard to put a face on a service
because you never see people from the council. Some participants suggested how helpful

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it would have been to have an information meeting about Septic tanks or the household
charge where they could have asked council staff questions and got help if they needed it.
Telephone system
All participants stated the preference of speaking to a person rather than a machine when
contacting a service. Monaghan county council main contact number is answered by a
staff member during office hours. There were a number of suggestions on how the
telephone system in operation in Monaghan county council could be improved.
Accessible phone system
Participants recommend the telephone system should be modified to accommodate
people with hearing difficulties or language difficulties who may not easily understand
the instructions. The phone system should be adapted to be compatible with hearing aids,
loop systems and other assistive technology options. The greeting in Irish should come
after the greeting in English so people are not confused when they get an answer.
Low cost telephone option
A low call phone number should be introduced so people are not running up costly phone
bills if they are detained on the phone for a long period.

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Available contact details

A name should be made available for contacting about some important services, it is
much easier to ring looking to speak with a particular person rather than trying to find out
who you need to talk to when you telephone.
Accessing services Face to face
Participants felt that an awareness raising exercise for staff on the needs of some service
users (particularly older people, people with disabilities, people who dont speak English)
would be a good exercise. If staff were a little more aware of the different needs
particular people had then services could be delivered in a way to meet these needs.
There were specific references to people with literacy difficulties who may not readily
volunteer information about their literacy problems but if support was offered it would be
accepted.
With regard to people with mobility difficulties, the council should try and have at least
one office/room that is fully accessible that could be used by staff and customers if
needed. Customers should be informed of the option of using this accessible location
should as sometimes people are too embarrassed to ask for help. Participants suggested
this space could also be used as a confidential space for people to discuss private matters
with council staff. In particular matters relating to financial difficulties or declining health
they wished to discuss.

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Access to services in printed information

Participants felt that information should be made available in larger print to allow
everyone to read it. Language should be simple and clear for people to understand.
Application forms should be less cluttered and easily to follow so people know exactly
what information is required. Participants felt that sometimes service providers need to
look at an application form or information through the eyes of those who will be using it
then the difficulties may become clear. The use of a user friendly guide to an application
form was identified as a means of getting around applications that are more complicated.
Participants felt that if information and services were provided taking into account people
with the following difficulties, then services and information would be much easier for
everyone to access and use.

limited use of their hands or fingers

Impairment of eyes/ears/speech

Limited physical mobility

Poor literacy skills

Poor English language skills

Limited or no IT Skills

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Semi structured interviews findings

1. Knowledge of services (Semi-structured interviews)
Good awareness of particular service required
Confusion over which department building services are located
Good response to local media advertisement
Reliance on elected reps and community groups for referral
Representations often made on behalf of older people
Lack of knowledge on how system of service provision works
2. Experience of accessing services of Monghan County Council
(Semi-structured interviews)
Location of services difficult to get to from rural areas
Information complicated and difficult to understand.
Telephone system can be difficult
Library often used as point of information
Many people need a lot of assistance
Physical access is difficult,
Reception area of council is not user friendly or private
Resistance among older people to online service
3. Suggestions for improved Service delivery (Semi-structured interviews)
More information on services distributed
Simplify information and application forms
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Upgrade reception area clear information

Dedicated customer service person to assist people with needs
Linking in with existing community structure to provide information
Better communication with public
More privacy available when needed.
Semi structured interviews findings
The semi structured interview gave the researcher the opportunity to the experience of
service delivery from the point of view of people who support older people in a number
of situations. Each participant was given a short introduction to the research project and
the purpose of the interview. Each participant in the semi structured interviews was asked
the same questions.

Questions were put to participants in order to gauge:

1. Their understanding of the knowledge of services provided by Monaghan county
council by older people

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2. Their understanding of the experience of older people in accessing services of

Monaghan county council
3. Their suggestions for improved service delivery based on their experience of
work with older people in a support/advocacy role.

The findings of the semi structured interview process are reported collectively. The
purpose of this is to protect the identity of those who engaged in the process. The nature
of their work would easily identify the participant if this section was categorised into the
four separate groupings who participated in the semi structured interview process. Semi
structured interviews were carried out with eleven different people, selected from: Front
line staff of Monaghan County Council, Elected representatives of Monaghan County
Council, key staff within social inclusion groups working with older people and social
inclusion staff of other local authorities in the region. Each participant in the interview
process was asked the same questions all based on their experience of working directly
with older people in the context of accessing services and information. The findings
show a lot of common responses across the four separate groupings. The findings have
been categorised based on the questions asked and the most frequent themes and issues
emerging in the interview process.
(1) Knowledge of services provided by Monaghan County Council
There were two common trends that emerged in the findings with regard to knowledge of
services. The experience of staff within Monaghan county council, Cavan county council

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and Fingal county council was that older people had a good knowledge of the services
they were looking for when they contacted the local authority.
The experience of council staff was that once an older person had made contact with the
county council they were well informed on which service/s they were looking for. In
contrast, the experience of elected representatives and advocates for older people was that
older people found it very difficult to find information on services and how to access
them. One of the most common issues raised with elected representatives and advocates
alike was the issue on access to information and services. This was particularly
significant for older people living in rural communities. There is much confusion over
location of services, which service is located in which building, which services are
located in each department. This causes a lot of distress for older people. Staff of the
county council reported supporting older people to access services and information other
than their own department and the county council. This is particularly the case within the
library service.
There is little understanding among older people of the process of services in local
authority, how they work, how decisions are made. There is no consistency across
departments on how services are delivered. Some departments are more user friendly
than others.
As with focus groups semi structured interviews highlighted a reliance on elected
representatives and community organisations to access services. Many respondents
reported a high level of representations being made on behalf of older people in regard to
accessing services. Many staff reported a high proportion of their time being spent
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dealing with elected members and advocacy groups with regard to services for older
people. All respondents reported confusion among older people with regard to services
provided by statutory agencies. Much confusion exists regarding services of Social
protection, the Health Service Executive and the County Council.
(2) Experience of older people accessing services
The experience of older peoples experience accessing to services was consistent
throughout all four data collection sources. Gaining access to services is a common
problem reported by all participants in the study. There were a number of common
themes regarding difficulties in gaining access to services.
Accessing services by telephone
Participants stated the importance of the telephone to older people in a rural county. The
telephone is a vital tool for older people in trying to access services and information on
services. A number of difficulties relating to the telephone service were reported. Staff of
the county council reported that often an older person can not hear what is being said
making communication difficult at times. Staff also reported that older people were less
likely to leave a message on an answering machine or leaving incomplete messages on
the telephone making it difficult to return a call to the person.
The issue of touch phone service was raised in semi structured interview findings, while
not in operation in Monaghan County council, participants reported the difficulty older
people have with touch phone service preferring the option of talking to someone.
Accessing services face to face
Lack of transport
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Elected representatives and advocacy groups reported the difficulty for older people
trying to access services located in Monaghan town without access to transport. While
respondents acknowledged that transport provision was outside the remit of the local
authority it was felt by participants that the local authority provide most of its services
from one location and that presented difficulty for older people living in rural
communities.
Physical Access to services buildings
All participants in the semi structured interviews reported difficulties for older people
with regard to physically accessing service buildings. Participants reported difficulties
regarding entrances/exits to buildings presenting problems for people with restricted
mobility. Poor information or directional signage was all frequently reported. Monaghan
county council main offices were referenced by all participants as having very poor
information in the reception area to help people find their way to the service/department
they needed.

There is no information on display to tell you what services are located in the building or
more importantly what services are not located in the building. Participants in the semi
structured interview process also reported on the lack of privacy available for older
people in council offices to discuss personal/private matters.
Accessing services through printed information
Participants in semi structured interviews felt the Information provided by the county
council tended to be more complex than necessary making it difficult to understand.
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There is no consistency throughout the county council services with regard to

information. Some information leaflets/application forms are easier to understand than
others. Much reference was made to the information regarding the Household charge.
Advocates stated that many older people had great difficulty understanding the
information provided on the household charge and how to pay it.
Staff of the local authorities reported that many older people require a lot of help and
support with regard to printed information. Many staff reported that they spent a lot of
time helping people with application forms and other information. Older people and
people with little or no English require the most support.
Accessing services online
Online services were not raised as being a particular issue for older people within semi
structured interviews. Of the eleven people interviewed only two participants made
reference to online services. In their response both reported that older people are not
comfortable with using a computer and prefer to use other methods of service delivery.

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(3). Suggestions for improved service delivery

Participants in the semi structured interviews were less likely to offer suggestions on
how services could be improved in comparison to participants in the focus groups.
Suggestions for improved service delivery were more general compared to specific
suggestions put forward by older people in the focus group sessions.

Improvements to information on services of Monaghan County Council

All Participants reported the need for Monaghan County council to develop and
Distribute information on its services and how to access them. Participants suggested
this could be done in a user friendly style and distributed through existing community
information outlets. Better use of local media was suggested as a means of informing
the community of services and supports available.
Improvements to services provided through printed information
Participants suggested that Monaghan County council would examine all printed
information formats that are provided to service users to identify how they could be
made easier for service users to understand. Participants made reference to guidelines
available from the National Adult Literacy Association that could be used to inform the
county council on best practice on literacy friendly information.

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Improvements to services provided face to face

Participants in the semi structured interviews were particularly critical of the reception
area of the main county council offices in Monaghan town. A number of suggestions for
improvements to service delivery identified in the semi structured interviews related to
improving this reception area. Participants suggested a total overhaul of the reception
area to make it more accessible and comfortable. It was suggested clearer signage and
information relating to services provided in the building would be installed. The
availability of a meeting area for customers wishing to discuss private issues was
suggested. All participants suggested the need for a dedicated staff member to be
available to assist people if needed. This staff member would be available to anyone
requiring help with any aspect of the services of the county council (and other services in
the county). This resource would ensure anyone contacting the council offices, whether in
person, or by telephone would have an identified source of information that would be
able to support them to get the service or information they require without difficulty.

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Discussion on findings
The findings of the data collection process for this research have been presented as they
were described in the focus groups and semi structured interviews. This section looks at
making sense Morse and Field, (1998) of the findings by discussing and exploring
further the key themes identified in the data collection process. The findings are
discussed under the three key themes: (1) Knowledge of services provided by Monaghan
County Council (2) Experience of accessing the services of Monaghan County Council
(3) Suggestions for improved service delivery. The researcher interpreted the data
objectively to ensure her role in promoting social inclusion in Monaghan County Council
did not influence the analysis of the data collected.
Knowledge of services provided by Monaghan County Council
The research has found that knowledge of the services provided by Monaghan County
Council is limited among older people in the county. The findings from the focus groups
show a general lack of awareness of the depth of services provided by the county council.
Many participants in the focus groups were unaware that the county library and Museum
services were part of the councils recreational and cultural services. Much confusion
exists with regard to the services provided by the county council, Health and Department
of Social protection. People are unsure which agency provides which service. It is clear
from the findings that a significant gap exists between the county council as a service
provider and older people in the community as service users.

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Monaghan county council are weak in the area of service information provision, the
research finds that information is easily accessed on some departments but not on others.
This inconsistency demonstrates a lack of clear policy within the organisation with regard
to provision of information on services available.
While the findings from semi structured interviews with local authority staff tells us that
older people presenting at the county council are informed on which services they wish to
avail, what is not known is how they obtained the information on services. Whether they
gained knowledge of service through information means of the county council or whether
they relied on other supports to gather information on the services provided. The findings
from older people, advocacy groups and elected members would suggest that the latter.
The tendency of older people to contact their elected representative or local community
group as a first point of contact for services is huge insight into the lack of knowledge
there is within the community on the services of Monaghan county council. One could
assume the tendency for older people to contact their elected representative or local
community groups is due to familiarity or proximity but the lack of availability of
information on services certainly influences the frequency of this practice.
The literature review didnt highlight information on service provision as a factor
influencing social exclusion.

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The literature reviewed typically begins the process of social inclusion with accessible
service provision. It is the opinion of the researcher that information on services available
within a public sector organisation is the first step in promoting social inclusion within its
service delivery. Service users and potential service users need to be aware of the services
provided, where they are provided and the most convenient way to avail of that service.
The researcher would conclude that Monaghan county council is significantly weak in
terms of promoting their services and information on how to access them. None of the
participants in the research could refer to an information guide/directory of council
services to which they were familiar. It should be noted that the lack of knowledge of
services in not limited to services of the county council, much confusion was also cited in
relation to service of Department of Social protection and the Health service executive.
Experience of accessing services of Monaghan County Council
The research found a number of difficulties experienced by older people when trying to
access the services of Monaghan county council. These difficulties ranged from physical
barriers such as transport, mobility and service location, to more communicational
barriers such as difficulties with telephone and online services and complicated printed
information. It cant be ignored that some of these issues are beyond the control of local
government, for example the provision of public service transport or national policy
decisions on service delivery methods.

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Local government still however has sufficient influence over it service delivery to ensure
all of the issues raised can be rectified or in some way accommodated. The analysis of
the findings on older peoples experience of accessing the services of Monaghan county
council indicate a lack of awareness within the local authority of the needs of older
people with regard to accessing services. Services are delivered without much regard to
difficulties that some people in the community may have when trying to access those
services. As identified in the literature review successive social inclusion strategies in
Ireland identify older people as a group at risk of social exclusion. The weakness in these
social inclusion strategies is the lack of information on why older people are more at risk
of being excluded. If we examine the problems in service delivery methods of Monaghan
county council identified through the research we can behind to map these issues together
to form an analysis of why these difficulties arise.

It is the opinion of the researcher that the biggest issue that impacts on service delivery
methods used by local government is a lack of real awareness of the service user.
Services are generally designed for a service user that doesnt have mobility issues,
sensory impairments or literacy problems. If local government were to focus on the end
user of a service when deciding how to make a service available, the difficulties
experienced by some would be easily identified.

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The literature review highlights the problems some people in society in the areas of
literacy, mobility and computer literacy. NALAs Study of older people with literacy
difficulties clearly outlines the extent of literacy problems among the older population.
CSO (2011) statistics clearly indicates the number of older people in Monaghan who also
have a disability. While Hardill (2013) report on E-government and older people in
Ireland, North and South outlines the problems older people face when engaging in
online service delivery. The information on some of the difficulties older people have in
these areas is readily available. Should local government seek to identify potential
problems in service delivery methods, they would not face any difficulty in finding the
information. The findings of this research are in line with other findings reported in
chapter two. Semi-structured interviews with elected members and advocates for older
people give great insight into the difficulties experienced by older people in the areas
listed above. The practice currently in local government service delivery doesnt not
include proper consultation with services users or those who advocate on their behalf.
The research would deduct that Monaghan county council operates inwardly with regard
to service delivery; services are delivered without careful consideration of all service
users. Customer service tends to be target and output led, rather than people led. Local
government customer service policy doesnt currently reflect the many different people
who access or try to access its services.

105

Information on services should be widely available through the community, detailing how
and where a particular service can be accessed, who is entitled to it and contact details of
the member/members of staff to contact with regard to the services. The telephone
service delivery method should accommodate the needs of people with sensory
impairments, language difficulties and should not impose unnecessary costs on the
service users. Services and information on services delivered in printed format, should
take into consideration service users with literacy difficulties, sensory impairments and
service users who dont speak English. Services being delivered online should also be
designed in user friendly accessible formats to enable more people in the community to
use them. A social inclusion approach to service delivery would make all services
available in all formats to ensure all people in society can access them. Offering services
in only one or two formats only, excludes service user who do not have the skills or
ability to use the service delivery formats available.
It is important to note that in the course of the research the staff of Monghan county
council received much praise with regard to the assistance they provide to older people,
advocacy groups and elected members alike. This role should be formalised within the
local government structure. The nature of the work within Monaghan county council
means staff can have many duties and responsibilities and may be not readily available to
meet with a service user immediately.

106

The appointment of a customer service/information officer within the county council

would address this issue along with reducing the confusion experienced by some people
when trying to access the services of Monaghan county council. This staff post could
negotiate the many services of the council for anyone experiencing any difficulty. This
post could operate as a first point of contact for people who may be unsure of the service
they require or how to avail of it. A dedicated information officer would have sufficient
knowledge of services to assist any member of the public in any initial queries they may
have, support the completion of application forms or explain further any information
leaflets or booklets. The researcher has deducted from the findings the importance of the
personal approach to service delivery. Participants highlighted the preference to deal
with a staff member when discussing services, as opposed to a telephone or a computer.
While participants did report they didnt want to burden busy staff with questions and
requests for help, the availability of a dedicated member of staff to deal with any queries
or difficulties experienced by customers.
It is also important to note that some areas identified in this research are beyond the
control of Monaghan County Council. The issue of rural transport is managed by central
government through the National Transport Authority. However Monaghan county
council are represented on the local structure charged with managing the rural transport
programme in the county. Monaghan county council have a role to play on this structure
to ensure the transport needs of rural dwellers are reflected at this structure.

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In these times of economic difficulty and a move towards a more efficient local
government services it is impracticable to suggest services should be located in multiple
locations throughout the county. It is imperative though, that Monaghan county council
provide services in a manner that removes the reliance on people having to travel to a
service location in order to access a service. This can be achieved through a more
accessible communication and delivery services methods.
The relatively recent arrival of social inclusion policy within local government is evident
in the research findings, the data collected from front line staff would indicate a greater
awareness of the needs of some services users and the problems that lie within current
service delivery methods. Social inclusion practice is less than fifteen years in existence
in local government, since its introduction in the Local Government Act 2001. In an
organisation that is over one hundred years old it is understandable that change in the area
of social inclusion practice is slow. However the researcher is confident that there is
willingness within Monaghan county council to progress social inclusion practice within
it services in order to address the issues identified in this research. The researcher is also
confident that the findings of this research can be strategically used to improve current
service delivery.

108

Suggestions for improved service delivery

The analysis of the recommendations for improved service delivery highlights the
importance on consultation and engagement with local communities as a means of
improving service delivery. Suggestions put forward by participants in the research are
practical, achievable and very much linked to existing structures within the community
not currently utilised by local government. With regard to improving information on
service provision, suggestions are very much embedded in the existing structures where
people currently access information. Local media, particularly local radio and community
group structures were identified as good source to circulate and publicise information on
services. There is a clear need to the local authority to produce a booklet/directory of its
services to inform the community of all the services and supports available from
Monaghan county council. There is a need for this information to clearly outline, the
location of the service, contact details of staff involved in delivering this service and any
requirements/conditions for receiving this service. The availability of this information
would greatly reduce some of the difficulties identified in this research with regard to
accessing services.

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To conclude, if we consider the most recent publication with regard to improving the
services of local government in Ireland Putting People First Department of
Community Environment & Local government, (2012) in the context of the findings of
this research we can see how the research compliments the proposals put forward within
the document.
Services that are largely local in character are more effectively dealt with and produce
outcomes best suited to local needs if locally devolved rather than centrally
controlled.The quality of local services can also be enhanced by being informed
by awareness of local needs, priorities and circumstances. Department of Community
Environment & Local government, (2012:1.1.2 f)

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Chapter five Conclusion

Introduction
This chapter will bring to conclusion this research study. It brings together all the
elements of the previous chapters in order to reach a satisfactory judgement on the thesis
question. This thesis sought to examine the contribution of public service delivery
methods to social exclusion in society. It was the intention of the researcher to identify
barriers that exist within public service delivery methods that make it difficult for some
people to avail of those services and thus render them excluded from that service. While
the public service in its entity most likely uses the same form of service delivery
methods, it was unrealistic to attempt to examine the service delivery methods of each
sector of the public service. While the focus of the research was on local government,
specifically Monaghan County Council the findings of the research would contribute to
the discussion on improved service delivery for any public sector organisation. The
researcher attempted to answer this thesis question by first exploring the concept of social
exclusion, both in society and within local government services. The second stage of the
research involved gathering the experience of services users in their engagement of the
services of Monaghan county council. It is the opinion of the researcher that while the
development of social inclusion policy and practice in local government is progressing,
there is a significant gap in the literature available on social exclusion within local
government services.

111

The researcher felt that if social inclusion policy in local government in Ireland was to
really progress and become effective, a pool of knowledge on how people are excluded
from local government services needs to be developed. The researchers experience of
attempting to deliver social inclusion practice and policy in local government influenced
the decision to carryout this piece of research, with a view to providing the information
that raises awareness of the needs of those excluded from accessing services of local
government in county Monaghan.

Empirical findings
This study was set out to explore the extent of social exclusion within the service delivery
methods of Monaghan county council as experienced by older people in the county. The
general theoretical literature on the subject of social exclusion in local government is
limited to broad and general statements about social exclusion in a wider societal context.
Improving access to services can be found in many government publications on the
subject, but from a perspective of change there is no detailed literature available on how
social exclusion manifests in services delivery methods and how the situation could be
addressed. The study set out to answer those questions through asking the following:

Are you familiar with the services of Monaghan county council?

What was you experience of accessing the services of Monaghan county

council?

What recommendations for change would you suggest to improve service

delivery in Monaghan county council.
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Are you familiar with the services of Monghan County Council?

This question was included in the methodology as a means of settling the participant into
the research. It was selected as a question that would open up the conversation on
Monaghan county councils services. Throughout the course of the data collection this
question became very important to the overall findings of the study. Most participants in
the research were not aware of the wide range of services available from the local
authority. No participants (including staff of the local authority) could reference a
directory of services or publication that listed all the services of Monaghan county
council in detail. This lack of knowledge of services greatly contributes to older peoples
reliance on other means to get information on services available. One of the key
achievements of social inclusion is empowerment, information empowers people. If you
can freely get information on a particular service without relying on other people to assist
you then the organisation providing that service has empowered you to independently
access their services.

What is you experience of accessing the services of Monaghan county council &
recommendations for change
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The findings of this research show many difficulties within the service delivery methods
of Monaghan County council. The collective issue being the gap between the methods
used to deliver services and the skills/abilities or opportunities for customers to a use
those methods. Within each service delivery method discussed a number of difficulties
were within each were identified. None of these issues are in anyway unmanageable by
the local authority. The findings within the experience of accessing services of Monaghan
county council are very much in line with findings of reports highlighted in the literature
review. Monaghan Integrated Development Limited (2008) highlights the impact of rural
dwelling on access to services. This issue was raised frequently within the research,
limited access to transport, neither public or personal places great difficulty on older
people when trying to access services. Literacy difficulties highlighted by NALA, (2009)
were very much evident in the research findings where older people found the printed
information available difficult to understand and process. While the difficulties cited by
CARDI, (2013) were also raised frequently in the research findings. What is also clear
from the findings of experience of accessing services is the gap that exists in the literature
available on barrier to accessing services of local government. This researchs findings
are not assumptions or conclusions. The findings are based on the real life experience of
older people in county Monghan.
The reality of the findings and the concrete examples of barriers to access is what is
required in current social inclusion policy on service provision. The reference to the
social model of disability demonstrates how through poorly planned service delivery the
government and in the case of this research local government are creating exclusion for
114

people in their communities. The solutions put forward by the participants should be
carefully considered by local government as a means to addressing social exclusion
within their services. The suggestions recommendations for change do not come with
huge cost implications. They are more aligned to better service design. Notably the
suggestions put forward very much compliment the prioritisation of customer service
and good quality public information, particularly in relation to local services and
resource utilisation. Department of Community Environment & Local government,
(2012)

Theoretical Implication
Since the introduction of the Social Inclusion agenda to local government much focus has
been placed on tackling social exclusion. The focus to date has very much been on the
Local authority helping to solve the problem of social exclusion. The researcher felt
that there was little focus on how the local government contributed albeit unconsciously
to social exclusion in society. While the researcher agrees that local government has a
crucial role to play in the promotion of social inclusion in the public service, this can not
be achieved without critically examining local government service delivery methods as a
contributing factor to social exclusion.
This study aims to challenge the existing policies on tackling social exclusion in local
government by encouraging the theoretical debate on social exclusion to include the role
poorly designed services delivery methods play in the process. The findings of this study
highlight the difficulties experienced by older people within current service delivery
methods of Monaghan county council. The researcher believes that social inclusion
115

practice will not be realistically achieved until service providers look to the needs of all
its service users when delivering service.

Policy implication
The findings of this research are closely linked to proposals for improved customer
services outlined in Putting People First, the Government of Ireland, and (2012) strategy
supporting local government reform. This observation would imply the ongoing
progression on social inclusion policy at both national and local government level, while
also indicating the success of community development processes at local level bringing
issues to the government. It is the opinion of the researcher that this study highlights the
need for a social inclusion customer service policy in local government.

A social

inclusion customer service policy would highlight the key areas for consideration when
delivery services. Areas such as those highlighted in the findings of this study: Physical
mobility of customers, literacy skills, sensory impairments, language barriers, simple
language, privacy, personal support and flexibility.

The researcher believes that if local authority management teams and elected members
alike were informed of the variety of needs people have with regard to mobility, literacy,
sensory difficulties, cultural and language differences they would see the value of
developing and implementing a social inclusion customer service policy. In addition to
providing more socially inclusive services, a policy such as this would provide a more
effective and efficient service delivery through targeted customer focused service
delivery.
116

Recommendation for future research

Further research into this area would greatly benefit the development of social inclusion
policy in Ireland. The area of social inclusion in local government is still relatively new
and is constantly progressing. This study touches only a small section of a community in
a small county. It would be a significant piece of work to conduct similar research on a
larger scale to identify ways to improve service delivery in local government as a whole.
This could be done through the existing social inclusion units and co-ordinated through
the department of Environment Community and Local government. As cited in the
literature review in Chapter two, the Fitzpatricks et al (2004) review of Social inclusion
units the nature of activity of units has varied across local authorities, resulting in very
different experiences . Using a centralised approach, the findings and recommendations
from a research of this nature could be delivered on a national scale and successfully
inform future service delivery policy throughout the country.

Limitation of the study

It is important to note that this study focused only on the experience of older people in a
rural county. Therefore the difficulties highlighted in this research with regard to
accessing services may not be relevant to other members of society. It is also important to
bear in mind that issues experienced in a rural county are generally unique to rural
counties and may not reflect the needs in other more urban local authority areas.
However with regard to social inclusion, older people are a good measuring stick.

117

A service that can be accessed by older people, particularly older people in a rural county
can typically be accessed by anyone in society.

Conclusion
To return to the original question posed at the beginning of this journey. Do public
service delivery methods contribute to social exclusion in society? Social exclusion is a
very large, very complex social issue. There are many reasons why someone can find
themselves on the margins of society. As discussed a persons financial or employment
situation can greatly impact on ability to participate fully in society. Through the journey
of this research we have also discussed how other factors such as mobility or literacy
difficulties may also cause someone to be socially excluded. Access to services plays
only a small part in the overall jigsaw of social inclusion. This study reasonably
demonstrates the importance of this piece of the jigsaw in the broader context of social
inclusion.
This study also demonstrates the importance of social inclusion in service delivery in the
lives of older people in county Monaghan. There are many reasons why someone can find
themselves socially excluded. Many of these reasons are not in anyway related to the
services of a local government. Society is full of injustice and inequality, and while many
changes have taken place since the establishment of local government in Ireland in terms
of equality society is long way from the finish line. However the researcher set out to
examine the contribution public service delivery methods have on social exclusion in
society? No matter how insignificant access to services may seem in the bigger picture of
social inclusion and equality this research demonstrates that public service delivery
118

methods do create difficulties for some people in society and therefore contribute to the
social exclusion of those people. More importantly the public service is well placed to
address this issue and contribute significantly to the bigger picture of social inclusion in
Ireland.

119

120

Appendix A
Research participant information form (focus group)
As part of the requirements for Master of Public Management at The Institute of
Public Administration, I have to carry out a research study. The study is concerned
with social exclusion in the delivery methods of Monaghan county council as
experienced by older people. The research will seek to find barriers that exist within
the current way Monaghan county council deliver its services with a view to
removing those barriers to make it easier for people to access them. The study will
involve answers three or four questions about the services of Monaghan county
council. The questions will be asked in a focus group session that will take place in
your community centre and will take no longer than forty five minutes.
You have been asked because as an older person living in county Monaghan you are
the most valuable source of information to a study of this kind. Your experience and
information can ensure the problems that exist are identified and hopefully resolved.
Your community group has agreed to take part in this research study but your
participation is entirely up to you. I will ensure that anything you say in the course of
the focus group will remain confidential. The information will be used in the thesis
findings as the collective opinions of older people in county Monaghan.
If you need any further information, you can contact me:

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Appendix B
Research participant information form (semi-structured interview)
As part of the requirements for Master of Public Management at The Institute of
Public Administration, I have to carry out a research study. The study is concerned
with social exclusion in the delivery methods of Monaghan county council as
experienced by older people. The research will seek to find barriers that exist within
the current way Monaghan county council deliver its services with a view to
removing those barriers to make it easier for people to access them. The study will
involve answers three or four questions about the services of Monaghan county
council. The questions will be asked in a short interview that can take place at a time
and location that suits you best. The interview should take no longer than forty five
minutes.
You have been asked because your knowledge and experience of older people through
the course of your work can significantly contribute to this study. Your participation in
this research study is entirely voluntary and I will ensure that anything you say in the
course of the interview will remain confidential. The information will be used in the
thesis findings in a collective format.
If you need any further information, you can contact me:

122

Appendix C

Research participant Consent form

Iagree to participate in Bernadette Bradleys

research study.

The purpose and nature of this research has been explained to me in detail and I am
happy to participate in the study.

I understand that anonymity will be ensured in the write-up by disguising my identity.

Signed.

Date.

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Appendix D

Letter of Invite to Semi Structured Interviews

Dear xxx
IamcurrentlyundertakingaMastersDegreeinPublicManagementwiththeInstitute
ofPublicAdministration(IPA).AspartthisdegreeIamcompletingadissertation.
Thefocusofmydissertationissocialexclusionwithintheservicedeliverymethods
ofMonaghanCountyCouncil.Specificallythisresearchwillexamineservicedelivery
methodsusedinMonaghancountycounciltoidentifyanybarrierthatexitsthatmay
prevent older people in the county from accessing those services. Given your
experience and knowledge in supporting older people through your role in
xxxxxxxxxx.Iwouldbemostgratefulifyoucouldassistmeinmyresearchproject.I
haveattachedsomeinformationonthebackgroundoftheresearchstudy.Iamaware
of demands on your time and fully understand if you are not in a position to
participate, so please dont feel under any pressure. You can contact me via the
email/numberbelowifyouareinterestedinparticipating.
Yourssincerely
BernieBradley

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Appendix E
Focus group questions and format
Purpose of focus group
To explore, discuss and record the experience of older people in trying to access the
services of Monaghan county council. To gather suggestions from participants on how
service delivery methods could be improved to make it easier for older people to
access those services.
Question One:
Are you familiar with the range of services provided by Monaghan county council(question to introduce discussion?)
Question Two:
Have you ever experienced accessing a service using any of the following methods?

Face to face (calling into the offices of the council)

By telephone

Using printed information/application forms

Online services

Question three:
Do you have any suggestions for Monaghan county council on how they could make
their services easier for older people to use?

125

Appendix F
Semi structured interviews questions and format
Purpose of semi structured interviews
To explore, discuss and record the experience of older people in trying to access the
services of Monaghan county council from the view of those who work with or on
behalf of older people. To gather suggestions from participants on how service
delivery methods could be improved to make it easier for older people to access those
services.
Question One:
In your experience do you think older people are familiar with the range of services
provided by Monaghan county council?
Question Two:
In your role as XXXX have you been made aware of difficulties experienced by older
people in the county accessing a service using any of the following methods?

Face to face (calling into the offices of the council)

By telephone

Using printed information/application forms

Online services

Question three:
In your experience of working with older people in Monaghan do you have any
suggestions for Monaghan county council on how they could make their services
easier for older people to use.

126

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