The Immigrant Exclusion from Social Programs Index (IESPI)
The Immigrant Exclusion from Social Programs Index (IESPI)
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Ireland

(Data collection by Alexandra Broun, David Markle, and Edward Koning. When referring to this page, please use the following citation: Koning, E.A., Broun, A. & Markle, D. (2024). The IESPI Database – Ireland country report. University of Guelph, www.iespi.ca/ireland/.)

Tax-paid pensions

TP1AResidence requirement for complete universal tax-paid pension
1990-2023-8 (no universal pension)

There is no universal pension in Ireland. The only tax-paid pension is a means-tested benefit.

TP1BResidence requirement for access to pro-rated portion of universal tax-paid pension
1990-2023-8 (no universal pension)

There is no universal pension in Ireland. The only tax-paid pension is a means-tested benefit.

TP2Residence requirement, means-tested supplement
1990-20040 (no residence requirement)
2005-20236-9 (2 years for TCNs, 3 years for EU migrants, nothing for UK citizens)

Low-income pensioners can receive a means-tested state pension. For some time, there was no residence requirements associated with this benefit, but since the introduction of the Habitual Residence Condition in May 2004, EU nationals can only access the benefit after 3 years of residence in the country and other foreigners need to demonstrate habitual residence, for which normally 2 years of residence in required. (Citizens Information n.d.-a, Cousins 2020, Department of Social Protection 2020, MRCI 2005, Quinn et al. 2014, Ryan & Power 2020). Scores on this indicator are weighted to account for the relative proportion of EU migrants using data on the stock of foreign-born individuals from the OECD Immigration Database (unfortunately, data on inflow of foreign-born individuals are not available for Ireland). Extrapolation used for missing data.

TP3Status requirement for access to tax-paid pension
1990-200410 (all legal residents)
2005-202330 (citizens, permanent residents, privileged nationals, some categories of temporary migrants)

The means-tested pension was available to any legal resident until the introduction of the Habitual Residence Condition, which tied access to the means-tested pension and a range of other benefits to habitual residence (Citizens Information n.d.-a, MRCI 2005).

TP4Export possibilities, universal tax-paid pension
1990-2023-8 (no universal pension)

There is no universal pension in Ireland. The only tax-paid pension is a means-tested benefit.

Health care

HC1Residence requirements
1990-20230 (no residence requirements)

There is no formal waiting period before residents can access public health care benefits. Anyone who can demonstrate the intention to live in Ireland for at least a year is eligible (Citizens Information n.d.-b, Cousins 2020, Quinn et al. 2014).

HC2Status requirements
1990-20040 (all residents)
2005-202320 (all registered residents)

Public health care was available to all residents regardless of status until the mid-2000s. Since then, only those considered ‘ordinary resident’, i.e. those who can demonstrate the intention and right to live in Ireland for at least a year are eligible (Citizens Information n.d.-b, n.d.-c, MRCI 2005).

HC3APublic health care available to asylum seekers
1990-200433 (included in basic system)
2005-202150 (basic services covered in reception centers)
2022-202317 (expanded coverage not provided to all native-born citizens)

Before the reforms in the mid-2000s, asylum seekers could access health care like all other residents of Ireland. Since then, asylum seekers residing in reception centers have had access to free medical care, but those awaiting adjudication of their claim outside centers have not. This changed in 2022: since then, all asylum seekers have access to a medical card, which provides free access to services and is only available to low-income Irish citizens (Citizens Information n.d.-d, Irish Refugee Council 2023a).

HC3BPublic health care available to undocumented migrants
1990-20040 (included in regular system)
2005-202367 (emergency care, with user fees)

Undocumented migrants are not considered ‘ordinary residents’ and are therefore ineligible for state-funded health care services. They are normally required to pay for any services they access, although service providers might waive the fees for urgent care for compassionate reasons (Citizens Information n.d.-c, Cousins 2020, Cuadra 2011).

HC4AAccessibility services, translation services
1990-200767 (translation services occasionally available)
2008-20230 (state-funded translation services guaranteed)

Before the 2000s, some medical practitioners hired professional interpreters and were able to claim the costs from regional health authorities. However, this practice was rare and there were frequent concerns about the quality of available interpreters. In 2007, the national health authority launched a National Intercultural Health Strategy, which expanded translation services dramatically (MacFarlane 2018, MacFarlane et al. 2008, 2009, National Social Inclusion Office 2023).

HC4BAccessibility services, other attempts to increase uptake
1990-2002100 (no services)
2003-200775 (public recognition, but practical implication unclear)
2008-202350 (diversity training available for health care professionals)

Since at least 2002, public officials have expressed the importance of delivering culturally sensitive care. Since the launch of the first National Intercultural Health Strategy in 2007, this has mostly resulted in the development of a range of training programs and information documents for health care professionals (HSE 2009, n.d., National Social Inclusion Office 2023, NCCRI & IHSMI 2002, Spencer 2014).

Contributory pension benefit

CP1Minimum contribution years
1990-20022-4 (3 years, but aggregation possible for migrants from EU/EEA + bilateral agreement countries)
2003-20125-7 (5 years, but aggregation possible for migrants from EU/EEA + bilateral agreement countries)
2013-202312-13 (10 years, but aggregation possible for migrants from EU/EEA + bilateral agreement countries)

The minimum years one has to have made contributions in order to draw from the contributory pension was 3, but was increased to 5 in 2002, and to 10 in 2012. Migrants from EU/EEA countries and countries with which Ireland has signed bilateral social security agreements (Canada since 1992, Australia since 1993, New Zealand and United States since 1994, Korea since 2009, and Japan since 2011) are able to count contributions to similar schemes in their country of origin in determining eligibility (Citizens Information n.d.-e, n.d.-f, Cousins 2020). Scores on this indicator are weighted to account for the proportion of migrants who can benefit from these aggregation arrangements using data on the stock of foreign-born individuals from the OECD Immigration Database (unfortunately, data on inflow of foreign-born individuals are not available for Ireland). Extrapolation used for missing data.

CP2Status requirements
1990-201240 (citizens, permanent residents, privileged nationals, long-term work permit holders)
2013-202380 (citizens, permanent residents, and privileged nationals)

There are no formal status requirements for accessing the contributory pension benefit in Ireland. However, since the minimum contribution requirements have been increased (see CP1), in practice only citizens, permanent residents, and migrants from EU/EEA and countries with which Ireland has signed bilateral agreements are able to access the contributory pension benefit (Citizens Information n.d.-e, Department of Employment Affairs and Social Protection 2017).

CP3Export possibilities
1990-20230 (export possible without restrictions)

The contributory pension can be exported to any country in the world, without additional restrictions (Citizens Information n.d.-g, Department of Employment Affairs and Social Protection 2017, Hickman 2020).

Contributory unemployment benefits

CU1Minimum contribution weeks
1990-200612-18 (52 weeks, EU nationals can aggregate)
2007-202327-32 (104 weeks, EU nationals can aggregate)

The contributory unemployment benefit in Ireland used to require a minimum of 52 weeks of contributions. A 2006 reform replaced the benefit with a similar program, called the Jobseeker’s benefit, which demands a minimum of 104 weeks of contributions (Citizens Information n.d.-h, Cousins 2020, INOU 2006). EU nationals can count contributions to similar programs in their country of origin in building up eligibility. Scores on this indicator are weighted to account for the proportion of EU migrants using data on the stock of foreign-born individuals from the OECD Immigration Database (unfortunately, data on inflow of foreign-born individuals are not available for Ireland). Extrapolation used for missing data.

CU2Status requirements
1990-202338 (citizens, permanent residents, privileged nationals, long-term work permit holders)

Throughout the period under study, there have not been any formal status requirements besides legal residence in Ireland to access contributory unemployment benefits. However, only those newcomers whose residence permit enables them to meet the contributory requirements are de facto eligible. Asylum seekers, for example, are in practice unable to meet the requirements. While they have been allowed to take up work as a result of a 2018 reform, they can only do so if they have waited at least six months for a decision on their claim, which in combination with the lengthy contribution requirements means that they are still very unlikely to build up entitlement for unemployment benefits (Citizens Information n.d.-h, Irish Refugee Council 2023b, Quinn et al. 2014).

CU3Integration requirements
1990-20230 (no integration requirements)

Ireland has never demanded direct or indirect integration requirements for accessing unemployment benefits.

CU4Export possibilities
1990-202370-74 (up to three months within EEA, not possible elsewhere)

Unemployment benefits are only available to residents of Ireland. However, as per EEC regulation no. 1408/71 and EC regulation no. 883/2004 the benefit can be exported within the EEA for a period of up to 13 weeks in case the recipient is abroad for purpose of job searching (Citizens Information n.d.-g, Cousins 2020, De Wispelaere et al. 2020). Scores on this indicator are weighted using data on stock of foreign-born from the OECD Migration Database.

Housing benefits

HB1Residence requirements
1990-20040 (no residence requirement)
2005-20095 (2 years residence requirement, none for EU nationals)
2010-20179 (2 years residence requirement, only 6 months for EU nationals)
2018-20230 (no residence requirement)

The main type of housing support in Ireland used to be the Rent supplement. This initially did not have any residence requirements, but became subject to the Habitual Residence Condition in May 2004, which in most cases translates to a residence requirement of at least two years for third-country nationals. A reform in May 2009 additionally limited the benefit to those who had rented their property for at least six months at the time of application. A new benefit called the Housing Assistance Payment has been slowly rolled out since 2014 and has been nationally implemented since 2017. It does not set any direct residence requirements. While applicants need to prove a ‘local connection’, they can do so by other means than length of residence, such as local employment or family ties to long-term residents (Citizens Information n.d.-i, n.d.-j, Focus Ireland 2012, Lima 2021, Norris et al. 2008, Oireachtas 2011, Watson & Corrigan 2019). Scores on this indicator are weighted to account for the proportion of EU migrants using data on the stock of foreign-born individuals from the OECD Immigration Database (unfortunately, data on inflow of foreign-born individuals are not available for Ireland). Extrapolation used for missing data.

HB2Status requirements
1990-200410 (all legal residents)
2005-202330 (citizens, permanent residents, privileged nationals, some categories of temporary migrants)

Before the introduction of the Habitual Residence Condition, the only status requirement for accessing the rent supplement was legal residence in Ireland. To access the Housing Assistance Payment one needs to demonstrate a local connection as well as the legal right to reside in Ireland on a long-term basis, but what this practically entails is determined by local authorities (Citizens Information n.d.-i, n.d.-j, Focus Ireland 2012, Oireachtas 2011).

HB3Integration requirements
1990-20230 (no integration requirements)

There are no integration requirements associated with access to housing support.

HB4Housing services for successful asylum claimants
1990-200080 (accommodation support, but with uncertain funding)
2001-2023100 (no targeted services available)

Before the creation of reception centers (Direct Provision) in 2000, local authorities were charged with accommodating both asylum seekers and refugees, but there was no national policy on the type of assistance they should receive or the funding that would be available to the authorities in providing it. Since then, successful asylum claimants need to leave reception centers and find housing on their own, with limited to no state support (Citizens Information n.d.-k, Department of Justice and Equality 2015, Raghallaigh et al. 2016).

Social assistance

SA1Residence requirements
1990-20040 (no residence requirement)
2005-202339-40 (2 years for TCNs, 5 years for EU nationals)

Before the introduction of the Habitual Residence Condition, there was no waiting period before newcomers could access social assistance. Since mid-2004, however, applicants need to demonstrate ‘habitual residence’. And while there is no explicit length of residence associated with this term, anyone who has resided in the country for less than two years is considered not habitually resident unless they can prove otherwise. Moreover, EU citizens lose their right to reside in case they claim social assistance during their first five years in the country, and would therefore not satisfy the Habitual Residence Condition (Cousins 2020, Department of Social Protection 2020; Irish Congress of Trade Unions, n.d.; MRCI, 2005; Quinn et al., 2014).

SA2Status requirements
1990-200410 (all legal residents)
2005-202330 (citizens, permanent residents, privileged nationals, some categories of temporary migrants)

Before the introduction of the Habitual Residence Condition, the only status requirement was legal residence. Now all applicants, including EU nationals (see also SA1) need to demonstrate being a ‘habitual resident’ (Cousins 2020, MRCI 2005).

SA3Consequences of welfare uptake
1990-20230 (no consequences)

Claiming social assistance in Ireland does not jeopardize someone’s residence status or access to citizenship (Quinn et al. 2014, Stadlmaier 2018).

SA4Integration requirements
1990-20230 (no integration requirements)

There are no integration requirements associated with social assistance in Ireland.

Active labor market policies

AL1Residence requirements
1990-1998-8 (no active labor market policies)
1999-20045 (tied to receipt of benefit requiring no residence requirement)
2005-20067 (tied to receipt of benefit requiring 1 years of contributions for TCNs, EU nationals can aggregate)
2007-202310-11 (tied to receipt of benefit requiring 2 years of contributions, EU nationals can aggregate)

Ireland only started rolling out active labor market policies on a large scale in 1998. Since then, access to these programs have been tied to receiving either contributory or means-tested unemployment benefits. Before the introduction of the Habitual Residence Condition, there was no residence requirement for accessing the mean-tested unemployment allowance. Since then, the contributory unemployment benefits are theoretically easier to access, i.e. after making one year of contributions before 2006, and after making two years of contributions since the introduction of the Jobseeker’s Benefit (see CU1, INOU 2006, McGuinness et al. 2019). Scores on this indicator are weighted to account for the proportion of EU migrants using data on the stock of foreign-born individuals from the OECD Immigration Database (unfortunately, data on inflow of foreign-born individuals are not available for Ireland). Extrapolation used for missing data.

AL2Status requirements
1990-1998-8 (no active labor market policies)
1999-200410 (all legal residents)
2005-202330 (citizens, permanent residents, privileged nationals, some categories of temporary migrants)

Since accessing ALMPs is tied to receipt of unemployment benefits, the status requirements follow the requirements for those latter programs: legal residence before 2004 and habitual residence since then.

AL3AAvailability of language programs
1990-1999-8 (no publicly funded programs available)
2000-201471 (available for vulnerable groups only)
2015-20230 (available for any immigrant, with much adjustment to skill level)

Ireland has offered language training to refugees since 1998. As of 2014, the country started to offer a wider range of ESOL classes, at various skill levels. They are in principle open to any immigrant, although at times of high demand preference is given to asylum seekers, refugees, and unemployed migrants (Batardière et al. 2023, MacCormaic 2008, McGuinness et al. 2014, Office for the Promotion of Migrant Integration 2017, SOLAS 2018).

AL3BPublic funding of language programs
1990-199980 (no publicly funded language programs (but no requirement to learn language for benefit receipt or residence status)
2000-20140 (fully funded)
2015-202320 (fully funded for some, nominal fees for others)

Language classes for refugees in Ireland have always been free of charge. Most other language classes for migrants are free as well, although in some cases participants are required to pay a nominal fee (Batardière et al. 2023, MacCormaic 2008, McGuinness et al. 2014, Office for the Promotion of Migrant Integration 2017, SOLAS 2018).

AL4AAvailability of employment assistance
1990-2023-8 (no targeted services available)

The Irish approach to integrating is based on granting migrants access to the exact same services as native-born Irish. There are therefore no immigrant-targeted labour market programs, apart from some small programs funded by the EU (Office for the Promotion of Migrant Integration 2017).

AL4BNature of employment assistance
1990-2014100 (nothing available)
2015-202380 (programs combating discrimination on labor market)

Since 2014, Ireland has undertaken some active efforts to counter discrimination of immigrants on the labor market, for example by closer monitoring of employment outcomes by immigrant backgrounds, the encouragement of employing foreign-born in the civil service, and reviewing policies and practices of large employers for the extent to which they foster inclusion (McGinnity et al. 2018, Office for the Promotion of Migrant Integration 2019).

Works cited