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Perception and Utilization of the CSSA:

a Study on the Views of the Public and the Lower Income People

A Joint Research Project

by

Oxfam Hong Kong Hong Kong Programme

& Centre for Social Policy Studies

Department of Applied Social Sciences Hong Kong Polytechnic University

Prepared by

Centre for Social Policy Studies Department of Applied Social Sciences

Hong Kong Polytechnic University

June 2007

Acknowledgements

This research was completed with generous supports from various individuals, parties and organizations. First of all, we give thanks to all the social services organizers and social workers who provided helpful assistances at the first stage of the project, especially Mr. Fung Kai-yuen (HKCTU), Miss Lai Yuen-mei (IRI), Mr. Koo Wing-hon (Stewards) and Mr. Hui Kam-shing (ADPL). Last, but not the least, we would like to thank all the low-income workers respondents who were willing to share about their life experiences with us. We do hope this project can raise public concern on the misunderstanding and discrimination against CSSA recipients in Hong Kong. We also hope that improvement could be made on the proper utilization of Comprehensive Social Security Assistance (CSSA) so that those having genuine financial difficulties can make good use of the existing system for them to get away from hardship and poverty. Oxfam Hong Kong, and Centre for Social Policy Studies, Department of Applied Social Sciences, Hong Kong Polytechnic University

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Executive Summary Background of the Study 1. With the joint effort of the Oxfam, the Hong Kong Programme (OHK) and the

Centre for Social Policy Study of the Department of Applied Social Science, Hong Kong Polytechnic University (named the Centre hereafter), the study was designed to assess the public perception on Comprehensive Social Security Assistance (CSSA) and to evaluate this policy intervention adopted by the Government on providing basis assistance for the low income people.

2. The study starts from the belief that Access to Social Security is a

fundamental Social Right and that it is essential for the society to provide a functional and effective social security net to cushion against contingencies in social living.

3. However, it is always believed that welfare fosters a culture of dependency

that go against the social expectation of self-reliance in our society. This has been complicated by the economic downturn in recent years, which boosted up the number of welfare beneficiaries and the public expenditure of welfare. Some argue that it is not financially feasible to sustain the poor through public expenditure and call for more restrictions and mean testing on applicants.

4. It is obvious that the pressure and prejudice, if any, on CSSA recipients,

especially with the able-bodied recipients and new migrants, thus undermining its fundamental policy goal of social security.

Objectives

The study is therefore with the following specific objectives: 1. To assess the general perception of the public on CSSA and in

particular on Low-income Comprehensive Social Security Assistance (CSSA);

2. to explore peoples propensity to utilize CSSA as a remedy to

themselves in case hardships occur;

3. to identify the negative stigmas and / or stereotypes, if any, the general public have on CSSA recipients and in particular Low-income CSSA recipients;

4. to explore the perception of those who are unemployed or with low

income on CSSA and Low income CSSA by case interviews or focus group method;

5. to understand how professionals working with low income workers

and the unemployed perceive the usefulness, effectiveness, and

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limitations of CSSA and Low-income CSSA;

6. to analyze the effectiveness and limitations of CSSA in providing social security protection for those in needs;

7. to recommend measures to improve CSSA arrangement and to

supplement the inadequacies of CSSA in assisting the poor and the working poor; and

8. to highlight the direction for overall improvement in social security

policy in Hong Kong. Study Design 5. The study consists of three components complementary to each other:

a. A territorial wide telephone survey on general public perception on CSSA.

b. In-depth interviews and Group Discussion with low income workers c. Focus Group Discussion session with frontline social workers.

Major Findings 6. 1,026 respondents were interviewed by structured questionnaire through a

telephone survey. With the following major findings:

a. It is observed in the telephone survey that the public in general are positive to the social security and they realize the social function of CSSA in assisting people in financial needs. The majority of the respondents (80%) thought that CSSA could help Hong Kong citizens who are financial in need. In addition, 79.2% of the respondents agreed or strongly agreed that it is a basic right for a citizen to receive financial support from the government, like CSSA when he or she is in need.

b. On the other hand, it is worthy to note that 60% of the respondents

perceive the CSSA as the last resort to their financial problems and over a third (33.4%) of the respondents said that they would not apply for the benefits even if they or their families were in financial hardships.

c. It is more alarming that most of the people who did not intent to apply

for CSSA cited do not want to dependent on the government (79.5%) as the reason, indicating that a greater part of the respondents saw receiving welfare benefit as a sign of dependence and reliance. Another one-third (30.5%) of respondents do not want themselves and/or family members to be looked down by other people. This indicates that there are perceivable prejudices against welfare recipients held by the public.

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d. On the other hand, many of the respondents have misinformation on CSSA recipients. For instances, over half of the respondents mistakenly perceive that the unemployed (56.9%) and new migrants (61.3%) constitute the major proportion of the CSSA recipients. However, the fact the unemployed cases only represented 12.9% of all total number of cases,. While the cases are the new arrivals, it is only 10.8%, 31,952 of 295,333 cases in the period of August of 2006.

e. The survey found that 59.6% of the respondents tended to have an idea

the abuse of CSSA was a serious problem.

f. Most of the respondents who do not know directly about the CSSA recipients expressed that they got the information from television (75%) and the newspaper (71%). It seems that the information is mainly sourced from media. These misinformation and misconception are positively correlated with the exposure to media reports on CSSA as respondents aware more on CSSA information in media tends to agree more that most CSSA recipients are new migrants and the CSSA abuse is serious in Hong Kong

7. The study team conducted twenty-four individual interviews and a group

discussion processes with people either living on low wages, unemployed or who had been applicants or recipients of CSSA. A focus group discussion with professional social workers engaging with low paid workers or working for Intensive Employment Assistant Projects was also arranged. These are some major findings:

a. Social assistance was perceived by most as the last resort safety net,

the propensity to utilize is low and the reasons for using it are always some of the most desperate living situations, for instance, long term unemployment, serious illness and family commitment.

b. Even for working poor people held a very conservative and restrictive

attitude on CSSA. c. Self-reliance is still a social norm, a social expectation, as well as a

personal commitment of most people, as many of the respondents show intention to earn their own living. On the other hand, people felt miserable and despairing to stay at home. A general dependency culture and a reliance attitude could not be identified among the interviewees.

d. It is apparent that the influences of mass media and public discourse on

CSSA and related issues had been important in shaping the public image of CSSA. New reports were often quoted as their sources of information. One of the highly-cited reports was the tsunami couple.

e. Discrimination, prejudices, stereotypes as well as misconceptions are

all widely existing in the community. Even significant portion of poor people themselves hold negative valuations on CSSA and CSSA

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recipients. CSSA recipients are frequently referred to as comprising mostly of able-bodied lazy people and new migrants

f. People without having the need to apply for social assistance will be

more easily influenced by hearsay and prejudiced ideas on CSSA recipients.

g. Most of the interviewees who had used the welfare provision described

the application procedure as humiliating and intimidating. Some claimed that their applications were always delayed and mishandled, while others claimed their application were thwarted and rejected by social security officers with bad manner. Some accused the social security officers for lacking of empathy to the applicants.

h. Some social workers interviewed complained that some officers tend to

insult and threaten the applicants by making unreasonable requests, while others attribute it to the heavy workload of caseworkers.

Recommendations In summary, the present study confirms that there are widespread prejudice and misconceptions among members of the public on welfare recipients. The study also confirmed that the conservative attitude towards social security, compounded with the lack of social consciousness on the basic social right to social protection, have been exerting undue pressure for those in hardship and has undermined the appropriate and proper use of CSSA as a measure for one to transit their hardship and to actualize their social right to social security.

8. In light of these, the following recommendations are put forward by the study: 8.1.1 To Prevent Discrimination Against Social Security Recipients

a. To Foster a Positive Attitude towards CSSA Recipients

It is recommended that the government should cultivate and foster a more positive attitude on CSSA instead of accusing those who are being benefited or who should be targeted beneficiaries. The government needs to educate the public on the rights of citizens with genuine need in claiming the welfare provision and let the society know more about the social functions of CSSA.

b. To Combat Inappropriate Discrimination on Welfare Recipients

It is recommended that the government should reformulate its policy, reconsider its strategy, and be more cautious and reasonable in public expression on issues concerning CSSA. The government should step up efforts in increasing the transparency of the CSSA policy by

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promoting the policy justifications of the CSSA system and to create proper attitude towards income disparity. On the other hand, the department concerned should deliver news about CSSA on a more comprehensive manner to ensure relevant information is properly communicated.

8.1.2 To Promote a Positive Image Among the Public of CSSA Recipients in Media

It is quite apparent that most low-earning CSSA recipients were actually treating low-earning CSSA as a temporary means for escaping from the harsh demand from the labour market. It is necessary to let the public recognise the significance of Low Income CSSA, the government should take positive steps to confirm the vitality of low income CSSA, so as to encourage better use of this as a remedy for earning below the subsistent level. and prevent the misunderstanding

The media should consider the impacts of their reports in creating negative images of CSSA recipients. We call for the media to pay careful attention when it comes to reporting news about CSSA recipients. In addition, we call for the media to report relevant news stories in a balanced manner to prevent and reinforce the stereotyping.

8.1.3 To improve the service delivery of existing system

Results from our findings suggest that the administration and operation of CSSA has turned out to be obstacles for potential service users. The study team observe that it is fair to infer that the perceptions of CSSA held by the public can not be separated from the default of the social security system itself. The system itself is in a large extent relevant to the way the system be perceived by the public. We recommend the government to reconsider the different components of social security system, for instance, the Employment Incentive Scheme (IEAP)

8.1.4 To Review and Reform the Social Security System in Hong Kong

It is obvious that the existing social security system is becoming less and less capable to deal with all kinds of social risks. The system itself is over-reliant on a single mode of public assistance in form of CSSA to cater for all welfare demand. The government is therefore urged to reposition itself and to formulate proper policies on all these fronts if it really has an intention to develop a more harmonic society

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8.1.5 Proactive Labour Market Interventions

It is recommended that the government should consider a more balanced approach on public service provision and labour market intervention on the working poor issue, and to make low income CSSA an inalienable right for all. For instance, the government should consider seriously adopting the minimum wage as a regulative measure with the ultimate goal of treating workers fairly, and with an instrumental goal to reduce pressure on public finance.

Conclusion 9 The economic recovery in the last three consecutive years have bought with

recorded high economic growth since 1997, while the total number of employed people has also reached the historical peak in Hong Kong. However, it is also apparent that the income disparities are ever expanding. According to the most recent figures released by the Hong Kong Government, households earning less than HK$4000 per month have increased by nearly half since 1997, reaching a total of more than 200,000 households. The Gini Coefficient has also reach an alarming point of 0.533. All these point to the fact that the issues of poverty, low income and working poor are now intermixing together as a complex web of social and economic phenomenon needing immediate social attention as well as actions. From a humanistic point of view, it is intolerable to allow a significant portion of our population staying in that desperate situation for extended period, which had marginalize them from the mainstay of the society, while also may jeopardize their life chances of themselves and their family. From a pragmatic perspective, the existence of a consolidated underclass is also by no mean a healthy development of a society as the possibility of social instability and class confrontation would be seeded to upset the long term prosperity of Hong Kong. The above mentioned recommendations are therefore put forward, with the wish that the situation of those less advantaged sector of our society could be eased on one hand, and to maintain a balanced development spur of Hong Kong on the other hand.

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1.

2.

3.

4.

1.

2.

3.

4.

5.

6.

7.

8.

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5.

a.

b. c.

6. 1,026

a.

80%79.2%

b. 60%

33.4%

c. 79.5%30.5%

d.

56.9%61.3% 12.9% 10.8% 2006 8 295,333 31,952

e. 59.6%

f.

75%71%

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7.

a.

b. c.

d.

e.

f.

g.

h.

x

8. 8.1.1

a.

b.

8.1.2

8.1.3

xi

8.1.4

8.1.5

9. 1997

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Table of Contents Acknowledgement

i

Executive Summary

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Chapter 1

Introduction 1

Chapter 2

Social Security: General Ideas 4

Chapter 3

Research Objectives 9

Chapter 4

Research Design 11

Chapter 5

Research Findings (Part I) Telephone Survey 14

Chapter 6

Research Findings (Part II) Case Studies 36

Chapter 7

Observations and Discussion 56

Chapter 8

Recommendations 65

Appendices

Appendix 1 Questionnaire for Telephone Interview 71Appendix 2 Tables of Survey Findings 84Appendix 3 Information Concerning Case Studies 103Appendix 4 Profile of Informants 131Appendix 5 List of Research Team Members 133Appendix 6 Statistics on Social Welfare Recipients 134

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Chapter 1 Introduction Background of the Study 1.1. This research report was the outcome of the joint effort between the Oxfam, the

Hong Kong Programme (OHK) and the Centre for Social Policy Study of the Department of Applied Social Science, Hong Kong Polytechnic University (named the Centre hereafter).

1.2. In its beginning, the study was designed as part of a series of OHKs studies on

the poverty situations in Hong Kong, The Centre involved not only as an operational arm in public survey as commissioned by the OHK, but also a co-researcher that contribute to data collection through case interviews on working poor and to conduct informant interviews.

The Issue 1.3. In recent years, the society is becoming more and more concerned about the

issue of poverty. The Poverty Commission was formed in 2005 and the government is committed to provide remedial services to cater for the needs of those trapped in poverty as well as to formulate better policy to resolve the risk of inter-generational poverty.

1.4. In particular the growing disparities in income distribution and the ever

increasing number of working poor also alerted the society. Though the Hong Kong economies has been gradually recovering and had hit the record high economic growth in the last financial year, low income group seems not benefited significantly as those earning HK$4,000 or below has increased by more than 30% then in 1996, and has exceeded 300,000 (9.7%) in number out of Hong Kongs than 3.3 million total workforce1.

1.5. In principle, those low income workers, like the unemployed, could apply for

CSSA or, to be exact, Low-earnings CSSA, as a temporal remedy for the

1 According to 2006 Population By-census-Summary Results, the number of working people earning less than $4 000 a month increased from 242 429 in 1996 to 324 434 in 2006.

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hardship encountering them. The actual number of Low-earnings CSSA recipients is also remained relatively high in the last few years, reflecting that the Low-earnings CSSA does provide some assistance for those who apply for it. However, it is also evident that the general public has developed negative ideas on Low-earnings CSSA and has sticking negative stereotypes for those who apply for assistance. This is manifested by the frequent complaints and accusation to daily phone-in radio programmes, this is also revealed through occasional cases of CSSA recipients accusing the undue pressure and prejudice they experienced in their daily living.

1.6. Obviously, the society is divided on policy options in tackling the problem of

poverty, working poor, and the proper role of social assistance programmes. Some put forward new policy options for this pressing problem, some criticized the lack of unresponsiveness of the society to those who are desperate; while some argued that it is not financially feasible to sustain the poor through public expenditure, some argued that more restrictions and means testing criteria have to be implemented, some, including government officials, put forward ideas the lifetime drawing limit has to be imposed to those able-bodied poor. Before all these would be rationally weighted and put into the policy agenda, it is obvious that pressure on working poor is ever increasing, the antagonism on CSSA recipients is becoming more intense.

Goals and Implication for the Study 1.7. With the joint effort of the OHK and the Centre, the study was designed in a

way to assess the public perception on Low-earnings Comprehensive Social Security Assistance (CSSA) and to evaluate this policy intervention adopted by the Government on providing basic assistance for the poor. The views of low income employees were explored and the opinions of professional social workers serving them were also investigated.

1.8. These combined to provide a better understanding on how public perceive

CSSA and in particular Low-earnings CSSA. The report therefore aims at providing an overview of the perception of the public and working poor on CSSA; their propensity to utilize this as a remedy to themselves in case hardships occur; it aims also to suggest direction for policy reform to provide better livelihood protection to the low income sector of the society.

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Organization of the Report 1.9. Chapter 2 of this report provided a general review on the theoretical ideas of

social security and its proper social roles and functions. This is going to shed light on how CSSA system in Hong Kong should be assessed as a social security measures as well as a fundamental social safety net. Chapter 3 and 4 are to outline the research objectives of the study and provide an account of research methodology respectively.

1.10. In Chapter 5, major findings from the territorial wide telephone survey will be

presented. The second part of this study, which comprises case studies and group discussion with CSSA recipients and working poor, as well as opinions of informants this study interviewed, will be outlined in Chapter 6. These served to explore the working poor issues and its relationship with existing CSSA related policy from different angles. All findings from the telephone survey will be supported by statistical analysis so as to provide an objective picture concerning public perception, attitude and knowledge on the CSSA and working poverty.

1.11. Chapter 7 will spell out some recommendations to improve CSSA related policy

and administration so as to render more appropriate assistance for those who are in need. It is looking forward that this report will be found useful to policy-makers, the general public, grass-root organisations, NGOs and frontline social workers for better understanding the perception and utilization of the CSSA and the situation of working poor in Hong Kong.

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Chapter 2 Social Security: General Ideas Social Security as Social Protection 2.1 Access to social security has become a fundamental human right2. This right is

perceived as being realized in varying degrees in different countries as determined by their traditions, history, level of socioeconomic development and the prevailing political and social philosophies3. The idea of social security is easily comprehensible and is appealing to the public. Dixon concluded that it is the adaptability of the social security idea to local conditions and varied cultural traditions that explains its global appeal 4 . As a formal and institutionalized system to meet human needs, social security has achieved its popularity even in countries where the governments could only command limited resources for social security.

2.2 According to the figure by the United States Department of Health and Human

Services, the number of countries with some forms of social security programmes rose threefold from late 1940s to early 1980s. Statutory protection against employment injury and provisions for old age were of particular important as most countries with social security systems have provisions on this5.

2.3 Globally speaking, there are some outstanding characteristics in the

development of social security. One of these is that increasingly more different forms of social security measures has been gradually developed to cater for different needs, while the coverage of social security system has been expanding to include people facing different kinds of new risks in modern social living. Apart from the more conventional modes, such as social insurance and old age assistance schemes, other contributory and non-contributory measures were developed. Allowances of different forms, some are mean tested while some are

2 Perrin, G (1969), Reflections on fifty years of social security, International Labor Review 99(2); 249-269 3 Dixon, J. (1999), Social Security in Global Perspectives, Wesport Conn.: Praegerm, p.1 4 Ibid. 5 International Labour Organisation (1984), Introduction to Social Security. Geneva: International Labour Organisation, p.13

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not, were also put forward. A comprehensive network of social care and protection has also been established in many countries where their governments provide remedies for different kind of living risks.

Social Security in Hong Kong 2.4 In Hong Kong, social security had been developed as a public commitment

since 1971, when the colonial government of Hong Kong was committed to provide financial assistance for those who were least able to help themselves.

2.5 The original form of Public Assistance was an assistance scheme that was

transitional, temporary and minimal. The recipients have to undergone a strict mean testing process on their income and assets to establish their eligibility; amount provided was for bare subsistence and was constantly under review. Assistance in form of Allowances was added to the system in 1973 that were targeted only for old age and the handicapped. Since then, the social security model of Hong Kong had been largely established without significant changes from its original ideas and design.

2.6 The only major component added to the social security system in Hong Kong

was in 1995 when the government decided to implement the Mandatory Provident Fund (MPF) as retirement pension. This is perceived as a late coming policy change after decades of debates and unceasing appeals for it from the grassroots.

2.7 The MPF is a form of contributory saving scheme to make the setting up of

personal pension account as a legal requirement. The plan was enacted in late 2000 but could only be expected to have its policy effect two decades away. The adoption of a mandatory, private-run approach rather than a state run and Central Provident Funds as those in Singapore is still subject to challenged after these few years of operation of the MPF.

Current Issues Concerning Social Security in Hong Kong 2.8 In the meantime, social security is the major expenditure component of social

welfare spending in Hong Kong. Of the 34 billion Hong Kong dollars spent under the categories of Social Welfare in the 2005 to 2006 financial year, 71%

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was on Comprehensive Social Security Assistance and Special Allowances (CSSA).

2.9 In the last two years, although economy is recovering from its low and the

number of employment opportunities are ever increasing, there are still nearly 300,000 cases receiving CSSA, involving over half a million people out of the less then seven million total population in Hong Kong6. This figure had been rather stable in the last two years demonstrating that quite a significant number of people here have not been benefited by the improvement in economic situations.

2.10 Majority of those CSSA cases are by definition elderly. Before 1997, elderly

cases once constituted more than 70% of all CSSA case number. In that period, the economy was booming and the salary level was in general rising rapidly and continually with the economic bubble and the rocketing inflation, labour demand had been constantly on the rise and it was with abundant employment opportunities for those who were willing and able to work. The concept of helping those who are least able was therefore taken for granted for social welfare and social security in particular.

2.11 Under such a social atmosphere, the inadequacies and limitations of the existing

social security system had not been alerting. Even when some argued for a major review and revision to the policy, public support had been sparse, or at least not strong enough to arouse public attention and to urge for actions from the government.

2.12 However, after the Asian Financial Crisis and the economic downturn since

1997, this conventional idea ceases to be convincing enough to justify the existing old style and minimal social security system. Old age is now no longer the most significant reasons for applying public assistance, although this now still constitutes 51% of the near 300,000 cases. Unemployment and low income groups have become major categories of CSSA recipients, while the overall number of these two groups have been remain largely constant in the last few years, demonstrating that the problem of joblessness and pays below the subsistence standard are becoming more and more apparent in the society. The concept of Working Poor has become more appealing for any consideration

6 In May 2007, according to the Social Welfare Department, the total caseload of CSSA were 293 952, with 516 404 recipients.

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on social policy debates in particular policy concerning social security provision.

2.13 There are two fundamental questions to studying the issue of Working Poor.

First of all, the definition on Working Poor is difficult enough to appeal for consensus. Working has long been merited as a social and personal virtues particularly in the pragmatic and achievement oriented Hong Kong. Working has been regarded generally as the most normal and acceptable way for one to get money return so as to finance their daily spending. The citizens here are also long been recognized as hardworking, aggressive and willing to work long hours for personal and familial economic improvements. In times when working is valued not only in principle but also rewarded with liveable income, all those who are able to work and are actually working are assumed to be economically independent and socially recognized as productive bodies. In this sense, working but poor had not been so appealing and is not recognized as a kind of social risk deserving public attention. Provision of financial and income transfer through the public purse is therefore less justifiable then to the old age persons and people with disabilities, even when the concept on Working Poor has been gradually developed and becoming more widely recognizable in the community.

2.14 It is also argued that the government officials have been repeatedly initiating

and generating momentum for discourse of this kind and have been quite successful to develop a rather negative image on people who are unemployed, especially those who live on welfare because of unemployment7.

2.15 In the way, a general prejudice against CSSA recipients is developing

gradually. This prejudice has become a general impression and conception in the public, the concept of CSSA recipients is particular denoted with negative connotations when it is associated with new migrants who come to share the economic fruits of our society, most of which are regarded as lazy and accustomed to big bowl rice in the pre economic reform period. Working Poor are also regarded as incapable and lack of personal assets to maintain their continual staying and living in Hong Kong society.

2.16 Therefore, it is not surprising to find that people are valuing the blurred and

confusingly conceived CSSA negatively, particularly when the unemployed

7 Lai & Wong, (2006), Review on CSSA, Hong Kong: Alliance of the Review on CSSA.

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or new immigrants are being discussed. This prejudice and negative social image on welfare recipients who are capable of taking up employment is assumingly to have exerted undue pressure and burden on the recipients themselves on one hand, and on the other hand may have undermined the appropriate utilization of CSSA on another hand.

2.17 This study is therefore designed to explore this by surveying the general

publics understanding on social security and in particular CSSA. It would be interesting to know whether people understand or not that CSSA is a basic social safety network in Hong Kong provided for all those who are in need. To what extent is the general public holding negative ideas on CSSA and the stigmas associated with it. On top of this, it would also be interesting to explore to what extent are the general public and those working poor themselves think it acceptable or normal that all persons including working poor themselves should get access to CSSA in case needs really arise. The ideas of working poor themselves will also be investigated by case study or focus group method so as to understand the way they perceive their own situation and to see if any social pressure and stigma are really being felt and in what way this would possibly influence the way they cope with their difficult situations, including their propensity and hesitation to make use of CSSA as a remedy to their hardship, at least temporarily.

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Chapter 3 Research Objectives Overall Objective 3.1 The overall objective of this research is to have overview on public perception

on CSSA and its effectiveness in rendering assistance for the poor people and in particular the expanding Working Poor people, upon which the relevance of the existing CSSA arrangement and social security policy in Hong Kong will be critically examined.

Specific Objectives 3.2 The study is therefore with the following specific objectives:

(a) To assess the general perception of the public on CSSA and in particular

on Low-earnings Comprehensive Social Security Assistance (CSSA); (b) to explore peoples propensity to utilize CSSA as a remedy to themselves

in case hardships occur; (c) to identify the negative stigmas and / or stereotypes, if any, the general

public have on CSSA recipients and in particular Low-earnings CSSA recipients;

(d) to explore the perception of those who are unemployed or with low

income on CSSA and Low-earnings CSSA by case interviews or focus group method;

(e) to understand how professionals working with low income workers and

the unemployed perceive the usefulness, effectiveness, and limitations of CSSA and Low-earnings CSSA;

(f) to analyze the effectiveness and limitations of CSSA in providing social

security protection for those in needs;

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(g) to recommend measures to improve CSSA arrangement and to supplement the inadequacies of CSSA in assisting the poor and the working poor; and

(h) to highlight the direction for overall improvement in social security policy

in Hong Kong.

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Chapter 4 Research Design The Overall Study Design 4.1 The study was conducted by a combination of three methods. A territorial wide

telephone survey has provided an overall understanding on general public perception on CSSA. The in-depth interviews or focus group discussions with low income workers provided supplementary information on how the working poor themselves perceive their own situation and the relevance on CSSA. Lastly, a discussion session with frontline social workers also provided another angle to assess the issue.

A. Telephone Survey Questionnaire Design 4.2.1 As the project seeks to understand how the general public perceives CSSA, a

territorial wide telephone survey was conducted. A structured questionnaire was designed for the purpose. Respondents were randomly sampled and all data are analyzed by basic descriptive statistics, advanced statistical approaches were also used to evaluate the correlation among variables.

Respondents and Samples 4.2.2 This survey covers all the households with residential telephone line in Hong

Kong. Respondents of this study are aged 18 or above. 4.2.3 In accordance with the clients request, method of telephone survey was

employed in this study and households were selected by random sampling method. Kish Grid Method was adopted to select one eligible respondent from each household dialled.

Data Collection, Co-operation Rate and Sampling Method

4.2.4 In this survey, all the telephone numbers of the samples were randomly

selected from the PCCW 2001 Residential Telephone Directory (English Edition). The modified random digit dialling strategy was employed to

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supplement the sample with the telephone numbers that were not included in the Residential Telephone Directory. The enumerators would attempt at least 3 times to contact each sampled respondent until the interview was successfully completed or could not be pursued any further.

4.2.5 The total number of successful cases of the survey was 1026, the margin of

error at 95% confident level was +/- 3.06%. Co-operation Rate

TYPES FREQUENCY

Complete InterviewsI 1026

Partial InterviewsP 27

Refused Eligible UnitsR 352

No Eligible Units (NE 74

Non-contacted but known eligible units NCNon-contact 935

Other Non-interviewed unitsNI 4488

Total number of telephone line dialed 6902

4.2.6 Contact Rate and Co-operation Rate are calculated by using Groves (1989)8

equation, results are as follows:

Contact Rate 86.31

Co-operation Rate 73.02

4.2.7 The co-operation rate attained by the survey is considered to be very

satisfactory as 73.02% contacted respondents were willing to go ahead with and have completed the telephone interview. This may to a certain extent reflect that people are in general alert to the controversies and debate concerning CSSA issues, and are willing to express their ideas so as to let their own viewpoints represented.

8 Groves, R. (1989).Survey Errors and Survey Costs. John Wiley & Sons, Pp.144-145. Contact Rate = (I+P+R+NI)/(I+P+R+NI+NC), Cooperation rate = I/(I+P+R).

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B. In-depth Interviews & Focus Group Discussion 4.3 In an attempt to better understand the way low-income people perceive the

relevance of Low-earnings CSSA for their situation, in-depth case interviews and focus group discussion sessions were conducted. From June to September 2006, the research team held 25 in-depth discussion sessions with 24 low-income workers and a group of full-time cleaners who works for a company subcontracted by a bus company of Hong Kong. Discussion contents and insights from this part could serve as supplementary information to the quantitative statistics in the telephone survey. How these working poor people themselves perceive CSSA and Low-earnings CSSA? Are they feeling pressure from public perceptions and prejudice? How ready and willing are they prepared to make use of CSSA? All these questions are to be assessed by discussion content analysis as well as participant observation method.

C. Discussion Session with Frontline Social Workers

4.4 Furthermore, the research team had also organized a focus group meeting with

some front-line organizers and social workers from labour unions and organizers of the Intensive Employment Assistance Projects (IEAP). The participants have shared their valuable working experiences from their services to low-income groups and the CSSA recipients.

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Chapter 5 Research Findings (Part I) Telephone Survey Introduction 5.1 In this session, findings from the telephone survey and the ways the public

perceive CSSA will be outlined. The questionnaire for the structured telephone interview is attached as Appendix 1. Descriptive analysis will be presented here while the data in tabulation form is attached as Appendix 2. After a brief account on the profile of respondents successfully sampled for the telephone interview, some major findings of the survey will be presented. In particular, these major findings are on how the public perceive CSSA, on their opinions and ideas on CSSA abuses and frauds, on peoples ideas about discrimination against CSSA recipients and the sources of knowledge to CSSA, their ideas on working poor and their ideas on CSSA provision for low income earners will be discussed here.

Profile of Respondents to Telephone Survey

(a) Sex

5.2.1 Of the 1,026 respondents, 59.4% of the respondents were females while 40.6% were the male counterparts (Table 5.2.1).

Table 5.2.1: Distribution of Respondents by Gender

Frequency %

Male 417 40.6

Female 609 59.4

Total 1026 100.0

15

(b) Age

5.2.2 In terms of age, a higher proportion of respondents fall into the age category of 30-39 (Table 5.2.2).

Table 5.2.2: Distribution of Respondents by Age

Age Range Frequency %

18-29 234 22.8

30-39 177 17.3

40-49 256 25.0

50-59 217 21.2

60 or above 142 13.8

Total 1026 100.0

(c) Education Attainment

5.2.3 A higher proportion (30.0%) of the respondents educational attainment is of secondary (F.45), while 16.6% of the respondents hold an educational attainment of tertiary (degree) or above (Table 5.2.3).

Table 5.2.3: Distribution of respondents by Education attainment

Frequency %

No formal schooling / Kindergarten 33 3.2

Primary 145 14.1

Secondary (F.1 F.3) 169 16.5

Secondary (F.4 F.5) 308 30.0

Matriculation (F.6 F.7) 87 8.5

Tertiary (non-degree) 105 10.2

Tertiary (degree) or above 170 16.6

Refuse to answer 9 0.9

Total 1026 100.0

16

(d) Employment Status 5.2.4 About 51.1% of the respondents were working full-time or part-time.

Among the employed, the highest proportion of them (12.7%) was working as clerks, followed by 8.6% being service workers and shop sales workers (Table 5.2.4).

Table 5.2.4: Distribution of respondents by Current position Frequency %

Managers and administrators 72 7.0

Professionals 55 5.4

Associate professionals 59 5.8

Clerks 130 12.7

Service workers and shop sales workers 88 8.6

Craft and related workers 36 3.5

Plant and machine operators and assemblers 27 2.6

Elementary occupations 56 5.5

Student 100 9.7

Home-maker 191 18.6

Retired person 126 12.3

Unemployed 49 4.8

Others 6 0.6


Total 1026 100.0

17

(e) Income Range

5.2.5 Monthly Personal Income In terms of monthly personal income of employed respondents, relatively

higher proportions (20.5%) of respondents fall into the category of $10,000-$14,999, followed by $8,000-$9,999 (17.4%) (Table 5.2.5).

Table 5.2.5: Distribution of respondents by Monthly personal income

Frequency %

$4,999 or below 36 6.9

$5,000 - 7,999 84 16.1

$8,000 - 9,999 91 17.4

$10,000 - 14,999 107 20.5

$15,000 - 19,999 46 8.8

$20,000 - 24,999 42 8.0

$25,000 - 29,999 14 2.7

$30,000 - 39,999 21 4.0

$40,000 - 49,999 11 2.1

$50,000 or above 13 2.5

No income 4 0.8


Total 523 100.0

18

5.2.6 Monthly Household Income With regards to the monthly household income of employed respondents, a relatively higher proportion (14.5%) of respondents falls into the category of $10,000-$14,999 (Table 5.2.6).

Table 5.2.6: Distribution of respondents by Monthly household income

Frequency %

$4,999 or below 18 1.8

$5,000 - 7,999 39 3.8

$8,000 - 9,999 53 5.2

$10,000 - 14,999 149 14.5

$15,000 - 19,999 94 9.2

$20,000 - 24,999 96 9.4

$25,000 - 29,999 34 3.3

$30,000 - 39,999 71 6.9

$40,000 - 49,999 47 4.6

$50,000-59,999 33 3.2

$60,000-69,999 14 1.4

$70,000-79,999 11 1.1

$80,000 or above 26 2.5

No income 43 4.2


Total 1026 100.0

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(f) Household Composition

5.2.7 A slightly higher proportion (30.5%) of the respondents has 4 household members (Table 5.2.7).

Table 5.2.7: Distribution of respondents by Numbers of household members

Frequency %

1 42 4.1

2 158 15.4

3 291 28.4

4 313 30.5

5-7 199 19.4

8-10 8 0.8

Dont know/ Not sure/

Forgotten/ Hard to say 2 0.2


Total 1026 100.0

Major Findings A. Public Perception on CSSA

(a) Generally speaking, most of the respondents interviewed in the survey tend to give rather objective and positive comments to the functions of the CSSA system.

5.3.1 This could be illustrated obviously by the following: 5.3.2 In Question V8, the majority of respondents (80.0%) expressed that

they think CSSA could help Hong Kong citizens who are financially in need generally, only 10.4% of them disagreed (Table 5.3.1). According to Pearson Chi-Square tests, respondents with higher education attainment would agree more the statement (Table 5.3.2).

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Table 5.3.1: Do you think CSSA could help Hong Kong citizens who are financially in need

generally? Frequency %

Certainly yes 84 8.2

Probably yes 736 71.8

Probably not 103 10.0

Absolutely not 4 0.4

Dont know/ Not sure/ Forgotten/ Hard to say 98 9.6

Total 1025 100.0

Table 5.3.2: Do you think CSSA could help Hong Kong citizens who are financially in need

generally? by Education attainment

Primary or below Secondary

Matriculation or

above

Frequency % Frequency % Frequency %

Certainly yes/ Probably yes 127 71.3 380 79.8 308 85.1

Probably not/ Absolutely not 24 13.5 44 9.2 37 10.2


Forgotten/ Hard to say 27 15.2 52 10.9 17 4.7

Total 178 100.0 476 100.0 362 100.0

5.3.3 In Question V13, again, the majority of the respondents (79.2%) agreed that it is a basic right for a Hong Kong citizen to receive financial support from the government, like receiving CSSA, when they are financially in need; only 13.9% disagreed or strongly disagreed with this statement (Table 5.3.3). In addition, Pearson Chi-Square tests for statistical significance showed that respondents with lower ages, higher educational attainment or higher monthly personal income would significantly more agree with the statement (Table 5.3.4, Table 5.3.5 & Table 5.3.6).

21

Table 5.3.3: Do you agree that it is basic right for a Hong Kong citizen to receive financial

support from the government, like receiving CSSA, when they are financially in

need?

Frequency %

Strongly agree 167 16.3

Agree 645 62.9

Disagree 122 11.9

Strongly disagree 21 2.0


Total 1025 100.0



need? by Age

18 - 29 30 - 39 40 - 49 50 - 59 60 or above

Frequency % Frequency % Frequency % Frequency % Frequency %

Strongly

agree/

Agree

195 83.3 137 77.4 198 77.3 173 79.7 109 77.3

Disagree/

Strongly

disagree

34 14.5 32 18.1 34 13.3 13 6.0 12 8.5

Dont know/

Not sure/

Forgotten/

Hard to say

5 2.1 8 4.5 24 9.4 13 6.0 20 14.2

Total 234 100.0 177 100.0 256 100.0 217 100.0 141 100.0

Remarks: Pearson Chi-square =28.82, p

22



need? by Education Attainment


Matriculation or

above


Strongly agree/ Agree 133 75.1 374 78.4 301 83.1

Disagree/ Strongly

disagree 21 11.9 71 14.9 47 13.0



Total 177 100.0 477 100.0 362 100.0


23

(b) On the other hand, coloured by the fact that Hong Kong had experienced economic downturn in the several years ago resulting in an heightened alertness to unemployment problem, respondents tend to have an idea that the unemployed was most eligible applicant for CSSA.

5.3.4 Question V17 revealed this clearly as 39.0% ,respondents responded

with Unemployed as the kind of applicants eligible for CSSA, followed by Permanent physically disabled (29.2%), Low income earners (28.8%), Elderly (28.5%) and Single parents (22.6%) (Table 5.3.7).

Table 5.3.7: Do you know what kinds of applicants are eligible for CSSA?

Frequency %

Unemployed 400 39.0

Permanent physically disabled 300 29.2

Low income earners 296 28.8

Elderly 292 28.5

Single parents 232 22.6

Health impaired 91 8.9

Children 23 2.2

Teenagers 8 0.8

Others 100 9.7


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B. On the Utilization of CSSA

(a) The survey indicates that CSSA is widely regarded as the last resort and is not perceived as an immediate public provision that should be taken before other personal resources for assistance are sought.

5.4.1 When respondents were asked whether they agreed or not that those

eligible applicants of CSSA should seek help from others sources before really applying for CSSA (Question V20). It seems that a majority of the respondents (59.8%) agreed or strongly agreed this statement (Table 5.4.1). According to Pearson Chi-Square tests, respondents in the age group 18-29 would more agree with the statement than other age groups; while the group 60 or above least agreed the statement. Besides, respondents with higher education attainment (Secondary level or above) would significantly agree more with the statement than the others (Table 5.4.2 & Table 5.4.3).

Table 5.4.1: Do you agree that before applying CSSA, applicants should seek help from

others?

Frequency %

Strongly agree 60 5.8

Agree 554 54.0

Disagree 304 29.6

Strongly disagree 23 2.2


Total 1025 100.0

Remarks: 1 respondent refused to answer this question.

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Table 5.4.2: Do you agree that before applying CSSA, applicants should seek help from

others? -by Age

18 - 29 30 - 39 40 - 49 50 - 59 60 or above

Frequency % Frequency % Frequency % Frequency % Frequency %

Strongly

agree/ Agree

163 69.7 98 55.4 150 58.8 134 61.8 69 48.6

Disagree/

Strongly

disagree

65 27.8 67 37.9 87 34.1 58 26.7 50 35.2

Dont know/

Not sure/

Forgotten/

Hard to say

6 2.6 12 6.8 18 7.1 25 11.5 23 16.2

Total 234 100.0 177 100.0 255 100.0 217 100.0 142 100.0


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Table 5.4.4: If you or your family member is financially in need, and you are eligible to apply

CSSA, will you apply CSSA?

Frequency %

Yes 610 59.6

No 342 33.4


Total 1023 100.0

Remarks: 3 respondents refused to answer this question.

(c) The survey result also manifests that the general public still have an avoidance attitude towards seeking support from the public sector, and the assumed prejudice with this help seeking approach also has an effect of drawing eligible applicants away voluntarily.

5.4.3 For the 342 respondents who responded that they would not apply CSSA

even when he/she or his/her family member is financially in need and eligible to apply (Question V24a), most of them (79.5%) cited do not want to depend on the government as a reason. 30.5% of respondents do not want themselves and/or their family members to be looked down by others, followed by 17.3% who reported they would have other financial assistances. 15.8% found the procedures of applying CSSA is too complicated and troublesome, whereas only 13.2% reported they do not know the procedures of applying CSSA clearly (Table 5.4.5).

Table 5.4.5: Why wont you apply CSSA?

Frequency %

Do not want to dependent on the government 271 79.5

Do not want myself and/or family members to be looked down by other people 104 30.5

Have other financial assistances 59 17.3

The procedures of applying CSSA is too complicated, it is

too troublesome for me 54 15.8

Not sure about the procedures of applying CSSA 45 13.2

Do not want my employer know about that 25 7.3

Others 97 28.4

Remarks: 342 respondents answered this question, and 1 of them refused to answer.

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C. Opinions on CSSA Abuses and Frauds

(a) The survey finds that half of the respondents tend to have an idea of abusing CSSA has been a serious problem. This perception is particular obvious for those economically active age groups. This perception is also found to be reversely correlated with education standards of respondents.

(b) Though 59.6% respondents felt the seriousness of CSSA abuse problem,

just slightly more than half respondents agreed that CSSA fraud is still a small part of all cases.

(c) The survey finds that respondents with higher ages are more inclined to

believe that abusing CSSA is serious (Table 5.5.2). Those with lower education attainment also tend to agree CSSA abuse as a serious issue (Table 5.5.3).

5.5.1 When respondents were asked to state their agreement to the often-

quoted statement that CSSA abuse is very serious in Hong Kong (Question V18), majority of them (59.4%) agreed or strongly agreed with this, only 28.0% disagreed or strongly disagreed with the statement (See Table 5.5.1, Appendix 2). According to Pearson Chi-Square tests, respondents in the age groups 30-39, 40-49 and 50-59 would significantly agree more that CSSA abuse is very serious in Hong Kong than other age groups; while respondents with lower education attainment would also agree more with the statement (Table 5.5.2 & Table 5.5.3).

5.5.2 In Question V17, more than a half (53.2%) of the respondents agreed or

strongly agreed that CSSA fraud is still a small part among all CSSA cases, only 35.7% disagreed or strongly disagreed with the statement (See Table 5.5.4, Appendix 2).

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Table 5.5.2: Do you agree that CSSA abuse is very serious in Hong Kong? by Age

T


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(a) Respondents admitted that there is discrimination against CSSA recipients. 5.6.2 For Question V23, more than half of the respondents (55.5%) thought there

is discrimination in Hong Kong society towards CSSA recipients (Table 5.6.1). According to Pearson Chi-Square tests, respondents with higher education attainment agree more with this statement than the others (Table 5.6.2).

Table 5.6.1: Do you think there is discrimination in Hong Kong society towards CSSA

recipients?

Frequency %

Yes 569 55.5

No 370 36.1


Total 1026 100.0

Table 5.6.2: Do you think there is discrimination in Hong Kong society towards CSSA

recipients? -by Education Attainment of Respondents


Matriculation or

above


Yes 86 48.3 267 56.0 213 58.8

No 61 34.3 174 36.5 131 26.2



Total 178 100.0 477 100.0 362 100.0


30

level or above) would significantly more agree with the statement than the others (See Table 10a & Table 10b, Appendix 2). It is deviated from the actual distribution among different categories of CSSA recipients (For details and discussion, please also refer to Table 1, Appendix 4.).

(c) There is an obvious and widespread mistaken perception that CSSA recipients are mostly new immigrants

5.6.4 For Question V15, majority of respondents (61.2%) agreed or strongly

agreed that most of the CSSA recipients are new immigrants, while only 28.6% of the respondents disagreed or strongly disagreed with it (See Table 5.6.3, Appendix 2). In addition, Pearson Chi-Square tests for statistical significance showed that respondents with lower ages (60 or below) or higher educational attainment (Secondary or above) would significantly more agree most CSSA recipients are new immigrants (See Table 5.6.4 & Table 5.6.5, Appendix 2). However, it is also deviated from the reality (See also Table 2, Appendix 4).

(d) Respondent tend to have an idea that the provision of CSSA will have

disincentive effects on work motivation. Those who are better educated then to be more agreeable to this worry.

5.6.5 Besides, there is an even higher proportion (74.3%) of respondents

believed CSSA will lower the working motivation of the CSSA recipients (See Table 5.6.6, Appendix 2). Respondents with higher educational attainment (Matriculation or above) would slightly agree more about this statement, according to Pearson Chi-Square tests (See Table 5.6.7, Appendix 2).

Table 5.6.10 Public Perceptions towards CSSA Recipients (Summary)

Strongly

Agree Agree

No

Opinion Disagree

Strongly

Disagree

Most of the CSSA recipients are unemployed 5.2 51.7 7.4 34.0 1.8

CSSA lower working motivation 16.7 57.6 6.0 18.4 1.3

Most of the CSSA recipients are new migrants 16.8 44.5 10.1 27.0 1.7

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E. Influences from the Mass Media

(a) The survey finds that the mass media is the major CSSA information provider to most people in Hong Kong.

5.7.1 In Question V5 of the telephone survey, majority of respondents (64.5%)

replied that they were usually or occasionally made aware of the information about CSSA by mass media, while there were only 34.0% replied they were seldom or never aware those information (See Table 5.7.1, Appendix 2). Result of Pearson Chi-Square tests showed that respondents with higher education attainment would be more aware the information about CSSA by mass media (See Table 5.7.2, Appendix 2).

(b) Television and newspapers are the two major sources of media to colour

peoples ideas on CSSA. 5.7.2 For survey respondents who did not know any CSSA recipient by

themselves, most (75.9%) claimed their information about CSSA was received from television, whereas 71.9% were from the newspapers. Radio and magazines are another two major sources of information about CSSA, there were respectively 33.3% and 19.6% of respondents said they get the information of CSSA from these two kinds of media. (Question V6b) (See Table 5.7.3, Appendix 2).

(c) Media exposure is positively correlated with some of the misinformation

held by the respondents. 5.7.3 Respondents aware more on CSSA information in media tends to agree

more that most CSSA recipients are new immigrants (Question V15) and the CSSA abuse is serious in Hong Kong (Question V18). This is seemingly a result of news reporting these two issues.

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Table 5.7.4: Do you agree that most CSSA recipients are new migrants? by awareness of

information in the media

Are you aware information about CSSA by media? Do you agree that most recipients are

new migrants? Usually Occasionally Seldom Never

121 307 118 76 Agree / Strongly Agree

62.7% 65.5% 60.2% 50.3%

58 116 57 57 Disagree / Strongly Disagree

30.1% 24.7% 29.1% 37.7%

14 46 21 18 Dont know / Not sure /

Forgotten / Hard to say 7.3% 9.8% 10.7% 11.9%

193 469 196 151 Total

100.0% 100.0% 100.0% 100.0%

Remarks: Chi square = 13.518, p < 0.05

Table 5.7.5 Do you agree that CSSA abuse is very serious in Hong Kong? by awareness of

information in media

Are you aware information about CSSA by media? Do you agree that CSSA abuse is

serious? Usually Occasionally Seldom Never

130 285 105 83 Agree / Strongly Agree

67.7% 60.9% 53.3% 54.6%

43 129 68 43 Disagree / Strongly Disagree

22.4% 27.6% 34.5% 28.3%

19 54 24 26 Dont know / Not sure/

Forgotten / Hard to say 9.9% 11.5% 12.2% 17.1%

192 468 197 152 Total

100.0% 100.0% 100.0% 100.0%

Remarks: Chi square = 13.356, p < 0.05

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F. Perception on Working Poor

(a) The survey finds that the problem of working poor (i.e. workers who are taking a job in labour market with low income and could not support their livings) has become a very serious problem in Hong Kong; and it begins to arouse more and more public concerns in the society.

5.8.1 In the telephone survey (Question V10), most of the respondents

(61.4%) agreed the problem is serious or very serious at present. About 20.0% of the respondents thought the problem is fairly serious and only 11.7% believed it is not serious or absolutely not serious (See Table 5.8.1, Appendix 2). According to Pearson Chi-Square tests, respondents with higher education attainment agreed less with this statement than the others (See Table 5.8.2 & Table 5.8.3, Appendix 2).

(b) The public also tend to agree that working poor should receive CSSA as

a remedy to their hardship. But still a significant portion of the public does not agree with the provision of CSSA to low income earners.

5.8.2 Similar results can be found in Question V12. About 68.1% of

respondents agreed or strongly agreed that allowing low-income earners to apply CSSA in helping them to solve living problems. Only 21.7% expressed that they disagreed or strongly disagreed this policy option (See Table 5.8.4, Appendix 2). In addition, Pearson Chi-Square tests showed that respondents with lower ages or higher educational attainment (Matriculation or above) would significantly more agree with the statement (See Table 5.8.5 & Table 5.8.6, Appendix 2).

(c) The idea of providing assistance in form of allowances to low income earners is widely supported by the community.

5.8.3 A great majority of respondents (86.6%) agreed or strongly agreed that

providing living allowances to the low income earners (e.g. travelling allowance, meal allowance) could help them to improve living conditions (Question V21) (See Table 5.8.7, Appendix 2). According to Pearson Chi-Square tests, respondents in the age group 18-29 agree more with this statement than the others (See Table 5.8.8, Appendix 2).

34

(d) Education attainment and income level are found to be correlated with perception related to CSSA.

5.8.4 It is observed that respondents with higher education attainment

(Table 5.3.5) or higher income level (Table 5.3.6) consistently agreed with the idea that access to social security is a social right of people; they are having higher awareness on the existence of discrimination against welfare recipients (Table 5.6.2); additionally, they are also more aware to the information about CSSA by the mass media (see Table 5.7.2, Appendix 2).

5.8.5 On the other hand, respondents with high education (Table 5.3.5) as

well as higher incomes (Table 5.3.6) showed more faith on self-reliance and less inclined to agree that working poor issues is serious in Hong Kong. It echoes the fact that younger respondents would perceive social security as a last resort to their problem than their older counterparts (Table 5.4.2).

35

Highlights on Major Findings

(a) The telephone survey indicates clearly the community of Hong Kong is still preoccupied by the idea of self reliance and tend to value personal hardworking strongly.

(b) Related to these believes and ideas come a very conservative perception on

CSSA, that CSSA has been quite commonly accepted only as a last resort of assistance. Upon this ideology, it could reasonably understandable that people tend to be easily alerted by any abuse and fraud in CSSA utilization. On the other hand, able bodied welfare recipients as well as working poor people could be easily attached with negative valuations.

(c) The survey proves that these negative ideas on CSSA recipients have been

very widespread in the community. Discrimination, misconception on CSSA and CSSA recipients are therefore found to be quite common among people particularly from the grassroots. Those negative ideas were also exaggerated by some simplified messages as spread around easily by the mass media.

The next chapter of this report will be devoted to discuss the issues from the CSSA users and potential users point of view. Cases interviews and group discussion provide some personal ideas and experience on CSSA. Specifically, the perception on CSSA, their readiness to utilize the protection, their subjective ideas on the possible stigmas and negative ideas on receiving CSSA, etc. will be explored in more details.

36

Chapter 6 Research Findings (Part II) Case Studies

Introduction 6.1 In this session, the findings from case studies on low income workers will be

outlined. The main focus of the case study is to explore the perception of CSSA recipients and low-income workers themselves on social security, CSSA and in particular Low-earnings CSSA. Their readiness to utilize CSSA and their subjective perception on the existence or not of social prejudice will also be explored. Here below will be a brief account on the sources of cases, the criteria of case selection and a brief profile of the interviewed cases. Then major findings will be presented and discussed. In order to maintain clarity, the discussion here will be descriptive and inferentially derived from evidence observed in the case interviews and group discussion processes. However, case illustrations and expressions directly from interviewees will be selected and attached in Appendix 3 for reference.

Sources of Interviewees 6.2 Interviewees for case studies were referred by various social services

organizers, labour unions and political parties in the community, namely, Hong Kong Association for Democracy and People's Livelihood (ADPL), Hong Kong Confederation of Trade Unions (HKCTU), Hong Kong Federation of Trade Unions (HKFTU), Industrial Relations Institute, Neighbourhood & Worker's Service Centre, and the Stewards Company.

Target Interviewees: Defining Working Poor

6.3 In reality, there is no official poverty line in Hong Kong, different definitions

are being adopted for measuring poverty by different bodies, while the concept of working poor is even blurred. Therefore, the organizers and social workers have to make their own decisions on what exactly working poor is in referring case interviews. CSSA standard as reference is readily available; the standard as recognised by the Commission on Poverty is also easily understandable; while the composition measurement of household income and individualize personal income could affect whether a single case is to be defined as working poor or not. These basic criteria for case selection are discussed and attached as Appendix 3.1.

37

The Discussion Guideline

6.4 A semi-structured interview guide was used (attached as Appendix 3.2), so

that informants could express themselves freely. This allows more flexibility for investigative probing during the interview process. Discussions were recorded with the consent of participants. Each session lasted from half to one-and-half hours.

Profile of Interviewees 6.5.1 24 individual interviewees and a group of cleaners who were either

low-income workers or CSSA recipients were sampled for case study. Detailed profiles of the interviewees are attached as Appendix 3.3. Here below is a brief account on their major characteristics.

(a) Income Status of the Interviewees

6.5.2 With regard to the employment status of interviewees, 6 of them were

employed full-time, 11 were employed as part-time or day-labourer, while 7 were unemployed. Out of the 24 persons and a group interviewed, only four were totally living on CSSA and four were working and receiving Low-earnings CSSA. Three interviewees claimed that they were CSSA recipients but have quitted now; and another one had just stopped receiving Low-earnings CSSA and started to work.

6.5.3 Amongst the 17 employed interviewees, 14 of them could be officially

classified as Working Poor People (i.e. individual with a monthly income below 50% of the median income of the working population), while only 8 of them were living in Working Poor Families (i.e. Households with a monthly income below 50% of the median income of the households of the same size and with at least one member are working poor).

(b) Other Demographic Profile of the Interviewees 6.5.4 The ages were evenly spread among the interviewees. The oldest interviewee

was 60, while the youngest was 30. The average age was 47.3. It is found that, the average age of the recipients of CSSA and Low-earnings CSSA were

38

39.75 and 39 years old respectively, which were much younger than those who were not receiving CSSA (Average = 51.25). 11 interviewees were males while 13 were females. The group of bus cleaners was composed of eight female aged between 45 and 55.

6.5.5 Concerning the living places of the interviewees, majority were living in the

New Territories: 7 were living in Kwai Tsing District, 6 living in Tuen Mun and Tin Shui Wai and 5 living in Tsuen Wan District. Amongst the remaining 6 interviewees, five live in Kowloon and one live on Hong Kong Island. Out of the 24 interviewees, fifteen of them live in public housing estates, 4 of them live in private rental apartments, and 5 were living in their own properties. The group of bus cleaners was all living in public housing estates at Tin Shui Wai Area.

Major Findings A. Utilization of CSSA Benefits 6.6.1 Amongst the 24 interviewees and the group interviewed, only four were

totally living on CSSA and four were working and receiving Low-earnings CSSA. Three interviewees claimed that they had to receive CSSA but quitted then, and another one had just stopped receiving Low-earnings CSSA and started to work.

6.6.2 Coincided with the findings of the survey, most interviewees stated that they

applied for the CSSA as a last resort when they were in need.

6.6.3 For those who had tried to submit application for CSSA, the most common reasons for their application are:

(a) being unemployed for a long period of time, (b) looking after family members (children or sick persons), and (c) suffering from serious sickness.

39

Table 6.1: Some Selected Expressions of Interviewees and Their Situations on Utilization of

CSSA Benefits

Case No Quotations

(1) Long-term unemployment [006(L)] I tried really hard to find a job. I spent a lot of time looking for a job, and I still

couldnt find one. My familys financial situation was really bad off. Even I do not

spend any money and do not eat, I still have to finance my wife and children (

)

He said that at one point there was only HK$300 left in his bank account. He

could not borrow from relatives anymore, and applying for CSSA was his last

option. ()

[013(C)] He was unemployed for a few months, had no money for the rent, and had to rely

on a community food bank. Eventually he sought help from the SWD and applied

for CSSA.

(2) Need to look after family members [010(L)] I did not mean to rely on CSSA. I was forced to come back to Hong Kong (from

Macau) because my boyfriend has left, and I had to look after my daughter by

myself. I was unable to go to work. I am not someone who abuses CSSA!

[015(C)] When her husband became partially paralysed () from a stroke 14 years

ago, and later developed a kidney disease (), she had to take care of husband.

She could not work outside the home anymore and began receiving CSSA for

some income.

(3) Serious sickness [019(E)] He was a CSSA recipient ten years ago when he suffered from serious nose and

eye diseases,(&), needed several operations, and could not work.

At that time, his four children were still very young and his wife couldnt work

either, so they applied for CSSA to solve the urgent financial problem.

(4) Others [016(C)] He was told by his friends that he could receive more money from CSSA than as a

security guard (), not to mention the free time.

Therefore, he quitted his job and began caring for his toddler son, who was

previously being looked after by his grandparents. He kept on receiving CSSA

and did not seek a job even when his son began going to primary school, since

this would be a better choice for him.

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B. Switching to Low-earnings CSSA

6.7 Several outstanding reasons were expressed why some CSSA recipients switch to receive Low-earnings CSSA: (a) Some CSSA recipients expressed that they did not want to fully rely on

Governments Assistance, so they could accept a low paid or part-time job to earn some incomes while their salaries were still low, and thus switch to Low-earnings CSSA.

(b) Some interviewees found CSSA payments were not adequate to meet

their needs, so they tried to find a part-time job or to accept a low paid job, and switched to receive Low-earnings CSSA. The combination of earned incomes and the Low-earnings CSSA, they were able to improve the economic situation slightly;

(c) Some interviewees reported the requirements of The Support for

Self-reliance (SFS) Scheme () were very harsh; so some of them would choose switching to Low-earnings CSSA and escape from the Scheme.

Table 6.2: Selected Expressions of Interviewees on Switching to Low-earnings CSSA

Case No Quotations

(1) Internal factors [006(L)] When he was unemployed, he stayed at home and did nothing every day. He

found himself in extremely low morale () and thought that his

confidence would improve by going to work again. He did not want to totally rely

on CSSA and wanted to earn for his own living.

[010(L)] She thought that although SWD had deducted her CSSA payments by HK$100/

month, the income for her family actually increased by HK$700 after she started a

part-time job. She felt happy she could now use the additional income to pay the

electricity bill and other basic expenditure.

(2) External factors

[010(L)] I had to take care of my daughter, so I couldnt always attend the lessons

assigned by SWD, especially if my daughter became sick. If I failed to meet the

minimum requirement of 80% attendance, my CSSA payments would be deducted.

So it is better for me to work. Eventually, she found a part-time job and was

exempted from the lessons.

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[024(L)] When her husbands residency rights in Hong Kong were approved in mid-2005,

he was counted as a family member by SWD even though he had not lived in

Hong Kong for seven years and was not entitled to receive CSSA. The single

parent allowance was then terminated immediately and SWD staff requested her

to join the Support for Self-reliance Scheme and to find a job.

C. Reasons for Not Applying for CSSA

6.8.1 The majority of interviewed low-income workers reported they were not

receiving CSSA. A number of them even expressed they have never applied for CSSA. The most frequent reasons quoted were:

(a) they thought they are still able to work and earn money; (b) they wanted to act as role models to their children and the new

immigrants; (c) they thought they are not eligible to apply; (d) they did not want to disclose personal information, and (e) they had poor experiences in the past.

Table 6.3: Selected Expressions of Interviewees on the Reasons Not to Apply for CSSA

Case No Quotations

(1) They thought they are still able to work [014(E)] We are able to work. Why shouldnt we work? ()

She thought that it is a laziness for people to stay at home and do nothing

constructive, that it was really dull and meaningless (

).

[022(E)] Even in the worst days, when I divorced and my sons were very young, I asked

my mother-in-law to look after my son, and I went to work... I thought I was able

to earn a living, so I would not let myself be idle and ask SWD for CSSA (

).

(2) They want to act as role models of children and new immigrants [003(U)] People like me, who were born and grew up in Hong Kong, would prefer

working hard to make a living, even if the job is very demanding and low-paid.

(). I am different from those new migrants! He

thought that only new migrants would apply for CSSA even if they were able to

work.

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[020(E)] She told a story of her friend who receives CSSA, She once scolded her young

son for not doing homework. The boy answered, You dont work, either! You just

use the governments money! Why do I need to study hard? (

) These words made my friend feel very

badly. She explained, Young children may not understand why their parents

need to receive CSSA. They do not know whether their parents are lazy, or if it has

been hard to find a job. Therefore, she preferred setting an example for her own

children, and would rather go to work instead of receiving CSSA. She wanted to

show her children that they should earn money by their own efforts.

(3) They think they are not qualified to apply [001(U)] He thought that in order to meet CSSA requirements, he had to sell his property

and use up all his savings. He thought it was very unnecessary and unreasonable

to put his life into disarray in order to apply for CSSA.

[003(U)] He had never applied for CSSA because he owned property that he had bought

with his former wife many years ago. He had heard that CSSA recipients could

not own property, so he thought he could not apply.

[025(E)] She thought that although she herself was low-paid, after adding up the income of

other family members, the household income would be over the limit, so she did

not apply for CSSA. However, the income was more or less the same as a family

on CSSA.

(4) They do not want to disclose personal information [014(E)] She heard that CSSA applicants needed to reveal a lot of personal information and

have to go through several investigations by governmental officers (

). She did not want to feel reduced by SWD personnel ().

6.8.2 Most of these interviewees expressed that, if they encountered financial difficulties, they would firstly try to solve that by themselves (e.g. using personal savings, pledging belongings or borrowing from relatives and friends). Though they did not apply for CSSA at this moment, many of them expressed they were willing to seek help from Government if they are really eligible. These comments from interviews were very similar to those we had collected from the telephone survey.

6.8.3 The interviewed front-line social workers added that, since household was

used as a unit in calculating a family income, if there was a family member firmly opposed to apply CSSA (e.g. he/she did not want their relatives and employers know), the application also could not be successful.

43

D. Perception on CSSA 6.9 Echoed with the findings in the survey, most of the case interviewees were

able to point out that CSSA system is a basic protection and human right of Hong Kong citizens, which provides effective economic supports to any body in need, especially the disabled and elderly. In addition, a few of them can even point out that the CSSA is a system which can stabilize our society through preventing crime and social unrests.

Table 6.4: Selected Expressions of Interviewees on Perception on CSSA

Case No Quotations

[001(U)] He believed that if there was no CSSA in this society, the needy and the poor

would either go begging or committing crime for survival (

). The society must then become unstable,

many riots or social unrest would follow. Therefore, he thought CSSA is

necessary for a modern society like Hong Kong.

[005(E)] She thought that CSSA should mainly be used to help the disabled and elderly,

since they may not have economic support from their families. If families face

temporary financial problems, they can also seek help from CSSA.

E. Opinions on CSSA Abuses 6.10.1 When interviewees were asked whether they think abusing CSSA was a

serious problem in Hong Kong, it was quite obvious that interviewees with CSSA-application background tend to have more positive comments for CSSA recipients, while others tend to have comments against the recipients. Their comments are illustrated as follows:

(a) Opinions from Interviewees without CSSA-application Background

6.10.2 Interviewees who did not have CSSA-application experiences would commonly believe abusing CSSA was a very serious problem at present. However, their viewpoints were often solely supported by some hearsay information, but no solid evidences.

6.10.3 Some interviewees even believed that the CSSA recipients could get large

sum of payments, and their income was even better than the salary earned

44

from work; and therefore, many recipients were unwilling to work. Based on such knowledge to the CSSA recipients, these interviewees often believed the current inspection of the SWD was not strict enough.

Table 6.5: Opinions from interviewees without CSSA-application background

Case No Quotations

(1) Interviewees supported their beliefs by hearsay information [008(E)] He thought that many people around him were abusing CSSA. Some of them were

very young and healthy, but were unwilling to work. He also heard that, many

one-way permit holders went to apply CSSA once they arrived at Hong Kong. He

knew that some of those new immigrants would rather stay at home and play

mahjong everyday.

[019(E)] He believed that abusing CSSA was very common nowadays. He knew a number

of cleaners had resigned and went to apply for CSSA, and he also heard that some

CSSA recipients had deceived SWD and kept on working secretly. They would

collect their salary in cash, so that SWD cannot recognize it.

(2) Interviewees believed recipients could get large sum of payments [007(E)] She learned from her relative that, one of her friends was living with his three

young children, and that person could receive over $10,000 CSSA payment per

month and do not need to work. She thought such amount of CSSA payments did

allow the recipients to live an abundant life, so they wont consider to work (

).

[014(E)] She knew that, many healthy and able-bodied CSSA recipients () were

unwilling to work, since they could simply rely on CSSA and get large sum of

payments. She thought the recipients could live more comfortably than workers

who work day and night. Therefore, she strongly agreed with the statement that

CSSA is serving the lazy people ().

(3) Interviewees believed current inspection of the SWD was not strict enough [021(E)] She knew that many CSSA recipients had secretly worked for many years without

being inspected. She suggested SWD should deeply inspect all recipients from

time to time to update their real living conditions and to prevent CSSA abuses.

(b) Opinions from Interviewees with CSSA-application Background

6.10.4 Nevertheless, from the information provided by the interviewees with

CSSA-application background, it is apparent that some of their actual

45

experiences contrasted sharply with the above-mentioned comments.

6.10.5 First of all, the interviewees (included both single and family recipients) generally expressed that, the amount of CSSA payment was actually very limited, and it was not possible for the recipients to enjoy a comfortable living. They believed CSSA abuses were not as common as the publics thought, since the current inspection of the SWD was already very strict. Most of the recipients were really in need.

Table 6.6: Opinions from Interviewees with CSSA-application Background

Case No Quotations

(1) The amount of CSSA payment was very limited [012(C)] People dont understand my misery () - I only get HK$1,600 a month! They

always think we [CSSA recipients] eat well (), are unwilling to work,

and are lazy! To be frank, the Government is not paying HK$19,700 but only

$1,600 to us! We even have a hard time buying enough food! (

)

She thought her budget (HK$1,610) was very tight, and there was definitely no

money left at the end of the month. To reduce expenses, she said she took showers

at public sports complexes, used public toilets, and drank tap water. She did not

use lights at night.

[013(C)] He thinks CSSA is not enough to really live on: it is only enough for survival (

)., and that people on CSSA can not really afford

much in Hong Kong, where the cost of living is so high.

[020(E)] We used to be very thrifty, but the budget was still very tight. In fact, it was

painful to use the Governments money (

).

She thought that CSSA payments were inadequate for daily expenses, so she had

to plan how to use the money very carefully.

(2) The CSSA abuses were not common [012(C)] She thought that cases of CSSA abuse and fraud were more frequent in the past,

that CSSA recipients today were actually victims, and the SWD is becoming

stricter in assessment and monitoring. She said that it was now difficult to abuse

the system.

[018(E)] He thought that the majority of CSSA recipients were in need of financial support.

It was the handful of people who abused CSSA the minority who should be

punished, (), but not all CSSA recipients.

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F. Discrimination (Prejudice) against CSSA Recipients 6.11.1 From the in-depth interviews, various types of discrimination could be easily

identified, it is obvious that these stereotypes could be felt by people taking CSSA, while it is also true that these discriminative attitudes were also popular among the poor and working poor themselves.

(a) Discrimination from Non-CSSA Recipients to

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