Garret Ahearn (Fine Gael)
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I move:

That Seanad Éireann approves the following Order in draft: Civil Law (Miscellaneous Provisions) Act 2022 (Section 4(2)) (Scheme Termination Date) Order 2025, a copy of which was laid in draft form before Seanad Éireann on 6th March, 2025.

Norma Foley (Kerry, Fianna Fail)
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I thank the Members of Seanad Éireann for making time today to discuss this motion concerning the order I propose to make to extend the termination date of the financial contribution scheme for hosts of temporary protection beneficiaries from Ukraine, known as the accommodation recognition payment, ARP, scheme. The extension of the scheme is only item for consideration today.

The scheme was introduced in July of 2022 in response to the outpouring of support from the Irish public, who opened their homes to provide shelter to Ukrainians seeking protection in Ireland. It involves a tax-free monthly payment of €800 per property used to accommodate beneficiaries of temporary protection, irrespective of whether the property is vacant or shared with the host. The rate, originally set at €400, was doubled to €800 from 1 December 2022 following a Government decision. This coincided with the offer a home scheme, launched by the Minister for housing and run by local authorities in conjunction with the Local Government Management Agency. That scheme has been invaluable in making mainly holiday homes available for beneficiaries of temporary protection. To date, there have been almost 3,400 properties allocated under the offer a home scheme to accommodate more than 10,340 beneficiaries. The ARP monthly rate is not linked to the costs incurred by the person providing accommodation. It is merely intended to recognise the valuable contribution of those who host beneficiaries.

I acknowledge the generosity of people who have pledged accommodation and who have opened their homes and hearts to displaced people from Ukraine. I also acknowledge the great work of the Irish Red Cross and its partners in matching beneficiaries to pledgers and in supporting them.

A 2024 report by the International Federation of Red Cross and Red Crescent Societies on private hosting arrangements for displaced Ukrainians in a number of European countries acknowledged the role of financial support packages like the ARP in enabling the hosting period to extend. It should be noted that the ARP scheme does not apply where there is a rental agreement in place and that it is not intended to substitute rent.

To date, almost €272 million has been paid to almost 23,000 applicants hosting more than 52,200 beneficiaries. Some 37,600 Ukrainians are currently in more than 20,000 properties under the scheme. There has been consistent growth in the scheme over time. That growth continues, even though the future of the scheme has been uncertain. The scheme is due to end on 31 March 2025 but may be extended by ministerial order, subject to Oireachtas approval.

As the temporary protection directive has been to extended March 2026, I propose to make an order to extend the scheme to mirror that extension and provide certainty to those living in hosted arrangements. This scheme is not only a means of recognising the part played by hosts. It has been instrumental in supporting Ukrainians to integrate within local communities nationwide. It has been pivotal in diverting Ukrainian individuals and families away from State-contracted accommodation, which is often in hotels and guest houses. The scheme is also far more cost-effective for the Exchequer. The average cost of the accommodation recognition payment per person per night is €13, compared with an average of €45 per night in commercial self-catering accommodation.

The scheme has allowed the Department to move away from a total reliance on tourism and hospitality settings and has enabled the Department consolidate contracted accommodation portfolios. As the numbers in hosted accommodation have increased, the numbers in State-contracted accommodation have fallen from a high of more than 58,600 at the end of 2023 to just over 25,800 at present. As a result, the number of beneficiaries in hosted accommodation now exceeds those in contracted accommodation.

I acknowledge the concerns expressed on the potential impact of the scheme on the private rental market. I accept that it is likely, particularly in some rural areas, that €800 a month tax free may have been more beneficial to an owner than making the property available on the rental market. However, as those who attended the recent Irish Red Cross briefing in Leinster House will be aware, its survey found that the vast majority of hosts - 91% - are not landlords. They have never been registered with the Residential Tenancies Board and they do not wish to become landlords. For many, their primary motivation has been solidarity with Ukraine, which is a very important consideration. Therefore, clearly, rather than interfering with the rental market, the scheme has been responsible for introducing a stream of accommodation that would not otherwise have been available, a view expressed by a number of support organisations in submissions to the Department regarding the extension of the scheme.

That being said, I am cognisant of Senators' concerns and have recently met with Government colleagues to consider this scheme. Some of my current functions will shortly transfer to the Minister for Justice. I know he will continue to work as part of the whole-of-government response to the Ukraine war, with a focus on providing access to emergency temporary accommodation to those fleeing the Ukraine conflict who request it, in line with Government policy. The ARP scheme will be included in the transfer of functions.

Should the scheme's extension be approved by the Oireachtas, further consideration will be given to operational improvements to the scheme. The future of the scheme will also need to be reviewed in the wider context of considering what comes after the temporary protection directive. While the scheme is not without issues, to not extend it would risk placing significant pressures on an already strained private rental market. The potential loss of hosted accommodation risks displacing some 37,000 beneficiaries, many of whom would be forced to compete in the private rental market.Humanitarian hosting facilitated by the ARP scheme represents a sustainable, community-driven response that is built on the principle of dignity. It goes beyond simply providing shelter and basic needs. It offers respect, compassion and a sense of belonging in community. I wish to take this opportunity to acknowledge the huge wave of solidarity throughout the country in response to the war in Ukraine in meeting accommodation of Ukrainians, whether in commercial or hosted settings. In addition, I acknowledge the great work of local communities and how they have actively supported families in integrating through access to employment and indeed spectacularly through education.

With regard to today's proposals, Part 2 of the Civil Law (Miscellaneous Provisions) Act 2022 introduced the scheme with the termination date of 31 March 2023. That date reflected the duration of temporary protection under the 2001 Council directive. The directive had subsequently been extended a number of times and each time the ARP has been extended to mirror those extensions. In a continued spirit of unity and support for the Ukrainian Government and its citizens, the European Commission has extended temporary protection until March 2026. It is therefore appropriate to make an order to extend the ARP scheme to the end of March 2026. Section 4(2) of the Civil Law (Miscellaneous Provisions) Act 2022 enables me to make such a change to a date considered appropriate following consultation with the Ministers for Social Protection, and Public Expenditure, National Development Plan, Delivery and Reform. I confirm to the Seanad that I have undertaken those consultations and both Ministers support the extension of the scheme

In wishing to extend the scheme, I was mindful of the need to continue to make provision for a financial contribution to assist in maintaining the availability of accommodation for beneficiaries of temporary protection. I note the amendments that have been tabled concerning the monthly rate of payment. I want to be abundantly clear that the motion relates only to extension of the scheme for a further year and nothing else. There is no other consideration. I advise Members that it is intended in due course to reduce the monthly ARP from €800 to €600 from June 2025, with the first reduced amount payable in July. That decision has been made following consultation with, and agreement by, the relevant Ministers. Such reduction seeks to address concerns voiced in the Oireachtas and other fora on the possible displacement effect that ARP is having on the private rental market. It is also a means of winding down the scheme in an orderly and gradual way with due regard to all those involved. That matter will be taken forward by the Minister for Justice following the transfer of functions.

The 2022 Act requires a draft order to be laid before and approved by both Houses of the Oireachtas. The motion was taken in Dáil Éireann yesterday. Approval of the motion in Seanad Éireann is essential to ensure the continuation of the scheme beyond March 2025. The scheme has been an effective instrument of public policy that we cannot afford to abruptly lose. Approval of this motion will provide certainty to all involved in hosting arrangements.

Fiona O'Loughlin (Fianna Fail)
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I thank the Minister for being here and I wish her well in her new position. I have no doubt that she will serve with the same energy, enthusiasm and integrity as she did in her previous portfolio.

I welcome this important debate. The Fianna Fáil group supports the motion. I pay tribute to the Helping Irish Hosts organisation, including Angie Gough, Aideen Gough and Jill Robinson, who are a fantastic team of committed people who did an incredible amount of work in preparing hosts and communities and matchmaking. They came together as a group after the horrific events of January 2022. I had to think about that because it is three years ago, which is quite incredible when I think about it. They quickly realised that Ukrainians had to flee their country and would need a warm, welcoming home and environment. This group got together to empower individuals throughout the country to make their homes open and to offer a céad míle fáilte, which the Irish people are so renowned for. As the Minister rightly pointed out, 91% of the people who offered their homes were not traditional landlords. They were certainly not doing it for an economic benefit and gain, but to help support those fleeing from war in their own country. They worked to expand what they were doing to make hosting a sustainable practice. In meeting and knowing many of the hosts and many of the Ukrainians who have stayed with the hosts and host families, it really became a very worthwhile practice. However, it has not been without its challenges. There are always going to be issues and challenges with every programme that we have and every intervention that is put in place to ensure that the right thing is done.

The motion reaffirms the solidarity of the Irish people with Ukraine. Given that we have witnesses increased aggression by Russia against Ukraine over the past few weeks, we have to reiterate that we stand firmly with Ukraine. We have to continue to mobilise assistance throughout our country to address the biggest movement of refugees in Europe since the Second World War. The motion extends the ARP to 31 March 2026 and this aligns with the extension of the European Commission's temporary protection directive and, as the Minister outlined, will reduce the monthly payment under the scheme. That will commence in July, which gives time to those who are hosting to adjust. This will provide certainty to Ukrainians that are living in hosted arrangements, their hosts and the NGOs that are supporting them. Over the past month or two, there was a lot of concern throughout the country when people felt that this scheme might cease at the end of March this year and would not continue. It is really important that it is continuing and that that certainty is provided. There are some challenges and issues with the scheme but the failure to extend it would certainly risk placing significant pressure on an already strained private rental market. It would displace 37,000 beneficiaries. It has been a huge issue throughout the country and particularly in those areas that have been very well-known for tourism and had significant tourism businesses. The fact that many of hotels were taken up for hosting caused problems for local economies so the last thing we want to do is to add those problems.

It is important to note that the ARP is a goodwill payment. It is not linked to the actual costs incurred by the person providing accommodation. It is intended to recognise the very valuable contribution of those hosting the beneficiaries. The fact that so many got involved in this scheme has been instrumental in helping Ukrainians to integrate within local communities, local schools and local community organisations and to get much-needed employment. I underline the importance of allowing the Department to move away from a total reliance on tourism and hospitality settings and facilitating the consolidation of the State-contracted accommodation portfolio. As numbers in hosted accommodation have increased, the numbers in the State-contracted accommodation have fallen from a high of more than 58,000 at the end of 2023 to approximately 25,800 at present, which is a 50% reduction. The number of beneficiaries in hosted accommodation now exceeds the number of those in contracted accommodation, which is important. We hope the extension will be approved by the Seanad today. Further consideration will be given to operational improvements to the scheme and the responsibility of the ARP will be transferred to the Department of justice, home affairs and migration, as the Minister has said. That is important because over recent months, there has been a chasm whereby it was difficult to get answers, particularly with regard to Ukrainians and those in other systems who are beneficiaries of protection, when they had to move for different reasons from one place to another. It was really difficult to get a proper and adequate response to why those movements were needed and to be able to make an intervention where it was needed. This is particularly true for children going to school to ensure they would be able to stay within the environment they were comfortable in. They have experienced so much displacement in their short lives and we want to ensure they have the best possible opportunities while we host them in Ireland.

The Minister's order brings clarity to where this will be placed in the future. I thank her and commend the motion to the House.

Aubrey McCarthy (Independent)
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I welcome the Minister to the House and congratulate her on her new role. I welcome the opportunity to address the vital matter of the accommodation recognition payment, ARP. This initiative, launched in July 2022, has proven to be a powerful and effective mechanism for providing support to beneficiaries of temporary accommodation, particularly those fleeing the war in Ukraine, under the temporary protection directive.

As Albert Einstein once said, in the middle of every difficulty lies an opportunity. When faced with the challenge of how to respond to our European neighbours having been invaded, Ireland created an ingenious scheme, a model of emergency accommodation out of largely unused housing stock, and that was in the middle of our own housing crisis. The ARP has shown that even in the face of immense challenges, innovative solutions that transform lives can emerge. Initially introduced to support those fleeing the war in Ukraine, this scheme has provided accommodation pathways for more than 50,000 people, proving that financial incentives, when paired with the goodwill of the Irish, can unlock housing opportunities that previously did not exist. As the Minister pointed out, many landlords who participated in the scheme were motivated primarily by a desire to help, yet the tax-free benefits of the ARP proved very significant in encouraging participation on a much larger scale. This combination of selflessness and practical support from the Government has resulted in thousands of people being accommodated and offers a model that I believe, as someone who is involved in the homelessness area, could be adapted to address Ireland’s ongoing homelessness crisis.

The ARP scheme is not just a short-term emergency response; it is evidence that alternative accommodation pathways can work well at scale. It has also demonstrated that people can be housed through creative, community-based housing solutions. We must bring the homelessness crisis into this debate. The ARP framework is evidence that we can provide housing for thousands. If adapted thoughtfully, the scheme could unlock thousands of additional homes, offering stability and dignity to those currently without shelter. Instead of limiting what has proven to be a working model, Ireland perhaps has the opportunity to expand it and turn a crisis-driven response into a long-term housing strategy. It is a stretch, but it could work.

The ARP scheme has been a wonderful initiative. As the Minister mentioned, it offers a tax-free payment to those hosting temporary protection beneficiaries and has enabled thousands of Irish households to open their doors and hearts to people in dire need. Yes, it has cost €256 million, but that is a fraction of what it would have cost if we had used emergency accommodation. It has helped more than 22,600 hosts and accommodated 51,300 individuals. As of March 2025, 20,000 hosts are availing of this payment, with 37,000 individuals in accommodation. Beyond these numbers, the ARP scheme has demonstrated real and meaningful success in both economic and social terms. By harnessing the goodwill of communities, it has provided an economically viable alternative to what the Government has been using as emergency accommodation, such as hotels, which has been significantly more expensive and less conducive to social integration.

One of the most significant successes of the ARP scheme, which the Minister already outlined, is how it activated previously untapped housing stock. A staggering 91% of hosts who joined the scheme had never rented out their properties, meaning much of this accommodation was not part of the private rental market. These properties were largely used for family purposes, lying outside of traditional rental supply. The scheme has shown that when structured correctly, incentives can encourage property owners to open their doors and provide essential accommodation to those in need. This is critical evidence that similar mechanisms could be used to support people experiencing homelessness, particularly when so many properties across the country lie underutilized.

While we celebrate the achievements of the ARP, there are challenges, but also opportunities, that demand our attention. The proposed extension of the scheme to March 2026, outlined by the Minister, is a welcome step in the right direction. I have concerns regarding the Government’s intention to reduce payments from €800 per month to €600 per month. I acknowledge that is not what the motion is about, but when the payment was €400, it did not work, so we need to be very careful. It is clear a reduction in the sum will place further strain on hosts already facing challenges, including financial costs and sharing space. As the Minister mentioned, the Irish Red Cross survey found that many hosts are motivated by altruism and wanting to help people but that financial support remains crucial to ensuring their ability to continue providing accommodation. If hosts feel unable to manage these risks, there is a risk we will lose capacity at a time when, as I know personally, we can least afford it.

I propose we consider expanding the ARP scheme to include individuals on the emergency housing list. This expansion could provide immediate relief to those in urgent need and encourage property owners to bring more stock into the housing market. We could perhaps leverage this scheme as a proactive solution to ease pressure on emergency accommodation. This approach would bridge the gap between temporary and long-term accommodation and is certainly worth considering. Aligning the scheme with Ireland's broader housing strategy, which I have spoken about in this House, would strengthen its impact and demonstrate clear leadership from the Government in addressing the housing crisis. These changes would not only amplify the scheme’s success but also help tackle housing shortages more effectively.

With more than 15,000 people currently in emergency accommodation, the need for bold, effective and outside-the-box thinking and action has never been greater. If a scheme like the ARP were expanded rather than curtailed, it could play a transformative role in alleviating homelessness. The infrastructure, willingness and financial framework already exist. We have proven that. Rather than focusing solely on emergency accommodation such as shelters and hotels, we have an example of how private individuals, as Senator O'Loughlin said, can become part of the housing solution if given a goodwill incentive. A cost-benefit analysis of the ARP scheme should be conducted. The Minister, Deputy Foley, said it costs €13 per day compared with €45 per day for State accommodation. Such an analysis would undoubtedly highlight the scheme's cost-effectiveness, reinforcing my case for it to be extended.

The ARP scheme has been a beacon of hope and has worked very well. It has demonstrated what can happen in Ireland when compassion and practical solutions come together. As the Minister stated, it is a testament to the generosity and resilience of the Irish people. Its success shows that if we address complex issues like housing and Ukraine, we can work collaboratively and make a difference. Let us not lose sight of the scheme's potential. Extending it to March 2026 is essential, but we must go further. Expanding the scheme to include people who are homeless, leveraging it for transitional housing and addressing integration challenges are major issues. I urge the Government to reconsider the proposed reduction in payments and ensure that hosts are fully supported.

Together, we can create a model that addresses immediate housing needs. It is a great opportunity to seize in order to make a difference in the area of housing. I spoke about this in 2016 in the Oireachtas, and said then that when we help others we find ourselves receiving gifts we never expected.

Sharon Keogan (Independent)
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Hear, hear.

Malcolm Noonan (Green Party)
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Before the next speaker, I welcome the guests of Charles Hearne, our facilities manager, from the UK Parliament, including the leader of the delegation, John Owen, and Lady Usher of the Black Rod, Sarah Clarke. You are very welcome to the Upper House. We hope you enjoy your visit to Dáil Éireann and to Ireland.

Garret Ahearn (Fine Gael)
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I also welcome our guests. The Minister is welcome to the House. I wish her well in her new portfolio. She will have a busy couple of years, but we are here to support and help her in any way we can. I acknowledge the work she did on St. Patrick's Day – not everyone sees those ministerial duties being carried out. I had the privilege of being in London and the UK Parliament where she represented Ireland and the Government abroad. She spoke incredibly well on behalf of the people of Ireland at a number of events. She spoke about the opportunities we have in being an open economy and about bringing business to Ireland. She also spoke to the diaspora in the UK. I acknowledge her work in that regard and thank her for it.

The Fine Gael party supports the motion. This is an important initiative that was brought forward in March 2022 when the war in Ukraine began. As other speakers said, if it were not for the generosity of people across this country in opening their homes and vacant houses to help Ukrainians fleeing a dreadful war, things would have been difficult. People did that not knowing for how long they would be doing it. We sometimes forget that. We thought the war could last one or two weeks, or perhaps a month or two. People took in Ukrainians who they never met in their lives and did not know without any consideration for long they would stay. Some people have been in the same home with the same family for three years. There has been no question of changing the arrangement and families continue to support Ukrainians regardless.

This is a good initiative that supports such arrangements. As Senator O'Loughlin indicated, it is a goodwill gesture. People do not do this for the money. Rather, they do it because of their humanity in wanting to help fellow citizens across the world who are being displaced due to an unjust war. Obviously, it is important that we extend the scheme.

The scheme will come under the remit of the Department of Justice in the future. It is to be hoped we will not have an issue in a year's time. There was some uncertainty over the past couple of weeks about whether the scheme would be extended. We all knew it would be, but we should halt that uncertainty if the scheme needs to be extended next year. We had elections and Government formation, as well as other issues in the Lower House to deal with, but it is important that we do not leave things until the last week. I totally understand why that was the case this year.

As the Minister stated, this is a recognition payment for families and people who are opening up their homes. It saves the State a great deal of money. The State is saving €1 million to €2 million per day through people offering their homes rather than using alternative accommodation. While we have spent over €250 million on the scheme, if it was not in place, the cost of alternative accommodation would be close to €1 billion at this stage. The scheme is to be welcomed and supported. We all know families across the country, including in my county, Tipperary, who have done phenomenal work to support Ukrainians. Many Ukrainians are working in towns and villages across the country and play a vital role in our economy.

As the Minister knows from her previous role as Minister for Education, over 70,000 Ukrainian children are going to school across Ireland. They are learning and continuing to develop and progress. They have integrated really well into schools. There is a small school in my tiny village in Tipperary where it has been positive for the Irish kids in the school to experience people from other countries, backgrounds and viewpoints and the challenges they face. It develops our children who may not have experienced such diversity in a very positive sense.

It is important to reiterate what the Minister said. The motion is about whether we will extend the scheme. That is what we are deciding on today. I totally support extending the scheme. It is important that we do that. A number speakers referred to the proposal to reduce the payment of €800 to €600. We have to remember that the payment was originally €400. It is not the case that we are reducing the payment dramatically. It is a tax-free payment. Essentially, it is the equivalent of a normal rental property of over €1,000 per month because most people who rent properties pay 50% tax on rental payments. It remains an attractive payment.

We do not want to wind the scheme down any time soon, but we need to begin the process given that many Ukrainians are now leaving and the numbers coming in have reduced. In that sense, I understand why we need to change the scheme in line with the current situation.

The Minister said the scheme is being changed in part to address concerns of those in the private rental market. We know from a Red Cross report and our communities that most people availed of the scheme out of the goodness of their hearts and that it had nothing to do with getting money or their being landlords in the rental sector. I would be interested in knowing from where the concerns expressed by the Department of housing are coming.

Leaving that aside, the scheme is being amended in line with the changing dynamics and the change in the number of Ukrainians we have in the country. This is the beginning of the process of winding down the scheme. A payment of €600 tax-free for any individual who is taking in Ukrainians is an attractive amount of money for people to receive. We support the scheme. I thank the Minister for her contribution.

Malcolm Noonan (Green Party)
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I welcome the Minister of State, Deputy Noel Grealish, and his guests to the Gallery. They are all very welcome to Seanad Éireann.

Nicole Ryan (Sinn Fein)
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I move amendment No. 1:

To insert the following after “6th March, 2025”: “: provided that this Order shall take effect only after the Civil Law (Miscellaneous Provisions) Act 2022 has been amended to provide for the Accommodation Recognition Payment (ARP) Scheme termination date to be extended only for the following:

- existing recipients with respect to the beneficiaries of temporary protection currently benefitting from the scheme where those beneficiaries of temporary protection have satisfied a means test similar to those applicable for other housing assistance payments;

- new applicants who propose to host a beneficiary of temporary protection in their property which is also their own primary residence and who have not availed of the Rent-a-Room Scheme in the previous 12 months; ensuring that the ARP does not further distort the rental sector; and

- recipients who are not in receipt of any additional or ‘top-up’ payments from a beneficiary of temporary protection".

Joanne Collins (Sinn Fein)
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I second the motion.

Nicole Ryan (Sinn Fein)
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Tá mé anseo inniu mar dhuine Éireannach agus Úcránach. I stand here today as both Irish and Ukrainian. I want to remind people why this scheme was introduced in the first place. When the war broke out in Ukraine, families were torn apart and people fled with nothing but the clothes on their backs. They arrived in Ireland in desperate need of safety. Thankfully, the ordinary Irish people stepped up. They opened their homes their hearts, and showed the true meaning of solidarity, which That is something to be proud of.

However, what have the Government parties done? They have done what they do best, namely, divide and deflect. Instead of people holding them accountable for a broken housing system, for skyrocketing rents, the cost of living and squeezing the life out of ordinary working people, they have turned neighbour against neighbour. Instead of asking why families cannot afford a home, why young people are forced to emigrate or why the State has failed to build public housing, the Government wants the conversation to be about Ukrainians. They want people to point fingers at refugees instead of looking at the people who are in power who have failed us.

Here is the reality: it is unfair. It is unfair to the average person who is working full time, trying to save for a deposit, maybe living back home with their parents, and they get nothing. There are Government schemes to help people put themselves on the property ladder, but let us call them what they are. It is like putting lipstick on a pig. They sound great in the headlines but they are anything but straightforward. People have to fight tooth and nail and go through mountains of red tape. They get stuck on waiting lists with absolutely no timeline and many just give up. While the Government pats itself on the back, people are left in limbo, scrimping, saving and still getting nowhere. It is unfair to the people who are seeking asylum from other countries and who are thrown in the direct provision system left to rot for years, unsure if they will ever be allowed to stay, while other groups are given a different path. It is unfair that money can be found to fund schemes for some, yet the Government still cannot pass the occupied territories Bill, turning a blind eye to human rights violations elsewhere. Let us be clear: not all Ukrainians benefit from the €800 per month APR. Some are in direct provision centres, just like asylum seekers from other countries, left to rot in a system that dehumanises them. There is no means test. A Ukrainian person working with a full-time job, which could be a very well-paid job, still qualify, while people struggle on lower incomes and are shut out of the housing market altogether. That is not solidarity; that is just bad policy.

What is the plan? The Government wants to extend the scheme to March 2026 and will reduce the ARP to €600, but nothing is confirmed. How long will that go on for? What is the exit strategy for people? We all remember the pandemic unemployment payment. That was a lifeline during the Covid pandemic but when one hand gave, the other took. Once lockdowns were lifted, people were hit with massive tax bills. The same will happen again. The working class will once again be the ones paying the price. We have seen it time and again. Ordinary people are struggling to pay rent, mortgages, childcare costs, energy bills, you name it. Yet, instead of fixing the problem, the Government finds new ways to take from those who can least afford it. The ARP is money that does not go to Ukrainians and while many have genuinely opened their homes in the spirit of generosity, there are also those who have profited massively, collecting thousands of euro in tax-free money while others struggle to put a roof over their heads. The people fleeing war did not design the system but some have certainly taken advantage of it.

The Government says it is protecting people from homelessness, and we agree there should be no cliff edge, but let us be real. There is a big difference between a family's generosity in hosting people in their home and a private landlord taking advantage of a tax-free scheme that outcompetes local renters. That is why Sinn Féin has proposed amendments. They introduce fairness to that scheme which, while well intended, has been exploited. They ensure the payment goes only where they are genuinely needed and not as an extra stream of unregulated, tax-free income. They limit the scheme to primary residents only, not just landlords with empty properties. The amendments introduce a means test, and that is something that exists in every other housing assistance scheme. They prevent further distortion of the rental market which has been pushed beyond breaking point. More importantly, they demand accountability and a real plan

Let us not lose sight of the bigger picture. The problem is not Ukrainians. This is not us turning our backs on people who are fleeing war, who seek asylum, who want to work and who want to contribute. This is about ensuring that compassion does not become exploitation. It is fairness for those seeking safety and for those struggling to build a future in their own country. The problem is a Government that refuses to build enough public housing, has let vulture funds and corporate landlords dominate the market and would rather have us fighting among ourselves than uniting for real solutions.

This scheme does need reform. It needs oversight and fairness but, most importantly, we need a Government that stops playing divide and rule games and actually fixes the issue for everyone.

Patricia Stephenson (Social Democrats)
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I am sharing my time with Senator Harmon.

Seán Kyne (Fine Gael)
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Is that agreed? Agreed.

Patricia Stephenson (Social Democrats)
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I thank the Minister for coming to discuss this today. The point she discussed around certainty, which Senators O'Loughlin and Ahearn also raised, is important. The fact we are dealing with this motion four days before the end of the month suggests that there has not been certainty. I support the theory of the scheme but I wish it had been arranged earlier so that families were not living in a state of flux and not worrying about where they were going to live. This extension should not have been arranged at the last possible minute. We have heard at length the positive benefits of this scheme for both the Ukrainians living with host families and the hosts themselves. According to the Irish Red Cross, 91% of hosts reported good experiences. We all attended a good briefing a few weeks ago. A total of 81% of them wanted to extend the pledge. Senator Ahearn also mentioned how much we are saving the State by using this scheme. I support that point.

In recent weeks, a number of Ukrainians have been forced to leave their accommodation, whether it was hotels or student accommodation. That is slightly separate from this discussion but I want to highlight the retraumatising effect that can have on people, particularly children, when they have settled into their schools and communities and then have to move long distances away and start again. I want to link those two issues. Both those families, and those living with hosts, have started to put down roots, have made friends and have been working in their local areas and so it is really important that this scheme be extended to ensure that can continue.

I support the extension of the scheme but I will propose an amendment later to retain the accommodation recognition payment at €800 per month for the year. Senator Ahearn pointed out that it had been increased from €400 to €800 per month but that was because it was not sufficient in the first place and, therefore, maintaining it at €800 per month for the entire year is only fair. As has been mentioned, the payment serves as a token of appreciation or generosity to these hosts and acknowledges the expenses they incur while hosting people. Lots of people are doing it out of solidarity. They are losing money on this and reducing the payment is quite punitive. It is within that framework that the scheme should be extended and the ARP remain at €800 per month. According to the Irish Red Cross, 70% of hosts are somewhat motivated or incentivised by the value and would not be able to continue hosting without the payment. Hence, it is important that we keep the amount the same.

I wish to highlight, as the Minister did, that this payment is largely not going to landlords. This is going to people that are outside of the landlord sector, with a spare room, a granny flat or something in the back garden that they would not normally rent out. They are doing it as an act of solidarity. That is why it is important that we continue to recognise the lengths that they are going to. It is not always easy to have strangers in your home. They are not strangers anymore after three years but the reduction is reducing how the State sees the work these families are doing through hosting.

The major risk in not renewing the ARP in its current form is that it will increase uncertainty for hosts and for the Ukrainian guests, and inflict further challenges on people who have already faced huge challenges and an horrific war. Of course, it will also going to deepen the homelessness crisis, as Senator McCarthy spoke to really well.

The Social Democrats want to have an early discussion on this and what happens to this scheme post-March 2026 in a timely manner. The Minister stated the payment would reduce to €600 per month from July. We need to maintain the current payment until March 2026, but it should be around July that we have a clear policy guideline on what will happen post 2026. We need to be talking in a timely manner so that we can, as the Minister said, provide certainty to host families and Ukrainians on what will happen this time next year. It is about proper planning and forward thinking.

Laura Harmon (Labour)
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I will be brief. I support the extension of the ARP and the scheme. It is a success story for Ireland in terms of hosting and our response to this humanitarian crisis. Research from the Ukraine Civil Society Forum states that 86% of the hosts report that the ARP is important for them if they are to continue hosting. This finding would also suggest that more that 30,000 refugees could face the danger of becoming homeless if the scheme is not continued. As has already been said, the ARP is far cheaper than emergency accommodation. It saves the State between €1 million and €2 million per day, based on current numbers. It is also taking pressure off the private rental market and helping people to integrate better into society in terms of our communities and in terms of learning English. We need certainty and forward planning in this. We need to have proper evaluation as we go forward on how it is working and we need to take that into account as to how we respond to other humanitarian crises and others who are seeking refuge here in Ireland.

I echo the comments of Senator Stephenson and I will be supporting her amendment later. There is a huge difference between €800 and €600, which represents a 25% cut. We see the cost of living and the rate of inflation rising in the country so the amount needs to be maintained at the current level. People need to be encouraged to take it up and to continue with their hosting agreements.

Sharon Keogan (Independent)
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I want to address a matter of great importance, which is the financial support and accommodation provided to Ukrainian refugees in our nation. As we extend our hands in solidarity to those fleeing the horrors of war, it is imperative we do so with a clear, sustainable plan that ensures the welfare of both the refugees and our own citizens. I express my unwavering support for humanitarian aid. Ireland has a proud tradition of offering refuge to those in need and we must continue to uphold this legacy. We must also recognise, however, the challenges that come with huge influxes of new people into our system. Our resources are not infinite and the strain on housing, healthcare and social services is palpable. The accommodation recognition payment, ARP, seems to be a commendable initiative. It acknowledges the generosity of our citizens, who opened their homes to those in need. We must ask ourselves, however, whether we are truly addressing the root of the problem or whether we are just merely attempting to temporarily put a Band-Aid on a much larger wound.

Housing is a fundamental human right and yet we see both refugees and our own citizens living in cramped hotel rooms and makeshift accommodation. This is not the Ireland we aspire to be. We must ensure both citizens and those genuine refugees whom we are able to take in have access to decent and safe housing. This also means that we must balance the needs of citizens with those of refugees. As we are all aware, we are currently in the midst of one of the worst housing crises in Europe. According to figures supplied in the Dáil, yesterday and today, we have 37,000 Ukrainians staying in ARP-funded accommodation. However, statistics for February 2025 from the Ukraine Civil Society Forum state that a total of almost 80,000 Ukrainians remain in Ireland. This means that the status is unknown of more than 16,000 Ukrainian arrivals.

Ukrainians can enter the private rental market and are eligible to access rent allowance. I warned the Government previously that this would put too much pressure on the rental market for residents. If people are refugees, they should either be accommodated by the State or they should be placed under the roofs of private citizens who wish to host them. If these same arrivals also wish to work here and pay their own way for their needs, they should be able to do so, provided they go through the correct procedures and meet the criteria, like everyone else. It should absolutely not be the case that they are set loose on a housing market in crisis, with blank cheques backed up by social welfare systems which they have not paid in to. Unlimited generosity is not sustainable in the long term and will ultimately serve neither ourselves nor those in need. I urge the Government to review these figures and to make the necessary decisions that will balance the needs of citizens and Ukrainian refugees.

In addition to the previous speeches, I have highlighted the need for a comprehensive plan to manage the welfare of refugees and asylum seekers. We must address the legislative gaps that exist, such as those related to the national childcare scheme and the recognition of driving licences. These gaps create unnecessary barriers for refugees trying to integrate into our society and access essential services. I have also emphasised the importance of educational supports for Ukrainian students in Irish universities. We must ensure these students have access to the resources they need to succeed, including recognition of their qualifications and support for rural transport. Education is a key factor in helping refugees to rebuild their lives and to contribute to our society.

Let us remember that, by our actions today. we will shape the Ireland of tomorrow. We must balance compassion with practicality by ensuring our support for refugees is sustainable and effective. Together, we can build a society that is both welcoming and resilient and where every individual has the opportunity to thrive.

Seán Kyne (Fine Gael)
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Before I invite the next speaker, I welcome guests of Deputy Catherine Ardagh, the teachers and pupils of Coláiste Cholmcille, Ballyshannon. You are welcome to the Seanad and I hope you enjoy your day. The next speaker is Senator Eileen Flynn.

Eileen Flynn (Independent)
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I welcome the extension of the ARP scheme. As an activist, I think it is unjust how we treat one set of refugees, who are white and European, compared with how we treat people from the Middle East. It is a bit like years ago and even today with the gap between the rights of settled people and those of Travellers. More than anyone else here, I know exactly what it is like to be treated as somehow less than someone else. One set of refugees are treated with dignity, respect and love and all this jazz that we are talking about today, which is absolutely brilliant, but brown and black people are not afforded the same human rights, equality, dignity and respect but are attacked and abused on our streets.

I and the Civil Engagement Group welcome the extension until 26 March of the ARP. As other Senators have pointed out, this is not a solution for the homelessness crisis. This conversation has nothing to do with the Irish homelessness crisis. We have had a homelessness crisis in this country for at least 25 years. I know it has been more to the fore in the past five or six years but we have had a homelessness crisis for years. I do not think the two of them go hand in hand. Many homeless people I know would not like to share a home with another family. They want their own home, their freedom and a roof over their own heads. This would not be a solution for people who are homeless in Ireland.

I will not speak for long. I do not have a lot of notes. For me, what really stands out is the injustice and unfairness of how we treat black and brown refugees here. The Irish Red Cross and other organisations are in favour of extending this scheme to people and children from other countries who are also fleeing war, having gone through horrible, traumatic experiences, just like the white children of Ukraine, black children from Yemen and other countries are being traumatised as well. We are not here to say one child matters more than another. That is something the Department needs to think about.

Sarah O'Reilly (Aontú)
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The Minister is very welcome to the Chamber. The Government is drowning in dysfunction. The implementation of the accommodation recognition payment is another example of this dysfunction. The scheme was originally set at €400 per month, it was then doubled to €800 and the proposal now is to reduce it to €600. The Government has offered no clear rationale for this. The entire implementation of the scheme has been haphazard.

The accommodation recognition payment was introduced as an emergency measure to support those who made the admirable decision to open their homes to vulnerable individuals fleeing war-torn countries. Unfortunately, ARP payments are now distorting the rental market as the scheme is far more advantageous to landlords than renting to the private market. In many cases, landlords are receiving ARP as well as totally unregulated top-up payments. We should be trying to ensure there is fairness and equality throughout the country. We are putting other people in the rental market at a serious disadvantage. Young couples who are not entitled to the accommodation recognition payment are being locked out of the market, while others who are entitled to it can offer the payment to potential landlords as well as an additional sum from their own earnings.

I support the proposed amendments. It is only fair this scheme should be means-tested. There is no other housing assistance payment where a beneficiary does not have to be means-tested. We should always strive to support the vulnerable and those in need, but we must acknowledge that if people are now working here and earning a decent wage, they should not be eligible for this payment. We can offer humanitarian support while putting in place sensible measures that ensure money is not being paid out to those who are not in genuine need. I do not wish to see anyone at risk of homelessness but if these amendments are not supported, I will have to vote against the motion as the scheme in its proposed form is unjust and flies in the face of equality. If we are advocating for anyone to be treated equally, surely everyone should be means-tested.

Norma Foley (Kerry, Fianna Fail)
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I should have taken the opportunity at the outset to congratulate all Senators on their election and to wish them well. I thank them all for their contributions and for taking the time to carefully consider the motion to extend the ARP scheme.

As provided for under the Civil Law (Miscellaneous Provisions) Act 2022, the draft order has been laid before both Houses of the Oireachtas. It cannot be made law, however, until a resolution approving the order has been passed by each House. Therefore, approval of the motion by Seanad Éireann is essential to ensure the scheme does not lapse and continues for a further year. The scheme is the sole issue for consideration today. I am keenly aware from correspondence I received of the need for certainty for hosts and beneficiaries, who fear they will face a cliff edge as regards supports. This scheme's extension will give clarity and assurances to those involved.

I reiterate that failure to extend the scheme presents significant risks. Should the scheme fall, some 37,600 beneficiaries could potentially be displaced from their existing accommodation. If Senators vote down the scheme today, we are talking about 37,600 people who are currently beneficiaries who would be affected. That would be a regressive step for families who are integrating into communities and being given a sense of agency. Moreover, it would represent a significant cost to the State and have an adverse impact on the tourism sector.

I acknowledge the concerns raised by Senators, especially regarding the possible displacement effect the scheme has on the private rental market, which we all know is under extreme pressure. I note the proposed amendments to limit the extension of the scheme to beneficiaries of temporary protection covered by the scheme who satisfy a means test. It was also proposed to restrict the scheme to applicants intending to host beneficiaries in their own residence, and who have not availed of the rent-a-room scheme in the previous 12 months, so as not to affect the private rental sector. It was proposed to extend the scheme to applicants not in receipt of additional or top-up payments for beneficiaries. I oppose that. It appears that the matters raised in the proposed amendments to the ARP scheme would require an amendment to the primary legislation that established the scheme, namely, the Civil Law (Miscellaneous Provisions) Act 2022. Therefore, these are not matters that have a bearing on the motion under discussion, which is simply to extend the scheme and nothing more.

On the issue of means-testing for beneficiaries, it is important to note that the ARP is a goodwill payment to recognise the valued contribution of those who have opened their homes to those fleeing the war in Ukraine. The payment is to the host in recognition of his or her generosity and not to the beneficiary. The payment is not intended to substitute rent. It is not available where a rental agreement is in place. The legislation is clear in this regard.

With regard to so-called top-ups, the ARP does not create any obligation for beneficiaries in the accommodation, such as payment of rent or provision of services. However, a beneficiary may agree with a host to contribute towards certain household costs, such as utilities.

The amendment proposing to limit the scheme to those hosting in their primary residence would result in reduced availability of accommodation for beneficiaries in need of shelter. It would preclude unoccupied homes offered through the offer-a-home scheme, such as holiday homes, which have been a valuable source of accommodation.

It is clear the scheme has been responsible for introducing an accommodation stream that would not have been otherwise available and which has been a vital element of the State's response to the Ukraine crisis in providing shelter to families who have lost their homes. The accommodation recognition payment is acknowledged as an effective instrument of public policy that we cannot afford to lose at this point. It is in our collective interest to ensure this scheme does not fall. I hope Members will support the motion. Should the scheme be extended, its operation will be the subject of planning across the relevant Departments. As I said, the future of the scheme will need to be reflected in the wider context of considering what comes after the temporary protection directive. It was established at a time of crisis. It is better to have an opportunity to scale down the scheme in an orderly, considered fashion than to abruptly end it without due regard for all those involved.

As mentioned, and I appreciate the contributions regarding the moneys paid, it is intended to reduce the monthly ARP from €800 to €600 from June 2025, with the first reduction occurring in July. That decision was made following consultation with an agreement by the relevant Ministers. Such a reduction seeks to address concerns voiced here today and in other forums on the possible displacement effect the ARP is having on the private rental market. I confirm that research has been undertaken by the Department of housing on the impact, if any, of the ARP scheme on the private rental market. The findings of that research are likely to inform the scheme's future direction.

A draft order on the reduced payment will be brought before the Oireachtas shortly by my colleague, the Minister for Justice, following the transfer of functions. Again, I will be abundantly clear. I confirm that only one matter is under consideration here today and that is to extend the scheme. There is no reference to payment or funding. It is simply to extend the scheme. If Senators vote down the scheme, they will vote down the opportunity for 37,600 people to avail of their existing accommodation under it.

I sincerely thank all who have welcomed Ukrainians into their homes as a result of the ARP scheme and provided them with a safe space, human connection and a level of autonomy over their own lives and those of their families. I again record my appreciation of the work undertaken by the Irish Red Cross and its partners in mobilising pledged accommodation and supporting hosts and beneficiaries alike. I confirm I am not in a position to accept the amendments to the motion proposed today, as I already outlined. The draft order being considered cannot be made law until a resolution approving the order has been passed by each House. Therefore, Senators' approval of the motion is essential to ensure the continuation of the scheme for a further year.

Mark Daly (Fianna Fail)
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I welcome to the Gallery Katie Merriman, a transition year student from Harold's Cross Educate Together school. She is most welcome. I also welcome Olivia D'Arcy from Tipperary who is here on work experience. She is in charge of Cahir Youth Tidy Towns, plays a bit of football and I can assure the House she will be in and around these halls in a few years to come. They are both very welcome and I thank them for being here.

Patricia Stephenson (Social Democrats)
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I move amendment No. 2:

To insert the following after “6th March, 2025”:

“: provided that this Order shall not reduce the financial contribution payable to those hosting temporary protection beneficiaries”.

Eileen Flynn (Independent)
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I second the amendment.

Mark Daly (Fianna Fail)
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When is it proposed to sit again?

Seán Kyne (Fine Gael)
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Next Tuesday at 2.30 p.m.

Mark Daly (Fianna Fail)
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Is that agreed? Agreed.