Objective 3	Objective 4	Objective 8	Objective 9
Provide the best education for disabled people	Provide opportunities in employment and economic development for disabled people	Support quality living in the community for disabled people	Support lifestyle choices, recreation and culture for disabled people

Context: issues, activities and trends

The objectives in this chapter aim to achieve participation and independence for disabled people in all areas of life. This includes enhancing their access to education, employment, housing, transport, recreation, culture and their freedom to make lifestyle choices.

Disabled people want to live ‘ordinary’ lives where they experience the same sorts of choices, rights, and responsibilities that a non-disabled person expects to experience in their life. For this to happen the assumption is that it is necessary for government to consider what support services and environmental accommodations need to be provided in all areas of life.

Adapted from a model developed by the National Health Committee, 2003

Another assumption is that if disabled people are able to participate in all areas of life, with the same sorts of opportunities non-disabled people experience, statistics indicating the overall outcomes for the disabled population will be similar to those for non-disabled people. Currently there is a significant gap.

The introduction to this chapter reports on issues and trends for five areas of life. These indicate the current status of disabled people in relation to the overall desired outcomes of the Disability Strategy.

Education: issues and trends

The 2001 Disability Survey found significant differences in education outcomes for disabled people compared to people without impairments, as shown in the table below.

2001	Disabled adults in households	Non-disabled adults
No educational qualification	39%	24%
Highest qualification a school qualification	34%	42%
Post-school qualification	27%	34%

Source: 2001 Disability Survey, Statistics New Zealand

The analysis of the 1996 and 2001 disability surveys showed there was a 7 percent increase in the proportion of disabled children receiving some form of special education, a 9 percent increase in the proportion of disabled children receiving educational assessments and a 6 percent increase in the percentage of 0-4 year olds participating in early childhood education. There was also a slight increase in the percentage of disabled adults living in households who were enrolled in formal education, but the university enrolment rate was slightly lower.

The 2001 Disability Survey showed that most caregivers of disabled children had been able to enrol their child in the school of their choice. However, 7 percent (an estimated 5,000) said they had not been always been able to do so. The most common reason reported was that the school was unwelcoming.

A survey of parents of deaf students in mainstream schools found that while teacher aides are a central component of deaf students’ education, and potentially have a considerable impact on the quality of the learning outcomes of these students, most aides lack the necessary skills (McKee and Smith, 2003).

The DPA’s Annual Report 2003 outlined concerns that education funding does not follow a person through life, with the result that parents and disabled people have to fight for disability support services at each level of education. The sector has also expressed concern that the current education funding framework is not flexible enough to respond to the diverse needs of disabled students.

A substantive programme of research is underway in the area of special education. This should help build a body of knowledge about what practices are effective.

Another key initiative in education is the development of a code of practice – Achieving Equity: New Zealand Code of Practice for an Inclusive Tertiary Environment for Student with Impairments. This is a resource for tertiary providers setting out best-practice standards.

Employment: issues and trends

The 2001 Disability Survey observed significant differences in labour market outcomes for disabled people compared to people without impairments. The difference is particularly pronounced for full-time employment outcomes, as shown in the table below.

	Working age disabled population	Working age non-disabled population
Any employment	58%	77%
Full-time employment	29%	65%
Benefit receipt	30%	11%

Source: 2001 Statistics New Zealand Surveys, Ministry of Social Development

A Human Rights Commission equal employment opportunities (EEO) report, released in June 2004, noted that disabled people are over-represented in lower-paid occupations and the large majority of disabled people are employed in organisations not subject to mandated EEO practices. The authors noted the number of disabled people working in the public service has declined in recent years and considered disabled people to be one of the most disadvantaged groups in the current New Zealand labour force.

The Human Rights Commission figures show that, over the four-year period from July 1999 to June 2003, the number of pre-employment and employment complaints relating to discrimination on the basis of disability rose each year. The authors also noted that ‘major gaps exist in our knowledge about the position of disabled people in the labour force’.

Since this report, a multivariate analysis of disability data from the 2001 Disability Survey and the 2001 Household Labour Force Survey has been undertaken by the Ministry of Social Development. It confirms that disability has the effect of greatly diminishing the likelihood of full-time employment. The effect is much smaller when the outcome examined is any degree of employment (ie part-time employment).

A key initiative in this area was announced in the 2002 Budget. It included an additional $44 million over four years for employment support for disabled people. In addition, the Ministry of Social Development has a major project underway to improve services for sickness and invalids beneficiaries and to help them move into paid employment, if they want to.

Health: issues and trends

The 2001 Disability Survey shows that 15 percent of disabled adults living in households reported an unmet need for at least one type of health service. This was a slight increase compared to the 1996 survey. Over 17 percent of disabled children reported an unmet need for at least one type of health service, which is the same as the 1996 survey.

International literature reviews done by the National Health Committee and the Mental Health Commission found that disabled people have higher mortality and morbidity than non-disabled people. The same reviews show there is a lack of health promotion and illness prevention information available in accessible formats.

Low income and discriminatory attitudes are considered barriers to ensuring disabled peoples’ health. There is also evidence of poor prescribing practice and unnecessarily high levels of medication among adults with intellectual disability.

A key initiative to address these concerns is the Ministry of Health’s Reducing Inequalities Intervention Framework. This involves tools to encourage mainstream health and disability support services to make a positive contribution to reducing inequalities, and a monitoring framework.

Another key activity is the undertaking by the Ministry of Health to address issues raised by the National Health Committee on the neglect of the health care of adults with an intellectual disability.

Housing: issues and trends

The 2001 Disability Survey found disabled adults were less likely than adults without a disability to own or partly own their home. As almost half of disabled adults aged 15-64 years have incomes of less than $15,000, affordability is a key issue in their access to housing.

Comparisons between the 1996 and 2001 surveys show no shift towards disabled people having an increased choice in housing.

The report, To Have an ‘Ordinary’ Life (National Health Committee, 2003), noted that in many cases community homes for people with intellectual disabilities have replicated the institutional practices they were meant to replace.

Consultation undertaken by the Housing New Zealand Corporation in 2002 found not enough choice in accessible housing for people with mobility and sensory difficulties, and a lack of suitable rental-housing stock, particularly single units for people for whom living alone is the most appropriate option.

This consultation also heard reports that some local authorities use town-planning mechanisms to restrict the locations available for supported accommodation for disabled people. A survey commissioned by the Mental Health Commission in 2000 found that many district plans contain definitions, rules and policies for community care centres which affect the location of accommodation for disabled people. There are also claims of the inappropriate use of building and fire regulations adding inappropriate compliance costs for supported accommodation.

The major activity in this area is the development of a New Zealand Housing Strategy. This has included consultation with disabled people and the draft includes specific consideration of disability issues.

Another key activity in this area is the new Building Act 2004 and the consequential review of the building code. The Act introduces new quality standards and provisions for access by disabled people, and the review will take these into consideration.

Transport: issues and trends

Transport is critical for participation in work, education, social life, recreation and community activities. Many disabled people rely on public transport as their only means of transport.

Between the surveys of 1996 and 2001, there has been an increase in the percentage of disabled adults reporting they could not get to a bus stop or railway station easily from home (24 percent in 2001 compared to 17 percent in 1996). The 2001 Disability Survey also found that an estimated 47,700 disabled adults and children said they would travel on buses if they were made easier for disabled people to use.

The main difficulties for disabled people are boarding and getting off trains, buses or aeroplanes, and inadequate seating. Also, because most disabled people are on low incomes, the cost of more accessible transport such as taxis is a barrier to their use.

On a positive note, there has been a decrease in the percentage of children prevented from long distance travel, from 5 percent in the 1996 survey to 1 percent in the 2001 survey.

The total mobility scheme provides a subsidised transport service through taxi vouchers and financial support for the installation of wheelchair hoists in taxi vans. Currently the scheme is not available in many regions and it is often not promoted. Nevertheless, a growing demand means that often the regional budgets are capped. Furthermore, many disabled people cannot afford even the subsidised taxi fares.

Key activity in this area has begun under the government’s Transport Strategy 2002. This strategy includes a commitment to improve the consistency and quality of the total mobility scheme across New Zealand and the development of a framework to measure improvements in access and mobility.

The other major activity is the inquiry into accessible public land transport initiated by the Human Rights Commission. This inquiry resulted from the considerable numbers of complaints about transport not accessible to disabled people. Their consultation report uses the concept of an accessible journey to identify the barriers. The report shows that at each point of the journey, from finding the information about timetables and accessible services, to arriving at their destination, many disabled people face considerable problems. In many cases there are no available services.

Gaps in activity

Many of the gaps in this chapter should come under the scope of the review of long-term supports for disabled people being led by the Office for Disability Issues in 2004–2005. This review should provide policy solutions in the longer term. However, there is a lack of shorter-term solutions to address the sometimes urgent support needs of disabled people to give them access to education, employment, health services, housing and transport now.

Reported activity between July 2003 and June 2004

Objective 3: Provide the best education for disabled people

3.1 Ensure that no child is denied access to their local regular school because of their impairment

No specific action is reported.

3.2 Support the development of effective communication by providing access to education in New Zealand Sign Language, communication technologies and human aids

The Ministry of Education reports:

• developing a curriculum for teaching New Zealand Sign Language in mainstream schools, to be completed by September 2005
• the contract with the Royal New Zealand Foundation of the Blind to provide educational support services now includes curriculum materials in electronic format, particularly XML, suitable for ready conversion to accessible formats, eg Braille
• the Vision Education Agency developed national standards for the production of collage materials for blind and vision impaired students
• completing a review of allocation and funding processes for assistive technology.

The Ministry of Health reports:

• jointly developing an inter-agency sensory action work plan with Group Special Education which identifies over 20 pieces of joint work, ranked for priority
• a review of the use of cochlear implants was completed in June 2004
• launching a new hearing screening pilot in February 2004
• Deaf Education Aotearoa New Zealand has established a Service Design Group to design improved educational services consistent with the Disability Strategy.

3.3 Ensure that teachers and other educators understand the learning needs of disabled people

The Ministry of Education reports:

• research involving the perspectives of students with physical impairments, which is expected to be published in 2004
• commissioning a literature review of the definition and diagnosis of and education support for children with severe behaviour problems
• a national programme of action research into effective services for children and young people with autistic spectrum disorders, involving nine project teams of educators, families, and children and young people (a summary of the projects will be made available in early 2005)
• an Enhancing Effective Practice in Special Education Research and Professional Development programme which aims to increase the awareness of effective practice in working with children with moderate and high special education needs who require significant curriculum adaptation
• a review to identify which special education teaching practices best improve outcomes – a literature review has been completed and a pilot study of 25 schools, including special schools, kura kaupapa Māori and schools with classes for students with special educational needs, will be completed in 2004
• five schools that trialled the Index for Inclusion self-review tool to help schools in developing their culture, policies and practices to support students with special educational needs, found positive learning experiences.

3.4 Ensure that disabled students’ families, teachers and other educators have equitable access to the resources available to meet their needs
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3.5 Facilitate opportunities for disabled students to make contact with their disabled peers in other schools

No specific activity is reported on these two actions.

3.6 Improve schools’ responsiveness to and accountability for the needs of disabled students

An Education Review Office report on the extent to which the education provided in schools meets the needs of disabled students was completed in June 2003. A summary publication, Education Evaluation Reports in Brief 2002-03: School Sector, was released to schools in August 2004.

All Ministry of Education purchase agreements include a clause on considering the needs of disabled people. Specialist providers are required to indicate their contribution to the Disability Strategy.

3.7 Promote appropriate and effective inclusive educational settings that will meet individual educational needs

The Ministry of Education reports:

• an extensive engagement process with disabled people, their families and whānau, and educators about local special education services and resources – all views and aspirations will be reflected in a summary of information to be used for ongoing service and policy development
• district level special education offices have formed 16 local reference groups
• an advisory reference group for autistic spectrum disorders provided advice to the Ministry of Education
• services at the Homai National School for the Blind and Vision Impaired were informed by the views of students gained during the preparation of their individual education plans
• continued work with local communities to develop networks of learning support, aimed at reducing the fragmentation of services and encouraging a greater collaboration of provision.

3.8 Improve post-compulsory education options for disabled people

The Ministry of Education reports that tertiary education organisations get a Special Supplementary Grant to contribute towards supporting students with disabilities who have high-cost support needs. Information from tertiary providers about participation, retention and achievement statistics and reports on disability support are being analysed.

A resource centre for deaf and hearing-impaired tertiary students has been established in Auckland. This will offer services from August 2004. The overall aim of the centre is to raise participation and achievement by deaf and hearing-impaired tertiary students in the Auckland region through the provision of assistive resources.

Objective 4: Provide opportunities in employment and economic development for disabled people

Planning and training for entering employment

4.1 Provide education and training opportunities to increase the individual capacity of disabled people to move into employment

The Department of Labour reports that the Community Employment Group supported 13 capacity-building and/or community employment initiative projects for disabled people.

The Ministry of Social Development reports a policy review which identified a number of options to strengthen the Training Incentive Allowance programme. These have not yet been put into effect.

The Ministry of Economic Development reports offering a disability scholarship in 2003 to enable a person with a disability to study at a university.

4.2 Enable disabled people to lead the development of their own training and employment goals, and to participate in the development of support options to achieve those goals

No specific activity is reported for this action.

4.3 Educate employers about the abilities of disabled people

The Department of Labour, in partnership with the EEO Trust, has completed a project, People Power – Successful Diversity at Work, aimed at promoting the value of a diverse workforce to employers. The project involved the collection of around 50 successful workforce diversity stories from New Zealand employers. Disabled people are highlighted among these case studies, which are available through the EEO Trust’s website. Selected case studies are also featured in a publication available from the Department of Labour.

4.4 Provide information about career options, ways to generate income, and assistance available for disabled people

The Department of Labour publication, WorkINSIGHT, has included a generic profile on the barriers disabled people face entering employment, along with information on organisations that support disabled people in their transition to work.

4.5 Investigate longer-term incentives to increase training, employment and development opportunities for disabled people

The Department of Labour reports that their future of work research fund has targeted labour market issues for disabled people.

4.6 Ensure a smooth transition from school to work

The Department of Labour reports identifying the problems facing young people with disabilities in making the transition from school to work. Work is beginning on policy options for addressing the issues.

4.7 Investigate the requirements of the International Labour Organisation Convention on Vocational Rehabilitation and Employment, with a view to ratification

No specific activity is reported on this action.

Employment and economic development

4.8 Encourage the development of a range of employment options recognising the diverse needs of disabled people

The State Services Commission reports extending the Mainstream programme to fund at least 20 new two-year placements. The Mainstream programme is a supported-employment programme for disabled people with significant impairments that operates across the State sector. Currently, its coverage extends to 146 State sector agencies and 554 schools, with around 205 placements.

The ACC reports the start of a pilot return-to-work programme to provide opportunities in employment for disabled people who, because of their injury, would not otherwise be likely to enter mainstream employment. Work has been commissioned from the Alan Bean Centre to identify ways of helping these claimants back to work.

The Department of Labour reports work on a set of occupational health and safety resources to help staff recognise disability issues and reduce barriers. It also reports completing a major literature review looking at comparative international practice in getting injured people back to work.

4.9 Ensure disabled people have the same employment conditions, rights and entitlements as everyone else has, including minimum wage provisions for work of comparable productivity

The Department of Labour reports the introduction of the Disabled Persons Employment Promotion Act (Repeal and Related Matters) Bill, which covers the operation of registered sheltered workshops. Changes relating to this Bill, including the end of blanket exemptions from the minimum wage, are being implemented over a transition period that began in 2001 and expires on 1 July 2007. These changes include:

• working with key disability groups to educate staff and residents of vocational rehabilitation services and sheltered workshops about the changes
• developing guidelines for under-rate worker permits and the transitions to waged work
• setting measures and initial targets/standards for sustainable employment – it has been agreed these measures will cover income support beneficiaries, including non-work tested clients.

4.10 Make communication services, resources and flexible workplace options available
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4.11 Operate equal employment opportunity and affirmative action policies in the public sector

Most departments reported on their EEO and good employer practices with regard to disabled people and claimed the appropriate recruitment, selection, training, mentoring and provision of support to help overcome barriers to staff reaching their potential. Some departments noted the use of wellness leave and flexible work practices by all staff members, including those with disabilities.

The Ministry of Health reports a database for managers employing disabled staff.

The Department of Child, Youth and Family Services reports work to identify whether there are pay-equity issues for their disabled employees by reviewing the outcomes of recent performance development and assessment processes.

A number of departments report efforts to ensure workplace equipment helps to remove barriers to disabled people’s ongoing performance.

4.12 Investigate a legislative framework for equal employment opportunities across the public and private sectors,

4.13 Ensure disabled people have access to economic development initiatives
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4.14 Encourage staff and service organisations (eg unions) to appoint or elect disabled people as delegates and members of their executives

No specific activities are reported for these actions.

4.15 Ensure that the needs of disabled people are taken into account in developing more flexible income support benefits, to make access to work and training easier

The Ministry of Social Development reports:

• changes to the rules for Invalids Benefit to make it easier for people to move into employment
• changes to Disability Allowance forms so that people with permanent disabilities no longer need a General Practitioner to confirm their disability is ongoing when they renew their Disability Allowance
• five demonstration projects, EmployAble: Nga Pukenga Hei Whai Mahi, designed to support and to develop opportunities for Sickness and Invalids Benefit recipients to enter the paid work force – a final evaluation report on will be completed in 2004.

4.16 Review income support provisions to ensure they provide an adequate standard of living

The Ministry of Social Development reports:

• in Budget 2004, the government announced its decision to increase its direct funding to vocational service providers through contracts and to stop funding these services through the Disability Allowance – this change allows disabled people to receive their disability allowance entitlement and is to take effect from 1 July 2005
• a pilot has been established in each Work and Income region to deliver enhanced case management for Sickness and Invalids Benefit clients that will focus on ensuring the clients receive their full and correct entitlement, and on identifying clients’ needs and aspirations
• all Work and Income 2003/2004 regional plans included a demonstrated focus on the effective delivery of services to disabled people.

Objective 8: Support quality living in the community for disabled people

Living in the community

8.1 Increase opportunities for disabled people to live in the community with choice of affordable, quality housing

The Housing New Zealand Corporation reports:

• starting a disability audit process for all their houses
• a Suitable Homes Service which uses case managers to help disabled people find a suitable or adaptable home
• updating the computer system and implementing a quality management system to manage applications for modified housing
• reviewing existing guidelines and procedures for the Suitable Homes Service
• developing a priority framework for establishing new housing in response to demand, as part of a housing partnerships approach
• adding 87 houses to the community housing portfolio that are rented to community groups, including those providing supported housing for disabled people
• modifying 570 properties, including modifications to meet the specific needs of disabled clients.

The Ministry of Health reports relocating people with intellectual disabilities living at the Kimberley Centre into residential services. At the end of June 2004, 42 people had left the Kimberley Centre. Some people have moved into existing homes and the rest have moved into purpose-developed homes. A large number are in the process of leaving. It is a complex process and requires extensive collaboration between all agencies, and the positive involvement of residents, families and welfare guardians of residents, and the Kimberley staff. All people are expected to have left the centre by 30 June 2006.

The ACC reports a detailed proposal on the planning and viability of supported accommodation for younger claimants currently living in inappropriate accommodation, such as rest homes for older people.

The Ministry of Housing reports a review of the Residential Tenancies Act 1986, which will consider the rights of people in supported accommodation and whether they are adequately protected.

8.2 Support disabled people living in rural areas to remain in their own communities by improving their access to services

No specific activity is reported for this action.

8.3 Support the development of independent communication for disabled people

The Ministry of Economic Development reports it is establishing a telecommunications relay service (TRS) to help meet the telephone communication needs of deaf, hearing-impaired and speech-impaired New Zealanders. Sprint International New Zealand has been appointed to provide the TRS on a nationwide basis. The TRS is scheduled to be launched in November 2004.

The New Zealand Police report an evaluation of emergency communication systems for deaf people. This includes teletypewriters and facsimile machines and alternative options such as text phone messaging, e-mail and the TRS. The TRS was found to be the most promising emergency communication tool.

8.4 Ensure disabled people are able to access appropriate health services within their community

The Ministry of Health reports working on raising the awareness that the actions of mainstream health and disability support services can contribute considerably to tackling disadvantage and to reducing inequalities between population groups. This includes the disabled population.

Moving around the community

8.5 Require all new scheduled public transport to be accessible in order to phase out inaccessible public transport

There have been four initiatives reported with objectives which aim to address the needs of disabled people’s access to transport. These are:

• an inquiry into accessible public land transport by the Human Rights Commission
• a review of the Total Mobility programme by Transfund
• the passing of the Land Transport Management Act which provides for an integrated, long-term approach to land transport funding and management, with greater emphasis on social and environmental needs, including improved access and mobility
• a review of patronage funding of public passenger transport by the Ministry of Transport, including considering changes consistent with the government’s accessible transport objectives (eg low-floor buses).

8.6 Encourage the development of accessible routes to connect buildings, public spaces and transport systems

The Land Transport Safety Authority reports developing and publishing standards and guidelines for installing pedestrian facilities for people with vision impairments. It also reports including disability issues in a pedestrian network and facilities design guide for the planning and engineering of pedestrian facilities.

8.7 Develop nationally consistent access to passenger services where there is no accessible public transport

No specific activities have been reported.

Objective 9: Support lifestyle choices, recreation and culture for disabled people

9.1 Support disabled people in making their own choices about their relationships, sexuality and reproductive potential

No specific action is reported.

9.2 Provide opportunities for disabled people to create, perform and develop their own arts, and to access arts activities

The Ministry for Culture and Heritage reports activities to improve the memorandum of understanding with each Crown entity administered by the Ministry. These improvements involve requirements to report progress in reflecting the Disability Strategy, including information on how the activities involve disabled people.

9.3 Educate arts administrators/organisations and other recreational and sporting organisations about disability issues and inclusion

Sport and Recreation New Zealand reports consultation with the disability sector to review their No Exceptions – Sport Strategy for People with a Disability. Ways of improving participation rates have been identified and an implementation plan drafted and circulated for comment.

9.4 Support the development of arts, recreational and sports projects, including those run by and for disabled people

The Ministry for Culture and Heritage reports considering the needs of disabled people in their development of policy and legislation.

The Department of Conservation reports a consultation process regarding track upgrades and making tracks more accessible. The department is also considering the feasibility of creating an external reference group. As a first step, the department contacted disabled people’s organisations asking them to register their interest in finding out more about the department’s services and opportunities.