The government directly affects the situation of disabled people through an array of services, legislation and regulation. Historically much of this activity was confined to the health and welfare sectors. However, movement from a needs-focussed approach to an emphasis on strengths and participation has improved the government’s ability to respond to disability issues. A challenge remains to promote understanding of disability while working within structures with a legacy of historic and often institutional settings.

Part of the challenge is to keep disability issues on the agenda of government agencies outside traditional settings. The Disability Strategy and its various levers have had some success but there is much further to go.

Putting disability issues on the agenda

Objective 6: Foster an aware and responsive public service

Improving access to government information and services

Indicator 5: Proportion of government websites that are accessible to disabled people.

The internet is increasingly becoming an essential method to access government information and services. This trend is an opportunity for the many disabled people who found significant barriers with historic channels to improve accessibility. Work is under way across the state sector to improve government websites in line with the E-government guidelines and this will improve access for disabled New Zealanders.

Progress will be evident as the barriers to accessing web-based information and services are minimised for everyone, regardless of physical, sensory or cognitive impairments, or technological barriers.

Latest trends and data

Government agencies have been working to improve the accessibility of their websites over the last four years, as reported in the annual Disability Strategy progress reports, but we have not been able to check the outcomes of this work until recently.

The Office for Disability Issues has commissioned a survey of websites owned by government agencies or agencies funded by government. Survey findings indicate how accessible government websites are overall, at a particular point in time, providing a baseline against which to measure future progress. The survey also provides guidance on how to best target future website development.

A selected sample of 149 key sites was put through an automated tester. Thirty-five of these sites were not substantively meeting important accessibility criteria in the E-government guidelines. The most common fault was a lack of text alternatives provided to describe images or graphics. Of the remaining 114 sites fifty-eight were found to exclude some disabled people from important information, such as a statement of intent, annual report or consultation document. This was often because they only provided the information in a PDF format.

Fifty-six sites were considered sufficiently accessible to be tested in phase two of the survey, which comprised a technical test of key E-government guidelines that had not been checked by the automated tester, and a user test. Sites were assessed from the perspective of four disability groups (vision impaired, blind, mobility impaired, reading impaired).

The following twelve sites were found to be the most accessible:

Testers with low vision found at least one question impossible to answer for three-quarters of the sites tested in phase two. Best sites in this group included the Ministry for the Environment, the Bioethics Council and the E-government Unit.

Blind testers found the widest range of accessibility of the four disability groups, with some sites very difficult to access and some very easy. Best sites here included the E-government Unit, the Office for Senior Citizens and Reduce Your Rubbish.

Mobility-impaired testers were less likely than those with low vision to find a task impossible, but more likely to find it very hard. Best sites included the Ministry for the Environment, the Ministry for Culture and Heritage, 4 million careful owners, New Zealand Embassies and Reduce Your Rubbish.

Reading impaired users were more likely than any other users to find a question impossible to answer, and the survey found that this was the most poorly served of the four disability groups. Best sites were the Office for Disability Issues, Population Statistics, E-government and Reduce Your Rubbish.

Overall, the survey indicates that many government agencies are making efforts to meet E-government compliance requirements and create user-centred websites. However, further work is required. The Office for Disability Issues will be distributing information, including the technical findings of the survey, to each government agency to ensure that those who commission, fund, build and maintain websites can access the help they need to understand what the barriers are, who they affect and how to remove them.

Work to improve website accessibility is happening throughout the world as web technology develops. New Zealand can draw from and contribute to this international development as more of our websites become barrier free.

Activity during the 2004–2005 year to improve accessibility and responsiveness of government agencies

• Most government agencies and Crown entities report development work on their websites. Many aim to meet E-government guidelines by 2006. The State Services Commission provides supplementary tools and material to help achieve this.
• ACC reports that all new building and refurbishments met accessibility requirements for disabled people. Key ACC information has been recorded onto audio tapes, and coded into Braille and five development managers were recruited to improve outcomes for disabled persons and other disadvantaged groups when accessing ACC services.
• Archives New Zealand has developed an accessible web-based search service.
  All their offices are accessible to disabled people.
• The Ministry of Education has developed guidelines for property modifications at schools for students with special needs.
• The Ministry for the Environment has moved into a building with good disability access. Of note are Braille lift buttons and a low section at the reception desk.
• The Education Review Office has implemented recommendations from a disability access review of accommodation.
• The Ministry of Health has introduced a disability awareness training module for their staff, using trainers from the Ripple Trust. Also, they have made their document Living with Disability in New Zealand available in Braille, audio cassette and plain English, and their Disability Support Services in New Zealand – Service User Survey is available in large font.
• The Ministry of Justice has developed a 10-year upgrade programme to make court buildings compliant with the disability access code by 2015. This will include voice enhancement equipment in courtrooms and signs designed for reading by those with impaired vision.
• The Department of Labour completed a disability accessibility audit regarding building accessibility in 2004. Feedback was provided to local managers and improvements made, but further remedial work awaits lease renewal or refurbishment opportunities.
• Land Information New Zealand provided a TTY (text telephone) device in reception areas so deaf people can phone the department.
• The National Library of New Zealand report that 75% of their buildings are accessible by disabled people and their Wellington auditorium has hearing loops.
• The Department of the Prime Minister and Cabinet has refurbished Government House in Auckland, which now has access and facilities for disabled people.
• The Ministry of Research Science and Technology considered access and mobility in their accommodation refit. This included a shower area for disabled people.
• The Ministry of Social Development trialled and evaluated voice recognition software.
• Statistics NZ developed several resources for the 2006 census; these include a Braille questionnaire, audio tape of the questions, screen reader, internet response option and a fax helpline. Also, their new Wellington accommodation has no accessibility barriers to disabled people.
• The Treasury ran a workshop for policy analysts and their managers to increase awareness of disability issues. Also a major refurbishment of the Treasury building resulted in several improvements recommended by a disability audit in 2004. These include an accessible toilet, signage and improved lighting.
• The Ministry of Agriculture and Forestry found two of their 11 buildings did not meet accessibility standards in a 2004 audit. One of the non-compliant sites has relocated to a fully accessible premise.
• The Ministry of Youth Development is working with the Ministries of Health and Education to increase participation of young disabled people in their programmes.
• The Department of Conservation established an internal disability reference group to increase the organisation’s knowledge of disability issues and advise on Disability Strategy implementation plans. They have also developed an intranet information resource with links to disability implementation plans/reports, articles, external websites and issues from an internal disability reference group.
• The Human Rights Commission developed Braille, plain language and big print versions of material related to their public inquiry into accessible land transport. A marked-up version of the material is also available for screen readers. TTY access numbers are included in publicity material. A range of accessible material is also available about the Human Rights Action Plan and for accessing the Commission’s disputes resolution service.
• The Police updated the chapter on mental illness in their best practice manual in response to survey findings on disabled people’s satisfaction with police services.
• The Police and other agencies reported a number of initiatives to improve their services for people with hearing and/or speech impairments. These are described in chapter 4.

Gaps and opportunities for improving the accessibility and responsiveness of government agencies to disabled people

Currently, there is a range of guidance documents for government agencies which help ensure accessible and responsive information and services for disabled people. These include the E-government guidelines, access standards in the Building Code and some other information standards for the public service. However, these are not comprehensive. Work could be undertaken to ensure all accessibility requirements for disabled people are consistently communicated to government agencies and monitored. Furthermore, in addition to the minimum standards, targets could be set for government agencies to achieve.

Incorporating a disability perspective in policy development

The Office for Disability Issues has developed a disability perspective toolkit for government agencies to help them consider and address the impacts of legislation, policy decisions and programmes on disabled people. The kit is online at www.odi.govt.nz.

… I see our society failing… because we, as disabled people, sometimes aren’t recognised as normal individuals who are in the community…
My view on the Disability Strategy is that we – disabled people – are doing a good job. We know what we want – now it’s time for people to listen to our needs and it’s up to us to make them listen.

In my 19 years I have seen a lot of changes… I know it will get better because now I know we have a voice and we will be using our voices to get our messages out there. Kia Kaha, Kia Maia, Kia Manawanui!!!!!!

Rebecca, Life is for Living, to be published at www.odi.govt.nz

Objective 10: Collect and use relevant information about disabled people and disability issues

Improving the collection and use of information about disability issues

Indicator 6: Extent of quantitative and qualitative research about disabled people carried out by government and used to inform
policy development.

There is a lot agencies do not know or understand about disability, or about how their policies and services impact on the lives of disabled people and their families. This seriously limits the capacity of government to improve its response to disability issues – “it does not know what it does not know”. An increase in the amount of quality research related to disabled people and their families will not only enable the development of evidence-based policy advice, it will raise visibility of disabled people and improve understanding across the public service.

…I did research on hidden disabilities last year and presented it at a conference in Melbourne. I also appear on a poster promoting Disability Support Services at Victoria

University… I have had some pretty good feedback on it. It has been interesting – some people that know me and then have seen the poster have asked, “Are you just a model?”

The most frustrating thing about my impairment is the invisible nature of it. …it is frustrating in that people don’t recognise that I have a problem. You have to try so hard to get support. People aren’t saying, “How can I help you?” They are saying, “Why do you think you’ve got a disability?”
Miranda, Life is for Living, to be published at www.odi.govt.nz

Latest trends and data

The Office for Disability Issues and Statistics New Zealand have begun a comprehensive stocktake of data sources containing disability-related information. The work includes systematic identification, documentation and evaluation of the statistical potential of relevant administrative and other data sources, including those generated by the many and diverse disability-related service providers.

Initial investigation has found more than 30 reports containing disability related information published in New Zealand over the last 10 years. It is clear that over the last few years the use of disability information, in particular the post-census Disability Surveys, has increased considerably. Before the surveys there was a serious gap in information, but even after the first survey in 1996 the new information was not used to its full potential. Agencies were either not aware or did not understand the full significance of the new statistical information. This has started to change. In particular, the survey information has been used in a number of reports, such as the Social Report, a detailed analysis of employment statistics, various cabinet papers and the New Zealand Housing Strategy.

There is also a sense that disability related research has a higher priority than was previously evident. A new research project on the costs of disability, for example, should fill a major and longstanding gap in information.

Activity to improve the collection and use of relevant information about disability issues

The government has approved funding for the post-census Disability Survey to be repeated in 2006 and 2011. Statistics New Zealand plans to incorporate conceptual and measurement developments from international best practice in the 2011 survey.

In October 2004 the Ministry of Health published a descriptive analysis of results from the 2001 Disability Survey entitled Living with Disability in New Zealand. This report is the most comprehensive ever produced on the status of disabled people in New Zealand.

The Ministry of Health’s Disability Services Directorate also has a number of service evaluations under way. This includes a major evaluation of the lives of the Kimberley Centre residents pre- and post-de-institutionalisation.

The Health Research Council of New Zealand has partnered with the Ministry of Social Development to invest in a major research project to examine the cost of disability in New Zealand. This work is being undertaken by Auckland University, the Disability Resource Centre Auckland Inc, Diversity NZ Ltd and Fitzgerald & Associates. This group is developing an innovative economic model that accommodates the social model of disability and uses the concept of the standard basket of goods required for a particular quality of life. They will be using a disability reference group to steer development of the research.

The Health Research Council also has acquired money in the 2005 Budget, to build the capacity of disability researchers. Moreover, disability has been designated a priority research area for the Health Research Council and should secure some of the additional $70 million allocated over the next four years for priority research areas.
The Department of Labour has published research into the costs of injury in New Zealand to better inform future policy and decision-making. Further work is planned next year to make the data complete, integrated and useful for policy and research.

The Ministry of Education undertook a three-year research programme looking at integrated, effective service provision for students with physical disabilities. They have also published a study about the Māori perspective on autism spectrum disorder.

The Ministry of Health has a national mental health epidemiology study underway that measures the prevalence of mental illness in New Zealand. Approximately 13,300 interviews have been completed and the data are being analysed. The final report is due in June 2006.

In May 2005 the Centre for Housing Research Aotearoa New Zealand (CHRANZ) released its scoping research Housing Choices for Disabled New Zealanders. The aim of this project was to identify housing research projects that address key issues that impact on housing choices for disabled New Zealanders.
A Ministry of Social Development research project into sickness and invalids benefits aimed to identify approaches and interventions that support social and economic well-being and participation in employment. A resulting analysis of the post census Disability Surveys has led to presentations at conferences and publication of an article in the Social Policy Journal; Work Participation Among People with Disabilities: Does the Type of Disability Influence the Outcome?

Bioethical debates and research

Bioethical issues around the value of a disabled person’s life are of growing concern to disabled people. While there is no consensus on how to progress these issues, there is agreement that disabled people must have a voice in discussions that explore our society’s collective values and the concepts that underpin these issues. The New Zealand Human Rights Action Plan echoes this view with a recommendation to “ensure effective representation of disabled people on national bodies such as the Bioethics Council, National Ethics Committee on Assisted Human Reproduction, and ethics committees at research centres and universities”.

Two committees, recently established under the Human Assisted Reproductive Technology Act 2004, include a requirement in their terms of reference for a person with a “disability perspective” in their membership. The Advisory Committee on Assisted Reproductive Technology provides advice and guidelines on assisted reproductive procedures and human reproductive research. The Ethics Committee on Assisted Reproductive Technology assesses applications on a case-by-case basis to carry out assisted reproductive procedures and human reproductive research, and to ensure the protection of participants in those procedures or research.

Opportunities for debate and knowledge sharing about disability issues

Conferences and seminars attended by diverse communities of interest are important forums for improving our understanding of disability. They provide opportunities for sharing knowledge and for constructive debate, which can help develop common understandings and communication bridges about disability. Such forums in New Zealand during 2004-2005, included:

• Deaf View II, July 2004, Auckland
• Epilepsy NZ Annual Conference, August 2004, Auckland
• Coming of Age: Exploring futures for young disabled people and their families Conference, September 2004, Wellington
• Parent to Parent Annual Conference, September 2004, Wellington
• International Conference on Mental Health Promotion and Prevention, September 2004, Auckland
• Post Polio Support Society National Conference, September 2004, Wellington
• 3rd National Dyspraxia Conference, October 2004, Christchurch
• DPA National Conference, October 2004, Palmerston North
• CCS National Conference/AGM, November 2004
• Like Minds Providers Seminar, November 2004, Hamilton
• Muscular Dystrophy Association Conference on Neuromuscular Conditions, November 2004, Auckland
• Injury Prevention & Rehabilitation Conference, March 2005, Auckland
• Carers’ Summit, March 2005, Wellington
• 2nd National Guillian-Barre Syndrome Conference, April 2005, Wellington
• NZ Hearing Association 2005 National Conference, April 2005, Lower Hutt
• Cystic Fibrosis Association Conference, May 2005, Palmerston North.

Gaps and opportunities to use or collect better information about disability issues

Many agencies collect data on disability for their own administrative purposes. There is, however, a gap in the availability of such data in a format that could usefully inform cross-agency evaluation and policy development. In particular, there is a lack of detailed and consistent information across agencies on how many people access services, how much they access and how frequently.

This variance across agencies in definitions, eligibility criteria for services and general approach to disability limits the ability to collate, compare or otherwise analyse information from a whole-of-government perspective. Developing consistency across government agencies that fund the majority of disability support services – Health, Social Development, Education and ACC – and their administrative databases might be a worthwhile investment.

There is a need to build the capacity of disability researchers and the users of this research. This should mean increased opportunities for sharing findings, and forums for accessing information.