PARTICIPATION OF PERSONS WITH DISABILITIES IN AUSTRALIA
IN THE CONTEXT OF THE ASIAN AND PACIFIC DECADE OF DISABLED PERSONS, 1993-2002, AND BEYOND

Bryan Woodford, ACROD Australia

SUMMARY

Significant progress has been made in improving the quality of life and equity of access for Australian people with disabilities and Australia's developments may serve as a model to other countries in the sub-region.

Pervasive social change throughout government and society continues in Australia for people with disabilities driven by population growth and increased mobility of the population, increased access to education, advances in transport and communications technology and the effects of globalization. This change is driven from an equality paradigm that has its roots in 1970's.

The present paper provides a current and historical perspective on the development of people with disabilities in Australia. It addresses the progress made towards achievements in the policy areas of the Agenda for Action for the Asian and Pacific Decade of Disabled Persons, 1993-2002 and identifies barriers to the full participation and equality of people with disabilities in Australia.

INTRODUCTION
ASIAN AND PACIFIC DECADE OF DISABLED PERSONS, 1993-2002: Background
SITUATION OF PERSONS WITH DISABILITIES IN AUSTRALIA
PRELIMINARY REVIEW OF THE IMPLEMENTATION OF THE AGENDA FOR ACTION FOR THE ASIAN AND PACIFIC DECADE OF DISABLED PERSONS: National coordination; Legislation; Information; Public awareness; Accessibility and communication; Education; Training and employment; Prevention of the causes of disability; Rehabilitation; Assistive devices; Self-help organizations; Regional cooperation
BARRIERS TO THE FULL PARTICIPATION OF PERSONS WITH DISABILITIES

INTRODUCTION

The purpose of the present paper is to review the situation of people with disabilities in Australia within the context of progress made in the 12 key policy areas of the Agenda for Action for the Asian and Pacific Decade of Disabled Persons, 1993-2002. The theme and goal of the Decade is the promotion of the full participation and equality of people with disabilities in the Asian and Pacific region. The paper will address progress made towards achievements in the policy areas of the Agenda for Action and identify barriers to the full participation and equality of people with disabilities in Australia.
Significant progress is being made to improve the quality of life and equity of access for Australian people with disabilities and Australia's developments may serve as a model to other countries in the sub-region. Over the decade of Disabled Persons, in partnership with organizations of people with disabilities and other concerned agencies, the Australian governments at all levels (Federal, State and Local) have been involved in the development of policy, legislation and service provision.
There is a need for continued commitment at all levels of Government for the pursuit of full participation and equality for people with disabilities.

I. ASIAN AND PACIFIC DECADE OF DISABLED PERSONS, 1993-2002

A. Background

The United Nations International Year of Disabled Persons (1981) marked the beginning of a decade in which serious attention was given to the issue of disability by the global community. The World Programme of Action concerning Disabled Persons, declared in 1982, was followed by the United Nations Decade of Disabled Persons, 1983-1992. The Commission, through its resolution 48/3 adopted in 1992, proclaimed the Asian and Pacific Decade of Disabled Persons, 1993-2002, with a view to giving fresh impetus to the implementation in the ESCAP region of the World Programme of Action concerning Disabled Persons beyond 1992. The Proclamation on the Full Participation and Equality of People with Disabilities in the Asian and Pacific Region was adopted at the Meeting to Launch the Asian and Pacific Decade of Disabled Persons, 1993-2002 held at Beijing in December 1992.
The Agenda for Action for the Asian and Pacific Decade of Disabled Persons, 1993-2002 endorsed at the forty-ninth session of the Commission in 1993, consists of the following 12 major policy categories: national coordination; legislation; information; public awareness; accessibility and communication; education; training and employment; prevention of causes of disability; rehabilitation; assistive devices; self-help organizations; and regional cooperation. Each of the policy categories contains a list of target areas of direct relevance to the development of policies in support of the full participation and equality of persons with disabilities in Asia and the Pacific.
At the first regional meeting to review the progress towards the achievement of Decade goals, held at Bangkok in June 1995, 73 targets for the implementation of the Agenda for Action were adopted. Further review meetings were held in 1997, and in 1999 107 strengthened targets were adopted. The Agenda for Action has become an effective policy tool for Governments in the ESCAP region to guide their policies, planning and implementation of programmes concerning persons with disabilities.
The Australian Decade of Disabled Persons will end in December 2002. The High-level Intergovernmental Meeting to Conclude the Asian and Pacific Decade of Disabled Persons will be held in Otsu City, Shiga Prefecture, Japan, from 25 to 28 October 2002, organized by ESCAP and hosted by the Government of Japan. The Meeting will review achievement of the goals of the Decade, and in particular the fulfillment of the 107 strengthened targets for the Agenda for Action, and will consider a framework for action beyond the Decade.

II. SITUATION OF PERSONS WITH DISABILITIES IN AUSTRALIA

The total population of Australia is approximately 19 million of which 19% of the Australian population has a disability, that is over 3.6 million people. (Disability, Ageing and Carers Survey, 1998, Australian Bureau Statistics)
The family continues to be the mainstay of support to persons with disabilities. This is supported by data which indicate that the majority of persons with a disability who need help with one or more of their daily activities (1.7 million people), receive it from partners, relatives or friends. The extent of this 'family' social capital was a major impetus for the recognition from 1992 onwards of the need for support to 'carers'.
Outside the family support network, there are essentially two streams of support services - those provided within the mainstream service system (eg health, education) and specialist/specific services targeted to persons with a disability. There is an increasing focus on minimizing the overlaps or gaps arising from this dual approach to the support of persons with disabilities.
It is to be hoped that all three levels of Government in Australia continue their commitment to improve the quality of life of persons with a disability and equity of access to the pursuit of this lifestyle post the Decade; this report documents only some of the changes within Australia during the Decade, this is but a brief selection of some of the developments.

III. PRELIMINARY REVIEW OF THE IMPLEMENTATION OF THE AGENDA FOR ACTION FOR THE AUSTRALIAN DECADE OF DISABLED PERSONS

A. National coordination

The enactment by the Federal Government of the Disability Services Act in 1986 set in train a long-term reform of funding for service delivery targeted to supporting persons with a disability and facilitating greater access to mainstream services.
This reform agenda resulted by 1991/2 in a two tier approach to co-ordination when all Australian State and Territory Governments enacted their own Disability Services Acts. State/Territory legislation enabled the signing of Commonwealth and State/Territory Agreements from 1991, aimed at delineating the roles of the Commonwealth and State/Territory Governments in relation to disability specific services.
Access by persons with a disability to mainstream services and agencies is being incrementally facilitated via the Federal Government's Attorney General's Department using National standards.
The National Disability Advisory Council supported by the Federal Government's Office of Disability advises the Federal government about disability issues. This Council annually chooses key topic areas on which it will focus. Since the late 1990's, most State/ Territory Governments have also created some form of Advisory Group with the role of advising the government on disability issues and service provision.
External to Government are a number of non-government organizations, predominately funded by the Federal Government, that serve as a 'peak body' representing particular constituents. These groups advise and lobby the Federal Government on issues related to disability from their differing perspectives. For example, the Australian Council on the Rehabilitation of the Disabled (ACROD) focuses on issues from support agencies' perspective. Carers Association of Australia focuses on issues from carer's perspectives and Disability Australia focuses on the person with a disabilities' perspective. There have been successive attempts by the Federal Government since the 2000 to both rationalize the number of peak bodies and 'muzzle' anti-Government advocacy by peak bodies, but to date this has been unsuccessful.

B. Legislation

Much of the ground breaking legislation that formalized the rights of access for persons with a disability was enacted prior to the Decade of Disability. By 1993, the Australian Government had:
enacted the Disability Services Act 1986. This was enabling rather than prescriptive legislation that reformed the models and funding structures for disability support services.
enacted the Commonwealth Home and Community Care Act (986)
enacted the Disability Discrimination Act, 1992 which required persons with a disability to be treated equitably and without unnecessary discrimination in a range of activities. To oversee this legislation the Human Rights and Equal and Opportunity Commission was established in 1992.
By the end of 1992 all State and Territory Governments had enacted their own Disability Services Act [eg The Disability Services Act, 1992 (Queensland) ]
Commonwealth/State Disability Agreements with all State/Territory Governments were in place by 1992
Commonwealth/State Health Agreement with all State/Territory Governments were in place by 1992
Privacy Act of 1988 extended to include all non-government organizations from December 2001.

During the Decade of Disability Australia adopted the United Nations Standard Rules on the Equalization of Opportunities for Persons with Disabilities which encouraged the Commonwealth Government to launch its Commonwealth Disability Strategy (1994). This legislation provides a ten year planning framework (with a mid term review) for managing the Commonwealth's responsibilities under the Disability Discrimination Act (1992). The target area for equal access outlined in the framework address the 12 key policy areas outlined in the Agenda for Action for the Asian and pacific Decade of Disabled Persons, 1993-2002.
Within the Decade, the National Competition Policy (NCP) was legislated in August 1999. The NCP fundamentally changed the landscape of policy and service provision at all levels within Australian Society. A tangible example is the ability of for-profit organizations to apply for government funding that previously was restricted to not-for-profit organizations. The advent of 'competition' between services and service sectors/industries is considered to be deleterious to any push by Federal Government for co-operative/partnership service provision.
The Federal Government's advisory body on disability issues, the National Disability Advisory Council in 1999/2000 nominated ensuring the delivery of commitments made under the Commonwealth/Sate Disability Agreement and the development of a high quality, nationally consistent approach to disability service provision as one of its key focus areas.
In July 2000, the Goods and Services Tax was implemented across Australia. All persons in receipt of a pension received a 4% increase to offset the anticipated rise in the cost of various goods and services. Anecdotal evidence from a range of pensioners suggests this 4% increase did little to offset the actual increases in costs of various goods and services.

C. Information

Access to accurate and regularly updated information is vital for advocacy and for the purposes of the planning and implementation of services for people with disabilities. Information on the prevalence of disability in Australia is systematically gathered by the Australian Government via two major data gathering processes. These processes are undertaken by the Australian Bureau of Statistics (ABS)which is Australia's official statistical organization (legislated in 1975).
The ABS every five years conducts a census of the total Australian population. Census data are widely available in a variety of formats, usually within 2 years of collection. The last two years of the 5 year cycle tends to be focused on the questions for the forthcoming census. The most recent census data currently used for service planning are from the 1996 census. Data from the 2001 Census will soon be available.
Since 1988 the ABS has conducted a 5 yearly Survey of Disability, Ageing and Carers. Like the general population Census the data takes time to collate. The most current census data available are from the 1998 Survey.
Established and operates under the provisions of the Australian Institute of Health and Welfare Act 1987, the AIHW is within in the Health and Aged Care portfolio of the Federal Government. The Institute of Health and Welfare Act provides social trend analysis and information on a range of topics, including disability and ageing, to the Federal Government.

D. Public awareness

Australians have numerous avenues by which public awareness-raising is achieved. The Federal Government has well developed mechanisms to disseminate nationally any changes to Federal Government legislation, policy and/or practice, including:

media campaigns across television and newspapers
public seminars
publications eg Office of Disability of Disability News
websites (eg the Dpt Family and Community Service's website www.facs.gov.au)
Theme years, weeks and days (eg International Year of the Volunteers, Disability Access Week, International Day of the Disabled)
National conferences (eg National Home and Community Care conference)

The most notable public awareness event during the Decade was the holding of the Para-Olympics in Sydney in 2000.
It should also be noted that key Federal Government information is often available in various formats (for example, Braille, audio tape, other languages, large print, hot lines and plain English) to ensure equity of access to information by all Australians.
The Federal Government's advisory body on disability issues, the National Disability Advisory Council in 1999/2000 also nominated increasing public awareness and understanding of the needs and abilities of people with disabilities and acceptance of their right to participate in their communities as one of its key priority areas.
External to government, public awareness campaigns are also undertaken by peak bodies, but due to funding restraints these are less frequent. The peak body that consistently engages in public awareness raising of key policy issues / trends is the Australian Council of Social Service (ACOSS). This organization collaborates with key non-government organizations to formulate an agreed community sector position on identified issues.

E. Accessibility and communication

Access to the built environment is an issue the Australian Government has approached through the introduction of National Standards. In 1997, a technical committee of the Australian Building Codes Board proposed a range of changes aimed at bringing the Building Codes of Australia (BCA) into line with the Disability Discrimination Act. A number of access related changes to the BCA came into effect in January 1999.
In June 1996 'in principle' agreement was given from the Australian Transport Council (ATC) to the Draft standards for accessible public transport. A draft Regulatory Impact Statement was released for public consultation in August 1998. In 1999 the ATC considered the draft standards in light of the findings of the final RIS. To date, the Federal Government has not enacted these standards via legislative change. Some State Governments (eg Queensland) have adopted the targets for accessibility outlined in the National Accessibility Standards, despite no legislative imperative.
National reciprocity of what had been until that time State based Taxi Subsidy Schemes was achieved in 2000.
In 2000, the Human Rights and Equal Opportunity Commission conducted an inquiry into wheelchair accessible taxi services across Australia: no findings are available at this time.
The Federal Government in 1999 instituted the Gold Medal Disability Access Strategy aimed at encouraging business in the four target areas of employment, premises, tourism and transport to improve access to goods and services for people with disabilities.
A discussion paper on issues related to access to Commonwealth Government information was released in February 1997. To date a working group is reviewing options for improving access to Commonwealth Government information and communication.
In 1995, the Federal Government implemented a nationwide initiative called "Networking the Nation" specifically targeted rural and remote communities access to computers and the Internet.
Since 1995 the Human Rights and Equal Opportunity Commission (HREOC) has undertaken a range of reviews. In 2000, HREOC inquired into ways to make movies more accessible for people who are deaf or hearing impaired. In July 2001 the trial of captioned movies in movie theatres in the central business districts of Sydney and Melbourne for 2 months was undertaken - the findings from this trial are not yet available.
The Federal Government via the Office of Disability makes available annually limited funding to support the participation of persons with a disability in national conferences.
In 2000, the Federal Government funded the establishment of 'Carelink' accessed by an 1800 phone number. Carelink is a national database of support services, both government and non-government including details on eligibility criteria.

F. Education

The Ministerial Council on Education, Employment, Training and Youth Affairs released a discussion paper on the development of disability standards in education in 1997. Arising from these standards, the National Centre for Education and Training Statistics was established in 2000. Its role is to provide timely and relevant data covering education and training issues and to co-ordinate the development and provision of national education and training statistics.
In 1999, the Department of Family and Community Services made administrative changes to its Special Needs Subsidy Scheme. This Scheme gives children with disabilities or developmental delay the opportunity to take part in mainsteam activites such as child care.

G. Training and employment

Employment standards were released for public consultation in February 1998.
The Federal Government in 1989 instituted the Prime Minister's Employer of the Year Awards that encourages people with disabilities, their families, carers and disability organization to nominate local businesses which have provided excellent access for people with disabilities.
In 1999, the Prime Minister's Employer of the Year Awards were enhanced in honour of the 2000 Sydney Olympics with the launch of the Gold Medal Disability Access Strategy. These awards are focused on extending recognition of access issues into key areas of business development. In 2000 the Prime Minister awarded the first Gold Medal Access Award.
In 2000 the Australian Government, made changes to its "The Australians Working Together Strategy" in an attempt to expand and improve the assistance available to Australians, including those with disabilities looking for work.
In 1997, the Commonwealth Rehabilitation Service (CRS) was contracted by Centrelink to assist persons with a disability to access work via individual assessment and referral to the most appropriate competitive work center.
In 1996 the Government commenced on a wide ranging reform of the Disability employment sector. Changes from a block grant funding model to an outcome based funding model are being trialed. A major review of Business Services (Sheltered Workshops) was undertaken in 1999/2000 and implementation of the recommendations is currently underway. A new Quality framework for employment services is also being implemented
Competition continues to be fostered, with the participation of for profit agencies continues to be encouraged..

H. Prevention of the causes of disability

The National Health and Medical Research Council (NHMRC) was legislated in 1992 (National Health and Medical Research Council Act, 1992) by the Federal Government. Through this organization research funding and development of advice is combined to achieve four statutory obligations - raise the standard of individual and public health throughout Australia; foster the development of consistent health standards between the various Sates and Territories; foster medical research and training and public health research and training throughout Australia; and foster consideration of ethical issues relating to health.
In 1999, the Federal Government doubled the level of medical research funding available for the NHMRC to distribute.
In 2000, via the NHMRC, a new medical research award was established - the Burnet Award.
Federal Government continues its funding commitment of the Australian Institute of Family Studies (legislated in 1980). This Institute aims to promote the identification and understanding of factors affecting marital and family stability in Australia - some studies have included the impact of disability within the family.
Australia continues, via the Health Insurance Commission, to provide funds aimed at the prevention of disability, the Pharmaceutical Benefit Scheme (PBS). Through being listed on the PBS many drugs required to either prevent disability or lessen the impact of impairments are affordable, especially to those persons on a Federal Government pension.
Australia also has a long established individual research foundations targeted to researching specific disabilities. These organizations are funded by government or philanthropic foundations (or a mix of funding), for example, Mental Health Research Institute.

I. Rehabilitation

Post World War 1, Australia has been active in the provision of rehabilitation services. At a national level the Commonwealth Rehabilitation Service supports people with developmental and acquired disabilities to find and retain work, although assistance with non-work, meaningful activity is also provided. At State Government level, there are additional State based rehabilitation services arising from a Workers' compensation.
The Federal Government in 2002 extended the range of support services it provides to the Veteran population via the Dpt of Veterans' Affairs, by funding similar services to those funded under its Home and Community Care Program. At this time Veterans from the Vietnam War were able to access these support services.

J. Assistive devices

Assistive devices are available on a restricted basis via the Home and Community Care Program which predominately funded by the Commonwealth it is administered at the State Government level. The devices included in this program are focused on daily living tasks (eg rails for toilets/showers).
Some State Governments also have a Medical Aids Scheme which provides a wider range of assistive devices including electric and manual wheelchairs, speech devices and incontinence aids.

K. Self-help organizations

Self-help organizations provide a means by which collective capacity-building can be undertaken and empowerment achieved, strengthening their power to advocate with governmental and other civil society agencies and their engagement in decision-making processes.
Within Australia there a two tier system of self help organizations - single disability groups or groups with a State and Federal structure.
Single disability groups most often trace their origins to parent support groups eg Down's Syndrome. These groups secure funding through one-off grants from various sources, fundraising and in some cases recurrent funding usually from State Governments. Extensive volunteer labour characterize these groups.
State and Federal structure disability groups (eg Carers Associations, ACROD) are more formalized, most commonly with recurrently funded staff positions. At the state level these organizations mostly secure funding from the State Government in addition to membership fees. At the Federal level, funding is mostly provided by the Federal Government via its Peak Bodies funding.
The complexity of these various groups that view themselves as a 'peak body' for some group of persons, is the catalyst for the push by the Federal Government in 2000 to 'rationalise' the peak bodies.

L. Regional cooperation

The Federal Department of Family and Community Services encourages and fosters relationships with other countries through such means as international visits; hosting delegations and study tours from other countries and participation in International forums.
Australia's Delegation to the OECD has established the position of Minister-Counsellor (Social Policy). To enhance Australia's interaction with the OECD's Employment, Labour and Social Affairs Committee as well as with other directorates within the organization.
ACROD in 2002 has resumed its support for the development of support services to persons with a disability in the Asia ? Pacific region.

IV. BARRIERS TO THE FULL PARTICIPATION OF PERSONS WITH DISABILITIES

The geography of Australia and its dispersed population in rural and remote Australia will always be a barrier to equity of service access and affordable service provision to persons with a disability resident in rural and remote Australia (compared with urban based citizens).
The ability of Governments at all levels to grapple with equity or access and appropriate service provision to an increasing number of persons with a disability from other cultures or ethnic backgrounds is questionable.
The disturbing and growing trend within the Federal and State Governments to limit the ability of funded non-government services being able to take 'anti-departmental' stances in the public media limits freedom of speech and reduces the ability of self-help organizations and peak bodies to advocate with governmental and other civil society agencies about unmet needs or emergent trends/issues.
The current Federal Government focus on output based funding and milestone based funding is a contributing factor to the increasing number of organizations that are financially unviable. The use of 'efficiency' dividend based funding formulae by many Federal Departments is another contributing factor, especially given the reality that increasingly funding dollars are spent on overheads beyond the control of the organization eg insurance costs are skyrocketing and union award conditions continue to escalate.
In the 2002/2003 Federal Budget there is a clear transfer of funding from disability programs to the Defense Department. This decision comes on top of 2 previous years of no growth funding to disability programs.
The current 'push' by the Federal Government encouraging organizations to chase funding from Corporate philanthropy /partnerships and the increased use of volunteers. This shifting of funding to sources that do not necessarily provide either ongoing or appropriate levels of funds to offset price increases, further challenges the viability of non-government service provision.
Little research is being done on the service needs of persons with a disability who are now ageing. This research should establish whether the traditional services provided to aged persons are appropriate or adequate for persons with a disability.

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PARTICIPATION OF PERSONS WITH DISABILITIES IN AUSTRALIA IN THE CONTEXT OF THE ASIAN AND PACIFIC DECADE OF DISABLED PERSONS, 1993-2002, AND BEYOND