Disability Dimension in Development Action. Manual on Inclusive Planning

Disability Dimension in Development Action. Manual on Inclusive Planning. Edited by Ronald Wiman. Originally Published by STAKES for and on behalf of the United Nations, 1997 and 2000. Revised on-line version 2003.

ABSTRACT

This Manual presents step-by-step advice on how to improve the quality of development policies, programmes and projects by exercising sensitivity to the disability dimension at various phases of the mainstream development programme or project planning cycle.

It includes guidance on how to design an inclusive policy framework that will gear development planning towards a “society for all” , where people with disabilities also can exercise their human rights and responsibilities, and have equal opportunity to achieve well-being as full citizens. Further, it presents procedural guidance on how to establish a participatory planning process that would result in development for .

The Manual also contains examples of disability-sensitive project documentation, checklists and an overall appraisal tool: the Rapid Handicap Analysis (RHA), which assessess whether a development activity is “handicapping”, that is, discriminating against people with disabilities.

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Key words: disability; development planning; socially sustainable development; society for all; development co-operation; development programmes and projects; disability policy; inclusion

RONALD WIMAN (ED.): DISABILITY DIMENSION IN DEVELOPMENT ACTION MANUAL ON INCLUSIVE PLANNING. PUBLISHED BY STAKES FOR THE UN (2003) STAKES

DISCLAIMER The designations employed and the presentation of the material in the present publication do not imply the expression of any opinion whatsoever on the part of the Secretariat of the United Nations concerning the legal status of any country, territory, city or area or of its authorities, or concerning the delimitations of its frontiers or boundaries.

The term “country” as used in the text of this publication also refers, as appropriate, to territories or areas.

The designations “developed” and “developing” economies are intended for statistical convenience and do not necessarily express a judgement about the stage reached by particular country or area in the development process.

The views expressed in signed papers are those of the authors and do not imply the expression of any opinion on the part of the United Nations.

Stakes National Research and Development Centre for Welfare and Health Lintulahdenkuja 4 BOX 220 FIN-00531 Helsinki Finland

Fax +358 9 3967 2450

The cover displays a work by Mr. C Kwasniscka, prepared for the poster “TOWARDS A SOCIETY FOR ALL” to commemorate the End Year of the United Nations Decade of Disabled Persons (1983 - 1992). The poster was printed in all six official United Nations languages and also in German. It was sponsored by Kodak Foto Service and Luger Consulting of Vienna, Austria (C)United Nations 1992.

Cover design: Master Assistant Oy Layout: Timo Jaakola

ISBN 951-33-0248-2 Gummerus Printing Saarijärvi 1997 and 2000 TABLE OF CONTENTS

UNIT ONE: INTRODUCTION TO CURRENT CONCEPTS AND ISSUES

A. WHY THIS MANUAL? ...... 11 1. The United Nations Decade of Disabled Persons ...... 11 2. The mandates ...... 12 3. Disabled people and social development ...... 13 4. For whom has the manual been designed? ...... 14 5. When should the manual be applied? ...... 15 6. The approach and its contents ...... 16 7. Framework for action ...... 17

B. WHAT IS DISABILITY? ...... 23 1. The multi-dimensional concept of disability ...... 23 2. Equalization of Opportunities ...... 25 3. Rehabilitation ...... 26 4. Prevention of disabling conditions ...... 27 5. From labelling to enabling ...... 28

C. TOWARDS A SOCIETY FOR ALL ...... 31 1. Planning for all ...... 32 2. The role of the manual in a global strategy to promote a society for all ...... 35 Notes ...... 39

UNIT TWO: GUIDANCE FOR THE DESIGN OF INCLUSIVE POLICIES AND PROGRAMMES

A. INCUSIVE NATIONAL POLICIES ...... 43 1. Enabling all people to live meaningful lives ...... 45 2. Addressing disability in an inclusive policy statement ...... 50 3. Standard Rules on the Equalization of Opportunities for Disabled Persons ...... 52 4. Ten steps toward a national disability policy ...... 53 5. The role of social services and social security ...... 55 5.1. Who are the actors on the scene? ...... 55 5.2. Three basic strategies ...... 57

B. DISABILITY-SENSITIVE DEVELOPMENT COOPERATION POLICIES ...... 59 1. The policy statement ...... 59 2. Policy guidelines of donor agencies ...... 60

C. INTRODUCTION OF THE DISABILITY DIMENSION INTO COUNTRY DEVELOPMENT PROGRAMMES ...... 65 1. Programme frameworks ...... 65 2. Specific recommendations ...... 68 2.1. Issues to be considered by national governments ...... 68 2.2. Issues to be considered by intergovernmental organizations ...... 69 2.3. Recommendations addressed to non-governmental organizations ...... 70 Notes ...... 71

RONALD WIMAN (ED.): DISABILITY DIMENSION IN DEVELOPMENT ACTION 2 MANUAL ON INCLUSIVE PLANNING. PUBLISHED BY STAKES FOR THE UN (2003) UNIT THREE: HOW TO INCLUDE THE DISABILITY DIMENSION INTO THE PROJECT PLANNING PROCESS

A. A BRIEF INTRODUCTION TO PROJECT PLANNING FRAMEWORKS ...... 75 1. The Project cycle ...... 76 2. An integrated and participatory project planning strategy ...... 78 2.1. An inclusive approach ...... 79 2.2.79 Empowerment of beneficiaries ...... 79

B. INCLUDING THE DISABILITY DIMENSION IN THE PROJECT CYCLE ...... 85 1. PHASE ONE: Disability-sensitive project identification ...... 85 1.1. The importance of project identification ...... 85 1.2. Initial screening for disability relevance ...... 87 2. PHASE TWO: Inclusive project planning procedures ...... 89 2.1. Basic principles ...... 89 2.2. Including a disability dimension in project planning analyses ...... 91 2.3. Reflecting disability issues in the project document ...... 103 2.4. Concluding remark: introduction of new programming arrangements of the United Nations Development Programme ...... 103 3. PHASE THREE: Disability-sensitive project appraisal ...... 103 3.1. The purpose of project appraisal ...... 103 3.2. Guiding principles for extended auditing of disability-relevant development activities ...... 104 3.3. Auditing the policies of donors and programme agencies ...... 105 3.4. Auditing a country programme/ country cooperation and similar frameworks ...... 106 3.5. Auditing project documentation ...... 107 4. PHASE FOUR: Implementation and monitoring ...... 109 4.1. Process-oriented planning ...... 109 4.2. Principles to be applied ...... 110 5. PHASE FIVE: Final evaluation ...... 112 6. Introduction of this manual as a learning tool ...... 112 Notes ...... 113

UNIT FOUR: DISABILITY-SPECIFIC PROJECTS AND COMPONENTS

A. SUMMARY OF BASIC PRINCIPLES TO BE APPLIED ...... 119 B. BUILDING PARTNERSHIPS ...... 123 C. AN INTEGRATED APPROACH TO DISABILITY ...... 125 D. A CONCLUDING COMMENT ...... 127 Notes ...... 127

RONALD WIMAN (ED.): DISABILITY DIMENSION IN DEVELOPMENT ACTION MANUAL ON INCLUSIVE PLANNING. PUBLISHED BY STAKES FOR THE UN (2003) 3 ANNEXES:

ANNEX PD: EXAMPLE: A DISABILITY SENSITIVE UNDP PROJECT DOCUMENT ...... 129

ANNEX PDA: EXAMPLE: UNDP PROJECT DOCUMENT APPRAISAL CHECKLIST ...... 137

ANNEX A List of Abbreviatioins ...... xxx

ANNEX B: A SELECTED RESOURCE BIBLIOGRAPHY ...... 143 Index of Abbreviations ...... 159

ANNEX UN: UNITED NATIONS FOCAL POINTS AND BODIES ON DISABILITY ISSUES ...... 161

ANNEX NGO: INTERNATIONAL UMBRELLA DISABILITY ORGANIZATIONS ...... 167

ANNEX RHA: RAPID HANDICAP ANALYSIS (RHA 3) ...... 171

RONALD WIMAN (ED.): DISABILITY DIMENSION IN DEVELOPMENT ACTION 4 MANUAL ON INCLUSIVE PLANNING. PUBLISHED BY STAKES FOR THE UN (2003) FIGURES:

Unit I FIGURE I.1: ACTION FRAMEWORK ...... 18 FIGURE I.2: THE EVOLUTION OF APPROACHES TO DISABILITY ...... 19 FIGURE I.3: CAN PEOPLE BE CLASSIFIED ? ...... 24 FIGURE I.4: PREREQUISITES FOR COPING ...... 29 FIGURE I.5: THE ARENAS OF HUMAN ACTION ...... 32 FIGURE I.6: PLANNING FOR ALL ...... 34 FIGURE I.7: OUTLINE OF A STRATEGY: “TOWARDS A SOCIETY FOR ALL – FROM AWARENESS TO ACTION” ...... 37

Unit II FIGURE II.1: FIRST NEEDS FIRST ...... 46 FIGURE II.2: WHAT IS WELL-BEING? ...... 47 FIGURE II.3: THE HIERARCHY OF HUMAN NEEDS – THE RIGHT SIDE UP ...... 48 FIGURE II.4: A MISSION STATEMENT FOR AN INCLUSIVE NATIONAL POLICY TOWARDS DISABLED PEOPLE ...... 51 FIGURE II.5: STANDARD RULES ON THE EQUALIZATION OF OPPORTUNITIES FOR PERSONS WITH DISABILITIES ...... 52 FIGURE II.6: WHO ARE THE ACTORS ON THE WELFARE MARKET? ...... 56

Unit III FIGURE III.1: WHAT IS A PROJECT? ...... 75 FIGURE III.2: THE PROJECT AS A PROCESS ...... 76 FIGURE III.3: THE PHASES OF A PROJECT CYCLE ...... 77 FIGURE III.4: DEGREES OF PARTICIPATION IN AND CONTROL OVER DEVELOPMENT ACTIVITIES ...... 80 FIGURE III.5: STEPS TOWARD EMPOWERMENT ...... 82 FIGURE III.6: WHY SHOULD A PLANNER BE DISABILITY-SENSITIVE? ...... 94

Unit IV FIGURE IV.1: ELEMENTS OF A “COMPREHENSIVE” APPROACH TO DISABILITY-SPECIFIC ACTION ...... 119 FIGURE IV.2: A PARTIAL SOLUTION IS NOT A SOLUTION ...... 126

RONALD WIMAN (ED.): DISABILITY DIMENSION IN DEVELOPMENT ACTION MANUAL ON INCLUSIVE PLANNING. PUBLISHED BY STAKES FOR THE UN (2003) 5 FOREWORD TO THE ON-LINE VERSION

In "A Society for All" the needs of all citizens constitute the basis for planning and policy. The general system of society is made accessible for all. By accommodating its structure and functioning to the needs of all, a society mobilizes the potential of all its citizens and, consequently, strengthens its development potential. People with disabilities are a natural and integral part of society and, in the interest of society as a whole, should have opportunities to contribute their experience, talents and capabilities to national and international development.

The concept of "A Society for All" encompassing human diversity and development of all human potential, can be said to embody, in a single phrase, the human rights instruments of the United Nations. Defining and translating the human rights of disabled people into specific measures and programmes remains a foremost challenge. The recently adopted Standard Rules can help guide public policy in the direction of ensuring human rights of disabled persons. "

Report of the Secretary-General to the 49th General Assembly

Hundreds of millions of disabled people and their families experience disadvantages, discrimination and exclusion because living and working environments, as well as products and services are not designed for all members of society.

Disability is a common and natural part of the human life cycle. There are people with disabilities in all target groups. Therefore, it is neither possible nor cost- effective to respond adequately to the rights, needs, and potentials of people with disabilities through group-specific activities exclusively targeted to the needs of people with disabilities. Therefore, the international community and many nations have adopted equalization, inclusion and development towards " A Society for All" as the vision to guide their long- term disability strategies.

This Manual was originally published in 1997 as a result of several years of collaboration between a number of stakeholders. It was one element in the strategy of assisting nations and disabled people themselves in their efforts to design more inclusive development policies, programmes and projects.

The mission to better include disabled people and their families in development cooperation as beneficiaries and agents of action remains acute. Also, the technical task of how to actually plan for inclusion in practice remains a major challenge. The need for "toolkits" has maintained a constant demand for this Manual but hard copies have gone out of print. It was therefore decided to make the Manual available on the internet.

RONALD WIMAN (ED.): DISABILITY DIMENSION IN DEVELOPMENT ACTION 6 MANUAL ON INCLUSIVE PLANNING. PUBLISHED BY STAKES FOR THE UN (2003) ACKNOWLEDGEMENT TO THE FIRST EDITION

The idea of this Manual was first conceived at the turn of the 1990s, when much attention was being given by the United Nations, by various governments and by organizations of disabled persons, to what should come next after the end of the Decade of Disabled Persons (1983–1992) to promote its objectives in the most appropriate manner.

The preparation process of the Manual has been long. It has gone through many versions, each version benefitting, however, from close scrutiny and constructive suggestions from many interested parties, especially disabled persons themselves and their organizations. The various texts were also reviewed at a number of expert meetings.

The Manual was prepared in the Division for Social Policy and Development, Depart- ment of Policy Coordination and Sustainable Development of the United Nations. It would not have been possible without the very generous financial support of the Finnish Government, Department of International Development Cooperation (FINNIDA) and the intellectual, substantive and practical help of the National Research and Develop- ment Centre for Welfare and Health (STAKES). A special debt is owed to Dr. Vappu Taipale, former Minister of Health and Social Affairs of Finland and present Director- General of STAKES, and to her colleague Project Chief Ronald Wiman, the principal author of the Manual.

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RONALD WIMAN (ED.): DISABILITY DIMENSION IN DEVELOPMENT ACTION MANUAL ON INCLUSIVE PLANNING. PUBLISHED BY STAKES FOR THE UN (2003) Well-Being for All

At the World Summit for Social Develop- ment, convened in Copenhagen, Denmark, 6-12 March, 1995, the representatives of 186 States signed the ten Commitments included in the “Copenhagen Declaration on Social Development”:

“For the first time in history, at the invitation of the United Nations, we gather as heads of State and Government to recognize the significance of social development and well-being for all and to give to these goals the highest priority both now and in the twenty-first century.” a

a Report of the World Summit for Social Development, Copenhagen, 6-12 March 1995 (A/CONF.166/9), chap. I, resolution 1, annex I, para. 1.

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A. WHY THIS MANUAL?

The concept of well-being for all stresses The basic objective of the World Programme the importance of organizing society so of Action concerning Disabled Persons “is to that it can provide opportunity and promote effective measures for prevention of disability, rehabilitation and the realiza- security to all its members, whatever their tion of the goals of ‘full participation’ of circumstances and capacities. Within this disabled persons in social life and develop- framework, the General Assembly, at its ment and of ‘equality’. This means oppor- forty-sixth session, in 1991, invited “all tunities equal to those of the whole popula- organizations of the United Nations tion and equal share in the improvement in system to incorporate the needs and living conditions resulting from social and concerns of persons with disabilities in economic development. These concepts should apply with the same scope and with their programmes and activities both as the same urgency to all countries, regard- 1 active agents and beneficiaries”. This less of their level of development.” a manual is intended to provide practical guidance on how this can be done. More a World Programme of Action concerning Disabled generally, it addresses the question of how Persons, para. 1. the concept of well-being for all can be put into practice with specific reference to the equalization of opportunities for The United Nations Decade of Disabled persons with disabilities, thus ensuring Persons (1983–1992) was proclaimed as their full integration into society. the initial time frame for the implementation of the World Programme of Action. 1. THE UNITED NATIONS The International Year of Disabled DECADE OF DISABLED Persons 1982 (IYDP) set in motion a PERSONS process towards awareness of the The international community expressed problems — and potentials — of persons its concern and commitment to the equal- with disabilities. ization of opportunities for persons with disabilities in the World Programme of From Objects of Care Action concerning Disabled Persons, which to Agents of Action was adopted by the General Assembly of The first breakthrough occurred already while the Decade was prepared. The the United Nations in 1982 by Assembly original proposal to have a year FOR resolution 37/52.2 Ten years later the disabled persons was amended to a Year OF General Assembly proclaimed the day on Disabled Persons. This indicated the which the World Programme was adopted, beginning of a revolutionary approach to 3 December, as the “International Day of disability issues with the recognition that Disabled Persons”3. people with disabilities are, first of all,

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people who have the ability, the will and 2. THE MANDATES the right to be active agents in charge of In its resolution 42/58 the General their own lives. Assembly invited Member States to incorporate in their national development plans The World Programme of Action, inter and strategies projects to assist persons alia, strongly urged the organizations with disabilities and to include such projects within the UN system to “explore, with in the country programmes of the United the Governments to which they are Nations Development Programme (emphasis accredited, ways of adding to existing or added).5 Furthermore, the Assembly planned projects in different sectors, renewed its “invitation to all States to give components that would respond to the specific high priority (emphasis added) to projects 4 needs of disabled persons” (emphasis added). concerning the prevention of disabilities, In developing countries, intergovern- rehabilitation and the equalization of mental, governmental and non-govern- opportunities for disabled persons within mental donor agencies have initiated the framework of bilateral assistance various projects in order to assist persons programmes.6 with disabilities. A piecemeal approach The General Assembly has since that is built on scattered and isolated repeatedly requested the Secretary- projects has, however, very limited and General, “to encourage all organs and bodies of often non-sustainable effect on the lives of the United Nations, including regional persons with disabilities. After all, it is not commissions, international organizations and economically feasible to cater for the the specialized agencies, to take into account in needs of all disabled persons through their programmes and operational activities the “disability-specific” projects that are specific needs of disabled persons” (e.g. General targeted to disabled people only. Assembly resolutions 42/58, para. 7, 43/98 Having realized the limitations of the para. 6, and 44/70 para. 7). project approach, some donor agencies Moreover, a United Nations Expert have developed a more comprehensive Group Meeting which considered a long- strategy, a systematic programme term strategy to further implementation approach, to guide their activities. A of the World Programme of Action, which further step in comprehensive develop- was held at Vancouver, Canada, from 25- ment strategies is the “inclusive 29 April 1992, proposed that “disability approach”. It aims at taking into consider- issues should be integrated into the main- ation the needs and the potentials of all stream activities of intergovernmental and diverse population groups within a single non-governmental organizations”.7 planning and action framework. Meeting participants further emphasized There are disabled people in all popula- the need for integrated disability policies tion groups. The purpose of this Manual is at all levels8 and that national plans should to assist in the planning and design of devel- include “specific measures for the integration opment policies, programmes and projects of disabled persons into mainstream society and that include the disability dimension as a the consequent integration of disability issues natural element. This would add on social into the planning process of all sectors” value to the results of development activities (emphasis added).9 usually with minor or no cost at all. The forty-seventh session of the General Assembly, having taken note of

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the report of the Secretary-General on the Development efforts aiming at sustainable monitoring of the implementation of the social development should enhance the World Programme of Action concerning potential of all people to participate in Disabled Persons,10 urged Governments to development. Development efforts show their commitment to improving the should, therefore, focus particularly on the situation of persons with disabilities, inter empowering of poor and marginalized alia, by “addressing disability issues within people to participate in and contribute to integrated social development policies linked to mainstream activities in the social, other socio-economic issues, with the ultimate economic, cultural and political arenas of objective of facilitating the full integration of life. This is done through supporting persons with disabilities in society”, and “inte- activities that enable the poor and grating, where possible, disability components marginalized people to gain better in technical assistance and technical coopera- command of their lives: tion programmes”.11 The same resolution requested the Secretary-General, inter alia, • improving living conditions and living to “integrate disability issues in policies, environments; programmes and projects of the specialized agencies of the United Nations on a broader • improving access to resources, markets scale and with a higher priority”. and other mainstream activities;

• building human capacities;

3. DISABLED PEOPLE AND • raising awareness and encouraging SOCIAL DEVELOPMENT self-reliance;

• building institutions for full participa- Development for All tion and self-determination. “The ultimate goal of social development is to improve and enhance the quality of life of all people. It requires democratic institu- However, in practice development efforts tions, respect for all human rights and often fail to recognize the rights, needs fundamental freedoms, increased and equal and potentials of those people who are the economic opportunities, the rule of law, most marginalized. Consequently, while promotion of respect for cultural diversity people with disabilities are often among and rights of persons belonging to minori- the poorest of the poor, they have been ties and an active involvement of the civil excluded from mainstream development society. Empowerment and participation 12 are essential for democracy, harmony and activities. social development. All members of society Humanitarian aid does not, as such, should have the opportunity and be able to permanently improve the status of disad- exercise the right and responsibility to take vantaged groups. It is first aid. Some- an active part in the affairs of the commu- times it may even maintain the status quo. a nity in which they live.” The key to sustainable improvements is the enhancement of access of the excluded a Report of the World Summit for Social Develop- ment, Copenhagen, 6-12 March 1995 people and groups to the structures, (A/CONF.166/9), chap. I, resolution 1, annex processes and resources of their societies. II, para. 7.

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in most cases been inadequately dealt with Do not use a spoon in development co-operation. The reasons to try to empty a river have hardly been economic in nature. For instance, poverty is a multidimensional Rather there has been lack of awareness. and often intergenerational process charac- Another reason for omitting disability terized by a continuous lack of access to: issues in development projects has been the lack of practical guidelines and func- • Political, social, cultural, juridical and tioning procedures on how to deal with economic institutions, the issue in project planning, appraisal and • Productive resources, goods and social implementation. services, • Information and education, The Manual is designed to serve as a • Safety and human security, tool for translating into good practice • The built environment, etc. the principles of development from the social perspective, which have been The structural obstacles to participation agreed upon by the international commu- and the perpetuating exclusion processes nity. By incorporating the disability cannot be changed with ad hoc piecemeal dimension in daily practice of policy- projects.a making, planning and decision making, it a Report of the World Summit for Social Develop- should be possible to ensure a favourable ment, Copenhagen, 6-12 March 1995 environment for people with disabilities to (A/CONF.166/9), chap. I, resolution 1, annex participate in and contribute to the devel- II, para. 19. See also, Finnish National opment of the societies in which they live. Committee of the International Council on Social Welfare, “The Tampere Declaration of The manual is aimed at assisting the Global Welfare ’94 Conference”; 26th national senior policy makers, World Conference of ICSW (Helsinki, planners, administrators, personnel of October 1994). international development assistance agencies as well as private philan- thropic foundations to add to the social People with disabilities are at high risk of value of their activities. In particular, being systematically denied their access to the manual is directed to those who are the resources needed for the full exer- involved in mainstream policies, cising of their human rights. In all soci- programmes and projects which are eties, children and women with disabilities designed to benefit the entire population. are particularly vulnerable in this respect. A second objective of the manual is to In some societies, children with disabili- further the inclusion and the full parti- ties are totally excluded from society as cipation of persons with disabilities and they are condemned, often right after their organizations in planning work- birth, to spend their childhood and youth shops and task forces. In general, the in institutions for disabled children.13 manual aims to promote improved understanding and expanded partnership between mainstream development 4. FOR WHOM HAS THE planners and people with disabilities. MANUAL BEEN DESIGNED? Therefore, the manual provides introduc- Despite the frequently expressed concern tions to current disability concepts and by the international community, the rights concerns to those who are experts in and needs of people with disabilities have

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planning, and, on the other hand, provides CHECKPOINT 1 an introduction to basic planning concepts and methods to those stake holders who Are you planning activities that may be may not be familiar with these issues. relevant from the disability perspective? Checklist 1:

5. WHEN SHOULD THE MANUAL Does the planned development activity BE APPLIED? contain one or more of the following For development efforts to achieve the elements? highest feasible quality of results, their impacts on concerned population groups Design and construction of the built need to be taken into account in a environment, particularly public build- balanced way. ings, facilities and housing;

Development of infrastructure, including transport systems, telecom- All people are equal — they should be munications, water supply and sanitation amenities; “The principle of equal rights for the disabled and non-disabled implies that the Development of small-scale industries needs of each and every individual are of and enterprises; equal importance, that these needs must be made the basis for the planning of societies, and that all resources must be employed in Urban/rural community development; such a way as to ensure, for every individual, equal opportunity for Development of health care and social participation.”a services systems facilities;

a World Programme of Action concerning Disabled Human resources development, Persons, para. 25. including: • Pre-school, primary and secondary education, The fundamental needs of persons who • Higher education, have disabilities are the same as those of • Adult education, non-disabled people. However, persons • Vocational training, with disabilities often may encounter • Public education campaigns; obstacles while trying to participate in mainstream society which has been Income generation, with special designed with non-disabled people in emphasis on improving the situation of mind. Many barriers are unnecessary and the poorest segments of society; can be avoided simply by exercising fore- thought at the planning stage already. Training of development policy, programme and project personnel.

If a development activity includes one or more of the above elements, then the activity is relevant from the perspective of persons with disabilities.

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Development activities can be “disability- likes unnecessary steps and other obstacles relevant” to various degree and the in his or her daily environment? planning process and the outcomes can be “disability-responsive" to various extent. The impact of an activity on disabled The methodological approach presented persons should thus be studied more in this manual involves systematic applica- systematically and, consequently, due tion of the following five strategies: consideration be given to ensure appropriate arrangements for participation by (1) Setting social development as the persons with disabilities in the planning ultimate objective. Consequently, and implementation process. This can be decisions taken in the course of devel- determined through systematically app- opment analysis and planning lying approaches that are sensitive to the contribute to equalization of opportu- disability dimension at all stages of the nities. planning and implementation process. (2) Including the disability dimension in data collection, analyses and interpretation of information and organi- 6. THE APPROACH AND ITS zation of documentation throughout CONTENTS the analysis and planning process. A procedure which will ensure full and (3) Identifying channels of information effective incorporation of disability and initiate ways to involve persons concerns in mainstream planning and with disabilities as full and effective programming can respond to the needs partners at all stages of the develop- and interests of other specialized – and ment process. often marginalized – constituencies as (4) Using checkpoints at various stages well. With persons with disabilities as the in the development process to identify main focus, most of the principles and and assess the impact of development procedures described in following para- decisions on persons with disabilities, graphs should be applicable to many other to identify options to minimize their development contexts where the purpose negative effects, and to enhance is to integrate concern for a disadvantaged positive impact. or marginalized social group. Further- (5) Designing mechanisms which can more, consideration of issues faced by launch sustainable processes for persons with disabilities often will lead to empowering persons with disabili- improvements in conditions for all. ties so that they can take charge of affairs which concern them. A society fit for disabled people is a good society for all The manual is divided into four units. The introductory UNIT I provides a brief Accommodations which are appropriate for introduction to current concepts and people with disabilities will usually benefit conceptual frameworks. UNIT II non-disabled people, e.g. built environ- discusses guidelines for policy and ments which are barrier-free are also safe, secure and accessible for everyone, programme formulation from the including expectant and nursing women, disability perspective. UNIT III describes children and elderly people. After all, who approaches to the inclusion of disability

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concerns at various stages of the project assessing the needs and designing cycle. UNIT IV contains brief remarks national and internationally- on selected issues to be considered while supported interventions to meet iden- planning a disability-specific project. tified needs; Model checklists and model documents (4) At the level of planning specific are included in the text and in annexes to projects within established policy, the manual. A resource bibliography, programme and budgetary frame- contact addresses of selected international works; disability organizations and United (5) At the operational (implementation) Nations system focal points are included level; as annexes as well. (6) At the monitoring and evaluation Since the development planning level, where data on performance and process may take several years from the results are reviewed and assessed, initial decision to implementation, and corrective actions are identified and each stage often involves different people, decisions are taken with regard to each UNIT is rather independent and agreed values and desired ends. follows the established steps of that particular stage in the planning process. In development activities, disability concerns can be incorporated by means of three basic strategies. The most common is the disability-specific approach, which 7. FRAMEWORK FOR ACTION targets people with disabilities and their The basic purpose of this manual is to special needs. A second strategy is to add present a comprehensive, conceptual an extra disability-specific component framework for formulating inclusive to mainstream activities. The third is the policies, programmes, project develop- inclusive approach, where disability ment and implementation so that these concerns are included in mainstream can contribute to a fundamental value development process as a central element. statement: Economic growth and social An intermediate approach between the development shall benefit poor, latter two is the “integrated approach”, vulnerable and marginalized people, where disability issues are integrated into including people with disabilities.14 mainstream but they remain as a distinct To achieve this purpose, the selected component of their own. social values have to be reflected at all levels and stages of the development (a) “Disability-specific approach”. planning process: Disabled people represent the only target group for planned action and the activity (1) At the conceptual level when objec- will usually address their specific needs. tives and approaches are identified; Medical and physical rehabilitation (2) At the national policy formulation projects are common examples of this level and in the identification of approach. possible international support components; (b) “Component approach” (3) At the programme level, while A separate disability-specific component is

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FIGURE I.1 ACTION FRAMEWORK

Approach (A) (B) (C) DISABILITY- COMPONENT INCLUSIVE SPECIFIC APPROACH: APPROACH: APPROACH: Disability-specific Disability dimen- Disabled people as component added sion fully integrated target group or integrated Activity Level

I. Conceptual: Values, Objective – – + and Approach

II. Policy Formulation: (a) National – +/– + (b) Regional (c) International

III. Programme Design: +/– + +

IV. Project Planning: ++ +

V. Operational Level: ++ +

VI. Monitoring ++ + and Evaluation:

Codes - = Not Desirable +/- = Acceptable in Selected Cases + = Viable Option

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added to a mainstream activity; for disabled persons. They are placed within instance, community-based rehabilitation mainstream programmes and budgets but projects may be introduced into health are destined for disabled persons only. An care development programmes as compo- example could be the introduction of nents with separate administration, staff, special classes for disabled pupils in the and facilities. The intermediate stop is the mainstream schooling environment and “integrated approach”. This would involve under the same educational administra- design and planning of services and facili- tion. ties that respond to particular needs of

FIGURE I. 2: THE EVOLUTION OF APPROACHES TO DISABILTY

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(c) “Inclusive approach”. The disability society to the extent that particular theories dimension is flexibly included in all and concepts would be needed. Unfortu- aspects and stages of an activity as a nately, such conceptualizations exist and central element. This approach requires they often are applied. maximum integration throughout the planning and programming process and appropriate adaptation of mainstream Concepts are tools to produce thoughts facilities and services so that they can and plans; there are good tools and bad. adequately serve both persons with disabilities and non-disabled people. It Theoretical frameworks or political ideol- also implies full and effective involvement ogies based on the devaluation of specific human characteristics, one-dimensional of persons with disabilities as equal classifications or simplistic diagnostic partners in the planning and running of frameworks, labelling concepts, value an operation. A specific support service loaded, biased and discriminating language, component may sometimes be needed to aims and options that segregate against empower disabled people. For instance a specific groups of people on the basis of pupil who is deaf can follow the same characteristics related to the person and his/her identity are common but in obvious curriculum in the same classroom as conflict with the policies and principles his/her peers with the help of a Sign adopted by the international community. Language interpreter and/or appropriate An example of a less obvious trap is technical aids. the “human capital” approach. It may be interpreted so as to lead to the commodifi- While striving towards full integration cation of humanity, seeing a person as and ultimately inclusion, the inclusive being worth what she or he can produce. Consequently, people with disabilities will approach should not be pursued until not be in the focus of public expenditure. mainstream development is able to The human capital approach could, for generate and maintain the essential instance, be replaced with the wider terms support services that persons with of “human resources” or “human capabili- disabilities may need for full and effective ties” development.a participation. Each approach can, in principle, be a United Nations, “Report of the consultative expert meeting on integration of disability issues applied at any activity levels, i.e. while in development cooperation activities (Vienna, 29 establishing conceptual foundations, at May – 2 June 1995)”. policy design, programme or project planning levels as well as during actual operations and monitoring exercises. The conceptual starting point of any However, in the light of the principles development activity should be full discussed in the preceding paragraphs, all participation on the basis of equality of development activities should at least disabled people in society. In practice, adopt an inclusive conceptual frame- persons with disabilities are often segre- work, inclusive value statements and gated and disadvantaged to the extent that objectives regarding disability issues. their concerns require additional and The alternative is a conceptualization in specific action. Should it not be immedi- which persons with disabilities are consid- ately possible to cover all disability issues ered to be different from other members of within an inclusive policy framework, a

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specific disability programme compo- In some cases, equalization of opportuni- nent needs to be introduced into the ties for disabled persons requires a specific national development policy. disability programme at the first stage of development. At both the project design and the operational levels, a component Incorporating a disability dimension in approach – and even a disability-specific all activities of the social and health design of operations which take into sectors account the needs, rights and potentials of disabled persons – may sometimes be the The Government of Finland Programme for “Supporting the reconstruction of the best way to achieve full inclusion of health and social sectors of the Republic of persons with disabilities in the long run. Karelia of the Russian Federation” includes the following priority areas that have been agreed with the Karelian authorities: A focused investment in persons with disabilities may be the first step towards (1) Development of primary health care, their empowerment (2) Development of social security and services, According to a report on the experience of (3) Human resources development, Namibia, at the initial stages in the design (4) Development of management and of new disability policy, emphasis will be planning capacities, accorded to the disability-specific approach (5) Coordination of international support. to promote empowerment of various disability groups. With time, consideration For instance, component number 2 will be given to general approaches to includes a specific sub-component on policy design that call for inclusion of non- “disability services” to launch a focused disabled persons as well.a process that would lead to identification of alternatives to institutional approaches to a Hadino Hishongwa, “Namibia: integration of services delivery and to the design of alter- disability issues in development cooperation native institutional arrangements. To make activities”, note contributed to United Nations such developments possible, relevant Consultative expert meeting on integration of disability issues must be incorporated in all disability issues in development cooperation other relevant programme components as activities (Vienna, 29 May – 2 June 1995). well. For instance, in component number 3, “human resources development”, the disability dimension will be integrated in Caution must, however, be exercised so curriculum development.a that the disability-specific approach does not become the only and final solution. a STAKES/Hedec, “Support for implementation of social and health care reforms in the Republic of Karelia, Russian Federation 1995- 2000”; project document (Helsinki, 1995).

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B. WHAT IS DISABILITY?

1. THE MULTI-DIMENSIONAL specific entitlement, it is necessary to CONCEPT OF DISABILITY 14 decide on a cutting point beyond which All individuals differ in their abilities. ability is considered “disability”. For Furthermore, all individuals are, to a statistical purposes, it is necessary to greater and lesser degree, limited in classify people according to mutually certain abilities in comparison with exclusive and exhaustive categories. Even other people. Many people have some then there is wide variation in the degree temporary or chronic ailments. Who, and type of ability within such categories. then, is “disabled”?15 It has been estimated that, on average, some 5–10 per cent of the population have According to definitions issued by the some form of a disability. This period World Health Organization:16 ratio (prevalence ratio) is, however, misleading if it is interpreted to indicate • an impairment is any loss or abnor- the proportion of people experiencing mality of psychological, physiological or disability in their own life. The cumula- anatomical structure or function; tive incidence rate over the whole life cycle of people is much higher. • a disability is any restriction or lack of People should not be labelled on the ability (resulting from an impairment) to basis of one characteristic. Terms such as perform an activity in the manner or “invalid” or “the disabled” reinforce within the range considered normal for stereotyping that artificially divides people a human being; into “them” and “us”.17 Strictly speaking, a person whose legs • a handicap is a disadvantage for a given have been amputated is not “disabled” but individual, resulting from an impairment is more correctly described as a person or disability, that limits or prevents the with a disability. The fact that he or she fulfilment of a role that is normal has to move around using techniques depending upon age, sex, social and other than those used by people with two cultural factors, for that individual. functioning legs does not imply that the person is any less able to do everything “Disability” should not be viewed in terms else as easily and as well as people who of a dichotomy of ability or disability. walk. The fact that this is not always the Instead, it should be seen in terms of an case is a consequence of the lack of oppor- ability-disability continuum. For legal tunity to acquire and develop the neces- purposes, such as defining disability for sary skills – not the lack of ability. the purpose of measuring eligibility for a

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FIGURE I.3. CAN PEOPLE BE CLASSIFIED?

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There are no absolute criteria for defining disability. Concepts and defini- Disabled people are handicapped tions are a matter of convention and because of the ‘rules’ of society convenience. The latest definitions are Many languages fail to make the important included in the United Nations Standard distinction between “disability” and Rules on the Equalization of Opportuni- “handicap”. Disability refers to the person; ties for Persons with Disabilities:18 handicap does not. For many reasons the perjorative and confusing label “the handicapped” should not be used at all. The “The term disability summarizes a great word handicap originates from horse races number of different functional limitations and describes the disadvantage imposed on a occurring in any population in all countries some participants by the rules of the race. of the world. People may be disabled by This is precisely what it means in the physical, intellectual or sensory impair- disability field, as well. Experts whose ment, medical conditions or mental language fails to make this distinction illness. Such impairments, conditions or between disability and handicap should not illnesses may be permanent or transitory in export such handicapping language. nature.”a a R. E. Allen (ed), The Concise Oxford Dictionary “Handicap” is the loss or limitation of of Current English, eighth edition (Oxford, opportunities to take part in the life of the Clarendon Press, 1990). community on an equal level with others. The term “handicap” describes the encounter between the person with a disability and the environment.”b 2. EQUALIZATION OF OPPORTUNITIES a Standard Rules on the Equalization of Oppor- “The term ‘equalization of opportunities’ tunities for Persons with Disabilities, para. 17. means the process through which the b Ibid., para. 18. various systems of society and the environment, such as services, activities, information and documentation, are made One can be born with a disability but not accessible for all, particularly to persons with a handicap. The disadvantage related with disabilities”.19 to disability originates from the interac- Equalization of opportunities is, in fact, tion of the person and the social, cultural, the “method” for preventing disability from physical and psychological barriers within resulting in a handicap, a disadvantage. her or his environment. Therefore, hand- The Universal Declaration of Human icaps can be prevented or reduced by Rights, in its first Article, states: “All human breaking the barriers in the environ- beings are born free and equal in dignity and ment. Of course, it is more reasonable rights.”20 Therefore, the rights and needs of and cost-effective not to construct those all people should be considered equally barriers in the first place. important in designing policies and plans.21 Major advances in the equalization of opportunities for persons with disabilities in the community in which they live may be achieved through development programmes and projects, if they are planned and imple-

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mented in the spirit of “development for all”. them with tools to change their lives People with disabilities often are towards a higher level of independence.”23 discriminated against by the existing rules Disability is not an illness, although it and structures that have been designed can be a result of an illness. Medical care without consideration of their needs, that aims at curing or relieving the rights, aspirations and life styles. There- symptoms of an illness should not be fore, equal opportunity does not result if confused with rehabilitation. Rehabilita- persons with disabilities are simply tion starts with the acceptance of the provided with the same as those without a disability and the person with a disability. Unequalizing rules and struc- disability rather than with the intention tures need to be appropriately corrected, to make a disabled person non- or the disadvantages caused by them needs disabled. Through rehabilitative inter- to be compensated. Such corrective ventions and appropriate training, persons measures are sometimes termed “positive with even serious or multiple disabilities discrimination”or “affirmative action”.22 can achieve a high level of independence and productivity provided that the environment is accessible. “Disabled People First” Rehabilitation of persons with disabilities is an important prerequisite to In some parts of India, people with disabil- attaining full participation and equality ities have been given the monopoly to run telephone booths, which enables many within their societies and communities. disabled persons to earn a livelihood in the Therefore, rehabilitation for all those in service sector, although competition gener- need should be considered to be a basic ally is tough. right of persons with disabilities.24 A person who has a disability may need “Disabled People First” reads a sign on the support in the form of rehabilitation in wall of a Chinese “Welfare factory” in Xian Province. “Welfare factories” in various life arenas such as vocational, China are production units that enjoy tax social and educational activities, in concessions if 50 per cent of the employees addition to physical rehabilitation.25 are disabled. Wages are above the average Rehabilitation, in its broader sense, at welfare factories which produce goods should include: that are in high demand.a – activation of (physical and mental) functional abilities; a Personal communication and data gathered in field visits to selected Asian and Pacific coun- – (re)-construction of self-esteem and tries by Ronald Wiman, STAKES staff identity; members, while seconded to the United – support in motivation building Nations as Social Affairs Officer in 1990–93. towards self-reliance; – training in coping skills; – acquiring functional knowledge; 3. REHABILITATION – searching for appropriate new options “ ‘Rehabilitation’ is a process aimed at and resources in addition to enabling persons with disabilities to reach increasing the flexibility of available and maintain their optimal physical, options in order to facilitate the inter- sensory, intellectual, psychological and/or action between the person with social functional levels, thus providing disability and his/her environments.

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Assistive devices, adaptation of work and housing environments, preparation of archy of cross-sectoral technical agencies.a the family and community to meet the person with disabilities, and sometimes a Dr. Soetadi, “A brief introduction to the personal assistance need to be added on a development of community-based rehabilita- case-by-case basis to obtain the full value tion (CBR) in Indonesia”, note contributed to United Nations Consultative expert meeting on of rehabilitation efforts. integration of disability issues in development Much is known about rehabilitation cooperation activities (Vienna, 29 May – 2 June methods; the major problem is how to 1995). ensure access to basic rehabilitation to all who would benefit from it. While some highly specialized rehabilitation services and techniques require specific skills – and some- 4. PREVENTION OF DISABLING times special equipment – most rehabilita- CONDITIONS tion can be done at home and in the “The term ‘prevention’ means action community with affordable training and aimed at preventing the occurrence of support. An observed trend in many coun- physical, intellectual, psychiatric or tries is towards decentralization and the sensory impairments (primary preven- bringing of rehabilitation to people rather tion), or at preventing impairments from than sending people far away to rehabilita- causing permanent functional limitation tion centres. There are several approaches or disability (secondary prevention).”26 to “community-based rehabilitation” (CBR). The prevention of the causes of disabilities should be seen as a basic duty of all members of society. Such measures Bringing rehabilitation to people include, first of all, promotion of peace rather than transporting people to and avoidance of conflict, violence and remote rehabilitation centres human insecurity. It includes activities which enable people to cater for their In the Republic of Indonesia most disabled survival needs, such as ensuring an people live in rural areas. To address the adequate supply and distribution of food, issue, the Government of the Republic of Indonesia, with input from the National safe drinking water, environmental Coordinating Team for the Welfare of hygiene, control of diseases and provision Disabled Persons, developed a non-institu- of adequate shelter. It would also include tionalized approach to support community- directly preventive activities such as based rehabilitation services: Mobile Reha- traffic safety measures, occupational safety bilitation Units (MBU) of the provincial and prevention of accidents at home, government. MBU teams include a medical immunization and related measures to doctor, psychologist, social worker, special needs teacher, skill instructor, a prosthesis prevent critical illnesses. technician, hearing aid technician and other Secondary prevention should include special needs personnel. The teams period- medical care and early intervention to ically visit remote areas to provide consulta- minimize the secondary impacts of impair- tive and examination services, information ment. Preventive service should be included and support to families, skills training and in basic social services such as primary health referral services. In this manner commu- care, reproductive health care, life skills nity-based rehabilitation services obtain support both at local level and from a hier- counselling and basic education.

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Poverty is one of the main underlying A land mine can be manufactured for as causes of disability little as US$3, the cost of clearing a single mine ranges from US$300 to US$1,000, Elements in development programmes and which is higher than most people’s annual projects which can contribute to prevention income in developing countries.”a of causes of disability include: a United Nations Children’s Fund (UNICEF), • Improve nutrition (agricultural develop- Anti-personnel mines: a scourge on children (New ment); York, 1994). • Control communicable diseases (water and sanitation); As wars and armed conflicts are one of the • Improve road safety (infrastructure devel- major causes – both directly and indirectly opment, and training); – of mental and physical trauma and • Improve occupational safety (industrial disablement, international cooperation in development); • Prevent accidents in the home (commu- all forms should include objectives and nity education); components that are aimed at preventing • Improve health care (health services and violence through promotion of human facilities); security and combatting of prejudice, • Combat alcohol, tobacco and drug abuse misuse of power and segregation in all (health service facilities); forms. A particular responsibility of • Improve basic education and literacy Government is to object strongly to the use (human resources development); • Improve mother and child health status of arms which aimed bluntly at disabling (reproductive health services). civil populations, particularly children.

Poverty is a major factor leading to 5. FROM LABELLING TO disabling living conditions. Disability, in ENABLING turn, leads too often to poverty and exclu- There are many conceptual frameworks sion of the person and the whole family. for development analysis and planning. It is therefore vital to study closely these However, not all are necessarily consistent mutually reinforcing interrelationships with current approaches that (a) put people and to integrate disability issues into all in the centre of development as benefici- poverty reduction programmes. aries and agents of change, (b) recognize the significance of social development and human well-being for all and (c) give “to Mines – meaningless for war these goals the highest priority both now but disastrous for children and into the twenty-first century”.27 The above approach endorsed by the “During the past decade, more than 1.5 million children have been killed by wars international community at Copenhagen and armed conflicts, over 4 million were is based on the recent revolution in human permanently disabled. An estimated 10 sciences. Rather than see people as million children are victims of psycholog- passive objects under the influence of ical trauma. external causes, emphasis is directed to the active and purpose-oriented nature of all One in every 230 Cambodians is an human beings. The fundamental purpose amputee due to land mines, which continue to claim about 300 victims a month. of a person is not to satisfy the survival needs only, but to live a meaningful life.

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People want to – and can – be agents of All aid is not development aid their own lives. To live a meaningful life, one must have some degree of command “A basic needs” approach, if focusing only over the course of one’s life. To gain such on survival needs, chains people as objects of charity for their life. command, one must have certain prerequisites for coping with various aspects of Long-term “feeding” of a community has a life in a goal-oriented manner. Certain of tendency to destroy productive potentials the prerequisites are provided by the envi- and local market structures. ronment in which one lives; certain pertain to personal capacities.28 Emergency aid should, as appropriate, be of necessities accompanied by interventions which build capacities for sustainable local production.

Similarly, charity and care-taking that replace activities that people normally would do themselves can diminish people’s basic aspirations – and eventually motivation – to seek actively viable solutions themselves.

FIGURE I.4: PREREQUISITES FOR COPING 29

Logical prerequisites Example(s)

Successful coping in a given situation requires It is possible for me to cope meaningfully with adequate: (any) situation provided that:

A. External Conditions I have the opportunity, and and

B. Knowledge and Correct Interpretation I know and understand enough, and and

C. Skills I have the practical skill, and and

D. Motivation I want, and and

E. Health (= functioning ability) I am well (not too ill), and and

F. Functional Abilities I am able. (physical and mental)

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Plain deductive logic, as well as equacy of any of the other logical prereq- accumulated experience, suggests uisites rather than a limitation in ability. the following two conclusions: People can overcome coping problems in a number of ways, which include: • to be successful in efforts to changing or adapting physical, social or cope with any given situation cultural environments, acquiring more ALL of the logical prerequi- functional knowledge, learning new func- sites (A through F in figure I tional skills, increasing motivation, or 4) must be met; and improving health. The enablement approach recognizes the multi-dimen- • if even one precondition is sional potential and capacities of people missing, is limited or is inade- themselves. quate, difficulties in coping People should not be classified on the will arise. basis of one characteristic into “us” and “them”. People with disabilities are people first. Disability is only a secondary dimen- Disability is only a functional limitation in sion. Their aspirations, needs, rights and ability. Not all limitations in ability are, problems are best addressed through an however, disabilities because they are not enabling approach that is applicable to all related to impairment. Furthermore, people. Enabling all people to use their ability is only one of the coping prerequi- own potential and to take responsibility sites. The reason for coping problems by contributes to a sustained and equitable a person with a disability may be the inad- process of development.

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C. TOWARDS A SOCIETY FOR ALL

“For too long, persons with disabilities have been isolated, their right to development “A society for all” will also be fit for us ignored, and their potential contribution to when we grow old society neglected. The old attitude regarded “We human beings are all different. We disabled people as dependent invalids, in need have different needs, and different qualifi- of protection. It understood disability as a cations, different strengths and different stigma, allowing society to send a person with weaknesses. Therefore, the society in disabilities to the appropriate address in the which we live should never be formed on social structure, which, unfortunately, too often the basis of special demands by the few. was the address of a special institution. The society must be formed in such a way that it will suit all. The needs of disabled persons must influence the planning of our But times are changing. The proclamation of societies as much as the needs of non- the international Year of Disabled Persons in disabled persons, not because we must pay 1981 and the United Nations Decade of special attention to the disabled, but Disabled Persons (1983-1992) heralded a because they are citizens of the society as major shift in attitudes toward disability. The everyone else. Therefore, their needs must new approach stresses abilities, not disabilities, be included in the building of the society as a matter of course. it promotes disabled people’s rights, freedom of choice and equal opportunities; it seeks to adapt This concept favours us, the non-disabled, the environment to the needs of persons with partly because the needs of disabled people disabilities, not the other way round. It are the same as for many other groups and encourages society to enhance its attitudes partly because we and our relatives through towards persons with disabilities and assist illness or accident may one day belong to the group of disabled persons ourselves. them in assuming full responsibility as active And then, we would, of course, wish that 30 members of society.” our daily life, i.e. our jobs, our homes, our social relations, our leisure time activities, as far as possible will continue as before. Society is a construction of people them- We do not wish that practical defects in selves. It gains its legitimacy by its ability planning of the society shall force us to to ensure the realization of human rights limitations and changes which the disability itself does not make necessary”.a for all.

a Olof Palme, late Prime Minister of Sweden, cited in Bengt Lindqvist, “A society for all; on disability policy”, The World Blind, nos. 7 and 8 (1992).

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1. PLANNING FOR ALL Detailed planning seldom is possible Between 20 to as many as 50 per cent of because societies and communities are national populations are comprised of children under age 15; and about 50 per constantly evolving processes. Rather, cent of all adult populations are comprised planning should be focused on creating of women. What should then the planner’s favourable environments for people’s “average” person be? constructive activities. To develop societies that enable people to fulfil their Planning for specific groups leads to potential, it is necessary to adopt more impossibilities because the number of proactive approaches: to acknowledge possible specific groups is infinite. people’s abilities and interests and to Flexible planning for different people support them in achieving full participa- serves all, because people are different. tion and self-determination. First of all, the focus should shift from disabilities to abilities. People are more similar than different. While allowing for flexibility, plans must There currently are (1997) some 5.6 first focus on the fundamental similarities billion different people in the world. of people. All people are engaged in inter- Some have a difference called disability. action with their environments in several Planning for the average person serves a “life arenas” to fill their needs and to fulfil minority only, because there are only a few their aspirations. people who can be considered average.

FIGURE I.5: THE ARENAS FOR HUMAN ACTION

LIFE ARENAS

The Person A Life Arena An Environment

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“Life arenas” include people’s interac- (3) What – if any – changes are required tions between the man-made and natural in current planning practice to ensure physical environments, and between that obstacles are not created? economic, social, cultural and communi- Issues such as access for all people should cation systems. be fully and effectively incorporated “A society for all people” aims to throughout the planning and implemen- ensure equal opportunities for all people tation process. to derive their well-being from these life arenas. Therefore, the diversity of people and potential obstacles to their full partic- (4) What kinds of additional support ipation in various life arenas should be measures might be required to ensure taken into account at the planning stage. that specific population groups are able From the planner’s perspective, questions to participate on the basis of equality to be asked include the following: in mainstream development? Despite careful and systematic analyses and planning, certain obstacles to full and (1) What are the basic activities in effective participation by all may be which all people are involved on a daily created. In such cases specific support basis? measures, e.g. assistive devices and Basic activities of everyday life may be personal attendants, may required to facil- grouped as follows: itate access to social life and development (a) Survival and health promotion, by all people. (b) Mobility and physical independence, (c) Orientation, The figure I. 6 summarizes an approach (d) Communication and access to infor- to “planning for all people”. The first mation, column presents the basic activities which (e) Social integration and participation, everyone undertakes in daily life. The (f) Economic security, second column provides examples of (g) Self-determination, and the right to people who may encounter obstacles in choose one’s own life style. undertaking these basic activities. The third column lists areas for inclusion in planning and means (support services) to (2) What kinds of obstacles, and conse- promote equalization of opportunities. quent coping problems, might people face while engaged in these basic activities? The environment contains numerous obstacles that may limit or prevent people with disabilities from undertaking the above-mentioned activities. In many cases these obstacles may also pose difficulty and risk to non-disabled people.

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FIGURE I. 6 PLANNING FOR ALL

BASIC ACTIVITIES PEOPLE WHO MAY FACE SELECTED EXAMPLES OF BARRIERS AND EXPERI- PLANNING REQUIREMENTS ENCE COPING PROBLEMS AND AUXILIARY SERVICES - Availability of provisions for basic needs (food, Survival and All people. shelter, etc.) Health Promotion - Environmental and occupational safety - Health care, environmental health

Services: * Health care services * Social welfare services

Mobility and Physical People with physical or sensory impairments - Accessibility and/or dexterity difficulties; people with invis- - Reachability Independence ible disabilities; people who are minding depen- - Functional home design dents; people who have heavy luggage, trolleys - Functional appliances and tools or prams. Services: People without access to affordable means for * Mobility aids transportation * Other assistive devices * Guide dogs * Personal social services / personal assistance

Orientation People who have sensory impairments; people Clarity of design and clear indications of direc- who hve learning difficulties; people who are tions; easy language; universal symbols and illiterate, tourists. markings (including Standard Braille). Services: * Guides

Communication People who have seeing, hearing or speech diffi- - Appropriate formats for communication; culties; people who have learning difficulties, - Clear messages. and Access to immigrants, tourists, children. Information Services: - Large print; Braille; - Interpretation services; - Personal assistance

Social Integration All people; in particular people who have - Non-discriminatory practices; mental or psychological disabilities; people who - Public education (positive awareness and and Participation have sensory impairments; and people who are sensitization); from diverse socio-cultural backgrounds. - Affirmative action.

Services: - Counselling; peer support.

Economic Security All people. - Equalization of economic opportunities; Vulnerable groups and the poor, particularly - Adaptation of the work place; the destitute, the long-term unemployed, single - Self-employment and home-employment parents, and people with disabilities. options.

Services: - (Re)training, including vocational rehabilitation; - Job accommodation (e.g. provision of assistive devices, modification of work schedules and adaptation of equipment).

Self-Determination All people, in particular people who have -Diversity and flexibility of opportunities for communication and cognitive difficulties and self-determination. people who have mobility difficulties. Services: - Personal assistance; - Interpretation; - Advocacy; - Development of interpersonal and negotiation skills.

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It has been estimated that one person in ten 2. THE ROLE OF THE MANUAL has some form and degree of disability.31 IN GLOBAL STRATEGIES TO This period ratio, however, leads to a PROMOTE “A SOCIETY FOR serious underestimation if interpreted as ALL” the incidence of disability over the life cycle In 1990 the United Nations General of an individual. The majority of people Assembly, in its resolution on disability will have a shorter or longer personal expe- policies and programmes issues, inter alia, rience with disability, particularly towards invited member States to develop strate- advancing age. Moreover, due to the gies towards a society for all and “requested ageing of population structures, the the Secretary-General to shift the focus of the number of disabled people is expected to United Nations programme on disability from increase faster than the growth of the awareness-raising to action with the aim of population as a whole.32 Taking into achieving a society for all by the year account the diverse functional limitations 2010…”.33 of people at the planning stage already Since that decision the international decreases the need for special measures and community, at the World Summit for the extra costs of accommodating the Social Development in March 1995, differences today and in the future. committed itself to the goal of “human well-being for all” and to promote strategies that equalize opportunities for all A city for all people to participate in development.34 The manual seeks to contribute to The Marjala suburb of the Finnish town of international action to create favourable Joensuu was constructed to be barrier-free and accessible for all. There are no steps environments to achieve the objectives of on the streets, the curbs are low but rough “a society for all” by its focus on practical to accommodate both wheelchairs, baby concepts and approaches to include social prams and people who are visually concerns in mainstream development.35 impaired, streets are marked by contrasting colours, poles topped with raised symbols. An inclusive society for all people Basically there are no housing units “for the disabled” but the housing units can flexibly The concepts of “equalization of opportuni- be changed according to the special needs ties” and “a society for all” have been used of the tenants. The idea was to build life- by the disabled people’s community since cycle homes that serve the family when the the early 1970’s. Now these strategic babies are small, when children go to concepts have gained wider currency and school and still when the parents grow old applicability, for instance in the “Copen- and eventually need assistive devices. The hagen Declaration on Social Development” project was awarded the golden prize of the and “Programme of Action of the World European Union HELIOS programme in Summit for Social Development”.a 1995.a “The aim of social integration is to create ‘a a Personal communication of Mrs. Pirkko society for all’, in which every individual, each Kylänpää, contact person for “A City for All”, with rights and responsibilities, has an active the Marjala Project, P.O. Box 59, 80101 role to play. Such an inclusive society must be JOENSUU Finland; e-mail : based on respect for all human rights and [email protected] fundamental freedoms, cultural and religious diversity, social justice and the special needs of

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vulnerable and disadvantaged groups, democ- disability issues in mainstream develop- ratic participation and the rule of law.”b ment and to further thereby achievement of the objectives of a society for all.39 a Report of the World Summit for Social Develop- ment, Copenhagen, 6-12 March 1995 Programme Level: (A/CONF.166/9), chap.I, resolution 1, annexes Programme Advisory Notes, and similar I and II. technical guidelines, on integrating b Ibid., para. 66. disability issues into development cooperation activities of country programmes were identified by the Experts meeting at With respect to inclusion of the disability the mid-point of the Decade as important dimension in social policies and develop- tools for formulation and coordiation of ment, selected strategic interventions and both national programmes and develop- relevant international instruments of the ment assistance, on request.40 United Nations are summarized below: Establishment and Development of Long-term Strategy Level: Information Resources: Long-term strategy to achieve a society Development of a pilot Clearinghouse for all – from awareness-raising to Data Base on Disability-related Informa- action36; and “Towards a society for all: tion Resources (CLEAR) was initiated by long-term strategy to implement the United Nations in the light of a recom- World Programme of Action concerning mendation submitted by the Experts Disabled Persons to the year 2000 and meeting at the mid-point of the Decade. beyond”.37 The documents provide both The data base is currently under develop- a basis for design of umbrella approaches ment on a variety platforms and contains, and a framework for mobilizing collabo- inter alia, data on selected successful rative action at all levels – international, examples of integrated policies, regional and national – to achieve the programmes and projects which objectives a society for all by the year contribute to furthering implementation 2010. of the World Programme of Action.

National-level Policy Design: Programme / Project Standard Rules on the Equalization of Implementation Level: Opportunities for Persons with Disabili- The General Assembly has recommended ties.38 The document provides interested that consideration be given to initiating Governments with technical guidelines on “spearhead” pilot projects in partnership the design of national disability options with interested parties to assist Govern- and related legislation and administrative ments on request to further implement guidance. comprehensive integrated policy approaches to disability.41 Such projects Planning Level: could be organized as joint ventures The current document, The Disability between governmental, intergovernmental Dimension in Development Action: Manual and non-governmental organizations; and on Inclusive Planning, focuses on concepts, they should reflect bottom-up rather than methods and procedures to reinforce the traditional expert-driven approaches.

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Figure I.7 summarizes graphically includes examples of support services that contents of a comprehensive strategy on a could be provided on requested by “society for all” together with examples of compentent intergovernmental bodies and integrating activities and promotional organizations.42 instruments at the conceptual, policy and operational levels. The graphic summary

FIGURE I.7 OUTLINE OF A STRATEGY: “TOWARDS A SOCIETY FOR ALL – FROM AWARENESS TO ACTION”

LEVEL I: Long-term development objectives: Strategic Priority: Empowerment of persons with disabilities

Enhancing the well-being of persons with disabilities:

Essentials of life Full participation Equality Independence Self-determination

Through ensuring the following societal prerequisites:

Effective prevention Rehabilitation for all in need

Fully accessible society Adequate support services ➨➨

LEVEL II: Medium-term objectives: Strategic Priority: Promoting Human Rights of persons with disabilities

Basic documents Specific interpretation Applicable to national applicable to all ➨➨adapted to rights of disability policy design and persons with disabilities evaluation

• Human rights instruments of • Standard Rules on Equaliza- • Specific medium-term goals the United Nations tion of Opportunities for and objectives for selected • International action Persons with Disabilities areas of national priority action programmes: for 1990’s related to the objec- - Health for All • ILO Conventions (for tives of the society for all - Education for All instance, rehabilitation) strategy - etc.

LEVEL III: Mechanisms: Strategic Priority: Involving organizations of persons with disabilities in mainstream development

Mainstream- Partnership Coordination, Medium-term Mobilization Resources ing and social and full Advocacy and planning from aware- pooling integration involvement enforcement ness to action ➨

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LEVEL IV: National level action: Strategic Priority: Inclusive policy approaches

Expected results Action for implementation

• Increased integration in national policies, • Comprehensive review of policies programmes and projects • National forum to design a policy document • Primary health care (PHC), and related inte- • Design a medium-term action plan grated prevention measures • Establish coordination and monitoring • Community-referenced and integrated rehabilita- mechanisms tion services • Support organizations of disabled people • National disability legislation • Integrate disability into national policies for • Functional organizations of disabled persons and socioeconomic development related bodies • Integrate disability issues into technical • Improvements in accessibility cooperation activities • Improved prerequisites for independdent living • Improved opportunities for income generating opportunities • Appropriate social services

International support for programme countries: ➨ Strategic Priority: Sustained development from the social perspective

• Maintain high-level political • Increase technical cooperation • Design a feasible inclusive support • Integrate into mainstream policy • Strengthen the United activities • Develop co-ordinated planning Nations’ role • Improve division of labour, and co-operation fora • Focus on regional approaches coordination and partnership • Develop an effective moni- and “South-South” cooperation • Initiate joint pilot projects toring and follow-up systems ➨

Role of the United Nations focal point on disability: Strategic Priority: Building capacities for integrated strategies, policies and programmes for a society for all

• Formulate standards and • Establish and develop informa- • Promote awareness and under- guidelines (e.g. Standard Rules) tion networks standing of issues and trends • Formulate policy options • Promote and support coopera- among specialized publics (e.g. Long-term strategy) tive networks for consultations (Governments, NGOs, • Draft technical manuals on on coordination of action (e.g. academic community and methods and procedures use United Nations system private sector) • Organize training and tech- interagency mechanisms to • Identify, review and assess nical exchanges on priority promote increased joint action, selected experience with a view topics partnership and alliances) to documenting “good practice” • Mobilize support for policy and programme developments • Provide on request advice and assistance in key knowledge areas

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NOTES: Unit I 16. World Health Organization (WHO), Interna- 1. United Nations General Assembly resolution tional classifcation of impairments, disabilities and 46/96. handicaps (Geneva 1980), pp.27-29; and World 2. United Nations document A/37/351/Add.l and Programme of Action concerning Disabled Persons, Corr.l, annex, sect. VIII, recommendation I (IV). para. 6. 3. United Nations General Assembly resolution 17. Status of Disabled Persons Secretariat, Depart- 47/3. ment of the Secretary of State of Canada, A 4. Ibid., para 173. Way with words; guidelines and appropriate termi- 5. United Nations General Assembly resolution nology for the portrayal of persons with disabilities 42/58, para.5. [1990]. Note: in 1993 the functions of the Status 6. Op. cit., para 6, and General Assembly resolutions of Disabled Persons Secretariat, Department of 43/98 and 44/70. the Secretary of State of Canada were assumed 7. United Nations, “Report of the expert group by the Department of Canadian Heritage. meeting on a long-term strategy to further the 18. Standard Rules on the Equalization of Opportunities implementation of the World Programme of for Persons with Disabilities, United Nations Action concerning Disabled Persons to the year General Assembly resolution 48/96, annex. 2000 and beyond (Vancouver, 25-29 April 1992) 19. Ibid., annex, para. 24. note by the Secretary-General” 20. United Nations General Assembly resolution (E/CN.5/1993/4), annex, para. 54. 217 A (III). 8. Ibid., para. 62. 21. United Nations, World Programme of Action 9. Ibid., para. 66(b). concerning Disabled Persons, DPI/933/Rev.l. 10. United Nations document A/47/415 and Corr. August 1992, para. 25. l. 22. Ronald Wiman, Towards an integrated theory of 11. United Nations General Assembly resolution help, pub. 2/1990 (Helsinki, National Board of 47/88. Social Welfare, 1990). 12. United Nations, Commission on Human 23. Standard Rules..., annex, para. 23. Rights, “Human rights and disability, final 24. Ibid., rules 3 and 4. report prepared by Mr. Leanardo Despoy, 25. Ronald Wiman (1990), op. cit.; and Ronald Special Rapporteur of the Commission on Wiman, “The social dimension of sustainable Human Rights” (E/CN.4/1991/31). See also development – a society for all”, Dialogi; Journal Einar Helander, “Prejudice and disability: an of the National Research and Development Centre introduction to community-based rehabilita- for Welfare and Health, English supp. 4b (1994) tion” (New York, United Nations Development pp. 11 – 14. Programme, 1992). 26. Standard Rules..., annex, para.22; and World 13. United Nations Children’s Fund (UNICEF), Programme of Action concerning Disabled “Alternatives to institutional care; report of Persons...., paras. 50-55. UNICEF-ISCA Workshop for Central and 27. Report of the World Summit for Social Develop- Eastern Europe (Riga, Latvia, 29 January – 2 ment..., annex I, para. 1. February 1995)” (Ronald Wiman, rapporteur), 28. Ronald Wiman (1990), op. cit. published for UNICEF by National Research 29. Ronald Wiman (1994), loc. cit. and Development Centre for Welfare and 30. United Nations, Department of Public Infor- Health (STAKES), Helsinki, 1995. mation Standard Rules on the Equalization of 14. United Nations Report of the World Summit for Opportunities for Persons with Disabilities, pub. Social Development, A/CONF. 166/9, chap. I, DPI 1476 (New York, May 1994). resolution I, annex II. 31. Based upon data compiled by the United Nations 15. See discussion in Ronald Wiman, “From on 55 countries during the 1980s the percentage labelling to enabling; development of concep- of the population that is disabled varies from 0.2 tual instruments for understanding people’s to 20.9 per cent of surveyed populations in coping problems”, Proceedings of the scientific Disability Statistics Compendium, Statistics on colloquium on functional limitations and their Population Groups, Series Y, No. 4 (United consequences (Montreal, Canada, 18-20 Nations publication, Sales No. E.90.XVII.17), p. November 1992), in Elargir les horizons; perspec- 25-27. The Compendium notes that the wide tives scientifc sur I’integration sociale; Editions range of disability rates reflects not only varia- multimondes, publi, en coeditions avec L’Office tions in the level of disability but a high degree of des personnes handicapées du Québec (Québec, variability in strategies for measurement of IBIS Press, 1994). disability among countries (p. 27).

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32. See, for example, Averting the old age crisis; policies to protect the old and promote growth, a World Bank Policy Research Report (New York, Oxford University Press, 1994). 33. United Nations General Assembly, resolution 45/91. 34. Report of the World Summit for Social Develop- ment.., chap. I, resolution 1, annex I, “Copen- hagen Declaration on Social Development”. 35. Ibid., Commitments 2, 4 and 8 in particular. 36. United Nations General Assembly resolution 45/91. 37. United Nations document A/49/435, annex. General Assembly resolution 49/153, inter alia, calls upon Governments to “take into account the elements suggested in the Long-term Strategy...”. 38. General Assembly resolution 48/96, annex. 39. The manual has been prepared in the light of recommendations submitted at the Global meeting of experts to review the implementation of the World Programme of Action concerning Disabled Persons at the mid-point of the United Nations Decade of Disabled Persons (Stockholm, 17-22 August 1987): United Nations document A/42/561, General Assembly resolution 42/58. 40. Ibid.,General Assembly resolution 47/88 requested the Secretary-General, inter alia, to integrate disability issues into programmes and projects of the specialized agencies “on a broader scale and with a higher priority”. The United Nations Development Programme recently has issued intersectoral “Guidelines for Programme Support Document” (New York, November 1993) for the analysis and planning of its pre-investment assistance. 41. United Nations General Assembly resolution 47/88. 42. United Nations document E/CN.5/1993/4; and Bengt Lindqvist, “Towards a society for all – from awareness to action; a draft long-term strategy to further implementation of the World Programme of Action concerning Disabled Persons to the year 2000 and beyond”, unpublished paper (12 November 1992).

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A. INCLUSIVE NATIONAL POLICIES

1. ENABLING ALL PEOPLE TO LIVE MEANINGFUL LIVES “A society for the few” All poor and vulnerable groups in society About one billion people are living in share the situation of being excluded from absolute poverty with barely enough food access to opportunities and choices avail- and shelter to survive.a The Report of the able to the rest of society. Equal opportu- World Summit for Social Development nity policies that adhere to Universal states that “eradication of poverty cannot be Human Rights and the enabling approach accomplished through anti-poverty to social services are the cornerstones of programmes alone”. “Poverty is inseparably strategies that focus on the development linked to lack of control over resources, including land, skills, knowledge, capital of human capacities. This approach makes and social connections. Without those it possible to address the diverse problems resources, people are easily neglected by of people within an inclusive framework policy makers and have limited access to and through an integrated rather than a institutions, markets, employment and sectoral service delivery system. public services.”(WSSD para 23) The poorest people are left without hope and human dignity due to the inequalities created by a societies that benefit a small group of the privileged, only.

a United Nations Report of the World Summit for Social Development, A/CONF.166/9, Annex I, para 18–19, p.41

First needs must be addressed first. The fundamental aspiration of all people is, however, not bare survival. Also poor people strive for more.

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FIGURE II. 1 FIRST NEEDS FIRST

(David Werner)

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All people are equal in human nature. The action towards the realization of one’s physiological, social and mental dimen- human potential. The self-actualization sions of a living human being are insepa- needs are limitless and they get their rable. None of these exists alone. All expression in people’s aspirations towards people have the same fundamental needs. “a life of their own”, independence, self- Survival needs must be met to stay alive. determination and creativity through full Survival needs are, however, narrow and and equal membership of the family, the limited and should not be considered community and society. “Well-being” is, identical to the “basic human needs”. The therefore, a product of all these aspects of fundamental essence of human life is, after life. Therefore, adding to one cannot all, to strive towards a meaningful life. compensate the lack of another.1 Meaning in life is created by social inter-

FIGURE II. 2: WHAT IS WELL-BEING?

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The hierarchy of human needs is usually making just as a wrong map would be for drawn as a pyramid where survival needs orientation in a big city. Survival needs are (physiological needs) form a broad base limited. Social needs can hardly be sepa- and self-actualization needs (mental and rated from the essence of human existence spiritual) presented at the top as the tip of itself. Mental and spiritual needs and an iceberg. This conceptualization is capacities are limitless and reflect the misleading and is poor a tool for policy- ultimate objectives of human existence.

FIGURE II. 3 THE HIERARCHY OF HUMAN NEEDS – THE RIGHT SIDE UP: One does not live to eat; one eats to live.

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Poverty and insecurity deprive people of a UNICEF “Alternatives to Institutional Child all these aspects of life at the same time. Care”, Report of the Workshop for Eastern and Consequently, poverty eradication calls Western Europe, convened by UNICEF and for a broadening of the arenas of life of ISCA, in Riga, Latvia 29 January - 2 February, Rapporteur Ronald Wiman, Published for those who are poor by simultaneously UNICEF by STAKES, Helsinki 1995, pp. 6-8. enabling people to have better access to and better control over the essentials of b“The Rights of the Child”, Human Rights Fact life, the social and power relations and the Sheet No. 10, Centre for Human Rights, United development of their own person. Nations, Geneva, 1992.

Well fed – but utterly poor children The realization that people, by their very nature, are active agents who want and are In many of the former centrally planned capable of being in charge of their lives eastern European countries now making rather than being merely passive objects of the transition to market economies, it was a standard practice to place children with care, has led to a new understanding about disabilities in large state institutions. social development. Disabled children were often abandoned by “Human beings are at the centre of their parents. They became “social concerns for sustainable development. orphans” of living parents. The practice was They are entitled to a healthy and produc- encouraged by medical and social welfare tive life in harmony with nature.”2 This professionals. Thousands of disabled first principle of “The Rio Declaration on children lived in those institutions, rather well-fed and clothed. But never in their Environment and Development” and the lives did they own a single personal priority goal of “well-being for all” of the belonging. They never had a single steady World Summit for Social Develoment call personal relation with an adult. They never for the reconsidering of national develop- had any hope for a future outside the insti- ment policies. A major change of focus is tution that provided for their “basic needed. While society has the duty to needs”.a ensure the availability of the essentials of Since the international community became life for all, it must also simultaneously involved at the beginning of the 1990’s, an enable all people to fully participate in enormous improvement in the lives of society and pursue their own aspirations children has been achieved within a few and diverse goals as full and responsible years with the help of international organi- members of society. A major reallocation zations, including UNICEF. One of the of access to and command over material main reasons for this success was the adher- ence to the Convention on the Rights of resources, social networks and power the Child of the Child which stated that structures on the world scale and within “State Parties recognize that a mentally or nations is needed.3 This would involve physically disabled child should enjoy a full the shifting of priorities beyond the and decent life, in conditions which ensure minimum needs of marginalized people dignity, promote self-reliance, and facilitate and the corresponding reallocation of the child’s active participation in the opportunities for meaningful participation community.” Article 23, para 2 b – Keeping children only alive is never enough. and self-actualization. Social development is a process of enlarging the choices for all people. 4

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2. ADDRESSING DISABILITY IN Non-discrimination of disabled people as a AN INCLUSIVE POLICY Constitutional right STATEMENT The Constitution of the Republic of The enabling approach was already Uganda, adopted and enacted by the reflected, if not as clearly and universally Constituent Assembly on 22 September as today, in the World Programme of 1995 and promulgated on 8 October 1995 Action concerning Disabled Persons in recognizes the rights of disabled people. 1982 which introduced the concept of Chapter four, “Protection and Promotion equalization of opportunities and equal of Fundamental and Other Human Rights and Freedoms” states: access to society. (1) “Persons with disability have a right to respect and human dignity and the State shall “Matters concerning disabled persons should be take appropriate measures to ensure that they treated within the appropriate general context realize their full mental and physical potential”; and not separately. Each ministry or other (2) “Parliament shall enact laws appropriate for body within the public or private sector respon- the protection of persons with disabilities”. sible for, or working within, a specific sector Under Cultural Objectives the status of should be responsible for those matters related Sign Language is recognized: (the State to disabled persons that fall within its area of shall) competence .” (WPA para 89) ”promote the development of a Sign Language for the Deaf.” a The Standard Rules on the Equalization of Opportunities for Persons with Disabil- In Finland, protection against discrimination on the basis of disabilities, or other ities, adopted in 1993 reaffirm strongly the personal characteristics, and the right to use principles of inclusive policies, plans and Sign Language are constitutionally guaran- activities on: teed (as revised August 1995).

“The needs and concerns of persons with Paragraph # 5 states: “All persons shall be disabilities should be incorporated into general equal before the law.” development plans and not be treated sepa- “No distinction shall be made without acceptable reason on the basis of sex, age, origin, language, rately.” (SR 14.4). religion, conviction, opinion, health, disability or for the other reason related to person. In order to ensure the applicability of the Children shall be treated equally as individ- equal opportunity principle to all situa- uals, and they shall be allowed to influence tions and all people, it is desirable for the matters affecting them according to their level commitment to be expressed at highest of maturity.” possible level. Paragraph # 14 states: “The rights of those using Sign Language or of those who are in need of interpretation or translation because of a disability shall be secured by Act of Parliament”.b

For instance in Canada and Germany, the rights of disabled people are recognized in their respective constitutions. Some countries have adopted comprehensive anti- discrimination legislation, such as the

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“Americans with Disabilities Act” in the and freedoms of people with United States of America. disabilities must be recognized; (b) prevention of disabling a World Federation of the Deaf conditions, including early interven- b Scheinin, Martin Incorporation and Imple- tion in case of illness, must be mentation of Human Rights in Finland, p. 292, accorded appropriate priority; article in Scheinin Martin (ed.): Human Rights in the Nordic and Baltic Countries, Kluwer Law (c) rehabilitation must be available for International, Boston 1996. those who need it; (d) accessibility must be reasonable; (e) auxiliary support services, including In the framework of a general commit- assistive devices, tailored environment to equal opportunities, the specific ments, and support to families must statement of intent and priorities be made available when needed. concerning people with disabilities should focus on their empowerment, that is, on In cases where a person with a disability enabling them to take charge of their lives needs to be represented by another on equal terms with other people. This person, these prerequisites should be calls for ensuring reasonable access for all made available through such persons, for to the basic activities of life by which example, parents of disabled children or people provide for their essentials of life, eligible care-takers of people with serious to equally and fully participate in society, intellectual disabilities.6 to gain independence and exercise their All five prerequisites should be right to self-determination. addressed simultaneously, not just one or However, it is not possible for people a few (see also Unit IV). who have disabilities to participate in such basic activities on equal grounds with others without the following additional prerequisites5: (a) the dignity and fundamental rights

FIGURE II.4. A MISSION STATEMENT FOR AN INCLUSIVE NATIONAL POLICY TOWARDS DISABLED PEOPLE

The strategic mission: Towards an Inclusive Society for All People

Disability policy objective: Enhancing the dignity, well-being and empowerment of disabled people,

By enabling them to achieve: • The essentials of life • Equality and Full Participation • Independence and Self-determination

Through ensuring the following additional prerequisites: • RECOGNITION OF RIGHTS • PREVENTION OF CAUSES • REHABILITATION • UNIVERSAL ACCESS • SUPPORT SERVICES

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These empowering prerequisites can be 3. STANDARD RULES ON THE ensured and organized in various ways. As EQUALIZATION OF OPPOR- it is not possible to cater for the needs of TUNITIES FOR DISABLED the majority of the disabled people by PERSONS focusing on labour and capital-intensive, The most recent international guidelines specialist-driven approaches, there is an for the formulation of national disability urgent need to turn away from the social policy are the Standard Rules on the welfare driven care approach towards Equalization of Opportunities for enablement. Disabled Persons. The Rules comprise 22 policy principles covering various sectors. Under each of the principles there is a set Empowerment leads to the full use of human of policy options on how to implement the potential and to sustainable development principle. “If you wish to harvest once just sow, The Standard Rules are easy to apply If you wish to harvest ten-fold plant a tree, in different national circumstances. They If you wish to harvest one hundred-fold provide a basic structure and guide for educate people.” inclusive national policies on disability. (Lao Tse) The rules emphasize the integration of disability issues into all relevant policies, (“mainstreaming”), rather than treating them in isolation or separately.

FIGURE II. 5 STANDARD RULES ON THE EQUALIZATION OF OPPORTUNITIES FOR PERSONS WITH DISABILITY

I. PRECONDITIONS FOR EQUAL PARTIC- II TARGET AREAS FOR EQUAL IPATION PARTICIPATION

A. Awareness-raising A. Accessibility B. Medical care B. Education C. Rehabilitation C. Employment D. Support services D. Income maintenance and social security E. Family life and personal integrity III. IMPLEMENTATION MEASURES F. Culture G. Recreation and sports A. Information and research H. Religion B. Policy-making and planning C. Legislation IV. MONITORING MECHANISMS D. Economic policies E. Coordination of work F. Organizations of persons with disabilities G. Personnel training H. National monitoring and evaluation of disability programmes I. Technical and economic cooperation J. International cooperation

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ship of the group need not necessarily be International standards are applicable in representative but it should include partic- all countries ipants from several relevant organizations, at least from disabled people’s organiza- In several countries the Standard Rules currently serve as a reference for the tions and key government ministries or revision of national disability policies and agencies. legislative reforms. In Estonia the Standard Rules have been adapted to constitute the -> Step 2: Design an initial policy national disability policy. In Finland statement national disability policy was revised by the The task force should first formulate an National Disability Council. The current situation was reflected and evaluated against attractive and up-to-date draft policy each of the Rules and a corresponding statement, or mission statement, on the proposal for action was made.a empowerment of people with disabilities. The purpose is to table crucial issues, a “Kohti yhteiskuntaa kaikille”, Valtakunnallinen whether the solutions are considered to be vammaisneuvosto 1995, (Towards a Society for immediately feasible or not. At this stage, All, National Disability Council, Helsinki, the development objectives must be set in Finland. Available in Finnish, Swedish and the right direction. English). -> Step 3: Make a situation analysis The current disability situation, the status, 4. TEN STEPS TOWARD A living conditions of and opportunities for NATIONAL DISABILITY disabled people, the existing policies, the POLICY programmes and plans are reflected The direct application of the Standard against the new mission and the develop- Rules may be called a “normative ment objectives. approach” to the design of national policies. An alternative is to use a “devel- -> Step 4: Stage an awareness-raising opmental approach” that involves all the event relevant actors already at the design stage. In order to draw the attention of the With such “bottom-up” involvement media, generate public discussion and people learn by doing. It represents the mobilize people with disabilities and their first step in the implementation of the organizations, a visible event should be resulting policy. International standards staged. can, naturally, also be used as reference material in such a process. -> Step 5: Arrange a national forum A developmental step-by-step The purpose of a national forum is to approach to designing a national disability involve and commit all the relevant 7 policy may look as follows : agencies and to receive detailed inputs to further discussion. A broad based coalition -> Step 1: Establish a task force to complement or replace the initial task An initial task force should include a force for further work should result. group of people who are able to work together and have a fresh insight into development. At this stage, the member-

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-> Step 6: Arrange a consultations -> Step 8: Establish a regular moni- round toring system Initiate a process of wide consultation The policy paper should specify and with the full involvement of all relevant identify resources, appropriate institu- partners, especially organizations of tional arrangements and the distribution people with disabilities, in order to design of responsibilities for the implementation a national disability policy that addresses of the plan. In order to make all relevant the needs and concerns of persons with agencies accountable, the implementation disabilities, as well as the political and should be monitored by a task force, economic realities of the country. Seek National Coordinating Committee or a inputs to the development of a national coalition of disabled people’s organiza- action plan from: tions. – all ministries at all administrative levels of Government; -> Step 9: Set benchmark years for – organizations of people with disabili- revision ties; The policy should be kept alive. Stick to – other non-governmental and commu- principles rather than to the letter. Let nity-based organizations; the implementation arrangements live and – representatives of regional and grass- respond to the local contexts. Arrange a roots/municipal organizations. revision workshop or forum at regular intervals (2–4 years). -> Step 7: Draft a policy paper While setting the situation in its historical -> Step 10: Expand the participation context, the policy paper should be based of disabled people in all on the development objectives derived and aspects of life adapted from the current international Get to work to implement the policy at all consensus, such as the Standard Rules. levels. Aim at bringing in and including The paper should state the immediate disability concerns in all aspects of society. urgent needs, medium-term targets and On all occasions promote the participation long-term objectives. Furthermore, it of people with disabilities in national should select the priorities, make a feasi- policies, programmes and projects for bility study and design a step-by-step plan economic and social development. of action for reaching each of them. It is Examine also international cooperation vital to include measures and mechanisms policies, programmes and projects, with a that have long-term strategic potential, view to promoting the integration of such as the establishing and/or strength- disability concerns and the participation of ening of a national coordination mecha- people with disabilities therein. This will nism, and supporting the self-help organi- help to keep disability concerns on the zations of disabled persons to play an high political agenda. effective role in the development of national policies and programmes. That support may include resource allocations A long journey starts with the first step and a milieu conducive to govern- – in the right direction In Namibia, in 1991 a national workshop mental/non-governmental organization was conducted with the main objective of cooperation. identifying the major needs of people with

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disabilities. The workshop recommended a meaningful life stays in the community the following steps, which are now in the where they live. process of implementation: (1) Cabinet adoption of a national plan for 5.1 Who are the actors on the scene? the integration of disabled people in the rest of society. People are by nature active, socially and (2) An awareness campaign for communi- morally conscious, goal-oriented agents of ties to realize the needs and equal opportu- their own lives. Well-being cannot, there- nities for disabled people. fore, be given to people from outside. (3) Drafting of disability legislation to People themselves produce their well- protect the rights of disabled people. being, provided that the prerequisites are Done so far (1994): available. Governments have the respon- (1) The report of the national workshop sibility to ensure that such prerequisites was taken by the cabinet as a working are available for all.8 document for the Division for Rehabilita- Individuals obtain the goods and tion. services necessary for their well-being by (2) Awareness campaigns were conducted in interacting with other members of the 1992–1993 to coincide with the End of the family or household they belong to – by Decade of Disabled Persons activities. (3) A national workshop on legislation was exchanging goods and services from the held and a six-member committee was various “markets”. The markets consist elected to draft the legislation. The not only of the profit-making private committee consisted of the Ministry of sector (business) but also the public sector Lands, Resettlement and Rehabilitation, and the non-profit NGO sector. Further- the Ministry of Basic Education, the more, there is the “community” where Ministry of Justice and disability organiza- people live. A “community” consists of tions.a networks of physically or socially close

a United Nations Consultative Expert Meeting people. These people are members of the on Integration and Disability Issues in Develop- business community, the grassroots ment Cooperation Activities, Vienna, 29 May - 2 employees of the public sector and the June 1995 (Vienna EGM) and International more or less organized networks of people Round Table on Disability, Third Meeting, and families, the so-called non-profit Joensuu. Updated information is available in the SFA NGOs. And naturally, individual families network in the Internet (http://www.stakes.fi/sfa) and their members are themselves part of the community. Therefore a community belongs neither to the “public” nor to the 5. THE ROLE OF SOCIAL “private” (profit or non-profit) sector. The SERVICES AND SOCIAL community includes and involves all the SECURITY people. Disability issues should not be considered Each of these agents has a role to play. as a matter for social welfare, social care We can illustrate the “stage” where these or charity but rather as a central issue of agents act with the help of a tetrahedron human rights and social development. (Figure 6). Each agent (or actor) is located While the ultimate responsibility for the in one of the four corners. The exchange human rights of disabled people remains of goods and services takes place in the with the State, the primary responsibility space inside this tetrahedron. This three- for enabling people with disabilities to live dimensional “stage” we call “the welfare

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FIGURE II.6 WHO ARE THE ACTORS ON THE WELFARE MARKET?

THREE ALTERNATIVE STRATEGIES FOR PRODUCING ESSENTIAL WELFARE SERVICES

Public authorities Welfare state strategy

NGOs Business

Family Community Liberalist Community(The Individual) strategy based strategy RW market”. The well-being of people is a – The individual him/herself, mix of various inputs derived through – The family or the household, interaction with all these actors.9 – The local community, as an amalga- The integration of disability concerns mated inclusive social agent of its own and the participation of people with – Non-governmental organizations, disabilities in the mainstream of develop- including those of people with disabili- ment policies and programmes should not ties, be left to any one sector alone. It requires the cooperation of:

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– Public authorities, such as Government when markets fail to meet the needs of departments and/or agencies, municipal various people. Social policies are used to organs, etc., counteract structural inequalities and - The profit-oriented private sector, to minimize the adverse effects of poverty - Intermediate organizations such as and the exclusion of vulnerable groups. foundations. Furthermore, social services may be designed to facilitate the access to and participation of people in various markets, to enable and empower them to gain Teamwork works equality, to act more independently in the markets and to contribute their potentials In Indonesia, Presidential Decree 39 of to the development of society. Social 1983 created a coordinating team for social welfare activities for the disabled. The team welfare services are thus an investment consisted of the departments of Social in people. In its deepest essence, the Affairs, Manpower, Education, Internal mission of the social welfare sector is to Affairs, Cooperatives, Trade, Religion, actively advocate the full participation Defence and Security, the Indonesian and human rights for all people, particu- National Council on Social Welfare, The larly those who are poor or vulnerable. Indonesian Businessmen’s Association, social welfare groups for disabled people Regarding social welfare services and and disabled people themselves.a social security, there are several strategies concerning the division of labour between a United Nations Consultative Expert Meeting the above agents. Many combinations of on Integration of Disability Issues in Develop- actor roles are feasible. There is indeed ment Cooperation Activities, Vienna, 29 May - 2 much variation in the division of labour June 1995. between the welfare producing agents due to historical and cultural reasons. Here are the three basic or pure strategies (Figure 5.2 Three basic strategies II 6).

Social development, in particular, the (1) The welfare state approach empha- equalization of opportunities for disabled sizes the role and responsibility of the people, should not be seen as the respon- public authorities, the state and the sibility of the State alone. municipality, in ensuring that all people have access to basic income and services. “The ultimate responsibility of States for the However, at times when this policy is situation of persons with disabilities does not taken to the extreme, it could lead to relieve others of their responsibility. Anyone in excessive public spending and the repres- charge of services, activities or the provision of sion of private initiatives. information in society should be encouraged to (2) The liberalist model puts the accept responsibility for making such emphasis on people purchasing their own programmes available to persons with disabil- social security and services from the private ities.” (SR Rule 14, 4)10 sector. At the extreme, “The poor do not have a right to join the ample dinner table Social welfare services and social security of Nature, unless charity keeps them systems have evolved to offer support alive”11, as put by Thomas Malthus.

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(3) The community involvement infrastructure is poor, as is the case in approach focuses on the active role of much of the world. A community involve- civil society supported by the local or ment approach is not, however, only a grassroots representatives of govern- poor people’s solution. Rather it is the mental bodies and non-profit NGOs. At model of “an active society for all”12 their best, community-based strategies which strives to involve the people them- are “inclusive” and enable all the agents, selves in the process of sustainable social including families and individuals them- development. Involving the people is a selves, to participate. At the other way to achieve development. Involvement extreme, this strategy may lead to is, however, also a process which directly isolated and unsustainable community- increases people’s well-being. based initiatives without the systematic support of the public authorities. The hand of the giver is always While such theories or types of strategies above the hand of the one who receives are only illustrative, the risks involved in Charity, and the providing for “basic” the choice of framework need to be survival needs, does not change the realized. Any improvement in people’s deprived status of a person who is poor or lives takes place at the level where they vulnerable because he or she has a disability live. Therefore, whatever the approach, and therefore is excluded from remunera- development results only if the widening tive activities. A “basic needs” approach too of choices available takes place at the often stops at minimum needs and perpetu- ates the status quo of unequal allocation of community level, too. opportunities. Excluded people themselves, and their aspirations towards a meaningful Community based actualization of their own potentials, should primary human services be at the focus of assistance that creates enabling environments for full participa- The providing of all social and health tion, access to resources and for living a services, including services for disabled meaningful life. People themselves will then people, is the responsibility of the munici- cater for their survival needs.a pality in Finland. The service system is supervised by local social and health boards consisting of representatives of the resi- a ICSSW Tampere Declaration (see note 1. dents. The State provides financial subsi- Unit I). dies to municipalities on the basis of their financial situation. In order to be able to An integrated approach to social develop- provide highly specialized services, munici- ment and the inclusion of disabled people palities may establish coalitions on cost sharing basis, or they can buy neccessary in development call for a unified concep- services from the private market or non- tual approach. Rather than designing profit organizations. approaches focusing on one dimension or characteristic of the human being, such as age, gender, wealth, cultural background or The developmental approach that relies ability, inclusive development activities on community involvement and local should start with universal conceptualiza- capacity building is also applicable in situ- tions regarding the nature of human beings ations where resources are scarce and the and their aspirations towards a good life.

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B. DISABILITY-SENSITIVE DEVELOPMENT COOPERATION POLICIES

The international community has urged, Rule 21, on technical and economic coop- through United Nations General eration, states: Assembly resolutions, Governments and United Nations agencies to give higher States, both industrialized and developing, priority to disability issues in their devel- have the responsibility to cooperate in and take opment cooperation activities and to inte- measures for the improvement of the living grate the disability dimension into their conditions of persons with disabilities in devel- programmes. Representatives of 186 oping countries. States, including 117 Heads of State or Government, expressed their commitment (1) Measures to achieve the equalization of at The World Summit for Social Devel- opportunities of persons with disabilities, opment, to integrate social concerns into including refugees with disabilities, should be development activities. integrated into general development States are responsible for ensuring programmes. universal human rights for their citizens. Consequently, the State is ultimately (2) Such measures must be integrated into all responsible for monitoring and guaran- forms of technical and economic cooperation, teeing that the human rights of people bilateral and multilateral, governmental and with disabilities are observed and taken non-governmental. States should bring up into account in all the activities of disability issues in discussions on such coopera- Governmental bodies or agencies, tion with their counterparts. including agencies dealing with development cooperation. The donor Govern- (3) When planning and reviewing ments, should, on their part, ensure that programmes of technical and economic opera- the universal human rights principles and tion, special attention should be given to the good practices applied in domestic devel- effects of such programmes on the situation of opment planning are followed and persons with disabilities. It is of the utmost adapted to the development cooperation importance that persons with disabilities and context, as well.13 their organizations are consulted on any development projects designed for persons with 1. THE POLICY STATEMENT disabilities. They should be directly involved in The Standard Rules provide general the development, implementation and evalua- guidance on how to take into account the tion of such projects. disability dimension in technical and economic cooperation. (4) Priority areas for technical and economic cooperation should include:

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(a) development of human resources through the development of skills, abilities and poten- (a) Budget authorities, tials of persons with disabilities and the initia- (b) Ministries of foreign affairs, tion of employment-generating activities for (c) Governmental development coopera- and of persons with disabilities. tion agencies, (d) Non-governmental bodies, involved in (b) development and dissemination of appro- development cooperation, priate disability-related technologies and (e) The business community. know-how.

(5) States are also encouraged to support the 2. POLICY GUIDELINES OF formation and strengthening of organizations DONOR AGENCIES of persons with disabilities. Donor agencies, in line with the policy statement prepared by a competent body, (6) States should take measures to improve the should prepare a policy document knowledge of disability issues among staff making explicit the guidelines expected to involved at all levels in the administration of be followed by all partners. technical and economic cooperation As a first step, working relations programmes.”14 between the donor agency and disabled peoples’ organizations should be estab- As the first step in applying those guide- lished. The first obstacle to be overcome lines, a decision to include the disability in all cooperation is a mutual lack of dimension in all development cooperation understanding of each others views, aspi- activities should be made explicit. Experi- rations, working methods and constraints. ence shows that much can be achieved at The staff of the donor agency needs to be practically no extra cost, provided that the sensitized about disabled people’s disability dimension is included already at concerns in the cooperating country. the planning stage. Disabled people, in turn, need to under- Both donor and recipient govern- stand the rules and customs of work, and ments, and the regional, and/or intergov- constraints of those planning and imple- ernmental entities involved should menting development cooperation endorse the principles set forth by the policies. Standard Rules in a policy statement One or more joint workshops regarding the integration of the needs, between disabled peoples’ organizations rights and concerns of persons with and the donor agency should be orga- disabilities into development cooperation nized. The purpose is to agree on policy programmes and projects. The prevention guidelines that adequately take into of disabling conditions should also be account the concerns of disabled people. given due regard in all development activ- The disability-sensitive policy ities. The policy statement should specify guidelines of the donor agencies should the minimum standards to be followed by contain the following points: all agencies involved in development cooperation activities. (1) Recognize and be sensitive to the The policy document should be existence of persons with disabilities directed to: within any target group. Consequently,

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consideration of the needs of persons who are not dealing with obvious with disabilities should be included in the social issues – and including planning, financing and implementation disability issues in on-the-job of mainstream development cooperation training and preparatory courses for activities – and their budgets – as a new staff going to field assignments; matter of course. (c) Establishing ad-hoc advisory groups (2) The strategy for inclusion should consisting of persons with disabilities consist of an appropriate mix of the or/and representatives of their organi- following approaches: zations, policy makers, technical (a) including disability issues and disabled experts, planners and administrators; people into mainstream development (d) Employing disabled people, on an cooperation activities; in order to equal opportunity basis, subcon- enhance equal opportunities for tracting them as consultants, or participation also by people with involving them as advisors in policy disabilities in the mainstream of their design and evaluation, programming societies and communities where they and project identification, planning, live; design, appraisal, implementation, (b) adding or preferably integrating a and follow-up tasks; in equal opportu- specified disability component in nity employment policies, personal general mainstream programmes and experience with disability may be projects; in order to support with considered as an extra asset in job complementary measures people descriptions dealing with disability with disabilities within the framework issues; of a mainstream activity; (e) Earmarking an agreed proportion of (c) making a provision for disability- financial resources for supporting the specific projects intended to address development cooperation activities of and focus on some specific needs of disabled people’s own organizations persons with disabilities. and other organizations working for (3) In order to ensure the implementa- the benefit of persons with disabilities; tion of an integrated policy concerning (f) Establishing threshold criteria in key disability, the policy guidelines should sectors: ensuring, through binding imply the establishing of concrete arrangements, that all projects in the mechanisms and practices to be applied social, health, educational and employ- by the donor agency, and a follow-up ment sectors, regardless of the planning mechanism. Such a mechanism could and implementing agency, will pay include: adequate attention to the inclusion of a (a) Establishing and institutionalizing disability dimension into the project; constant cooperation between the (g) Ensuring, through appropriate development agency and the disability checking and auditing procedures, community. The minimum require- that no mainstream development ment should be to involve the project that is disability relevant will National Coordinating Committee in be funded and/or implemented if the an advisory function; disability dimension is not adequately (b) Organizing an awareness campaign taken into account; for all staff – particularly for those

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(h) Disseminating the guidelines to all dures and auditing arrangements that partners, such as consultants, imple- ensure the materialization of the agreed menting agencies, contractors, and policy principles. NGOs involved regardless of funding source. Disseminating the guidelines The policy guidelines of the donor agency also to bilateral development coopera- should be designed in close cooperation tion partners in the receiving coun- with major disabled people’s organiza- tries increases the sensitivity of both tions. It is also advisable to institutionalize partners to disability issues. such guidelines through a formal mutual agreement between disabled people’s (4) The policy guidelines should be made organizations and the donor agency. applicable by translating them into prac- Furthermore, follow-up and revision tical programming and project procedures should be agreed upon. planning guidelines concerning proce-

A FRAMEWORK FOR A POLICY DOCUMENT OF A DONOR AGENCY a

A. The facts According to one estimate more than 300 million persons have moderate or severe disabilities. Two thirds of them live in developing countries and their number is growing rapidly. The growth is fastest in the older age groups. (c.f. Helander 1992) At present, only a small proportion of persons with disabilities have access to specialized services. No dramatic improvements are foreseen in the near future. Specialized projects, targeted to persons with disabilities only, can cater for the special needs of a very small fraction of them only. In order to reach the majority, disability issues have to be included in mainstream activities targeted to the general population in the community.

B. The objectives The objectives of the policy are derived from the standards endorsed by the international community, particularly the World Programme of Action and the Standard Rules. The ultimate objective is to enhance the well-being of persons with disabilities on equal basis with other population groups in the recipient country or community. This is done by developing the potentials of the recipient so that the cooperation results in sustainable development towards well-being for all, including persons with disabilities.

C. The strategy Social issues should be dealt with in the broader context of strategies for sustainable development, because social development is both the ultimate objective and a prerequisite of development in general. Sustainability implies a balanced interaction between the social, economic and environmental processes within the given historical and cultural context. The inclusive approach aims at serving persons with disabilities within the context of the mainstream activities. At the same time it promotes the acceptance and integration of persons with disabilities into the community where they live. Within the context of bilateral development cooperation this is ensured by recognizing the existence of persons with disabilities within any target group and including the consideration of the needs of persons with disabilities into the planning, financing and implementation of development cooperation projects — and their budgets — as a matter of course. ……

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Additionally, a provision for disability-specific projects intended to address some specific needs of persons with disabilities may be included in the policies and plans. A proportion, say a few per cent, of the available funds could be earmarked for disability-specific projects or for disability components in general projects.

D. Mechanisms for implementation In order to ensure the implementation of the integrated policy concerning disability, the following steps may be taken:

(1) Decide that persons with disabilities belong to the most vulnerable groups that need special attention , but in the general context of addressing the underprivileged population groups; (2) Decide that, concerning disability, the same human rights standards applied in the donor country shall be applied, to the extent they do not directly violate the recipient country’s legislation, in all development cooperation activities. This includes, for instance, a ban on discrimination and conformity with accessibility standards; (3) Establish an ad hoc advisory group consisting of persons with disabilities or/and representatives of their organizations, policy makers, social welfare policy experts, planners and administrators. The minimum requirement is to involve the National Coordinating Committee in an advisory function; (4) Prepare and endorse a short guidelines document and distribute it to all planning and implementing agencies and all staff; (5) Integrate a module of disability issues into the training of staff; (6) Use persons with personal experience with disability as advisors in policy design and evaluation, programming exercises, project identification, appraisal and follow-up tasks; (7) Allocate some of the financial resources for supporting the development cooperation activities of disabled people’s own organizations and other organizations working for the benefit of persons with disabilities. Support to National Coordinating Committees in the recipient country can be also considered in order to enable it to participate fully in the coordinating activities and the designing of country programmes; (8) All projects in the social, health, educational and employment sectors must pay special attention to the integration and ultimate inclusion of people with disabilities into the project as natural part of the target group; (9) Include support to and cooperation with multilateral donors and initiatives in the social sector in order to identify partners, facilitate standard setting and to support good international model programmes and projects.

a Adapted from “Guidelines for S I D A Support in the Disability Area”, Swedish International Development Authority, S I D A, 1992

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C. INTRODUCING A DISABILITY DIMENSION INTO COUNTRY DEVELOPMENT PROGRAMMES

1. PROGRAMME FRAMEWORKS inter alia, called for the “need to shift from The development objectives reflected in a project approach to a programme national policies are usually of a complex approach”. To that end the resolution called upon Governments “to formulate, in and multisectoral nature. The implemen- accordance with their own development tation of agreed policies usually requires plans and priorities, integrated national one or several programmes and related programme frameworks setting out co- time-bound action plans. These, in turn operation requirements of the organizations are usually composed of more limited of the United Nations system”. It also initiatives or projects that – hopefully – are called upon organizations of the United interrelated and coordinated. Nations system to “adapt their programming processes to base them upon those A programme approach to develop- national programme frameworks and the ment has been developing lately to needs and practices of recipient Govern- improve the coordination and long-term ments”. impact of development efforts. A programme, being more flexible in terms General Assembly resolution 47/199 (1992) of time, organization and scope than a stresses the importance of formulating a traditional project, allows changes in ‘country strategy note’ by recipient Governments to “outline the contribution external factors to be taken into consider- which the operational activities for develop- ation. It allows the involvement of new ment within the United Nations system relevant partners, national and external, could make to respond to the requirements and the flexible participation of the identified by recipient countries in their constituencies. Consequently, it is possible plans, strategies and priorities”. to internalize some of the factors which a However, in actual practice the posited project has to take for granted. division of labour between the ‘national programme framework’ and the suggested ‘country strategy note’ has not yet been seen From the Project Approach to a and its application remains limited. Programme Approach

During the fifth UNDP programming In developing countries there are often at cycle (1992–1996) growing prominence has been accorded to programming approaches least three programming frameworks in the analysis and planning of technical simultaneously involved: cooperation activities. (1) A national programme framework, which is formulated by governments and This shift was foreseen in General defined by UNDP as a “coherent set of Assembly resolution 44/211 (1989), which, policies, strategies, investments and activ-

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ities designed to achieve a specific, clearly defined, time-bound national develop- Coordinating Mechanisms ment objective or set of objectives”.15 In the Philippines, The Technical Cooper- (2) A programme framework of multi- ation Centre (TCC) serves as a coordi- lateral and bilateral donors for pre- nating structure within the National investment financing/grant aid activities. Council for the Welfare of Disabled This has been formulated by the Persons (NCWPD). Its function is to concerned donor agency in consultation promote international linkages and to with recipient governments. The most network through the sharing of expertise, commonly cited document in this information, services and other resources in the fields of disability prevention, rehabili- category is the UNDP country tation and equalization of opportunities. It programme or UNFPA programme for organizes annual consultative meetings with population-related activities. Increas- heads of UN bodies, foreign embassies, ingly, UNDP is emphasising the international organizations and disabled ‘programme support document’ as the persons’ associations. (Brochure by TCC, preferred approach “to translate into Mission 1990) operational terms the new policy In Denmark, the disabled people’s coopera- concepts of UNDP, which emphasize tion body, DSI, serves as a focal point, measurable impact, capacity-building and advisor and often implementing agency for national execution”.16 disability-specific development cooperation (3) Programming frameworks formu- activities of the Danish Ministry for lated by non-governmental organiza- Foreign Affairs. In Finland, disabled people tions related to their own operational have established their own development cooperation office, Finnish Disabled activities for development with interested People's International Development Asso- recipient governments; relevant ciation (FIDIDA). examples include documents formulated by such international NGOs as CARE, In accordance with the commitments Save the Children, etc., as well as inter- made at the Copenhagen Summit, the ested national NGOs. human rights aspects and a favourable environment for sustainable social development should be given a higher priority While the National Programme Frame- in all development policies and, conse- work should be considered as the hub of quently, all country programmes. The cooperation, the difficulty remains in the central element in the social dimension coordination of these programme frame- are the equal opportunity policies works. Regarding disability issues, the regarding disadvantaged and vulnerable National Coordinating Council or similar population groups, particularly children, body should be involved in order to women, people with disabilities and ensure mutually beneficial coordination minorities. Governments, as the agents between all the partners in development. that have now committed themselves in the international forum to the inclusion of the social dimension, have a particular obligation to ensure that all partners in the development process are aware of such commitments.

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The disability issue should be actively • The Convention on the Rights of the introduced into country programming Child, negotiations, for instance, within the • The Convention on the Elimination of All Forms of Discrimination against context of human rights or social develop- Women, ment issues. It is useful to make note of • ILO conventions on Occupational the potential long-term economic benefits Safety, of the inclusive approach, as well. While • ILO Convention No. 159 on Vocational the inclusion of the social dimension Rehabilitation and Employment might not seem to have immediate (Disabled Persons). tangible impacts, there are enough Selected Other International Instruments: tangible examples of the consequences of • Copenhagen Programme of Action of the neglect of social issues in development the World Summit for Social Develop- programmes. At the extreme, development (1995), ment efforts without adequate social • Standard Rules on the Equalization of consideration may lead to the total disin- Opportunities for Persons with Disabili- tegration of a society. ties (1993). In case a comprehensive social devel- • Platform for Action of the Fourth World Conference on Women (Beijing 1995) opment policy and/or national programmes do not yet exist or they are still at the designing stage, it is advisable to consider the possible usefulness of Conventions are binding to nations that existing international documents. The have signed and ratified them. Those advantage of these documents is that they Governments are bound to adjust their reflect the consensus of the international legislation towards the commitments community rather than being bound to a expressed in the Convention. specific cultural, social or economic situa- Although the Declarations and tion. Often such documents are not well Standard Rules are not legally binding, known to all partners at the programme they do nevertheless impose a strong negotiations table. moral and political obligation on Govern- ments. For instance, the Copenhagen documents were signed by more than 180 Selected References on Integrated Governments. More than 70 Govern- Approaches to Planning and Program- ments and Non-governmental Organiza- ming tions were involved in the elaboration of The following documents are useful for the the Standard Rules. The Rules were designing an integrated approach to social adopted by the United Nations by issues in general and disability issues in consensus. particular. Intergovernmental Development Agencies, such as UNDP, the World International Conventions: Bank, the European Development Fund, • The International Bill of Human Rights (Universal Declaration of Human Rights etc., should recognize the added social and International Covenant on value created by the integrated approach, Economic, Social and Cultural Rights the equalization of opportunities for and the International Covenant on Civil people with disabilities, the prevention of and Political Rights), disabling conditions, and rehabilitative

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components in activities funded by them. and excluded from mainstream The inclusion of disability issues in the programmes and are obliged to initiate on programmes of intergovernmental devel- their own – or with external support – opment agencies is implied in the Copen- disability-specific activities which do not hagen Declaration as well as in a number cover all aspects of their needs. In the of General Assembly resolutions. short-run such projects may show impres- An “Advisory note” to that effect could sive results but these are rarely sustainable be issued to the responsible officials, and once the external assistance finishes. distributed to all governmental or non- To convince all the partners of the governmental agencies involved in devel- necessity to integrate disability issues into opment cooperation programmes. It is of mainstream development activities, a vital importance for the major multilateral session should be arranged in order to agencies, such as the World Bank, IMF sensitize the negotiation partners to the and UNDP, as well as regional bodies, to relevance of disability issues. This session consider the updating of their Policies and should be an opportunity to explain the Programme Advisory Notes so as to advantages of an inclusive, multisectoral reflect the Social Summit outcome, the approach to avoid a sectoral proposition Standard Rules and, within that context, where disability issues are considered to to include the disability dimension in the belong to the health sector or to be of new integrated approach to development. only charitable concern. Particular attention should be devoted During the negotiation, the relevance to disability issues in the human resources of disability issues in the context of the components of the programmes, and in socio-economic development plan of the the efforts to mobilize civil society and recipient country should be clarified. other indigenous resources. Consequently, United Nations publications and reso- the disability dimension should be lutions and all the recommendations from included in the appraisal criteria of project various international meetings should be proposals. A model checklist, Rapid used as a tool for sensitizing the partners Disability Analysis (RDA), has been to relevant disability issues. annexed. The “Society for All” theme is well 2. SPECIFIC RECOMMENDATIONS applicable as an omnibus for the inclusion The following framework for action was of all social issues related to exclusion, prepared by the Consultative Expert unemployment, poverty and disintegra- Group Meeting on the Integration of tion. Mainstream development coopera- Disability Issues into Development Coop- tion programmes should thus be formu- eration Activities, convened in Vienna, lated with a view to a furthering a “Society Austria, 31 May to 3 June 1995. for All”, and should adopt a comprehensive, integrative, multisectoral and multi- 2.1 Issues to be considered by national disciplinary approach to assist persons governments with disabilities to gain more equal oppor- (1) Be certain that all relevant and neces- tunities in social life and development. sary political and administrative This is an especially important consid- bodies necessary to implement an eration, since persons with disabilities integrated approach have been often continue to be discriminated against involved in the process of programme

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negotiations. National Coordinating disability issues are raised for discus- Committees – where they exist – and sion as a matter of human rights and leading national disabled people’s organi- within the context of social develop- zations or their representative should be ment objectives as adopted at the involved in the formulation of the Copenhagen World Summit on national programme. Social Development and other (2) If a National Coordinating Commit- relevant international conferences. tees does not exist, the Government (7) On applying the highest humani- is urged to nominate a competent tarian standards, conditions that are person or a functional sub-team to be known to increase the risk of responsible for the inclusion of disability in the population should be disability issues in negotiations on given careful consideration, both in development cooperation activities. the planning and in the implementa- (3) Organizations of disabled people as a tion of programmes. resource should, if possible, be (8) According to the highest possible involved in all the phases related to accessibility standards, an integrated the formulation of country approach to persons with disabilities programmes. For this purpose, should be seen as the optimal support to these organizations should solution both in the planning and in be included in the programme, and the implementation of programmes. their linking should be considered as (9) If the programme does not viable options and a fruitful and cost- adequately respond to the specific effective method of adding a needs of disabled people, additional disability component to such projects directly targeted to people programmes. with disabilities should be included. (4) If organizations of disabled people (10) In order to ensure that development cannot be involved directly during cooperation partners remember to the negotiations and the formulation integrate the disability dimension, of programmes, they still should be clear and concrete references to consulted as to treatment of disability disability issues should be included issues. in the programme documents as (5) A set of relevant information appropriate. concerning the extent of disability, the main causes, the status of persons 2.2 Issues to be considered by intergov- with disabilities, the policies ernmental organizations concerning them and services available should be compiled and analyzed (1) Intergovernmental Organizations while conducting country back- should consider their special respon- ground studies. Some information on sibility to conform to and to imple- the situation in neighbouring coun- ment the resolutions of the United tries may be useful for the sake of Nations. Consequently, Intergovern- relating the country information to mental Organizations should include the regional, cultural, social and a disability dimension in their devel- economic context. opment cooperation programmes. (6) At programming negotiations, (2) In incorporating the disability

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dimension in their programmes, country programme preparation should be concerned Intergovernmental Organiza- to continue working on a thorough tions are urged to adopt an integrated, baseline study concerning the social comprehensive and co-ordinated dimension as a whole. If disability issues approach. are included in the policy and programme (3) Concerned Intergovernmental Orga- documents, the baseline studies should nizations are urged to include in their include data and analyses concerning programmes support to organizations disability. Local experts should be of disabled people as specific devel- consulted and the study possibly subcon- opment resource. tracted to an organization of disabled (4) Concerned Intergovernmental Orga- people. nizations are urged to include clear The importance of a thorough “on- and concrete references to disability the-spot” study at this stage cannot be issues in all of the agreements overemphasized because much of the concluded by them with National work to be done at the project identifica- Governments related to development tion and preparation stages is done by cooperation programmes. desk officers who often do not have the chance to go on field missions or to undertake thorough primary research. 2.3 Recommendations addressed to non- governmental organizations

According to the United Nations resolutions and technical guidelines and recommendations related to disability issues, the following measures should be taken: (1) Concerned structures are urged to include the disability dimension in their programmes; (2) Scattered programmes for disabled people should be consolidated, as appropriate, into mainstream programmes with a view to integrated approaches and a “Society for All”; (3) Mainstream programmes including the disability dimension should be planned in collaboration with National Governments through National Coordinating Committees – where these exist – and in consultation with organizations of disabled people, and should include clear and concrete references as appropriate. An important follow-up activity to the

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NOTES. Unit II

1. Wiman 1990: “Towards an Integrated Theory of Help”, National Board of Social Welfare, Publ. 2/1990, Helsinki 1990. 2. United Nations, The Rio Declaration on Environ- ment and Development, Principle 1. A/CONF.151/5 Rev. 1, and Report on the World Summit for Social Development A/CONF.166/9, Annex I 3. Report on the World Summit for Social Development… 4. United Nations Development Programme: Human Development Report (HDR); 1992, UNDP New York, University of Oxford Press, 1992, p. 2. 5. Cf. Wiman 1990, Vancouver Discussion paper, (See note Unit 1, 37); Lindqvist 1992b op. cit; Standard Rules... Ch I. 6. Cf. “Declaration of the Rights of Mentally Retarded Persons”, United Nations General Assembly Resolution 2856 (XXVII, 20 December 1971) para 5, in United Nations: A Compendium on the Rights of Disabled Persons, UNDPI, New York, 1988. 7. Adapted from Lindqvist (1992b ) op. cit. (* see note 10 / and Unit I, note 34 ) 8. Cf. the “Enabling Environment” Approach of the World Summit for Social Development. 9. Evers, A. & Wintersberger, H. (eds): The Welfare Mix Approach and Welfare Pluralism. Shifts in the Welfare Mix - the Case of Care for Elderly Eurosocial Report 38/1991, 8-9, European Centre for Social Welfare Policy and Research, Vienna 1991; and Gross: A.M. New Welfare Mixes in Care for the Elderly, Israel, Eurosocial Report 40/2, 83-96, Vienna 1991; and Wiman: “On the Rights of Children with Special Needs in Changing Europe”, STAKES, Themes 10/1994 10. Standard Rules...Rule 14.4 11. About liberalist policy arguments regarding the poor see, e.g. Wiman, R.: Development of Population Thought from Ancient Times to Current Policy Debate, University of Helsinki, Department of Sociology, Readings 45 (1986). 12. Cf. European Commission “EUROPEAN SOCIAL POLICY; A way Forward, A White Paper. COM (94) 333, of 27 July 1994, Chapter Vl. 13. For instance: World Programme of Action, Ch.C 3.; A/42/58, para 5 and 6; A42/58 para 6, A/43/98, para 4 and A/44/70 para 4. 14. Standard Rules... Rule 21 and Rule 22 on Inter- national Cooperation. 15. United Nations Development Programme: “Guidelines for programme support document”, November 1993, p. 1. 16. Ibid. p. 2.

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A. A BRIEF INTRODUCTION TO PROJECT PLANNING FRAMEWORKS

FIGURE III.1: WHAT IS A PROJECT?

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Within policy and programme frame- 1. THE PROJECT CYCLE works, most concrete undertakings are A project can be defined as a set of organized as projects to achieve certain, planned, interrelated interventions aimed tangible goals in a specified time span and at achieving defined objectives by with specified inputs. Policy commit- producing specified outputs within a spec- ments become reality only if they are ified time span and resources. reflected in the daily work of concrete “The Inputs, or raw materials, are to action at the project level. be transformed by the Activities to

FIGURE III.2 THE PROJECT AS A PROCESS

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produce specific Outputs which, when instance, the immediate objectives of the joined together, will lead to the accom- policy define the development objectives plishment of the Immediate [project] of the various programmes needed to objectives. This will, in turn, contribute achieve the long-term objectives of the at least in part to the achievement of the policy broader Development objective.”1 A typical project cycle for both multi- Development projects are normally and bi-lateral development co-operation planned and implemented according to a activities is shown in figure III.2. “logical framework” in which a project In development cooperation activities, two advances in time from one stage to basic types of project cycles are used, the another in a certain order, which gener- one followed by most bi-lateral donors ally is termed the “project cycle”. The and organizations of the United Nations project cycle specifies the various planning system for development cooperation, and and implementation stages, and links the the one followed by most development various phases in the course of the project banks.2 The main difference is that finan- together. Furthermore, the logical frame- cial institutions usually get involved at the work links the development objectives, appraisal stage of the activity. At each immediate objectives, outputs and activi- phase a specific document will be ties of policies and programmes (or produced for decision-making purposes: projects) into a logical hierarchy. For

FIGURE III. 3 THE PHASES OF A PROJECT CYCLE

1. Identification -> Project Identification Document (“Pre-feasibility study”)

2. Project formulation -> Project Document (“Feasibility study”)

3. Appraisal -> Appraisal Report

4. Implementation and monitoring -> Progress Reports

5. Final evaluation -> Evaluation Report

While the basic logic of the project cycle This unit will follow the general logic is quite universal, many organizations have of the project cycle. At each phase, nodal their own formats that are different in points are identified where disability issues details. The specific, more or less compli- should be introduced. Practical examples cated, format of the documentation is on how to do it are given in the text and in usually standardized by each decision- an annex to the manual on the “Project making body and the given format is Document”(PD).3 expected to be followed by all those The technical nature of project involved in the process. planning – paradoxically – facilitates the

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inclusion of disability issues once these Once a decision is taken at policy level to have been introduced to that process. to include disability issues, or other Project planning is based on a systematic specific concerns, to the proposed project, and logical analysis of problems, needs, it should be treated as a sub-item in each resources and possibilities of expected of the above analyses. beneficiaries of a project, as well as on a These analyses should be performed at comprehensive analysis of the project’s each phase of the project cycle. The social, economic, technical, environmental depth of analysis would normally increase and institutional impacts. as project planning progresses.

The basic logic of the project planning process includes the following analytical 2. AN INTEGRATED AND steps:4 PARTICIPATORY PROJECT (1) Problem analysis: analysis of the PLANNING STRATEGY development setting, problems and Development projects should be planned needs; identification of the core and implemented as interrelated and coor- problem and its causes. dinated elements of wider development (2) Interest group analysis: identification programmes. These programmes, in turn, and analysis of intended beneficiary should be backed by systematic statements groups and other groups involved of policy and political commitment to the with or potentially affected by the objective of reinforcing the disability project. dimension in mainstream development (3) Resource assessment: identification of cooperation activities.5 actual resources available. Promotion of equality of opportunity, (4) Alternatives analysis: analysis of alter- freedom of choice and social partnership native strategies to solve problems represent key elements in a social devel- identified. opment strategy.6 Since these issues are (5) Impact assessments: in conjunction central concerns of recent international with the analysis of alternatives, an action programmes and declarations, assessment of potential social, gender promotion of these principles should be responsive, environmental and considered to be one of the primary objec- economic impacts of the planned tives of development co-operation. intervention. Development cooperation activities need (6) Definition of project objectives and therefore to take into consideration the targets: formulation of a time-bound socio-cultural context, the social prerequi- and quantitative statement of project sites and probable social impact of a intent. proposed intervention. (7) Assessment of possible constraints: The primary long-term objective of consideration of risks and uncertainty development co-operation is to build with reference to national, sectoral, national self-reliance; it should contribute to project implementation level factors. sustained improvements in levels of living (8) Project design: detailed design of and of opportunities for livelihood among outputs, inputs, activities, institutional the entire population; and it should direct and organizational frameworks as well special attention to the situation of countries as budget. – and population groups – that are experi-

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encing especially difficult circumstances. disabilities in the target area, local Since persons with disabilities often are disability organizations, and plans and among the more disadvantaged and activities of the disability community. vulnerable population groups in society, (4) Using checkpoints at various stages development projects which have an of the development process to identify explicit “social” development objective – the impact of decisions on persons as should all development interventions – with disabilities; and identifying should be planned and implemented in a balancing action to reduce negative disability-sensitive manner. effects and to enhance positive impacts; the initial checking should be 2.1 An inclusive approach done in the programming negotia- Sensitivity to the disability dimension tions and during project identifica- should be exercised and the disability tion. dimension included in all activities as a (5) Designing mechanisms for launching central social concern and as a human processes that empower persons rights issue, as well.7 with disabilities so that they ulti- This may be ensured by adopting the mately can take charge of affairs following inclusive planning strategy: concerning them.

(1) Setting sustainable social develop- 2.2 Empowerment of beneficiaries ment as the ultimate development Experience from many development objective. Consequently, all decisions projects suggests that the success of any taken in the course of development project can be ensured only through planning should be consciously involving all key interest groups and orga- geared towards equalization of oppor- nizations actively in the planning process tunities and empowerment of in a participatory way from the beginning. intended beneficiaries. Active participation not only improves the (2) Including the disability dimension quality of the plans and outputs through systematically in all data and informa- wider expertise; it also ensures greater tion collection, analyses and docu- commitment of various parties to the mentation efforts from the beginning project objectives. of the planning process. Introduction of a participatory planning (3) Identifying channels and ways of process is even more important with issues involving persons with disabilities concerning disabled persons. They often as equal partners at all stages of the belong to one of the marginalized popula- development process; establishing tion groups. Prejudice and negative atti- partnerships with and, when appro- tudes may exist in any society and commu- priate, employing the expertise of nity. Consequently, persons with disabili- disability organizations; local and ties may have the least access and most international non-governmental orga- limited opportunities to intervene in nizations of persons with disabilities programme and project planning on their should be contacted at an early own. Persons with disabilities may even be planning stage to gather the most difficult to locate at first. Furthermore, recent information concerning grass- they may need to be organized, mobilized roots needs, status of persons with and trained to participate effectively in

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activities which affect their well-being and livelihood. Role of expert advice Participation of intended beneficiaries In the planning and implementation as a principle sometimes faces objections process of complicated projects, expatriate among project staffs. In addition, other experts are sometimes needed. There are beneficiaries may object to participation of some very specific situations where highly persons with disabilities, due for instance specialized experts are indeed the only ones to a perceived difficulty or the cost of able to formulate an appropriate solution. mobilizing such participation. It should Many technical problems are of this kind. be recalled that participation is both a Solutions to one’s daily life situations, on means and end of development; it the other hand, should never be prescribed involves mobilization of all available by outsiders. For instance, buying the daily resources – human and material – and the food should certainly be left to people identification of an appropriate division of themselves. However, for them to be able labour for the proposed project. Intended to buy it, to have the “purchasing power”, beneficiaries are experts concerning their experts may be needed to design opportuni- own needs and of local prerequisites to ties to develop capacities to obtain necessary purchasing power. meet those needs. Technical project planning experts should be able to combine these inputs in an optimal way There are different degrees of control and formulate a framework to produce the over decisions on and involvement in outputs needed to achieve the agreed activities which may affect individual well- development objective. being and livelihood. The following represents one possible measurement scale:

FIGURE 3.4: DEGREES OF PARTICIPATION IN AND CONTROL OVER DEVELOPMENT ACTIVITIES

(4) “Empowerment”: The group exercises its own control over the whole process. A fair share of available resources is made available to enable the group to reach its goals. The group may define its own needs, objectives and means of reaching them; it also may monitor and evaluate the process – and thus is responsibile for the outcome. (3) Free, assisted choice: An outside “consultant” provides a framework to help in formulating the “right” questions, while defining the problem to be addressed and goals. The group is “involved” in the process.

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(2) Multiple choice: An expert suggests a set of preset alternatives to the group from which it can make choices. The group “participates” in decision-making with reference to a specified situation. (1) Forced choice: An expert recommends a solution to the group and provides an opportunity to the group to support – or not – the recommendation. The group is asked to provide its opinion in the matter. (0) No choice: An expert prescribes the solution for the group. The group is neither consulted nor asked about the matter. A decision is taken independently of the group and power is wielded by outsiders. This leads to lack of control over one’s own life, and leads to “disempowerment” of intended beneficiaries.

Technical experts involved in a participa- (d) economic and financial analyses tory planning process may wish to related to the project concept; consider the following approach: (e) human resources development impli- Starting with the highest level of cations, including educational participation with the intention of planning, training and outreach activ- empowering the group: assist in creating ities; a conducive environmental and in gener- (f) needs of specific project constituen- ating the resources required – human and cies, including persons with disabili- capital – to enable the target group itself ties; to do the job. Go to lower levels of partic- (g) environmental, social and health ipation only when no other solutions are impact assessments; available and return to the higher level as (h) project implementation management soon as it is feasible. practices and strategies; (i) technical knowledge and relevant experience related to problem area(s) addressed by the project. To ensure the relevance and appropriateness of plans, multisectoral expertise Since the first concern of mainstream should be used to the extent possible when projects is, by definition, not disability, planning development co-operation activ- project planners often have little or no ities. The typical planning team should knowledge about obstacles encountered include expertise in the following topics: by persons with functional limitations, (a) the substance of the project, the such as persons with disabilities, persons problem to be addressed and an who are gravely ill, women who are understanding of the daily life of pregnant, children, older persons, illiter- intended beneficiaries; ates, among others. Neither can every (b) quantitative analytical skills and planner be an instant expert on barrier- planning methodologies; free design before being trained in these (c) socio-cultural and gender-responsive skills. It is not, therefore, realistic to analyses; expect that needs and concerns of persons

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FIGURE III.5 STEPS TOWARD EMPOWERMENT

with disabilities will be automatically ments in projects relevant to persons with taken into account in project planning. disabilities include the following items: While the full-scale involvement of all (1) Disability-specific projects, i.e. those relevant groups in project planning is diffi- targeted to benefit persons with cult to achieve, suggested minimum require- disabilities directly. The objective

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should be to enable people with disabili- specified area, should, at the initial ties and/or their organizations to gain stage, check the degree of relevance of sustainable control of the project and its its components, activities and outcome; this implies the inclusion of expected outcomes to persons with additional components that aim to disabilities and involve the required empower people with disabilities, or their expertise, preferably persons with appropriate representatives, to participate experience of disability, at the in and take charge of the project. relevant stages of the project cycle. (2) Disability components in general (mainstream) projects. The disability Participatory approaches and thorough component should be planned with analyses may increase the time needed for the full involvement of the concerned project planning. However, the main persons with disabilities as above and purpose of development projects is both with appropriate involvement in the efficiency and effectiveness in achieving planning and implementation of the desired objectives. Many projects fail to umbrella project as a whole. produce beneficial effects among intended (3) Disability-relevant general projects. beneficiaries precisely because of lack of Inclusion of disability issues into participation and lack of sensitive analytic mainstream projects, i.e. those and research work prior to implementa- targeted to benefit all people or the tion. assumed non-disabled groups in the

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B. INCLUDING A DISABILITY DIMENSION IN THE PROJECT CYCLE

How, then, should one deal with the Project identification and the actual disability dimension during the daily project planning and formulation are routine of project planning and imple- crucial phases in the course of each mentation? This section reviews the project. Most strategic decisions are made project cycle and provides examples of during these phases in accordance with how disability concerns can be introduced current policies and frameworks for devel- at various stages. Examples of “disability- opment cooperation. Since the project sensitive documentation” are cited both in formulation phase builds on information the text and in an annex PD to the collected and analyses made at the identi- manual. fication phase, any mistakes or inadequa- cies in the project identification phase 1. PHASE ONE: DISABILITY- tend to follow through and often may SENSITIVE PROJECT IDENTI- multiply in later phases. FICATION

1.1 The importance of project identification Priorities identified by the Within the framework of a development international community programme, identification of actual In accordance with the recent commitments projects is the first, critical planning by the international community, develop- decision before investing scarce time and ment cooperation policies and programmes, other resources in more detailed project and consequently the terms of reference of design. Sometimes this phase is called the project identification teams/missions and “pre-feasibility study”. the situation analyses, should include sensitivity to major priorities of the international The main purpose of project identification community, as these pertain to the following issues: stage is: (1) to prepare the first, sometimes Rights of Children (Convention on the preliminary, plans for project Rights of the Child, 1990)a concepts; Environment and Development (Rio (2) to analyze risks involved and ensure Declaration on Environment and Develop- the existence of sufficient facts for ment, and Agenda 21, 1992)b screening project ideas; and Poor and vulnerable groups, including persons with disabilities (Copenhagen (3) to select from the alternative concepts Declaration, and Programme of Action of those which appear to be most the World Summit for Social Develop- feasible for further development, ment, 1995)c analysis and planning.

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Women’s empowerment (Beijing Declara- If you do not see disabled people, that tion, and Platform for Action, 1995)d does not mean they do not exist.

a United Nations General Assembly resolution Lack of information on persons with 44/25, annex. disabilities does not mean that they do not b United Nations General Assembly resolution exist. Rather it means that their rights and 44/190; Report of the United Nations Conference needs may not so far have been appropri- on Environment and Development, Rio de Janeiro, ately recognized. 3-14 June 1992 (A/CONF.151/26/Rev.1 (Vol. I and Vol. I/Corr.1, Vol. II, Vol. III and Vol. For instance during field visits, disabled III/Corr.1). members of the community or of individual c United Nations General Assembly resolution families may be hidden from view; they are 50/161; Report of the World Summit for Social not included in observed population Development, Copenhagen, 6-12 March 1995, groups, such as in schools; a concept of (A/CONF.166/9), chap. I, resolution 1, annexes disability is not understood; disabled I and II. people may be considered not to be suffi- d United Nations General Assembly resolution ciently important to be mentioned in devel- 50/52; Report of the Fourth World Conference on opment decision-making. There may be Women, Beijing, 4-15 September 1995 important, very visible and vocal disabled (A/CONF.177/20), chap. I, resolution 1, annexes I and II. people in well-to-do urban circles but they do not necessarily represent the majority, who usually are poor and live in the rural areas. Various project ideas may arise within the In interviews and planning workshops framework of negotiations and the much of the above applies and in documen- resulting cooperation programme from tary information, as well. A sample of 55 situation analyses concerning a countries by the United Nations revealed programme country or a specific sector. considerable variation in censuses and To give attention to disability issues in the statistics on disability, which reflects not only the variation in the level of disability identification and initial selection of among countries but a high degree of vari- projects, an essential first step is to reflect ability in strategies for measurement of from available information the current disabilities.a disability situation, the needs and concerns of persons with disabilities and estimated Special expertise can often be found at both risk factors leading to preventable disabil- local level, among disabled people’s own circles, and internationally, among ities. These issues can be included in the disability organizations. Journalists can also discussion of the demographic, social, be good sources of data and for insights. In cultural and economic situation of the small communities, children may be the country. Alternatively, mention of the best source of initial information. situation of persons with disabilities could be included in sectoral data on health, a Disability Statistics Compendium, Statistics on education and employment. Population Groups, Series Y, No. 4 (United Nations publication, Sales No. E.90.XVII.17) p. 27.

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1.2 Initial screening for disability rele- (2) Interest group analysis vance (a) Check which groups of people with The procedures described below may functional limitations might be help to ensure that the disability dimen- affected by the proposed project and sion is taken into account at the project its components: disabled persons, identification stage. Similar procedures people with various illnesses, pregnant can be followed at the project planning women, children, the elderly, illiterate and formulation stages, usually in a more people, immigrant populations; atten- rigorous manner. tion should be accorded to the gender dimension as well. CHECKPOINT 1: (b) Collect data and information concerning legislation, policies and Check the disability relevance of all standards dealing with disability issues project ideas in the proposed and identify agencies responsible for programme. such issues (c) Identify possible representatives of: 1.1. Check whether the initial terms of (i) the most vulnerable groups of the reference (TOR) for programme population and their families; formualtion are sensitive to social (ii) national and local community concerns, disability issues in partic- disability organizations; ular, and whether baseline studies (iii) national disability council or refer to disability and contain similar body. adequate disability-relevant data and (d) Determine whether there are other information. If not, further informa- organizations, such as service clubs, tion gathering will be necessary. church groups, trade unions, workers’ 1.2. Regarding each identified potential associations, that are active in the project, check whether the proposed substantive and/or geographical area project is disability-relevant (please of concern of the proposed project. refer to Checkpoint 1 of Unit One). (e) Find out whether there are other donor organizations that are active in Decision options: the substantive and/or geographical If the proposed project is disability- area of concern of the proposed relevant, the project idea should be project as well. screened roughly according to the Experience suggests that it is useful to following suggested minimum checklist to invite representatives of the above assess the degree of disability relevance. A groups to a consultative session at more thorough analysis will be made at an early stage of the project identifica- the project design stage for those projects tion process to exchange views and to selected for further preparation. gain insights on social issues in (1) Problem analysis. Specify which general and disability issues in partic- elements or dimensions of the project ular. are relevant to consider from a disability perspective. Draft initial proposals on how to address each such issue.

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(3) Resources assessment. Estimate the people with disabilities, their living resource requirements (human, finan- conditions, or prevention of disabling cial, information, technical, and conditions; a strategic connection may material) to address the disability also appear only at policy or programme level. concerns identified and review and assess potential sources, including (3) “Highly disability-relevant” activi- those available to disabled people’s ties: organizations. The activity is “highly disability- (4) Social impact assessment. Make an relevant” if: initial evaluation of the positive and * The activity involves social, health negative impacts of alternative and education sectors or components; approaches identified for the project * There is an identified subgroup of to address preventive aspects and/or disabled people in the target group; * There is a specific disability compo- persons with functional limitations. nent in the activity.

(4) “Disability-specific” activities: CHECKPOINT 2: The activity is disability-specific if disabled people are the target group. Check to what degree each of the proposed projects/alternatives is disability-relevant. Decision options: 2.1. Consult with disabled people’s orga- 2.1. Decide whether the proposed project nizations – or subcontract the should be recommended for prepara- screening of project options to a tion disabled people’s organization. 2.2. On the basis of the above initial (a) If the proposed project seems to analyses, assess to what degree the involve health risks for the general proposed project or alternative population or the participants, the approaches are disability-relevant. project concept should be redesigned or the idea rejected. An “Assessment Scale” to determine (b) If the project seems to have a signifi- degree of disability relevance cant negative effect on the opportunities of persons with disabilities to (1) “Not disability-relevant” projects: The activity is “not disability- participate on the basis of equality in relevant” if it is not targeted to people the societies in which they live, the and their living conditions. project idea should be reconsidered.

(2) “Disability-relevant” general projects: A mainstream activity is 2.2. If it is decided that the proposed “disability-relevant” if: disability-relevant project will be * The activity addresses the well- taken up at the preparation phase, being of all people (that is, the whole suggest that the institutional population or subgroup in the area) and/or focuses on essential services; arrangements and project organiza- * Any of the problem dimensions tion should reflect the importance of have a direct or indirect impact on disability concerns.

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(a) Use the accumulated expertise and to the situation of persons with disabili- resource potentials of persons with ties. disabilities. The initial screening of (b) Attach the preliminary screening project ideas for disability relevance, report, the “Disability Impact according to the above rough analyses, Report”, to the Project Identification can be done by a project identification Document. team or planning workshop; alterna- (c) Suggest that the Terms of Reference tively, the task can be subcontracted to of the project preparation phase a private voluntary organization of should include specific consideration persons with disabilities, either from a of disability issues and should involve donor or programme country, or a participation by persons with disabilities National Disability Council or similar and their organizations. Make initial body which has the requisite skills, recommendations on whether there is expertise and access to information. a need for an additional support Based on the relevance assessment and component or even a disability- following consultations, their role and specific sub-project. participation in the later planning phases can be defined in a relevant and Experience suggests that, as a rule of mutually beneficial manner. (This will thumb, projects in the social, health, be considered further in the following and educational sectors generally are chapter.) highly disability-relevant. (b) Reflect disability issues in “Project Identification” documents. The annex PD discusses where and how disability concerns can be inserted in a main- 2. PHASE TWO: INCLUSIVE stream project document. The PROJECT PLANNING example discussed in the annex can be PROCEDURES used as a basis – albeit with requisite modifications – for designing a The main purpose of the project planning disability-sensitive Project Identifica- and formulation phase is to make a tion Document. thorough feasibility study of the project to prepare realistic and implementable alter- 2.3. In the case of a highly disability- natives for the final design of the project. relevant project, a disability-specific The output of this phase is the Project project, or a project with eventual Document, the manuscript of the partic- major impacts on the prevention of ular development intervention. disabling conditions : (a) Establish a planning team with strong 2.1 Basic principles involvement of disabled people’s expertise, and eventually organize a project Proper background studies and analyses planning workshop. The are the basic guarantees that the proposed team/workshop should produce an project idea will develop into a project initial “Disability Impact Report” plan of operations that is feasible and will containing initial proposals to obtain achieve its objectives. If the project was, at optimum project impacts with respect the identification stage, considered to be

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disability-relevant (or “highly relevant”), In disability-relevant projects the disability the following steps should be taken: dimension should be reflected in the Project Document. (An annotated (1) Programme officers – or similar offi- example of the current United Nations cials – of donor agencies should Development Programme project define the Terms of Reference (TOR) document has been included in the annex for grant-assisted project planning PD.) assignments in such a way that the disability issues are appropriately taken into account. Model agenda of a project planning (2) The planning agency or team should, workshop in accordance with the TOR, include Experience suggests that a “project the disability dimension in: planning workshop” can be a helpful and (i) Problem analysis, cost-effective tool in ensuring that project (ii) Interest group analysis, design effectively responds to disability (iii) Resource assessment, concerns. The agenda of such a workshop (iv) Definition of project objectives may include the following issues: and intended beneficiaries, • analysis of the social dimension of the (v) Definition of indicators of perfor- development policy framework of the participating programme country and the mance and results, expected treatment of disability issues therein; outputs, inputs and activities, • project relevance to the social develop- (vi) Assessment of risk and uncertainty ment plans and policies of the associated with external factors, programme country; (vii) Institutional framework for the • potential problems concerning disability project, issues; (viii) Assessment of project sustain- • socio-economic aspects of intended project beneficiary groups, institutional ability, including Social Impact arrangements, and relation to other Assessment (SIA) and Environ- projects; implementation and resources; mental Impact Assessment impacts and secondary effects, with (EIA), and gender-responsive particular attention to disability; analysis, as appropriate, • alternative approaches and scale of the (ix) Definition of arrangements for project, and the status of persons with disabilities in them, and examination of appraisal, implementation alternatives; management, monitoring and • definition of objectives and achievement evaluation. indicators with reference to persons with (3) If the project involves highly disabilities; project implementation disability-relevant issues and/or is of monitoring arrangements. high relevance to disability interest groups, it is essential that disabled The workshop should include, in addition to project planning experts, representatives persons’ organizations or of all parties concerned, such as representa- spokesperson(s) be consulted or tives from ministries relevant for the invited to participate not only in problem(s) to be addressed, political setting the project objectives but in all leaders, local leaders, concerned non- subsequent project planning stages. governmental organizations, particularly those of persons with disabilities.

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financial management, subsidy The planning workshop should produce as systems; an Output a “Disability Impact Report” and (3) institutional dimension: roles of proposals to obtain optimum project impact various organizations and institutions, with regard to the situation of persons with disabilities. co-operation between various sectors, management practices, adequacy of manpower; (4) environmental dimension: use of natural resources, environmental 2.2 Including a disability dimension in degradation and relationships project planning analyses between the social and natural envi- At this stage the information available at ronment, accessibility of the built the project identification stage will be environment; deepened. The information necessary for (5) technical dimension: level and quality the design of a feasible project manuscript of planning, level and quality of used can be acquired through several methods. technology, existing infrastructure, Whether the necessary analyses are operation and maintenance, technical conducted by means of a desk-top skills. analysis, field visits, consultations or workshops, the check and task lists of this Many problems faced by people with chapter may be helpful. Specific tech- functional limitations are such that they niques exists to facilitate the necessary may also hamper the overall functioning collection and analysis of required data or accessibility of public services and infra- and information. The following discus- structure. Assessing the situation and each sion focuses on disability-relevant substan- problem dimension through the problems tive planning and analytical contents and needs of disabled persons thus often rather than the analytical techniques. reveals overall weaknesses of the plan.

(i) Problem analysis (ii) Interest group analysis The problem to be addressed by the The purpose of the interest group analysis project should be studied in a thorough is to find out the roles, interests, and and logical way. The constructing of a possible conflicts between various interest “problem tree” describing the cause-effect groups. Through such an analysis it is relationships around the core problem can possible to ensure that the project objec- prove to be a helpful tool.8 tives and activities will not overlook some The following represent a basic important groups or result in unintended minimum of the problem dimensions impacts upon them. which should be systematically analyzed In a disability-relevant or disability- from a disability perspective: specific projects interest groups comprised (1) social and cultural dimension: social of or including disabled people are not, equity, roles of various groups, gender however, the only relevant ones. In many roles, behavioural and cultural factors; cases the disability-relevant elements of (2) economic dimension: cost structure, the project succeed or fail due to the inter- financial resources, financing of ests or activities of groups not at all services/activities, income-levels, involved in disability issues. Therefore it

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is important to study the full range of organization from the region, an views and interests represented in the international disability organization – “social context” of the proposed project. or even a relevant organization in the donor country – will agree to become involved and assist in organizing CHECKPOINT 3: disabled people in the proposed project area of operations. Determine the stakeholders of the 3.2. Check who are the interest groups or proposed project. stakeholders ex officio. Use legislation, national policy documents, 3.1. Should disability organizations be organization charts and consultations considered as a direct interest group? to find out who or which agency is Check other relevant interest groups responsible for issues relevant to the to see whether they involve any sub- project. groups of persons with disabilities. If 3.3. Find out the views and opinions of so, do the following: groups whose cooperation is vital for (a) Analyze the needs, expectations and the success of the project. potentials of the disabled persons’ groups and assess whether they Decision options: consider the project useful and 3.1. Seek to involve all key stakeholders whether they are ready to participate or major players in the project orga- in its development and operations. nization. The extent to this will depend on how 3.2. If there is a risk of negative attitudes, relevant the project will be for or lack of cooperation, include an persons with disabilities. This judge- awareness-raising exercise at an early ment should be done in consultations stage of the project. While proposed with the representatives of the beneficiary group(s) may be the disabled people's community. general public, there may also be a (b) Find out whether the disability groups need to raise the awareness and to are homogenous. If not – as is usually update the knowledge of profes- the case – what are the needs and sionals, administrators and policy expectations, roles, socio-economic makers as well as the project staff. features, problems and potentials of each sub-group? Who can act as representative and spokesperson for Attitudinal barriers may be hidden these groups? Is there an umbrella under apparently good purposes organization? Is it representative? Non-conductive attitudes towards (c) If there are no organized disability disabled people and their needs are not groups readily available, consider always immediately obvious. There are many kinds of attitudes that make the promoting the organization of a empowerment of disabled people difficult: “consultative group” for the project. (1) Belief in extra “compensatory” charac- (d) The empowerment of disabled people teristics or special spiritual talents of and/or their organizations may be persons with disabilities. facilitated by a “twinning” arrange- (2) A strictly medical approach to ment, in which an existing disability disability.

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(3) A care-taking approach to persons (4) natural resources, including the with disabilities. renewable and non-renewable natural (4) An approach or action model that is resources. exclusively expert driven and involves no participant input. Disability issues are relevant to the project’s resource assessment in three ways: (1) Persons with disabilities and their In short, sensitization and awareness organizations represent an important raising are always an essential component resource. They have special expertise in disability-relevant development activi- and experience, particularly about the ties. needs of persons with disabilities and about the practical and feasible ways (iii) Resource assessment of addressing those problems. Many development projects have failed (2) Persons with disabilities may because of over-ambitious – or otherwise command a number of potential inappropriate – objectives that have been resources to support project develop- set without an adequate assessment of ment, for instance their detailed resources available for the planned action. knowledge on practical problem An essential first assumption should be solving related to their well being and that there are local resources which can be livelihood. appropriately mobilized. (3) Ensuring full and equal participation A resource assessment should be and solving the problems eventually executed in the same systematic way as the being faced by persons with func- problem analysis, going through the tional limitations might also require various resource dimensions one by one. additional resources for the project. Since not all resources will necessarily need to come from outside the project, Taking disability concerns into account resource assessments should focus on how may increase the resource requirements of to use, activate, support, supplement and projects. Experience has, however, shown complement available local resources. that a disability-sensitive approach is no The following resource dimensions, more expensive if applied at the planning and their local base level, should be stage. On the other hand, disability-sensi- studied: tive approaches may lead to increases in (1) human and institutional resources, the social rate of return of a project. A including the organizations of various project that is not sensitive to the exis- interest groups, various administrative tence of disabled people usually, in the organizations, training institutions, end, passes the costs of accommodating NGO’s, etc.; the needs of disabled people to other (2) economic and financial resources, people or agencies. including income generation possibilities, taxes, possibilities for cost- (iv) Definition of goals, objectives and recovery, subsidies, savings, etc.; beneficiary groups (3) technical resources, including the Project planning culminates in the setting local and traditional technologies, of objectives and defining of beneficiary local products, private sector services, groups. If previous analytical steps have technical skills, etc.;

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not been appropriately conducted, project development impact, i.e. anticipated objectives will likely be poorly focussed, changes, and for whom these are intended unrealistically stated or perhaps too (beneficiary group). Project objectives limited. Determining realistic and and identification of beneficiary groups sustainable objectives is an important part thus provide the basis for defining of project preparation, since they form the outputs, inputs and activities. basis for subsequent planning. Goals and objectives normally are clas- Objectives should define the actual, sified in the following categories: concrete targets of the project in terms of

FIGURE III.6 WHY SHOULD A PLANNER BE DISABILITY-SENSITIVE?

TARGET GROUP

DIRECT RECIPIENTS

PROJECT / PROGRAMME SUPPORT RW

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(1) Development objectives or aims are at high risk of being left out and may describe and define the long-term often need external advocacy to get their purposes to which the project, if voices heard. successful, aims to contribute. (2) Immediate objectives define the short term or medium term specific targets CHECKPOINT 4: or goals which should be met at the end of the project. Check whether the objectives identi- The objectives should be defined with fied are in line with the spirit of recent reference to intended benerficiary groups. international conventions, commit- Since beneficiary groups are not homoge- ments and programmes. nous, it is especially important to identify clearly and precisely who is expected to Screening of issues may include the benefit from – as well as who will pay for – following considerations: expected project outputs. 4.1. Is there a reference to relevant For grant-assisted activities, recipients Human Rights Conventions9, or are of project and programme results are such fundamental values clearly usually governmental or non-govern- implied in the plan? mental organizations in the proposed 4.2. Is the goal of equalization of oppor- programme country. Beneficiary group tunities recognized and appropriately definition is important in this case to reflected? determine the extent to which project 4.3. Are there references to social devel- inputs are used as envisaged and actually opment as a first priority; are benefit intended – and unintended – bene- poverty eradication, rights of ficiary groups. disabled children and women given In practice, definition of objectives special attention? involves analyses of various options, as it 4.4. Are there references to relevant is usually not possible to solve all the global strategic programmes in the problems identified at once. Objective social and economic sectors, such as setting and beneficiary group definition Health for All10, Food for All11, thus is a process where priorities are Education for All12, Work for All13, assigned with respect to the nature and Shelter for All14, Towards a Society severity of the particular problem and for All15? resources available for a solution. 4.2. Is the language used in dealing with Needs of some interest groups may not disability issues coherent and up-to- be incorporated in the project because of a date? Does it focus on abilities rather scarcity of resources, low priority assigned than on disabilities? to their problems, or conflicting (and 4.3. Is there a support component to higher priority) needs of others. There- facilitate establishment and func- fore, to ensure equitable handling of tioning of disabled people’s organi- various interest groups’ needs and to zations to equalize opportunities and obtain overall consensus on the objectives, to empower persons with disabilities representatives of the key interest groups to participate in development in the for the project should be involved in the proposed project area or sector? setting of the objectives. Disabled people

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Decision options: (v) Definition of indicators, outputs, 4.1. Ensure that objectives identified inputs and activities represent the highest standards and Development projects should be based reflect an enabling rather than a upon clear and distinct indicators which patronizing approach to develop- reveal whether the project is performing ment and social issues in particular. as planned and is producing anticipated 4.2. If disabled people cannot be judged results. To assess the results of the project to be a specific priority group in the operations in terms of the needs of given project setting, it still is advis- persons with disabilities, certain progress able to list minimum criteria which and performance indicators must reflect would ensure that their needs can be those particular needs. appropriately taken into account both during further project planning stages and in project implementa- Example: contents of a disability-sensi- tion. For instance, “barrier-free” tive indicator design should be an intrinsic objec- Objective: Creating a barrier-free tive in all development initiatives. outdoor environment: 4.3. Ensure that the project and its constituent activities focus on effec- WHAT (the indicator): curbs at tive and sustainable capacity building street corners; rather than achieving short-term visibility through, for instance, WHO (target group): mobility reliance on “care-taking” impaired, or sight impaired and people with prams, with approaches: building disability insti- loaded trolley, etc.; tutions, introducing assistive devices HOW without complementary support MUCH (quantity): proportion of service facilities, distributing daily corners curbed; consumer goods to specified population groups, etc. HOW WELL (quality): assess whether follows agreed norms in gradient, etc.; Barrier-free is just good quality WHEN (time): by next year; “Barrier-free” design is about taking positive action to produce design suited to WHERE (location): at ABC housing the needs and requirements of most people development scheme. by reducing the level of imposed handicap rather than continuing to serve exclusively the minority of falsely perceived average Outputs are the physical, institutional and people.a operational changes, or improved skills and knowledge that are expected to result a See, for instance, United Nations, United from project operations, if implemented Nations Centre for Human Settlements and successfully. The statement of project Swedish International Development Authority, outputs is derived from the set of objec- Designing with Care; a guide to adaptation of the tives identified for the project; each output built environment for disabled persons (Vienna, should contribute to achievement of at August 1991).

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least one project objective. Safety: Does the design ensure that no The outputs, inputs and activities are one is exposed to risk of injury or other the “hardware” of each project plan. Any health hazards? project plan should include a definition of Workability: Are places of work designed key outputs and activities in such detail to allow the participation of persons with that the required inputs as well as disabilities? probable impacts of the project may be assessed. Equality: Are mechanisms or procedures In order not to discriminate against in place to ensure that discrimination on people with functional limitations, outputs the basis of disability will not be exercised and activities should be checked for their when hiring people, providing them with degree of accessibility for persons with services, etc.? disabilities. Affordability: Are the costs of participation reasonable taking into account the incomes and assets of all people affected? CHECKPOINT 5:

Is the project, its activities and outputs (vi) Assessing risks, uncertainty and formulated such that people with func- constraints tional limitations can participate in and All projects can be affected by external – benefit from it results on equal terms not project-controlled – factors. Project with other groups? preparation process should address risk and uncertainty and seek to reduce 5.1. Assess what kind of quality criteria possible effects of external contextual are required. The following general factors to a minimum. 16 set of criteria can be used as a basis. The implementation of the project Selected criteria for basic barrier-free may also lead to negative or otherwise planning and design unpredicted impacts, which may pose a Accessibility: Is the design accessible to major threat to achievement of the all? project objectives. Many external factors as well as Reachability: Is the building, service or project risks particularly affect those facility within reasonable reach of every- segments of the target or other groups body who needs it? which are most vulnerable. For example, a decline in the economic situation Usability: Is the design of the facility or usually will hit first the most vulnerable product such that everybody can use it without extra modifications or assistive population groups. tools; or, is it flexible enough to allow for low-cost adaptation to special needs? CHECKPOINT 6: Orientation: Is the environment designed and marked in such a way that it is under- Check whether the disability dimen- standable and easy to orient and find one’s sion or component is particularly way in and out? sensitive to changes in external conditions or developments within the

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project. Does a need exist for specific whilst they have spent years there suffering action or a specific component to without visible government support, address potential risks and uncer- persons with disabilities in the area are getting preferential treatment in the form tainty? of materials and supplies. A new approach is to shift from disability projects to 6.1.Carry out a risk and uncertainty community projects.a assessment systematically throughout each project component (attitudes, a Hadino Hishongwa, “Namibia: integration of physical structures, training and disability issues in development cooperation education, decision making, activities”, note contributed to United Nations economic and financial issues). Consultative expert meeting on integration of disability issues in development cooperation 6.2. Study the possible internal risks and activities (Vienna, 29 May – 2 June 1995). uncertainty within the project framework as this relates to project implementation and long-term sustain- (vii) Institutional framework and project ability. organization Projects are implemented by a specified Decision options: project organization within a certain insti- 6.1. If unwanted and negative impacts are tutional framework. These define the identified, make necessary revisions to roles and responsibilities of the various the project plan of operations and parties to the project. Unless representa- overall project design (objectives, tion of important beneficiary groups or indicators, outputs, inputs, activities) organizations is defined in the project to ensure an environment conducive institutional framework, it is not certain to an integrated project and to ensure that the interests and needs of that partic- that people with disabilities will have ular group will be appropriately refected access to the development process. in project implementation. 6.2. Add a disability-specific component if necessary: (1) to adapt the environment to CHECKPOINT 7: respond to needs of persons with disabilities, or Check the adequacy of disabled (2) to insure them against potential people’s involvement in the project risks and uncertainty, or organization. (3) to compensate them for disad- The depth of involvement of disabled vantages related to the current people and/or their organizations should development situation. depend on the nature of the project and the role of disability issues in it. The following table describes suggested requirements to ensure a minimum level “Positive discrimination” can be a risk in of involvement by persons with disabilities itself In Namibia some disability-specific projects according to the degree of a project’s have met opposition from the rest of the disability relevance. community. People have grown apprehen- sive about disabled people, saying that

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(0) “Not disability-relevant” projects: instance, in the of planning and imple- Arrangement: People with functional mentation process disabled people can be limitations should not be discriminated given training and encouragement to against when choosing project staff (equal empower themselves. opportunity policy). (viii) Impact assessment and sustain- (1) “Disability-relevant” general projects: ability Arrangement: At the initial stage, the Since projects and programmes are degree of relevance of project components, intended to have sustainable specified activities and outcomes to persons with disabilities should be checked. The effects, thorough analysis and appraisal of required expertise should be involved intended and eventual non-intended accordingly, preferably people with impacts on various population groups and personal experience of disability, at the their living environments is the crucial relevant stages of the project cycle: at step in project planning.17 On the other planning and implementation in particular. hand, there is the issue of whether the intervention supports sustainable develop- (2) “Highly disability-relevant” activities ment paths or leads to long-term effects Arrangement: Persons with disabilities that endanger the future well-being of should be involved and consulted concerning alternative project approaches. people. Persons with disabilities should also participate in the planning team as “Human beings are at the centre of concerns members and/or experts in disability- for sustainable development. They are related matters. entitled to a healthy and productive life in A disability component should be planned harmony with nature.”18 with the full involvement of persons with disabilities like any disability-specific a. Environmental impact assessment activity (see below) and with the appro- Many donor agencies require an Environ- priate involvement of persons with disabilities in the planning and implemen- mental Impact Assessment (EIA) to ensure tation of an umbrella project as a whole. that the proposed activity is environmen- tally sound and sustainable. (3) “Disability-specific” projects: Arrangement: Persons with disabilities Social impacts are environmental should be empowered to manage as well impacts as “own” the project; for instance, they According to the “Act on Environmental should be in charge of the project Impact Assessment Procedure in Finland” management group. (468/1994), environmental impacts pertain Disabled people should have their to the direct and indirect effects of a own control over the entire project process. A project or operation on(*14): fair share of available resources should be • human health, living conditions and made available to enable them to reach amenity; their specified goals and objectives. The • soil, water, air, climate, organisms, inter- group may define its own needs, objec- action between them, and natural diver- tives and means of reaching them; it may sity; also monitor and evaluate the project • community structure, buildings, land- process; it would also carry the responsi- scape, townscape and the cultural bility for project outcomes. The empow- heritage and ering process may need to be gradual, for • utilization of natural resources.a

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a Source: Jyri Juslen, “Social Impact Assess- C: ment in [Environmental Impact Assessment] Projects which have the potential for and Planning”, in M. Sotaranta and J. Vehmas a direct negative impact on the lives (eds.) Regions and Environment in Transition; in of a significant number of people search of new solutions (Tampere, Department of Regional Studies, University of Tampere, (large dams, highways, airports), and 1995). those located in remote areas inhab- ited by groups with significantly different social cultural traditions A Social Impact Assessment (SIA) should (mining, plantation crops, highways). also be included in compulsory Environ- mental Impact Assessment procedures for Social analysis provides an effective and development cooperation activities, as empirical way in which to identify and either a complement or specific EIA incorporate a social dimension into main- component. stream projects. At the identification For instance, the Asian Development phase an initial social assessment could be Bank classifies all projects at the Identifi- conducted, and during project preparation cation Stage according to their potential (feasibility study) a social analysis or Social risks and opportunities in terms of social Impact Assessment would ensure the impact.19 The Asian Development Bank quality of the plan and outcomes from the uses the following categories: social perspective. A typical social analysis would include AP: identification and assessment of the Projects whose major objective is to following issues: have a direct impact in the form of poverty alleviation; poverty projects (1) beneficiaries, by gender, socio- always require the active participation economic characteristics and location of beneficiaries. (rural – urban); (2) needs of the beneficiary group(s), by A: gender and location; Projects which are expected to have a (3) needs and concerns of intended bene- direct, positive social impact and ficiaries, i.e. readiness to invest their which, in order to be successfully own time and energies in the project; executed and/or sustained, require the (4) absorptive capacity of the target active participation of the intended group; beneficiaries (most projects in agricul- (5) gender issues and empowerment of ture and social infrastructure sectors). women; (6) potentially adverse effects on vulner- B: able groups. Projects that rarely have an immediate, direct (positive or negative) social Regarding persons with disabilities, impact and/or can be executed and conclusions of a social analysis should sustained without beneficiary partici- contain suggestions on how to minimize pation (most projects in energy, trans- the negative social impacts and eventually port, communications and industrial enhance the positive ones, for instance sectors, except small scale industries). through auxiliary balancing measures:

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(1) designing specific targeting mecha- woman in the household who is the main nisms; care-giver. Lack of attention by society to (2) identifying opportunities for partici- the rights and needs of disabled people, pation by disabled people; and lack of the basic services they need to (3) designing auxiliary or compensatory exercise their fundamental rights ulti- measures to enable disabled people to mately falls as an additional burden on absorb benefits from the project women. better; (4) designing follow-up procedures that c. Disability impact report will contribute to flexibly to respond The impacts of development activities on to emerging needs by various persons with disabilities generally are disability groups. similar to those experienced by any other specific social group. However, the b. Gender-responsive development 20 negative effects will probably affect “Sustainable development and economic disabled people more strongly than any growth that is both sustained and sustain- other group. Positive impacts need to be able are possible only through improving directed and targeted so as to reach the economic, social, political, legal and disabled people as well. cultural status of women.”21 Any negative impacts of development Women and girls, who represent one activities on women with disabilities are half of the population, face several forms usually more serious than their impact on of discrimination and barriers which men with disabilities. restrict their contributions to society and The Disability Impact Report, that personal development. Women often should be attached to a Project Document have less education, less authority, less if the activity is highly disability-relevant, access to land, credit and training than do should answer the following questions, men. with reference to gender: Gender analysis is a tool to assist in strengthening development planning and (1) Is there expected to be fewer risks and implementation by including the gender less exposure to disabling living condi- dimension and empowering thereby tions of the girls and women, boys and women as agents and beneficiaries in men in the population affected? planning and implementation of develop- (2) Will disabled people’s living condi- ment activities. tions be enhanced by the project – or Women and girls with disabilities are will they be impoverished further? victims of a double marginalization. Will security for their livelihood Despite this fact, their rights, needs and improve – or will they become more aspirations are no better included in vulnerable? gender-sensitive activities than are those (3) Will the activity improve the access of of disabled people in general mainstream disabled people to the benefits of the projects. Additional awareness and affir- project, or indirectly to resources not mative action are needed. involved in the project – or will their Disability is a central gender issue for exclusion become even worse? another reason, too. If a household (4) Will disabled people’s own knowledge member has a disability, it is usually the be utilized and hence increased – or

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will their experience be ignored? ecologically sound and accessible (5) Will disabled people gain better regarding any aspects dealing with command over their lives in the the built environment? economic, social, cultural and political 8.4. Are disabled children and women arenas – or will they be further disem- given appropriate attention in powered? proposed activities? (6) Will disabled people’s mental health 8.5. Do institutional development and and physical health (including repro- capacity building components in the ductive health) condition and access activity take into account the need to to health services be affected posi- seek actively the involvement of tively – or will their health risks be persons with disabilities and to increased? further their empowerment? 8.6. Do economic analyses adequately The purpose of any development inter- reflect social costs and benefits, vention is to support processes that result taking into account the long-term in improved well-being and livelihood and benefits that are expected to be that these are self-sustaining once external obtained through the introduction of resources are removed. Sustainability the disability dimension to main- can be improved by appropriate Social stream development? Impact Assessments and introduction of 8.7. Is there support for disabled people’s necessary updates and revisions to the own initiatives? Are there institu- project plan of operations regarding the tional links to ensure that both project’s political, social, technological, internal and international networks environmental, institutional and economic built during the proposed interven- prerequisites. From the perspective of tion will continue after project oper- persons with disabilities, the following ations have ended? issues regarding sustainability should be 8.8. What will be the estimated impacts addressed: of the activity on disabling conditions, the life conditions of disabled women and men, boys and girls, on CHECKPOINT 8: their access to the benefits of the activity, on the development of their Will proposed project activities result human capacities, on their health and in sustainable improvements from the overall command of their own lives? standpoint of people with disabilities? In cases of disability, experience has 8.1. Is there a clear policy-level commit- shown that sustainable improvements in ment in support of equalization of the status of disabled people around the opportunities and the prevention of world have resulted once disabled people disabling conditions by all parties have organized themselves. Involving and involved? empowering people with disabilities is a 8.2. Are the technology and resources key element in a strategy for sustainable used to cater for the disability aspects improvements in their opportunities to appropriate and locally available? participate on the basis of equality as 8.3. Is the project plan of operations agents and beneficiaries of development in

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the societies in which they live. Personal emphasis accorded to national execution contacts and twinning of organizations and to the use of programme approaches provide effective mechanisms to ensure in the analysis and planning of develop- continued support for the full and effec- ment cooperation activities. From 1997 tive participation of disabled people in programme countries will replace the development as beneficiaries and as agents current UNDP country programme with for social change. the formulation of the new country cooperation framework document, which will 2.3. Reflecting disability issues in the cover a period of three to five years. The project document country cooperation framework will be The project document is the manuscript the prime instrument for programming of a project. It is formally an agreement UNDP resources. The country coopera- to cooperate to achieve agreed goals and tion framework is based on an analysis of objectives between a donor and a national development priorities and an programme country. A project document overview of external development cooper- can cover the flow of activities and ation activities; it also identifies resources over several years. However, if programme areas for priority allocation of disability issues are not appropriately UNDP support.22 reflected in that document, they will not, The principles and issues discussed in most probably, have much role to play in the preceding sections on reinforcing the the actual implementation of the project. disability dimension in mainstream devel- An annex PD to the manual includes a opment cooperation projects are expected worked example of how disability issues to find application as well in analysis and can be included in a mainstream Project formulation of the new country coopera- Document under various subheadings of tion frameworks. the document format. The format described follows, with minor simplifications, the current format of the United 3. PHASE THREE: DISABILITY- Nations Development Programme. Since SENSITIVE PROJECT the UNDP process for formulating a APPRAISAL project document is rather detailed, it can be easily adapted to complete pro forma of 3.1. Purpose of project appraisal other donor agencies. Project appraisal aims at “auditing” the project document to decide whether the 2.4. Concluding remark: introduction of project should be approved as such, new programming arrangements of revised or rejected. The appraisal stage the United Nations Development should provide a comprehensive review of Programme all aspects of the project and, through With Executive Board decision 95/23 the necessary adjustments to the original United Nations Development Programme project plan, lay the foundations for introduced certain changes to develop- project implementation. ment cooperation activities so that these Most donor agencies have their own better respond to needs and capacities of appraisal guidelines, although there are developing countries. observed variations among agencies. Chief among the changes is the Traditionally project appraisal covers four

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main aspects of the project, namely the parameters of policies and plans. project’s social, economic, institutional If a commitment to socially-respon- and technical preconditions and expected sible project planning is not already impacts. reflected in the policies and programmes Since development cooperation of donor and programme countries, it is projects should be based on the most unlikely that projects proposed would progressive values and concerns, it may reflect a social dimension either. Accord- also be necessary to point out emerging ingly, it is not possible to introduce special concerns – such as the environ- disability concerns as a technicality at a mental aspects and the role of women in late stage of the project planning process. development – in the appraisal guidelines The appraisal phase is the key quality of donor agencies. control point. Regarding the disability Since the international community has dimension, the following principles may repeatedly requested the United Nations help to get started with a disability-sensi- and all donor agencies to give higher tive appraisal process. priority to the needs and concerns of persons with disabilities, it may be time to (1) Reinforcing the disability dimension include the disability dimension in calls for introduction of an “extended appraisal criteria for development auditing procedure” that would cover programmes and projects. the relevant policy and programme decisions in addition to the proposed 3.2. Guiding principles for extended project document per se. auditing of disability-relevant devel- (2) Because disability is such a common opment activities issue, appraisal officers/teams should Concerning the disability issue, the be provided access to relevant exper- appraisal team should go through the tise through flexible partnership same basic checkpoints as in the project arrangements, for instance with preparation phase, and verify whether the national and international organiza- project plan adequately covers the preven- tions of persons with disabilities for tive aspects as well as the needs and advice and assistance. concerns of disabled persons whenever (3) To check for the disability relevance they are included in a target group, or are of a proposed project, initial screening otherwise participating in or affected by may be done by a desk officer with a the project. simple instrument, such as the Check- People with disabilities can easily be list I presented in Unit One. neglected altogether in the context of (4) Depending on the degree of rele- mainstream development cooperation. vance, the appraisal team should The inclusion of disability prevention and involve a person familiar with the the needs and concerns of persons with concerns of persons with disabilities disabilities is not a mere technical matter. as well as the prevention of disabling It represents an important issue of policy conditions. Cooperation with a since it will affect the situation of one of National Coordinating Committee the most neglected population groups. may be considered as one – but It also is a political issue, as this usually minimum – alternative. pertains to determination of who sets the (5) All projects that have a disability

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dimension should undergo an “extended that level may eventually prove to be the auditing procedure” including a review original source of negative results on the and assessment of both donor and social cost/benefit balance sheet of a programme country policies, particular project. Minimum checklists for programmes, development cooperation policy and programme appraisal are frameworks and the proposed project. presented below (checklists A and B). The (6) The disability dimension should checklists can also be used as guidance constitute a threshold criterion23 in during programme negotiations. projects that, on the basis of the extended auditing: Checklist (A): (a) may prove to be disability- specific, Policy orientation of donor and (b) may have a major disability programme countries component or The following basic questions represent (c) for other reasons are highly characteristics of a good policy orientation relevant to the concerns of regarding disability. The checklist is persons with disabilities or to progressive towards an inclusive approach. prevention of disabling condi- Should the required characteristic not be tions, which conceivably may evident, proposals for balancing positive include all projects in the social, action could be made. health and education sectors. Such projects should be continued 1. Has the donor agency/programme recipient accorded high priority to the only if the appraisal team considers social dimension of development? that disability issues can be appropriately handled by the project organiza- NO-> The social dimension in technical tion. Otherwise revisions will be cooperation should be appropri- required, if feasible, or the project ately introduced into discussions at rejected. the highest political level. Refer- (7) In disability-relevant projects, or ence may be made to the Commit- those with a specific disability compo- ments of Heads of States and nent, consideration should be given to Governments at the World Summit for Social Development. including a specific annex on the disability dimension to the Project 2. Has the donor agency/programme Document. recipient taken into account the need to pay special attention to the most vulner- 3.3. Auditing the policies of donors and able or poorest population groups, such as programme agencies women and children in difficult circum- Donors and programme recipients should stances, persons with disabilities, refugees, pay appropriate attention to major among others? commitments by the international NO-> The Copenhagen Declaration on community in the social and economic Social Development as well as the sectors. It is therefore justified to extend “Guiding principles on develop- the auditing to policy and programme mental social welfare policies and guidelines even while appraising indi- programmes”a could be intro- vidual project documents. Weaknesses at duced to the discussion.

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on both sides it is unlikely that develop- 3. Has the donor agency/programme ment interventions aiming at including recipient included persons with disabilities disabled people can succeed and be as a group to be considered and addressed sustainable. by a specific policy component?

NO -> The World Programme of Action 3.4. Auditing a country programme/ concerning Disabled Persons and the country cooperation and similar Standard Rules on Equalization of frameworks Opportunities for Persons with Country programmes of the United Disabilities as well as United Nations Development Programme and Nations General Assembly resolu- related development cooperation docu- tion 49/153 on a long-term ments are usually less detailed and involve strategy to further implement the more flexibility than tradional project World Programme of Action could documents. be introduced to the discussion. They should be audited in a fashion 4. Has the donor agency/programme similar to project proposals. An annex to recipient included consideration of the manual discusses a Rapid Disability disability issues as an integral issue for the Analysis (RDA), which represents, with policy mainstreamed? minor modifications, a suitable tool for screening programme documents for their NO-> The benefits of integrated sensitivity to disability issues. approaches should be emphasized. Reference could be made to the Standard Rules and to the concept CHECKLIST B: of “a society for all”. Application of Rapid Disability a Report of the Interregional Consultation on Devel- Analysis to development cooperation opmental Social Welfare Policies and Programmes in programme documents the Near Future, Vienna, 7-15 September 1987 (E/CONF.80/90) and General Assembly resolu- 1. Has the disability relevance of the tion 42/125. programme and its components been studied and have appropriate conclusions been drawn? A simple list such as this with references to relevant international instruments and 2. Has the programme specified to what related programme documents can be degree the problems to be addressed by the used by any group or persons who have an components are disability-relevant? Has it been noted that in all target groups there interest to initiate a dialogue on the need may be persons with disabilities as well? for and justifications of inclusion of Are conclusions reflected in the contents disability issues in mainstream develop- and organizations of the components? ment activities. In project or programme appraisal documents, the lack or weak- 3. Have all important stakeholders been nesses of supportive policies in the donor involved in the programme negotiations? or programme countries should be Is there a division of labour and mecha- pointed out. In the absence of an appro- nisms for coordination, particularly priate policy and programme commitment between governmental and non-governmental bodies and organizations?

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3.5. Auditing project documentation 4. Do the development objectives reflect Usually appraisal is limited to the project the recent international commitments and document. In disability-relevant projects instruments in the social and economic it is, however, necessary to check the sectors? Are they designed in the spirit of policy context and the overall intervention “A Society for All” that endeavours to involve all people in development as process in order to ensure that the assign- agents and beneficiaries? ments, right from the beginning, have been sensitive to disability-related infor- 5. Are the programme components, activi- mation and issues. ties and results accessible to people with If a programme approach has been functional limitations? used, the programme document should be subject to extended auditing as detailed as 6. Have the vulnerability of disabled that applied to project documents. people and the disability dimension been taken into account in programmes and projects? Have any balancing measures Step 1: Initial screening at project identi- been included in the programme? fication stage Because disability awareness may not be 7. Have the resources of disabled people widely spread, disability concerns can and their organizations been noted and easily be overlooked by project identifica- will disabled people be effectively involved tion teams. Once project planning has in components concerning them? Have advanced and a project organization has additional empowering components been been set up, it is difficult to add the included? disability dimension. 8. Has the sustainability of results for On the other hand there may be alter- disabled people been ensured by contin- native project proposals, some of which uous and systematic policy-backing, are more beneficial to persons with involvement of disabled people and a disabilities than others. That is why such sustainable resource flow? a “new dimension” as disability needs special attention right at the project 9. Is the programme non-discriminating screening stage. and does it support the objective of Project identification documents “development for all”? should be screened by a person or team 10. Will follow-up measures be sensitive to familiar with disability matters. The Rapid disability issues and involve disabled people Disability Analysis (Annex RDA) can be to an appropriate degree? used as a basic checklist. A closer look can be obtained by comparing the identification document with the annexed disability If the programme – or some components sensitive UNDP project document (Annex of it – should be considered disability PD) or the chapter on project identifica- relevant, any NO answer to items 2-10 tion. should lead to further discussions and reconsideration and/or revision of the Step 2: Auditing a project/programme programme. document The appraisal report is usually based mainly on the project document, whose

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Worked example:

Rapid Disability Assessment applied to the “Basic Document Format of the European Union” 24

Item in basic document format of the European Union Relevant RDA checkpoints

1. Summary Checkpoint 1: Are there disability-relevant projects or activities in the plan/programme? (Checklist #1) – Was this reflected in TOR at the project identification phase?

2. Background Checkpoint 2. 2.1. Government sectoral policy Has it been studied and specified to what 2.2. Features of the sector degree the proposed project(s) and its 2.3. Beneficiaries and parties involved problem dimensions are disability-relevant? 2.4. Problems to be addressed Has the disability relevance been reflected in 2.5. Other interventions project organization (cross check with point 2.6. Documents available 7)?

Checkpoint 3: Have all relevant stakeholders whose cooperation is needed for the inclusion of disability concerns been identified? Have they been involved?

3. Intervention Checkpoint 4: 3.1. Overall objectives Are the objectives in line with the spirit of 3.2. Project purpose the international conventions, commitments 3.3. Results and programmes? 3.4. Activities Checkpoint 5: Are the project, all its activities and outputs (results) such that people with functional limitations can participate in and benefit from the project on equal terms with other groups?

4. Assumptions Checkpoint 6: 4.1. Assumptions at different levels Has the sensitivity of the disability dimen- 4.2. Risks, uncertainty and flexibility sion (or component) to changes in external conditions, or possible negative developments within the project, been taken into account?

5. Implementation Checkpoint 7: 5.1. Physical and non-physical means Is the involvement of disabled people in the 5.2. Organization and implementation proce- project organization and activities adequate dures in the light of the disability relevance of the 5.3. Timetable activities? Has this been reflected in the cost 5.4. Cost estimate and financing plan and resource estimates and in the timetable? 5.5. Special measures: Accompanying measures taken by the Government

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6. Factors ensuring sustainability Checkpoint 8: 6.1. Policy support Will the activity result in sustainable 6.2. Appropriate technology improvements from the standpoint of people 6.3. Environmental protection with disabilities? 6.4. Socio-cultural aspects/Women in development 6.5. Institutional and management capacity, public and private 6.6. Economic and financial analysis

7. Monitoring and evaluation Checkpoint 9: 7.1. Monitoring indicators Are the monitoring and evaluation arrange- 7.2. Reviews, evaluation ments sensitive to disability issues?

Checkpoint 10: 8. Conclusions and proposals Has the whole process been sensitive enough to disability issues? formats tend to vary by organization. The 4. PHASE FOUR: IMPLEMENTA- key questions remain since most TION AND MONITORING document formats involve applications of Project implementation, while defined by a “Logical Project Design Framework” the schedule of activities and institutional and thus contain essentially the same arrangements listed in the project plan of information. The RDA checklist (annex) operations or document, is based on can be flexibly adapted to many document limited knowledge about the future. As formats. The questions of RDA represent circumstances may change over the course key issues which should have been appro- of a project, systematic monitoring of priately dealt with during project prepara- project performance and results is essen- tion and should be reflected under various tial. Implementation is a process of items in the project document. The more learning by doing. negative answers there are to an RDA, the more there is a need for revisions to – or 4.1. Process-oriented planning reconsideration of – the proposal. Due to the need for more flexibility and Contents of the above checkpoints are participation, process oriented planning25 discussed in greater detail in the annex on is becoming increasingly common in rapid disability assessment. activities where the development of social Reference might also be made to the and institutional infrastructure plays a annotated project document presented as central role. In all development the active an annex (PD) to the Manual for an participation of several stakeholder example of a more detailed description of groups, including intended beneficiaries, a model project document that effectively has become the dominant paradigm. addresses disability issues. In process- and learning-oriented The appraisal report, or its disability- approaches the involvement of the specific annex, should comment on community becomes central. This calls whether the necessary checks have been for a flexible planning and implementation made and whether an appropriate strategy. In fact, the differentiation of balancing action has been included. project cycle stages may be fading: project

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identification, planning, plan appraisal, One pre-requisite for full and effective implementation and monitoring increas- involvement of persons with disabilities in ingly overlap. The approach increases the process is usually a component that flexibility but does not relieve participants focuses on the organizing and step-by-step from rational planning. Planning still empowerment of disability groups. involves the same logic and the same A flexible, process-oriented strategy is elements as those described in previous very suitable in planning and imple- chapters. menting activities that aim at institutional A process-oriented approach requires development and capacity building. a functioning team, “a round-table” of This is the case, for instance, when main stakeholders, such as: planning disability-specific components within a wider project. It is also the • the beneficiaries, approach of choice when operations are to • the funding agency, be designed within a programme frame- • the implementing agency, work. • the responsible government agencies. More participation calls for more flexibility in resources and timetables. What At a “round table” all are equal but is invested in terms of extra time will often different. There are not only cultural result in greater involvement and commit- differences amongst national and expa- ment, added social value and more triate members but also between national sustainable results. members representing various sectors, levels of administration and, ultimately, 4.2. Principles to be applied the intended beneficiaries. The following principles should be Teamwork within a process framework applied in implementing an activity so that is not easy. It requires a structured, goal- it will be disability-responsive: oriented, and open dialogue. The team, in interaction with the respective (1) Organizational arrangements for constituencies through the team members, administering and monitoring the should be ready for continuous discus- activity should reflect the degree of sions and negotiations on, for instance: disability relevance of the activity (see chapter or annex on rapid disability (1) clarification of objectives; assessment for further details). (2) target setting; (2) The set of performance and quality (3) resources identification and cost indicators should include disability- sharing; sensitive indicators or components. (4) priority setting, and interest conflict (3) Implementation of a highly disability- settlement; relevant (or specific) projects or (5) selection of strategies and planning of components should involve people activities; with disabilities as agents and benefi- (6) division of labour; ciaries to the maximum feasible (7) degree of community involvement; extent. Appropriate provisions should (8) monitoring and any revision of be made to enable persons with planned actions. disabilities to empower themselves, thereby take increasing responsibility

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for the project. A project steering Disability-sensitive monitoring indica- committee – if constituted – should tors may reflect criteria discussed in this include a member with personal expe- chapter: rience of disabilities. (4) Both the donor and programme • Accessibility, implementing agency should promote • Reachability, equalization of opportunities in all • Usability, project activities. This principle • Orientation, implies that in projects that are • Safety, disability-specific or have a disability- • Workability, specific component, special efforts • Equality, should be made to identify those • Affordability. persons with disabilities who could be assigned/hired in the light of the An easy-to-arrange and cost-effective particular skills and knowledge that method for monitoring and checking the they have of disability matters and accessibility and adequacy of the built could contribute to project opera- environment or other facilities is to tions. arrange a walk-around by persons with various disabilities in order to spot the Moreover, project monitoring should barriers. The same principle can be used extend to the site of project operations in to check the appropriateness of any other addition to desk-based administrative element of the project, as well. procedures.

Demystify accessibility and technology Barrier-free plans do not automatically come true Accessibility improvements need neither be costly nor complicated. Orientation by In Marjala (Finland), the barrier-free suburb, people with visual impairments can be architects designed ramps as the main assisted by lining up stones along paths, entrance to buildings. Steps were placed at marking the junctions with stones or poles. the sides of the entrance. The first inspec- Fire places should as well be marked with tion revealed that the design was fine, but poles. the working team had constructed a step of 15 cm in front of the ramp – as is usually Hundreds of various types of technical aids done in front of steps.a can be produced at home, by village carpen- ters, blacksmiths, bicycle shops and so on out of locally available material. a Personal communication from Mr. Jouni Töyrylä, City Architect, Joensuu, Finland. Source: Report of United Nations Economic and Social Commission for Asia and the Pacific Technical Workshop on Indigenous Production and Distribu- tion of Assistive Devices (Bangkok, 5-14 September 1991).

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5. PHASE FIVE: 6. INTRODUCTION OF THIS FINAL EVALUATION MANUAL AS A LEARNING Development projects usually are evalu- TOOL ated systematically; this often may include The application of this manual to devel- input by independent experts at the end of opment cooperation activities could very the project (or a specific phase). Attention well start as an evaluation exercise in the is directed to results achieved, obstacles following way: encountered and a determination whether A round-table workshop could be there is a need for further action, organized with participation of all the including preparation for a subsequent main development cooperation stake- project phase. Evaluation thus represents holders. The task would be to make a post a major opportunity to review and assess facto appraisal exercise of existing develop- “lessons learned”, which are expected to ment cooperation policies, country lead to improvements in planning of programmes or a major mainstream similar activities. project. The ultimate output of such Evaluation differs from monitoring in workshops would be draft basic principles two respects. While monitoring focuses and guidelines on how to start imple- on processes by which project inputs are menting an integrated policy approach converted into outputs, evaluation concerning disability issues in the context examines the relationship between of mainstream development cooperation. project-level objectives and final results. One result could be a continuing coopera- Evaluation may also focus on how the tive arrangement between interested intended – as well as unintended – benefi- donor agencies, programme countries and ciaries make use of project outputs to disabled people’s organizations. improve their well-being and livelihood. There are no perfect development Evaluation implies, by definition, policies, programmes or projects. It is of mirroring the results against chosen vital importance that the lessons learned values. This stage should bring the in attempts to achieve development for all partners in development back to the through planning safe and accessible crucial value statement that develop- projects be collected and disseminated ment cooperation should be based on the widely. highest international standards and commitments. For disability-relevant projects this includes consideration on the NOTES: Unit III ways in which disabled women and men, girls and boys have been effectively 1. United Nations Development Programme, Programme and projects manual (PPM), vol. III, involved as beneficiaries and agents of “Implementation of UNDP technical co-opera- change. tion” (New York, 1988). 2. Waren C. Baum, The project cycle (Washington, DC, The World Bank, 1982). 3. For grant assistance, see for instance, United Nations Development Programme, Regional Bureau for Asia and the Pacific, How to write a project document; a manual for designers of UNDP projects (New York, 1990); Commission of the European Community, Manual for project cycle management; integrated approach and logical frame-

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work (February 1993); Finnish International Devel- Committee, Guidelines on Environmental Aid, opment Agency (FINNIDA), Guidelines for project “Good practices for environmental impact preparation and design (June 1991). The discussion assessment of development projects”, No. 1 draws upon bi- and multi-lateral approaches to (Paris, 1992); Commission of the European design of grant-assisted projects. Communities, Environmental Manual; sectoral 4. F1NNIDA, Guidelines for project preparation ... environmental assessment sourcebook (June 1993). 5. United Nations General Assembly resolution, 18. Report of the United Nations Conference on Envi- 47/88 inter alia, called upon Governments to ronment and Development..., “Rio Declaration”, address “disability issues within integrated social Principle 1. development policies linked to other socio- 19. Asian Development Bank, Guidelines for Social economic isues ...; and to integrate “disability Analysis of Development Projects (Manila, June components into ... technical cooperation 1991) pp. 2-3; and see also ibid., Guidelines for programmes”. Incoporation of Social Dimensions in Bank Opera- 6. United Nations Report of the World Summit for tions (Manila, October 1993). Social Development.. 20. Effective mobilization and integration of women in 7. United Nations General Assembly resolution development: gender issues in macroeconomic policy- 47/88. making and development planning; report of the 8. Carl V. Patton and David S. Sawicki, “Verifying, Secretary-General (E/1995/75); see also Interna- defining and detailing the problem”, in Basic tional Labour Organization, The window of methods of policy analysis and planning, 2nd edition opportunity, strategies for enhancing women’s partic- (Englewood Cliffs, New Jersey (USA), Prentice- ipation in technical cooperation projects, WID Hall, 1993), chap, 4. Occasional Papers, No. 3 (Geneva, 1991). 9. See for instance, Report of the World Conference on 21. Report of the Fourth World Conference on Human Rights, Vienna, 14-25 June 1995 Women…, para 58. (A/CONF.157/24 (Part I)). 22. Documentation is currently under preparation 10. For an example of setting regional targets, see by UNDP, see for instance, United Nations World Health Organization, Regional Office Development Programme, Guidelines for the for Europe, Targets for health for all; targets in Implementation of the Successor Programming support of the European regional strategy of health Arrangement in UNDP, “Introduction, and for all (Copenhagen, 1985). Implementation guidelines for country-level 11. Final Report of the International Conference on programming, resource assignment and review”, Nutrition, Rome, 5-11 December 1992 (Rome, Part A (New York, 21 December 1995); and Food and Agricultural Organization of the Implementation of the successor programming United Nations, 1993), Part II. arrangements, report of the Administrator [of 12. Final Report of the World Conference on Education UNDP] (DP/1996/3. for All: Meeting Basic Learning Needs, Jomtien, 23. Report of United Nations Consultative expert Thailand, 5-9 March 1990, Inter-Agency meeting on integration of disability concerns in Commission (UNDP, UNESCO, UNICEF. development cooperation activities World Bank) for the World Conference on (Vienna, 29 May – 2 June 1995). Education for All, New York, 1990, appendix 1. 24. Commission of the European Communities, 13. See, for instance, World Labour Report, 1994 Manual: project cycle management, integrated (Geneva, International Labour Office, 1994). approach and logical framework, Evaluation Unit 14. Report of the World Conference on Human Methods and Instruments for Project Cycle Settlements (HABITAT II), Istanbul, Turkey, Management, No. 1 (February 1993). 3-14 June 1996 (forthcoming). 25. See, for instance, the discussion in Overseas 15. Implementation of the World Programme of Action Development Administration, A Guide to Social concerning Disabled Persons, report of the Secretary- Analysis for Projects in Developing Countries General (A/49/435), annex, “Towards a society (London, HSMO, 1995). for all; Long-term strategy to implement the World Programme of Action concerning Disabled Persons to the Year 2000 and Beyond”. 16. Based upon United Nations Designing with Care, Vienna, 1991 17. Organization for Economic Cooperation and Develoment. Development Assistance

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A. SUMMARY OF BASIC PRINCIPLES TO BE APPLIED

“Disability-specific” projects or compo- A “comprehensive” approach could there- nents are defined as those which identify fore be summarized in terms of the 12 persons with disabilities as their primary elements listed in the following matrix. beneficiary group.1 Disability-specific activities may focus on reducing the risk of disablement, reha- bilitating persons with disabilities, and equalizing opportunities for persons with disabilities. The objectives may focus on different levels, such as the following: (a) adequate societal policy and feasible programmes at national level, (b) community-based activities, (c) activities targeted towards families, and (d) activities targeted towards persons with disabilities.

Figure IV.1: Elements of a “comprehensive” approach to disability-specific action

(a) Equalization of (b) Rehabilitation (c) Prevention opportunities

(1) Societal policy 1.a. 1.b. 1.c.

(2) Community-based activities 2.a. 2.b. 2.c.

(3) Activities targeted towards families 3.a. 3.b. 3.c.

(4) Activities targeted towards persons 4.a. 4.b. 4.c. with disabilities

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It is often not feasible to cover the whole disabled people should be particularly horizontal axis in any one project. Instead avoided. it may be neccessary to focus on one of the (c) Be sustainable. In the long run, a three aspects. Whatever the focus, the project should be able to generate its minimum criterion for disability-specific action own resources, rather than remain should be that it encompasses the vertical dependent on external resources. dimension, i.e. all activity levels must Therefore, an income-generating support each other for the benefit to mechanism should be an essential part reach the concerned individuals in a of the project, whenever feasible. sustainable way. Therefore, the project Particular attention should be given proposal should specify what actions are to the nurturing and mobilization of taken to facilitate and ensure appropriate the resources among the disability policy support for achieving the project’s community. objectives, how community resources will (d) Respond to and back up policies. The be mobilized, how the family will be feasibility and sustainability of a involved and supported, and, finally, how project presupposes the support of a the individuals will concretely participate wider programme and general in and benefit from the project. governmental policy parallel with the Disability-specific projects that are objectives of the project. Small, inno- supportive of approaches which will vative projects integrated into a further a society for all should attempt to coherent medium-term programme meet the following criteria. are more useful than isolated under- The project should seek to: takings however large they may be. (a) Promote self-reliance. Persons with (e) Reflect an interdisciplinary approach. disabilities should be provided with The project should apply the know- resources that facilitate the choice of how of several disciplines and groups an appropriate mode of “independent of personnel rather than concentrate living”. Particular attention should be solely on medical, economic or social given to resources for independent science aspects. mobility, economic and social self- (f) Be cross-sectoral. The project should reliance. The project should avoid focus on removing obstacles faced in care-taking approaches, which may the complexity of everyday life rather even sustain or increase the depen- than deal with artificial life arenas dency of disabled persons on exter- defined by administrative subdivi- nally provided supports. sions. (b) Be mainstream and inclusive. All (g) Involve community participation. development activities should aim at The project should involve the facilitating equal access for persons community to the maximum extent, with disabilities to activities meant for and mobilize and make use of relevant all. The inclusive approach gives local skills, resources and technology. priority to joint activities where both disabled persons and non-disabled persons may participate rather than creating specific services for either group only. Building institutions for

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(h) Involve persons with disabilities. Projects which focus on persons with Getting up from the streets disabilities should not be planned and In Kampala, Uganda, a large number of implemented without full and effec- disabled people who made their living by tive participation of persons with begging were told by the City Council that disabilities as both agents and benefi- they are no longer welcome on the streets. ciaries. Project design should include The Council recognized that they had to a mechanism that will ensure recogni- offer an alternative and made available a tion and follow-up related to interests small plot of land next to the main Kampala and needs of disabled persons in both bus park. Eighty of the disabled people formed them- the planning and the implementation selves into the Kampala Disabled Business of the project. People’s Association. Now, a few years (i) Focus on children and women. later, the plot of land is a thriving “univer- Disability-specific activities should sity of small business”. The Association particularly invest in improving the rents out plots to other business people; possibilities of children and women to and an area to a catering co-op that exercise their universal human rights provides food as well as rent. The Associa- tion has over 200 members who are and fundamental freedoms. This may involved in substantial sporting, theatre and often involve specific, targeted disability rights activities; and they run a components. successful revolving loan scheme.a

a Source: “Action on disability and development”, Operations report and plans (Document 3: November 1992).

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B. BUILDING PARTNERSHIPS

When resources are scarce it is often impossible to initiate a project on the (7) Day-centres before residential work. desired and necessary scale. Experience This is only one way of setting strategic priorities.a suggests that one effective option in efforts to stretch available resources in a David Werner, “Classmates help a disabled order to get started and to be able to show child stay in school”, Newsletter from the Sierra the project’s potential is to start on a small Madre #31 (May 1995), published by Health- scale – on a pilot project basis. A wide Wrights (Workgroup for People’s Health and partnership, with low-cost entry options, Rights) 964 Hamilton Avenue, Palo Alto, CA 94301 (USA). and a flexible project organization can be designed in order to identify and pool resources from all interested parties. Many resource constraints can be overcome through alliances, partnerships and cost-sharing. In the disability Small resources can multiply when invested in strategic interventions field it should be considered unthinkable to plan and implement a project without To gain further support over time, activities involving the disabled community in both should be visible at an early stage. At the donor and programme countries. There initial stage of the PROJIMO Project in often are more resources available among Mexico (“Programme of rehabilitation the disabled community than can be iden- organized by disabled youth of western tified at the beginning of project analysis Mexico”), the strategic priorities for achieving visible results over a wide area in and planning. One reason may be that, the shortest time using local resources were for a long time, the involvement of the set as in the following example: disabled community in society was not always encouraged, and it has not been Example of strategic priorities: able to show its full potential. Persons with disabilities might not even have (1) Towns before villages, realized the extent of their own potential. (2) Children before adults, (3) Well-motivated parents before indif- Therefore, an important component in ferent ones, promoting partnership with the disabled (4) Locally-perceived needs before theoret- community in programme countries ical strategy, should be an appropriate training module (5) Small-scale before large-scale, to assist in the establishment and opera- (6) Visible centres before invisible tion of organizations of persons with periphery, disabilities.

117 UNIT FOUR: DISABILITY – SPECIFIC PROJECTS AND COMPONENTS

Since international disability organizations have contacts with disability organizations in most all countries, it is useful to consult them while planning disability- specific projects.

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C. AN INTEGRATED APPROACH TO DISABILITY

In efforts to enable people with disabilities is not seen as a high priority (except by to integrate themselves fully into the soci- those few who can afford wheelchairs). eties in which they live, there are no Often the most immediate barrier to self- partial solutions. An integrated approach reliance among persons with disabilities is calls for positive changes in three main a lack of basic rehabilitation services and areas of action focusing, respectively, on equipment needed for basic mobility.2 persons with disabilities, the environment, Therefore, when planning develop- and society as a whole, specifically: ment measures in the pursuit of “a society (a) rehabilitation and assistive equipment for all” in low-income communities, it is for disabled persons; essential that the full range of needs of (b) improved environmental accessibility; disabled persons be considered. Needs for (c) greater acceptance and support for basic and appropriate rehabilitation and diversity by the general public. assistive equipment must not be overlooked in the quest for better social and Historically, professional intervention for environmental accessibility. The need for persons with disabilities has concentrated a balanced approach is shown in the on providing rehabilitation and equip- following graphic, contributed by Mr. ment, while doing relatively little about David Werner of HealthWrights. accessibility and acceptance. Efforts were made to change disabled persons to fit better into society rather than to change society and the environment to accommodate better the needs of persons with disabilities. For this historical reason, the focus of efforts in developed countries generally has been on overcoming environmental and social barriers. In developing countries, however, needs may be different. Basic rehabilitation services and assistive equipment often may not be accessible to the majority of disabled persons who live in developing countries. For instance in low-income countries, where less than 5 per cent of the disabled persons who need wheelchairs have them, wheelchair accessibility

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Figure IV.2:

120 Davis Werner UNIT FOUR: DISABILITY – SPECIFIC PROJECTS AND COMPONENTS

D. A CONCLUDING COMMENT

All planners and decision makers face daily kind of interaction needed for breaking the dilemma of choosing between those both the technical and the mental barriers tasks that are urgent and those that are not for equality and inclusion. necessary to be done just now, but are in the long run more important than the daily urgencies. In development activities there is always a need to show visible results rapidly. Adding yet another concern into the plans is thus hardly welcomed. Therefore, the concept of accessibility, in its widest sense, must be built into the very basic planning framework as a natural quality criterion rather than conceived as an additional component. Planners know how to do things tech- nically right. In development work it is, however, more important to do right things. Without right policy commitment NOTES: Unit IV and guidance, a modern planning machine is able to do wrong things as effectively as 1. This issue goes beyond the scope of the current manual. The purpose of this unit is to provide right ones. For people with disabilities, “food for thought” on the question of reinforcing unterstanding the technical processes of the disability perspective in mainstream develop- project planning and administration is ment projects. A select bibliography is included thus vital in order to be in a position to in an annex; please review the citations on capacity building and consult organizations of gear these processes to the right direction. persons with disabilities. There are, however, no purely technical solutions that would lead towards an 2. United Nations, “Report of consultative expert inclusive society for all people. The meeting on integration of disability issues in development cooperation activities (Vienna, 29 biggest obstacles for equal opportunities May – 2 June 1995)”. of people with disabilities are invisible. They are in people`s minds. Conducive change in the mind maps and attitudes of all development partners is needed. To start learning by doing in equal partnership and with mutual respect creates the

121 ANNEX PD:

EXAMPLE: A DISABILITY SENSITIVE UNDP PROJECT DOCUMENTATION

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HOW TO INTEGRATE THE persons with disabilities, their age and DISABILITY DIMENSION gender distribution, social status, service INTO A UNDP facilities available, accessibility, etc. PROJECT DOCUMENT (1997 version) (2) The host country plan or strategy for the subsector The following format follows the UNDP Describe any policy or strategy explicitly Project Document. As this format is rather or implicitly relevant to the inclusion of detailed, it can be adjusted to conform to disability concerns. Note also the lack of most of the specific requirements of relevant policies and programmes. various donor agencies. The example is slightly “overdone” to clarify the various (3) Prior ongoing assistance to the same options. At the Project Identification stage subsector this same model can be used with simplifi- Mention all assistance that has a social or cations, as necessary. health dimension (equalization of opportunities, poverty alleviation, basic infrastructure construction, etc.). Mention any prevention, rehabilitation, education, employment, etc., projects PROJECT BRIEF relevant to disability. Note the disability relevance of interventions related to envi- A brief description is usually placed on ronmental health, or curative health care, the cover page. It should contain any very Mother and Child Health, etc. relevant special considerations, such as women’s role, environmental issues and (4) The institutional framework for devel- the relevance for equalization of opportu- opment efforts in the subsector nities of disabled people. The project’s Describe the interlinkages between degree of disability relevance should be relevant ministries, other public bodies stated here to ensure adequate appraisal of and national or local NGOs, and interna- the document. tional organizations that do or could contribute to an integrated approach to disability issues within the scope of the A. CONTEXT OF THE PROJECT project.

(1) Description of the sector concerned Give a general comment on the relevance B. PROJECT JUSTIFICATION of disability issues within the sector: (1) The problem to be addressed (pre- – assessment of health status and health project situation) risks in the project area; Include a description of how persons with – proportion of elderly people and trends disabilities are affected by the problem in age structure; and whether they are particularly worse – screening for persons with disabilities off in the current situation in comparison within the target groups, and among with their peers or reference groups. those indirectly affected, the number of

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(2) The expected end-project situation (6) Special considerations Describe how persons with disabilities will A minimum requirement for any disability benefit — or lose — if the project is relevant project (Checklist 1) is the inclu- implemented. Make a specific mention of sion of disability concerns in this section. any mechanism for guaranteeing that the Such concerns should also be included in intended outcomes benefit particularly considering such issues as environmental vulnerable and excluded disability groups, aspects (environmental health, safety, such as women and children, the deaf, the accessibility, etc.) or Women in Develop- mentally impaired and those with multiple ment. Women with disabilities should disabilities. always be given special attention in gender If the impacts are potentially negative analysis, because they are usually pushed for persons with disabilities, design to the outmost margins in communities. balancing measures (such as support Reference to international standards, services, specific disability components, commitments and mandates support the etc.). inclusion of disability concerns.

(3) Target beneficiaries (7) Arrangements for coordination with Indicate possible figures for the number of other sectors persons with disabilities with break-down Present the prerequisites of an integrated according to gender and broad age and multisectoral approach with a descrip- groups. Lack of accurate data should not tion of feasible solutions. State the func- be interpreted as the non-existence of tional division of labour between govern- disabled people in the target group. mental, non-governmental organizations — including the business community — (4) Justification of the choice of strategy and the families and individuals. The inclusion of disability issues should be justified with legal, economic, social or (8) The capacity and commitment of the moral reasons. Quote Human Rights host to provide the inputs and sustain instruments, UN resolutions, Standard the project Rules, Government policy documents, etc. Include an assessment of the recipient’s The direct and indirect effects should be willingness and ability to include the considered separately and their impor- disability dimension in the project and to tance assessed. Social and economic take over the responsibility at the end of considerations usually speak strongly for the project. an integrated and multisectoral strategy rather than for sectoral approaches. C. DEVELOPMENT OBJECTIVE Participation of beneficiaries and empowerment of marginal groups should be The long-term objectives of the project included. should be formulated, if possible, to include and benefit persons with disabilities in the spirit of “a society for all”. (5) Reasons for external assistance Objectives that reflect a “care-taking” Justify the involvement of any external approach should be avoided because they donor, particularly in efforts to improve are not conducive to sustainable social the project’s impact on disabled persons. development.

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D. IMMEDIATE OBJECTIVES, (2) The health hazards of supplies should OUTPUTS AND ACTIVITIES be given careful consideration and instruction (training) should be The immediate objectives (short- and included in the plan. medium-term targets of the project) should be such that the services, products, (3) In defining the quality of personnel, institutions and opportunities created are the criteria should not discriminate accessible to persons with disabilities. against equally qualified persons with Persons with disabilities should be seen as disabilities. equal beneficiaries in the target group. Among the immediate objectives, there (4) As part of the activities, consideration can be a component particularly targeted should be given to subcontracting to equalize the access and opportunities of organizations or businesses of disabled persons with disabilities or a specific persons. preventive component. The immediate objectives are achieved Details of the basic work safety require- through producing a set of outputs. These ments can be found in the ILO conven- should fulfil the accessibility and safety tions referred to in the Bibliography. criteria relevant to disability. The activities to produce the outputs should be designed in such a way that they F. RISKS do not discriminate against persons with disabilities, but allow or even facilitate Any external condition that seriously their participation. Some activities can threatens the inclusion of disability issues even be assigned to persons with disabili- in the project should be eliminated with ties or their organizations. Naturally, high alternative designs. Such conditions can, standards of occupational safety should be for instance, be negative attitudes towards applied in selecting between alternative disabled persons by some of the partici- activities. pating agents or the social environment. Care should be taken to minimize the possibility of conflicts between the inclusion of disability issues or persons with E. INPUTS disabilities and the other elements or participants. Awareness raising exercises, In planning the provision of equipment, for instance, can be used to combat some supplies, personnel, etc., the following of the potential conflicts. Special consid- criteria should be used: eration for the needs of disabled people can usually be adapted, with some flexi- (1) The equipment must fulfil high safety bility or minor redesign, to benefit the criteria. In no case should dangerously community as a whole. outmoded and unprotected equipment be proposed or provided by an external donor. The persons involved in the use of new equipment must be adequately trained.

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G. PRIOR OBLIGATIONS AND J. BUDGETS PREREQUISITES Budgets should include a realistic estimate Some donors may decide to apply some of the possible savings and/or extra costs basic criteria, such as the observance of incurred by efforts to make the project human rights, as a prerequisite for assis- accessible to disabled persons. Budgets tance. Whether explicitly stated or not, it should be prepared to reflect the objec- should be observed that all human rights tives and the quality of outputs. Conse- provisions should apply to persons with quently the inclusion of disability issues is disabilities as well. not only a cost factor but also increases It is also possible to set basic condi- the social and economic returns. The tions to be fulfilled. Regarding persons inputs of organizations of disabled persons with disabilities, such preconditions can may sometimes only be in kind but should easily be justified by the commitments be reflected in the budget. jointly made and shared by practically all Governments in the world.

H. PROJECT REVIEWS, REPORTING AND EVALUATION

The periodic review should include an evaluation of the success of efforts to include disability concerns. Criteria for such evaluation should be set, agreed upon and reflected in the documentation. Persons with disabilities can be assigned to function as evaluators, for instance, to test the accessibility of buildings and other infrastructure.

I. LEGAL CONTEXT

Many organizations use a standard text. The legal clauses defining the conditions for revision of the project plan might make it difficult to add any major disability concerns to the project during the implementation phase. Therefore, the adequacy of analyses and the appropriate inclusion of disability concerns in the project document are of critical importance.

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ANNEXES TO THE PROJECT (VI) A SPECIFIC ANNEX ON THE DOCUMENT: SOCIAL IMPACT ON PERSONS WITH DISABILITIES may be added Specific issues that can be covered in more in the case of highly disability-relevant detail in annexes, such as the following projects. Usually this is necessary in health, education and social sector (I) WORK PLAN: If there are any projects. bench-mark celebrations scheduled, include an adequate awareness-raising component concerning the inclusion of disabled persons or disability issues in general.

(II) REVIEW, REPORTING AND EVALUATION: Indicators concerning the disability issues should be included. Persons with disabilities or representatives of their organizations should be included in the evaluation teams when the project is highly disability-relevant.

(III) TRAINING PROGRAMME: In the selection of trainees or trainers, persons with disabilities should not be discriminated against. A specific disability component should always be included in projects dealing with social and health issues.

(IV) EQUIPMENT: Specifications should comply with high safety requirements.

(V) JOB DESCRIPTIONS should not discriminate against persons with functional limitations who would otherwise be able and adequately skilled to perform the tasks. It is recommended that a disability component, such as the training and employment of persons with disabilities for certain tasks be included.

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ANNEX PDA:

EXAMPLE: UNDP PROJECT DOCUMENT APPRAISAL CHECKLIST

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The checklist follows the items of the (4) Does the PD refer to the existence of UNDP project document with some any prevention, rehabilitation, educa- slight simplifications. (1997 version) tion, employment, etc., programmes or projects relevant to disability in the A. Context of the project: target area of the project?

(1) Has background information been (5) Does the PD describe the interlinkages collected in an adequate manner at the with relevant ministries, other public project identification stage, to assess bodies and NGOs, or international the relevance of disability issues in the organizations which could contribute subsector? The necessary information to an integrated approach to disability should include such matters as: issues within the scope of the project?

- assessment of health status and health risks in the project area, - proportion of elderly people and trends B. Project justification in age structure, - screening for persons with disabilities (1) Has the pre-project situation of within the target groups, and among persons with disabilities been described those indirectly affected, and compared with that of their peer - the host country policies, strategies or groups? plans for the subsector, elements explicitly or implicitly relevant for giving (2) Is there an assessment of the intended special attention to the disability dimen- or unintended impacts of the project sion? on persons with disabilities and/or of the preventive aspects? (2) Is the proposed project disability- relevant? (3) Is there a specific mention of a mecha- - consult the list under checkpoint 1 nism for guaranteeing that the intended outcomes benefit particularly vulnerable and excluded disability Should the project be considered groups, such as women and children, disability-relevant by the appraisal the deaf, the mentally impaired and team that involves disability expertise, those with multiple disabilities? checking for disability-relevant issues should be continued even if the Project (4) If the impacts are potentially negative Document would not have considered for persons with disabilities, have any it necessary to deal with the issue more balancing or other measures been thoroughly. planned (such as support services, specific disability components, etc.)?

(3) In general, are there, in the studies and analyses conducted during the preparation process, specific references to the disability dimension?

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(5) Are the justifications for including the (2) Is there, among the immediate objec- disability dimension based on the tives, a specific preventive component, strongest possible economic, legal, or a component particularly targeted social and moral arguments, with to equalize the access and opportuni- appropriate references to international ties of persons with disabilities? legal instruments and other relevant documents? (3) Are the outputs safe and accessible to all? (6) Is the involvement of external donors in the efforts to improve the project’s (4) Are the activities designed in such a impact on disabled persons justified? way that they do not discriminate against persons with disabilities, allow (7) Does the “special considerations” item or even facilitate their participation? explicitly mention the disability issue? (5) Are there activities that can be assigned (8) Has the host government shown will- to persons with disabilities or their ingness to include the disability issue? organizations?

(6) Are high standards of occupational C. Development objective safety guaranteed?

(1) Is the disability dimension of the proposed project in line with the country programme? E. Inputs

(2) The objectives must not indicate a (1) Does the equipment fulfil high safety concentration on the adaptation of criteria? disabled individuals, or propose an institutional care-taking or charity (2) Is there a guarantee that outmoded and approach. Are the long-term objectives unprotected equipment will not be in line with the principle of “a society introduced? for all”? (3) Are the health hazards of supplies and the safe use of equipment included in the instructive activities (training)? D. Immediate objectives, outputs and activities (4) Are criteria for hiring personnel non- discriminatory against equally qualified (1) Are the immediate objectives (short- persons with disabilities? and medium-term targets of the project) defined in such a way that the (5) Has consideration been given to services, products, institutions and subcontracting organizations or busi- opportunities created are accessible to nesses of disabled persons to perform persons with various disabilities? relevant parts of the project?

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F. Risks ANNEXES TO THE PROJECT DOCUMENT: (1) Have the external conditions, such as negative attitudes, that might seriously (1) Do the annexes include the disability threaten the inclusion of disability dimension in an appropriately detailed issues and persons with disabilities in manner, where relevant? the project, been considered and balancing measures planned? (2) In the light of the relevance of the project to prevention and/or the needs and concerns of persons with disabili- G. Prior obligations and prerequisites ties, is there a need for a special annex to further specify the disability dimen- (1) Are there disability-relevant prior sion? If so, is it adequate enough? conditions for assistance, such as the observance of the human rights of persons with disabilities?

H. Project reviews, reporting and evaluation

(1) Are persons with disabilities used as evaluators to test the disability-relevant aspects of the project (e.g. accessibility of buildings)?

I. Legal context

(1) Is the disability dimension reflected in all the legal documents?

J. Budgets

(1) Do the budgets include a realistic estimate of the possible extra costs incurred by efforts to make the project accessible to disabled persons?

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LIST OF ABBREVIATIONS

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Index of Abbreviations

CCRW = Canadian Council on Rehabilitation and Work

CSHA = Centre for Social Development and Humanitarian Affairs/ United Nations Of fice at Vienna until 1993

DAA = Disability Awareness in Action

DPI = Disabled Peoples International

ECOSOC = Economic and Social Committee

ESCAP = Economic and Social Commission for Asia and the Pacific

ICTA = Information Centre for Technical Aids

ILO = International Labour Organization

NNH = Nordiska Nämnden för Handikappfrågor

NORAD = Norwegian Agency for Development Co-Operation

RI = Rehabilitation International

S I D A = Swedish International Development Authority

UN = United Nations

UNDP = United Nations Development Programme

UNESCO = United Nations Educational, Scientific and Cultural Organization

UNICEF = United Nations Children’s Fund

UNOV = United Nations Office at Vienna

WBU = World Blind Union

WFD = World Federation of the Deaf

WHO = World Health Organization

Others: EGM = Expert Group Meeting HDR = Human Development Report (UNDP) SR = Standard Rules on Equalization of Opportunities for Persons with Disabilities

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ANNEX B:

A SELECTED RESOURCE BIBLIOGRAPHY

The original bibliography annexed to the 1997 version of the Manual is not included in this version. For recent publications consult the UN Enable webiste: United Nations Resources on Disability Available On-line http://www.un.org/esa/socdev/enable/unpwdresources.htm

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ANNEX UN:

UNITED NATIONS FOCAL POINTS ON DISABILITY ISSUES

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Consult the UN Enable webiste: United World Health Organization Nations Internet sites on disability • Disability and rehabilitation http://www.un.org/esa/socdev/enable/unp • Mental Health in Primary Care wdwebsites.htm • The Department of Mental Health and Substance Dependence of the It contains links to United Nations World Health Organization has a internet sites specifically dedicated to site on mental health and brain disability, including the following: disorders • International Classification of Func- UNITED NATIONS SECRETARIAT tioning, Disability and Health Programme on Disability, Division for Social Policy and Development, BRETTON WOOD INSTITU- Department of Economic and Social TIONS Affairs World Bank Group • Persons with Disabilities • Including Persons with Disabilities

United Nations Statistics Divisions, Updated in October 2003 Department of Economic and Social Affairs • Disability Statistics • International Seminar on Measure- ment of Disability, New York 4-6 June 2001

REGIONAL COMMISSIONS United Nations Economic and Social Commission for Asia and the Pacific (ESCAP) • Asian Pacific Decade of Disabled Persons, 1993 –2002

AGENCIES AND FUNDS Food and Agriculture Organization (FAO) • Database on the Rural Disabled

International Labor Organization (ILO) • Disability and the world of work • United Nations Educational, Scien- tific and Cultural Organization (UNESCO) • Special needs education set within the framework of 'inclusive education' UNESCO

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ANNEX NGO:

INTERNATIONAL UMBRELLA DISABILITY ORGANIZATIONS

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Disabled Peoples' International (DPI) World Federation of the Deaf TTY: 748 Broadway +358 9 580 3573 Winnipeg, Manitoba, PO Box 65 Canada, R3G 0X3 00401 Helsinki Tel:: (204) 287-8010 FINLAND Fax: (204)783-6270 e-mail: [email protected] e-mail: [email protected] Fax: +358 9 580 3572 Website: http://www.dpi.org/ TTY: +358 9 580 3573 Website: http://www.wfdnews.org/

Inclusion International 115 Golden Lane World Network of Users and London EC1Y 0TJ Survivors of Psychiatry Great Britain Klingenberg 15, 2.th, Tel: + 44-20-76 96 69 04 5000 Odense C, Fax:+ 44-20-76 96 55 89 DENMARK e-mail: [email protected] Tel +45 66 19 45 11 Website: http://www.inclusion-interna- e-mail: [email protected] tional.org/ Website: http://www.wnusp.org/

Rehabilitation International 25 East 21 Street, Updated in October 2003 New York, NY 10010 See also the UN Enable pages. USA http://www.un.org/esa/socdev/enable/diso Tel.: 212-420-1500, utre.htm#partnerships Fax: 212-505-0871 e-mail:[email protected] Website:http://www.rehab-international.org

World Blind Union (WBU) Jose Ortega y Gasset, 22-24 Madrid Spain Tel: 34 91 5894533 Fax: 34-91§-5894749 e-mail: [email protected] Website: www.worldblindunion.org

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ANNEX RDA:

RAPID HANDICAP ANALYSIS (RHA 3)

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CHECKPOINT 1: RAPID HANDICAP ANALYSIS Are there disability-relevant projects or (RHA 3) activities in the plan/programme? (Checklist # 1)

Is a development project Are you eventually planning activities that handicapping? are relevant from disability perspective?

This 10-point checklist is intended to Checklist 1: Does the planned devel- facilitate the rapid assessment of develop- opment activity contain one or more of ment programmes and projects for the the following elements? adequate inclusion of the disability dimension in the plans. If the activity should be ( ) Design and construction of the considered ”disability relevant” according built environment, particularly public to checkpoint # 1, the answer to all the buildings, facilities and housing; other nine points should be yes. If not, the plan should be revised in order to ensure ( ) Development of infrastructure, the adequate social quality of the results. including transport systems, telecommu- In this Manual, there are further explana- nications, water supply and sanitation tions and a number of more detailed amenities; checklists for ”extended auditing” of the whole planning process for handicapping ( ) Development of small-scale elements. industries and enterprises; This framework has been prepared in general terms to allow for universal ( ) Urban/rural community develop- applicability in checking documents ment; resulting from any and all stages of the development planning process. As the ( ) Development of health care and focus and depth of information varies social services systems facilities; from one planning stage to another, the basic checklists presented here can be ( ) Human resources development, adjusted accordingly. Naturally, turning including: the questions into corresponding statements on how things should be taken into • Pre-school, primary and secondary account would produce “Guidelines for education, Disability Sensitive Project Planning” • Higher education, • Adult education, 1) Originally this instrument was named in the Manual as ”Rapid Disability Analysis – RDA”. After some rethinking it became • Vocational training, obvious that the point was actually missed: it is not disability that • Public education campaigns. should be the focus, but rather, it is the handicapping, i.e. discriminating design of the projects one should be focussing on.

2) Additionally, he Manual contains some specific examples of how to include a disability dimension in UN project planning formats, as well as an example applying ”The Basic Document Format of the European Union”. Commission of the European Communities: ”Manual: Project Cycle Management, Integrated Approach and a Logical Framework”, Evaluation Unit (1993).

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( ) Income-generation, with special limitations? emphasis on improving the situa- 2.5. Is the data adequate for a reliable tion of the poorest segments of assessment of the disability relevance of society; the undertaking and its components?

( ) Training of development policy, programme and project An ASSESSMENT SCALE for deter- personnel. mining the degree of disability relevance:

If the development activity includes one or (I) ”Not disability relevant” projects: more of the above elements, then the The activity is ”not disability relevant” activity is relevant from disabled people's if it is not targeted to people and their perspective. living conditions.

CHECKPOINT 2: (II) ”Disability relevant” general projects: A mainstream activity is ”disability Has the degree to which each of the relevant” if: proposed projects is disability relevant been studied and specified? Has the • the activity addresses the well-being disability relevance been reflected in of all people ( that is the whole population the project organization (cross check or subgroup in the area) and/or focuses on with point 7)? essential services; • any of the problem dimensions have 2.1. Is there reference to Government direct or indirect impact on people with social development strategies and the disabilities, their living conditions, or status of disability issues in those prevention of disabling conditions; a strategies (also when such issues are strategic connection may also appear only not mentioned in official policy docu- at policy or programme level. ments)? (III) ”Highly disability relevant” activities 2.2. Do Government policy documents The activity is ”highly disability address social issues in an integrated relevant” if: way (in contrast to a sector approach)? Are social development policy imple- • the activity involves social, health menting activities integrated from and education sectors or compo- disabled people's perspective? nents; • there is an identified subgroup of 2.3. Has background data of the proposed disabled people in the target group; project on demographic, social, • there is a specific disability compo- economic, cultural and institutional nent in the activity. aspects been collected and presented in a disability sensitive manner? (IV) Disability specific projects: The activity is disability specific if 2.4. Has it been noted, that there are in disabled people are the target group any population people with functional Checkpoint 3:

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to the Standard Rules on the Have all relevant stake holders whose Equalization of Opportunities to cooperation is needed for the inclusion of Persons with Disabilities disability concerns been identified? Have they been involved? 4.5. Is the language used in dealing with disability issues coherent 3.1. Have disabled people or their organi- and up-to-date? Is the focus on zations been identified and involved? abilities rather than on disabilities? 3.2. Have other organizations/ agencies active in social development issues been 4.6. Is there a support component to contacted; have they been involved and facilitate the establishing and has there been discussion on coordination functioning of disabled people's of efforts regarding the social dimension, organizations to equalize the in general, and disability issues in partic- opportunities and to empower ular? disabled people to participate, in the long run, in development in CHECKPOINT 4: the project area or sector?

Are the objectives in line with the spirit CHECKPOINT 5: of the international conventions, commitments and programmes? Are the project, all its activities and outputs (results) such that people with 4.1. Is there a reference to Human functional limitations can participate in Rights Conventions, or are such and benefit from the project on equal fundamental values clearly terms with other groups? implied in the plan? 5.1. Have the quality criteria, 4.2. Has the goal of equalization of presented below, been followed: opportunities been recognized and reflected? ACCESSIBILITY REACHABILITY 4.3. Are there references to sustain- EQUALITY USABILIITY SAFETY WORKABILITY able social development as the AFFFORDABILITY ORIENTATION first priority; have poverty alleviation, the rights of disabled children and women been given 5.2. Has the project planning staff special attention? been sensitized to barrier-free approaches? 4.4. Are the relevant global strategic programmes referred to (Health 5.3. Will the implementing staff be for All, Food for All, Education trained in barrier-free design? for All, Work for All, Shelter for All, Towards a Society for All)? Checkpoint 6: Particularly, is there a reference

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Have the sensitivity of the disability 7.3. Have equal opportunity policies dimension (or component) to changes in towards disabled women and men external conditions, or possible negative in regard to non-disabled women developments within the project been and men been stated in job studied? descriptions and enforced in hiring employees? 6.1. Has the general vulnerability of disability issues and components 7.4. Must the equal opportunity been noted? policy be followed by all participants in the activity?

6.2. Has the need for specific action or a specific component to balance the extra risks been studied?

6.3. Have flexible, easy-to-launch precautionary interventions been included in the project plan to ensure the keeping the disability dimension “on the agenda”?

6.4. Is there an awareness-raising component targeted to the environment of the project and the project staff?

CHECKPOINT 7:

Are the involvement of disabled people in the project organization and activities adequate in the light of the disability relevance of the activities?

7.1. Has the disability dimension been addressed in assessing the resource requirements and resource availability? Have disabled people been seen as a resource?

7.2. Have the time resources been realistically set to allow for a participatory process to materi- alize?

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7.5. Do the organizational arrangements follow the minimum requirements given below?

(0) ”Not disability relevant” projects Arrangement: People with functional limitations should notbe discriminated against in choosing the project staff (equal opportunity policy).

(I) ”Disability relevant” general projects Arrangement: At the initial stage, the degree of relevance of its components, activities and outcomes to people with disabilities should be checked. The required expertise should be involved accordingly, preferably people with personal experience with disability, at the relevant stages of the project cycle.

(III) ”Highly disability relevant” activities: Arrangement: • Disabled people should be involved in and consulted on alternative approaches. Disabled people participate as members and/or experts the disability related matters in the planning team.

• A disability component should be planned with the full involvement of people with disabilities as any disability specific activity (see below) and with the adequate involvement of disabled people in the planning and implementation of the umbrella project as a whole.

(IV) ”Disability specific” projects: Arrangement: • Disabled people should be empowered to manage and own the project. They should be in charge of the management group.

•Disabled people should have their own control over the whole process. A fair share of the available resources must be made available to enable the reaching of goals. The group may define its own needs, objectives and means of reaching them; it also monitors and evaluates the process - and carries the responsibility for the outcome. The empowering process may need to be gradual. In the process of planning and implementation disabled people are given training and encouragement to ultimately empower themselves

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CHECKPOINT 8: 9.1. Is the conceptual framework non- Does the activity result in sustainable discriminating and inclusive? improvements from the standpoint of people with disabilities? 9.2. Do policy, programme and project documents, and all Terms of 8.1. Is there a clear and binding policy Reference, at each stage, reflect sensitivity commitment in support of equal towards disability issues and, conse- opportunities and the prevention quently, introduce adequate measures to of disabling conditions by all the realize equal opportunity policies and the parties involved? prevention of disabling conditions?

8.2. Are the technology and resources CHECKPOINT 10: used to cater for the disability Are monitoring and evaluation arrange- aspects appropriate and locally ments sensitive to disability issues? available? 10.1. Will disabled people be 8.3. Is the plan ecologically sound and adequately involved in moni- accessible regarding any aspects toring and evaluation? dealing with the built environment? 10.2. Do they have a say in redirecting the process if their rights and 8.4. Are disabled children and women needs are not observed on equal given adequate attention in the grounds with those of other activity? people?

8.5. Do the institution and capacity 10.3. Have lessons been learned for the building components in the next round? Is the need for coop- activity take into account the eration with disabled people need to actively seek the involve- stated in the follow-up document of disabled people and the ments? need to empower them? 10.4. Are there arrangements to ensure 8.6. Do the economic analyses the adequate cooperation of the adequately reflect the social development agencies involved costs/benefits, taking into with disabled people and their account the long term benefits organizations in future develop- gained throughout the introduc- ment activities? tion of the disability dimension?

CHECKPOINT 9: Has the whole planning process been adequately sensitive to disability issues?

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