Tir * COMMISSION OF THE EUROPEAN COMMUNITIES 
Brussels, 30.07.1996 
COM(96) 406 final 
96/0216 (CNS) 
COMMUNICATION OF THE COMMISSION 
ON 
EQUALITY OF OPPORTUNITY FOR PEOPLE WITH DISABILITIES 
A New European Community Disability Strategy 
DRAFT 
RESOLUTION OF THE COUNCIL AND OF REPRESENTATIVES OF THE GOVERNMENTS OF 
THE MEMBER STATES MEETING WITHIN THE COUNCIL 
ON 
EQUALITY OF OPPORTUNITY 
FOR PEOPLE WITH DISABILITIES 
(presented by the Commission) 

CONTENTS 
I. COMMUNICATION OF THE COMMISSION ON EQUALITY OF 
OPPORTUNITY FOR PEOPLE WITH DISABILITIES 
A New European Community Disability Strategy 
Executive Summary and Policy Conclusions. 3. 
1. Setting the Scene: The Obstacles to Equality of Opportunity 5. 
2. The New Equality of Opportunity Approach. 7. 
3. A Framework for the Pursuit of Equality of Opportunity. 9. 
4. A European Community Strategy on Equality of Opportunity 
for People with Disabilities. 10. 
i). Political Dialogue with the Member States. 10. 
ii). Social Dialogue between Employers and Unions. 11. 
iii). Civic Dialogue with Non-Governmental 11. 
Organisations (NGOs). 
iv). Mainstreaming: Policy Formulation. 12. 
v). Mainstreaming: the Essen Employment Strategy. 13. 
vi). Mainstreaming: Information and Communications 
Technologies. 13. 
vii). Mainstreaming: the Structural Funds. 14. 
Conclusion 15. 
Annex 
The Evolution of Policy at the European Community and Wider 16. 
International Level. 
II. DRAFT RESOLUTION OF THE COUNCIL AND OF 18 
REPRESENTATIVES OF THE MEMBER STATES 
MEETING WITHIN THE COUNCIL ON EQUALITY OF 
OPPORTUNITY FOR PEOPLE WITH DISABILITIES 
I. 
COMMUNICATION OF THE COMMISSION 
ON 
EQUALITY OF OPPORTUNITY FOR PEOPLE 
WITH DISABILITIES 
A new European Community Disability Strategy 
Executive Summary and Policy Conclusions 
1. Disability, as referred to in this Communication, takes many forms - physical, sensory, 
mental and intellectual. At any point in time, the number of people in the European 
Community directly affected by some form of disability is estimated at around one tenth 
of the total population, which at present amounts to approximately 37 million. About half 
of them are of working age. 
2. Our societies are, in many ways, organised for an "average" citizen without any 
disability, and, therefore, a great number of citizens are excluded from the rights and 
opportunities of the vast majority: 
in education: some young people continue to have problems of access to 
mainstream education including suitable, good quality training; 
at work: people with disabilities are two or three times more likely to be 
unemployed and to be so for longer periods than the rest of the population; 
mobility and access: many transport systems and public buildings continue to be 
inaccessible or accessible only with difficulty; 
housing: adapted or adaptable accommodation is often scarce or prohibitively 
expensive; 
welfare systems: these systems generally provide a minimum of support which is 
often insufficiently tied in to the goal of facilitating participation. 
3. Many years of public policy aimed at accommodating people to their disabilities has 
proved to be insufficient. Much rethinking has now taken place. The old approach is now 
giving way to a much stronger emphasis on identifying and removing the various barriers 
to equal opportunities and full participation in all aspects of life. Changes in the way we 
organise our societies can substantially reduce or even overcome obstacles found by 
people with disability. Integration rather than the narrower aim of accommodation is now 
seen as the key to inclusion in active society. The United Nations General Assembly 
crystallised this new approach in 1993 through the resolution on Standard Rules for the 
Equalisation of Opportunities for Persons with Disabilities. 
4. Primary responsibility for action in this area rests with the Member States. The 
implementation of the new approach is going on in all Member States, in different ways, 
in different fields and at different paces. The Commission proposes that the Council 
endorse this new approach by adopting a Resolution on Equal Opportunities as a solemn 
political commitment of the Member States -both individually as well as collectively -
to the goal of achieving equal opportunities and non-discrimination in the field of 
disability. 
5. This Resolution should serve as a reference framework for the structured exchange of 
useful information between the Member States; as a platform to stimulate the clarification 
of common goals and the identification of best practice; and as a guide for the 
development and assessment of appropriate measures within the Member States and the 
Community's own respective spheres of action. 
6. The European Community has been active for many years in promoting better living 
and working conditions for people with disabilities. The Commission considers that 
Community level support can continue to bring significant added value to bear on the 
process of reflection and action within, as well as between, the Member States. The 
Commission therefore envisages a strategy for concrete actions consistent with the 
Resolution including, inter alia, the following initiatives: 
• Mainstreaming. In order to optimise the integration of disability issues into 
mainstream Community policies and actions the Commission will strengthen the 
operation of its inter-service group on disability. 
• Cooperation. A High Level Group of Member States' Representatives on 
Disability will be set up in order to keep policy developments in the Member 
States under review and to pool information and experience. 
• Encouragement of the work of Non-Governmental Organisations fNGQsY The 
Commission wishes to consolidate the cooperation developed during recent years 
under HELIOS II. It also welcomes the establishment of the new independent 
European Disability Forum and intends actively to develop the contacts and 
stimulate the work of NGOs. 
• Employment. In the preparation of the Single Report to the European Council in 
Dublin, the next stage in the Essen process, the Commission will take the 
initiative to strengthen policies for the prevention of long term unemployment and 
for the integration of disabled people in working life. Also, of course, it should 
be borne in mind that the primary goal of the Structural Funds, and notably that 
of the Social Fund, is the boosting of employment. 
• Information and Communication Technologies (ICTs). The Commission is anxious 
to harness the potential of the Information Society in the pursuit of equal 
opportunities, especially through the development of ICTs and will set up an 
internal ad hoc group to that end. 
• The Structural Funds. A total of 5.5 billion ECU is specifically allocated to 
contribute to combatting exclusion for the period 1994-99. As part of its 
forthcoming mid-term evaluation of the Structural Funds, the Commission will try 
to assess the extent and impact of actions in respect of people with disabilities. 
A new round of projects in the framework of the Community initiatives, including 
HORIZON, is due to be launched towards the end of 1996. 
7. This Communication aims at giving a renewed impetus'towards the rights-based equal 
opportunities approach to disability, both in the Member States, and at the level of the 
Community. The common task is one of valuing, and making space for human diversity. 
This is everyone's business in a People's Europe that values fairness as well as efficiency. 
1. SETTING THE SCENE: THE OBSTACLES TO EQUALITY OF OPPORTUNITY 
8. One out of ten citizens in the European Community has a disability. Although there 
has been significant progress over the last few years, a number of problems remain which 
continue to account for the under-participation of people with disabilities in our societies. 
Such problems are well documented and attested. A particularly comprehensive report 
under the title "Invisible Citizens" was published by NGOs to mark the European Day 
of Disabled People in December 1995. The European Parliament has referred on several 
occasions to the adverse situation of people with disabilities and the discrimination (as 
well as violence) which they can experience throughout the Union. In its Resolution 83-
580/93 of April 1993 it called on the Commission, inter alia, to set up a forum to 
investigate violence against people with disabilities and to draw up annual reports on their 
situation within the Member States. The first such report was produced at the beginning 
of 1996. The Economic and Social Committee has spoken of the grave situation faced by 
people with disabilities. The Committee of the Regions has also referred to the exclusion 
and discrimination felt by people with disabilities. 
9. Prominent among the remaining problems - which vary considerably from Member 
State to Member State - are the following. 
• In education. Many children are still excluded from mainstream schools merely 
on the grounds of restricted mobility, sensory impairment or communication and 
learning difficulties, and because those in authority are not adequately aware of, 
nor sensitive to, their abilities and potential. All too often, children with 
disabilities are confined during their school years (and even beyond) to institutions 
which, whilst providing special care, nonetheless isolate them and give them 
drastically reduced or no opportunities for mainstream social engagement. 
• At work. Various official estimates suggest that people with disabilities are at 
least two to three times more likely to be unemployed and to be so for longer 
periods than the rest of the working population. Furthermore, they are likely to be 
affected disproportionately during economic downturns. Consequently, they bear 
a higher cost than most during periods of economic uncertainty and dislocation. 
Since economic independence is so basic to the exercise of other freedoms, this 
form of discrimination has serious repercussions for the quality of life experienced 
by people with disabilities. 
Unemployment does not necessarily represent a corresponding lack of ability or 
merit. There is often a tendency on the part of employers and prospective 
employers to look more at the disability rather than the actual ability of the person 
in question and, in consequence, the value that can accrue to a company from 
doing so can be underrated. Inadequately adapted workplaces, inflexible work 
arrangements as well as the prevalence of discrimination are all contributory 
factors. Not enough effort on the part of employers is put into thinking how the 
needs of disabled employees can be positively accommodated. 
• mobility and access. Even though considerations of access (broadly defined) 
loom large in our highly mobile society, many transport systems and public 
buildings continue to be inaccessible or accessible only with difficulty. This is 
compounded by architectural and infrastructure barriers. Although significant 
technological breakthroughs have been made in the field of communications, 
more could be done to optimise the liberating potential of technology and to 
ensure that future developments take full account of the needs of people with 
disabilities. The principles of 'design for all' and universal access have, of 
course, cross-sectoral benefits for many more groups. 
• In housing. With housing in short supply, not enough adapted or lifetime 
adaptable accommodation is available to people with disabilities. Subsequent 
adaptation is often prohibitively expensive. This situation has adverse implications 
not only for people with disabilities but also for Europe's growing elderly 
population. 
• In welfare systems. In the field of social security, a high proportion of people 
with disabilities still live close to, or even below, the poverty line. Welfare 
systems generally provide a minimum of support which is often insufficiently tied 
in to the goal of facilitating participation. Too often there is insufficient or no 
recognition of the extra costs and continuing needs of people with disabilities 
which go beyond those of the average person. Recognition of and support for 
independent living is still uneven. The complexity and growing mass of rules in 
the field of welfare and service delivery, as well as the division of responsibility 
between Government Ministries and administrative agencies, can be confusing and 
alienating in themselves. Information about available services can be diffuse and 
in some cases this accounts for the under-utilisation of support. 
10. The under-participation of people with disabilities in all aspects of our societies 
deserves more heightened attention and action at both the national and Community level, 
for a number of reasons. 
11. Exclusion and discrimination offend against various universal human rights. Respect 
for, and promotion of human rights and human diversity have long been characteristic 
features of our societies and form an essential part of our shared European, values. The 
core right at stake is that of equality. The human rights dimension of the Community is 
of the utmost importance and has been emphasised repeatedly by the Court of Justice, the 
European Parliament and the Council of Ministers. Respect for human rights is 
specifically mentioned as one of the key objectives of the Union in Article F.2 of the 
Treaty on European Union. These basic principles of human rights and non­
discrimination have been reaffirmed by the Commission in its Opinion to the 
Intergovernmental Conference. 
12. In economic terms, structural exclusion and discrimination on the grounds of 
disability also sap labour market efficiency. A market that structurally excludes a 
significant proportion of its human resources cannot be described as efficient, much less 
fair. Society as a whole (including the taxpayer) loses out when ability is not duly 
acknowledged and enabled to work. 
13. More broadly, the European Community's current and correct sense of urgency to 
reduce structural unemployment, to protect existing employment and to generate new 
jobs, must incorporate a very practical concern for the variety of arbitrary barriers which 
stand in the way of labour market entry and participation for people with disabilities. The 
overall trend in the restructuring of labour market policies is leading to a greater 
emphasis being placed on active measures, in order to strengthen the ability of job-
seekers to compete on the labour market, rather than being simply recipients of passive 
payments of income support. This trend has obvious and direct implications for the 
reintegration of disabled workers into the workplace. 
14. Exclusion and discrimination on the grounds of disability also impose onerous costs 
on the welfare state. Many, if not most, of the various elaborate support programmes 
developed through the years by the Member States have been primarily geared towards 
maintenance of the person rather than his or her empowerment to participate as fully as 
possible in society. The lessening of dependency (and the mentality of dependency) that 
continues to isolate the person as well as burden the state would be of benefit to all. 
2. THE NEW EQUALITY OF OPPORTUNITY APPROACH 
15. The historical policy response to disability has been largely one of social 
compensation through charity, separate provision outside the mainstream of society and 
the development of specialist caring services. However needed and well intentioned, these 
policy responses have arguably compounded the problem of exclusion and under-
participation. 
16. One of the greatest challenges facing our societies today is that of valuing and 
making space for human diversity. Traditional economic and social processes have 
tended, however, to be constructed on the basis of assumptions about normality that have 
not included people with disabilities. A classic example is the design of transport systems 
and public buildings based on assumptions about the 'average' person that fail to take 
account of people with reduced mobility. Consequently, such persons have either been 
excluded from mainstream processes or have had their opportunities for participation 
considerably diminished. 
17. The very absence, or virtual invisibility, of people with disabilities in the mainstream 
has tended only to contribute to popular stereotypes. This, in turn, has contributed to a 
self-perpetuating cycle of exclusion. It is in this way that prejudicial attitudes, the lack 
of equal opportunities, and discrimination can be seen to reinforce each other. 
18. There is a growing recognition that this situation should not continue. A brief review 
of the evolution of thinking on disability issues, at European and wider international level 
is given in the Annex. The driving force behind this evolution has been a realisation that 
human difference can best be valued by the creation of social and economic processes 
that are built inclusively with all persons equally in mind. The core value of equality -
rendered here as equal opportunities - is now seen as the central benchmark against which 
economic and social structures must be assessed. It forms the essence of the rights-based 
approach to disability. The equal opportunities ideal is of course broader than, but 
nevertheless subsumes the principle of non-discrimination. 
19. The overall task can best be summed up in the term 'mainstreaming'. This entails the 
formulation of policy to facilitate the full participation and involvement of people with 
disabilities in economic, social and other processes, while respecting personal choice. It 
also means that the relevant issues should no longer be considered separately from the 
mainstream policy-making apparatus, but should be clearly seen as an integral element. 
This approach applies to - and has benefits for - all people with disabilities regardless of 
the kind or degree of severity of disability in question. 
20. In all Member States of the European Union, the same evolution toward an equal 
opportunities model in the field of disability policy has been taking place. Gradually but 
perceptibly, the policies of the Member States are being geared towards providing equal 
effective rights and not simply administering measures to overcome functional limitations. 
Naturally, this shift has occurred in different ways, in different fields and at a different 
pace between the Member States. 
21. A particularly notable trend across the Member States is gradual movement away 
from the traditional response of developing separate structures to meet the specific needs 
of people with disabilities, particularly in the areas of education and employment (special 
schools, sheltered workshops, etc.). Such responses are being steadily overtaken by 
initiatives promoting integration into mainstream schools and into open and supported 
employment wherever possible. The design and delivery of welfare and other support 
programmes in all sectors is increasingly being driven by a person-centred approach - one 
that accentuates autonomy and which recognises the natural desire and right of the person 
to influence the shape of such programmes and the wish to live in his/her own home and 
community. 
22. Some Member States already have general principles of equality and non­
discrimination enshrined in their Constitutions. Some have either amended existing anti­
discrimination legislation or introduced new legislation to cover people with disabilities. 
Other Member States are contemplating the introduction of such measures. 
23. In this context, it bears mentioning that some progress has already been made by the 
social partners in recognising the problem of exclusion and in trying to overcome it. 
Many businesses have already adopted their own equal opportunities programmes in the 
field of disability. A particularly positive development is the European Declaration of 
Businesses against Exclusion of 1995 which embraces the situation of people with 
disabilities. 
3. A FRAMEWORK FOR THE PURSUIT OF EQUALITY OF OPPORTUNITY 
24. The Commission considers that it is essential for the European Community to clarify 
and confirm its overall disability strategy, the core of which should be a shared 
commitment by all Member States to promote equal opportunities, to eliminate 
discrimination in this field and to recognise the rights of people with disabilities. 
25. Any consideration of the role of the European Community in this field must 
commence with the acknowledgement that our societies, and the Member State 
governments which represent them, bear the primary responsibility for actions to 
eliminate exclusion and discrimination based on disability. As policies to assist people 
with disabilities have their own cultural and social framework in each Member State, it 
follows that the form of responses to the objective of equal opportunities will vary with 
the national, regional or local context. 
26. The Commission therefore proposes the adoption by the Council and the 
Representatives of the Governments of the Member States meeting within the Council of 
a Resolution on Equality of Opportunity - a suggested text for which is contained in 
annex to this Communication. The draft Resolution is explicitly founded on respect for 
the diversity of systems within the European Union and on the added value to be secured 
from the adoption of common guidelines toward a shared core of policy objectives. It is 
intended to express the solemn political commitment of the Member States - both 
individually as well as collectively within the Council and at the level of the Community 
- to the goal of achieving equal opportunities and non-discrimination in the field of 
disability. 
27. While the Resolution constitutes an endorsement of the authoritative United Nations 
Standard Rules on the Equalisation of Opportunities for Persons with Disabilities, it does 
not set out to repeat verbatim the contents of those Rules. Nor does it simply mean a 
reiteration of commitments already made by Member States within the United Nations 
system. 
28. While the Standard Rules are not compulsory in the strict legal sense, they imply a 
strong moral and political commitment on behalf of States to take action. They also invite 
States to cooperate in the development of policies for the equalisation of opportunities 
for people with disabilities. 
29. This Resolution should therefore be seen and used as a reference framework for the 
structured exchange of useful information between the Member States; as a platform to 
stimulate the clarification of common goals and the identification of best practice; and 
as a guide for the development and assessment of appropriate measures within the 
Member States and the Community's own respective spheres of action. 
30. For its part, the Commission considers that Community level involvement can bring 
considerable added value to bear on the process of reflection required within as well as 
between the Member States. It also considers that key Community principles and 
objectives are involved which further justify its particular concern in the field. These 
include guaranteeing the free movement of workers, encouraging the mobility of students, 
guaranteeing the achievement and development of the internal market, and guaranteeing 
the exercise of the rights of Union citizenship. This calls not only for the gradual raising 
of standards toward best practice at the level of the Member States but also for increased 
mobilisation at the level of the Community. 
4. A EUROPEAN COMMUNITY STRATEGY ON EQUALITY OF 
OPPORTUNITY OF PEOPLE WITH DISABILITIES 
31. The gradual evolution of thinking has provided the backdrop against which the 
Commission has reflected on the shape of its new disability strategy. 
32. Since primary responsibility for action rests with the Member States, it follows that 
the Community should be concerned to bring as much added value to the process of 
reflection and change as possible. It is envisaged that this can be achieved along the 
following lines. 
i) Political dialogue with the Member States 
33. The Commission will arrange to consolidate the valuable cooperation that has been 
developed during recent years under HELIOS II, both with and between the Member 
States. Towards this end, and within the available appropriations, the Commission intends 
to set up a High Level Group of Member States' Representatives on Disability. The 
purpose of this group will be to keep under review the latest policies and priorities of 
governments concerning people with disabilities, to pool information and experience, and 
to advise on methods for reporting on the EC-wide situation with regard to disability in 
future. 
34. The Commission also intends to establish an Observatory or network on national 
disability policies drawing on independent expertise in the Member States. The purpose 
of the Observatory or network will be: to clarify basic concepts and terminology; to work 
toward common understandings especially in the field of statistics; to provide an accurate 
knowledge-base of current policies; to provide independent evaluations of progress; and 
to produce other useful, value added and well-targeted research. It shall cooperate with 
other Observatories to develop synergies in its knowledge base. The work of the 
Observatory or network should prove of invaluable assistance to the High Level Group 
and it is envisaged that they would establish a mutually beneficial working relationship. 
The Commission may supplement the research of the Observatory from within its own 
research programmes, e.g., TIDE, Biomed, as the need arises. Within this context a 
planned Commission Communication "Community Research and Development Activities 
addressing Ageing and Disability" will be of particular interest. 
35. In order to facilitate dialogue, the Commission proposes to arrange for a joint meeting 
at least once a year between the High Level Group and the European Disability Forum 
which is referred to in paragraph 41 below. 
10 
ii) Social dialogue between Employers and Unions 
36. During the last few years the social dialogue has focused more and more on the 
employment issues and the social partners have strongly supported the Essen employment 
strategy and the efforts to integrate people in the labour market and in employment. 
37. The Social Dialogue Committee as well as the Standing Committee for Employment 
can make important contributions to the development of new initiatives in favour of 
people with disabilities. The Commission invites the social partners to develop a special 
co-operation around the issues raised in this Communication. 
iii) Civic dialogue with Non-Governmental Organisations (NGOs) 
38. The Commission has been greatly encouraged by the active interest and participation 
of a wide range of disability organisations in the European-wide process of cooperation, 
and by the wide recognition of the 'added value' of European support. It was especially 
encouraged by the active participation of disability NGOs at its Social Forum in 1996. 
39. The pooling of experience and good practice throughout the European Union has 
developed under successive HELIOS programmes via a number of EU networks working 
together on disability issues. More than 800 partners and 80 European NGOs have 
worked together both on a sectoral basis and collectively in this context. This has enabled 
basic concepts to be discussed and clarified and has provided a conduit for the wide 
dissemination of good practice. It has, furthermore, equipped NGOs in this field to 
participate more effectively in the democratic process and has enhanced their self-
confidence and awareness of European-wide developments. The current HELIOS II 
programme is due to expire at the end of 1996. The final independent evaluation report 
is expected to be completed by mid-1997. One practical result of HELIOS II will be 
comprehensive 'Guides of Good Practice', including on economic, social and educational 
integration, which will be issued later this year under the auspices of the Commission. 
40. To the extent that the Community budget allows, the Commission intends to continue 
to provide support to organisations working in the field of disability to encourage 
European cooperation. The primary criterion in this regard will be the contribution made 
to the promotion of equal opportunities at European level. 
41. The Commission welcomes the recent establishment of the new independent European 
Disability Forum which brings together disability organisations from all Member States 
representing the vast majority of disability interests in the EU. Its statutes have been 
signed by European NGOs and National Councils currently involved in HELIOS II. The 
new Forum will have the opportunity of working closely with the European Institutions 
on a proactive basis. For its part, the Commission pledges to cooperate actively and meet 
on a regular basis with the European Disability Forum, with a view to consolidating the 
cooperation which has been built up with a wide range of NGOs in recent years. 
11 
42. Raising awareness of developments throughout the Member States and across the 
Community remains a priority for the Commission. This will continue to be promoted by 
the Commission, especially through the holding of 'National Information Days' in each 
Member State and by the continued use of publications such as 'Helioscope' (published 
in eleven official languages) and 'Heliosflash' (published in three official languages) 
which reaches a targeted readership of some forty thousand. A significant feature of 
Helioscope has been the fact that a large number of articles are normally contributed by 
people with disabilities. 'Helioscope' has become a well-appreciated and 'in demand' 
publication by and for people with disabilities, fulfilling an evident need which should 
continue to be met. 
43. The institution each year of a dedicated 'European Day of Disabled People' has made 
a very positive contribution to raising awareness and to giving a European dimension to 
cooperation in this field. Again, to the extent that the Community budget provides, the 
Commission intends to continue to support such a European Day annually in partnership 
with the European Parliament and other Community Institutions. 
44. The Commission is also aware of a new and important trend, whereby many local and 
regional authorities are entering into partnerships with NGOs and the social partners to 
work toward the creation of disability friendly environments. Embryonic networks of such 
cities/localities are now developing as, for example, under the Barcelona Declaration 
(1995). The Economic and Social Committee, the Committee of the Regions, and other 
appropriate bodies such as NGOs will be invited to advise on the further potential of such 
developments in both urban and rural areas and on the possible role of the Commission 
in bringing European added value to bear. 
iv) Mainstreaming: Policy Formulation 
45. The Commission has taken steps to strengthen its own internal machinery to engage 
all relevant Directorates General in an inter-service disability group, thus raising 
awareness of disability issues and encouraging more inter-sectoral cooperation within the 
Commission in this field. In this way it is hoped to work towards the 'mainstreaming' 
of disability issues in a cross-sectoral manner. Within this framework, the Commission 
will review the range of possible initiatives in different policy sectors, including in 
particular research, education and transport. The Commission will also seek the advice 
of the NGOs on initiatives and proposals of the Commission affecting people with 
disabilities. 
46. An important point of principle flows from the above: namely, that all strategic 
thinking about changes in our societies and about timely adjustments in policy should 
incorporate the experience of people with disabilities. Two such strategic issues are of 
particular importance in the field of disability at the moment; namely, employment and 
the Information Society. 
12 
v) Mainstreaming: the Essen employment strategy 
47. The Commission's Social Policy Action Programme (1995-7) already includes a 
commitment to present a coherent disability employment strategy in the form of a 
Communication in 1997. Some basic elements of such a strategy are now in place. In 
the Single Report from 1995 and in the Interim Report 1996 the Commission and the 
Council agreed on structural goals for the employment strategy. One of these goals is the 
commitment to prevent long term unemployment. Such a commitment has, when 
implemented, a great importance for people with disabilities, as these often have a higher 
risk of becoming long-term unemployed and thereby excluded. In the preparation of the 
Single report to the European Council in Dublin the Commission will take the initiative 
to strengthen policies for the prevention of long term unemployment and for the 
integration of disabled people in working life. 
48. The social partners will be invited by the Commission to prepare a joint position in 
regard to good practice in this field. The Commission's 1997 Employment Report will 
include for the first time a special chapter on disability. The Commission is actively 
engaged at present in reviewing its own internal policies concerning the employment and 
career development of people with disabilities in the services of the Commission itself. 
This review will be completed before the end of 1996. 
vi) Mainstreaming: Information and Communication Technologies (ICTs) 
49. The Commission is actively interested in exploring the possibilities for harnessing all 
aspects of the Information Society in the achievement of equal opportunities for people 
with disabilities and in improving their living and working conditions. These questions 
are discussed in general in the Commission's Green Paper on Living and Working in the 
Information Society: "People First". An internal ad hoc group will be set up by the 
Commission to take this forward with the mandate to examine the scope for a special 
initiative at European level, building on relevant experience to date, for example in the 
TIDE Initiative. This will be based on a review of good applications of Information and 
Communication Technologies (ICTs) in favour of people with disabilities, and the further 
potential for developing economies of scale in making ICTs more widely accessible and 
useful to people with disabilities. 
50. The European Disability Forum will be invited to contribute its ideas on this subject 
during the period of consultation on the Green Paper during the remainder of 1996. It has 
already been invited to advise on priority needs with regard to employment issues. 
51. A specialised database called Handynet developed under HELIOS II, makes available 
fifty thousand items of information on technical aids to people with disabilities and to 
rehabilitation professionals. It is available in twelve languages on CD-ROM and is 
accessible in designated centres in the Member States. The Commission considers that 
the question of further expansion of accessibility to this system and any increase in its 
scope (possibly through linking it with the Internet) should be carefully reviewed. 
13 
vii) Mainstreaming: the Structural Funds 
52. Since 1989, when the European Community's Structural Funds were transformed into 
a significant planning and development instrument, they have had the twin goals of 
economic and social cohesion in all the regions of the Community. Boosting employment 
is seen as a particular priority. 
53. During the current programming period, 1994 to 1999, the Structural Funds, and in 
particular the European Social Fund (ESF), constitute the most important financial 
instrument at Community level for improving the situation of people with disabilities. 
54. In the period 1994-1999, the ESF is providing support to people with disabilities 
mainly within the context of action to combat exclusion from the labour market. ESF 
support provides for the establishment of comprehensive packages of measures which 
form a pathway to integration/re-integration into the labour market of the socially 
excluded, including people with disabilities. Packages of integrated measures include 
guidance and counselling, support for self-employment, wage subsidies, work experience 
schemes etc. The actions are mainly implemented in the framework of Objectives 1 (least 
developed regions), 2 (regions lagging behind) and 3 (horizontal measures). A total of 5.5 
billion ECU is specifically allocated to combatting exclusion for the period 1994-1999. 
The Member States' programming documents show that people with disabilities constitute 
one of the most important target groups of action to combat exclusion from the labour 
market. 
55. In addition to these activities under the "mainstream" structural programmes, there 
is within the EMPLOYMENT Community Initiative, a separate strand - HORIZON -
which has been put in place to deal specifically with the integration of people with 
disabilities into the world of work and to assist in the implementation of transnational 
innovative schemes involving such people. From 1994 to 1999, the sum of 513 million 
ECU has been allocated to EMPLOYMENT-HORIZON. A new round of projects for the 
period 1997-99 will be launched in the Member States towards the end of this year. In 
this context, the Commission welcomes the fact that a large number of the networks 
initiated under HELIOS II have now become active partners in EMPLOYMENT-
HORIZON. 
56. The Commission is now taking steps to ensure that these considerable financial 
resources are applied as effectively as possible, and that they are perceived as an integral 
part of the European Community's disability strategy. A particular information effort is 
being made to give greater visibility to the HORIZON Initiative. A special European 
conference will be held by the Commission in 1997 to take stock of promising initiatives 
and to examine ways of mainstreaming good policies and practice in the period ahead. 
57. The URBAN Community Initiative can also contribute to improving the situation of 
people with disabilities. With an amount 850 million ECU this initiative aims at the 
regeneration of deprived urban areas which can include support actions for disadvantaged 
groups, including those with disabilities. 
14 
58. As part of its forthcoming mid-term review of the Structural Funds, the Commission 
will try to assess the extent and impact of actions in respect of people with disabilities. 
Furthermore, the Commission will also draw the attention of the Member States to the 
need to involve disabled groups more actively in the implementation and follow-up to 
Structural Fund action. 
CONCLUSION 
59. This Communication has charted the movement toward the rights-based equal 
opportunities approach to disability both in the Member States and at the level of the 
Community. It has recounted the various reasons why this movement has occurred and 
the arguments that make it compelling at the level of principle as well as practicality. 
The common task is one of valuing and making space for human diversity. This is 
everyone's business in a People's Europe that values fairness as well as efficiency. 
15 
ANNEX 
THE EVOLUTION OF POLICY AT THE EUROPEAN COMMUNITY AND 
WIDER INTERNATIONAL LEVEL 
The movement to a rights-based perspective on disability has evolved and has become broadly 
endorsed at the international level over the past two decades. Equalisation of opportunities for 
persons with disabilities has been the subject of much attention within the United Nations, its 
various Specialised Agencies, and other regional organisations over a long period of time. 
Significantly, in a major resolution passed in 1975 containing a Declaration on the Rights of 
Disabled Persons, the United Nations General Assembly stressed that people with disabilities 
have exactly the same human rights (and responsibilities) as all other persons. 
The designation of 1981 as the International Year of Disabled Persons by the United Nations 
General Assembly inaugurated the Decade of Disabled Persons (1983-1992). The most 
important outcome of the International Year of Disabled Persons was the World Programme 
of Action concerning Disabled Persons which was adopted by the General Assembly in 1982. 
Apart from announcing important principles in the areas of prevention and rehabilitation, it also 
emphasised the right of people with disabilities to the same opportunities as other citizens and 
to an equal share in the improvements in living conditions resulting from economic and social 
development. 
This new thinking was crystallised in 1993 with the adoption by the United Nations General 
Assembly of a resolution entitled the 'Standard Rules for the Equalisation of Opportunities for 
Persons with Disabilities'. These Rules were drawn up on the basis of experience gained during 
the United Nations Decade of Disabled Persons (1983-1992). These Rules and the values they 
represent have since been reaffirmed in successive UN declarations on human rights including 
the Vienna Declaration and Programme of Action on Human Rights (1993), the World Summit 
for Social Development and Programme of Action adopted in Copenhagen (1995) and the 
Platform of Action adopted at the World Conference on Women in Beijing (1995). 
While the Standard Rules are not compulsory in the strict legal sense they nevertheless imply 
a strong moral and political commitment on behalf of States to take action. They also invite 
States to cooperate in the development of policies for the equalisation of opportunities for 
people with disabilities. 
The international year in 1981, and the World Programme of Action to which it led, provided 
the stimulus for enhanced Community interest and involvement. A series of authoritative 
declarations and resolutions in the field were adopted by the Council throughout the 1980s and 
early 1990s. An important Resolution of the Council and of the Representatives of the 
Governments of the Member States meeting within the Council was agreed on 21 December 
1981 concerning the social integration of handicapped people at Community level. 
A Council Recommendation was adopted on 24 July 1986 concerning the employment of 
disabled people in the Community. It urged the Member States to "take all appropriate 
measures to promote fair opportunities for persons with disabilities in the field of employment 
and vocational training' and to pursue policies providing for the elimination of the 
discrimination faced by disabled workers. This Recommendation also set out a guideline 
16 
framework for positive action. Another Resolution was adopted by the Council and the 
Ministers of Education meeting within the Council on 31 May 1990 concerning the integration 
of children and young people with disabilities into ordinary systems of education. 
The HELIOS (1988-1992) and HELIOS II (1993-1996) programmes were designed to provide 
a platform for co-operation between the Member States involving the exchange of information 
concerning economic and social integration, equal opportunities and independent living by 
various general and specific means. 
The Community's structural funds, especially the European Social Fund, were and are playing 
a significant part in Europe's drive to promote equal opportunities for people with disabilities. 
The mainstream Community Support Frameworks (CSFS) and the Single Programming 
Documents (SPDS) 1994-1999 either have measures devoted directly to disability, or provide 
measures which can be utilised by people with disabilities. The Employment Community 
Initiative has a specific strand - HORIZON - specially dedicated to the integration in the labour 
market of people with disabilities. 
Other significant initiatives or programmes include Socrates (partnerships and exchange 
between schools and colleges), Leonardo da Vinci (vocational education and training), the 
TIDE Initiative (Telematics for the Integration of Disabled and Elderly Persons) and RTD 
(Research and Technological Development). As the HEART study under TIDE demonstrated, 
although service delivery models must be tailored to the characteristics of individual Member 
States, a minumum of convergence on standards should be promoted to make possible similar 
levels of opportunities for people with disabilities and to enhance the competitive position of 
European manufacturers. ESPRIT, the Information Technologies Programme, contributes to 
raising levels of opportunities - for instance the projects INTER (the development of artifical 
limbs directly interacting with the human nervous system) and SCATIS (virtual hearing, the 
results of which may become of help to people with hearing problems). 
A forthcoming Communication from Directorate General XIII intends to outline an holistic 
approach to research and development addressing the needs and potential of older people and 
people with disabilities. That Communication should outline a research agenda aimed at the 
generation of knowledge which can help inform decision makers in facing the social, economic 
and environmental challenges and opportunities presented by a European population which is 
ageing and has increasing numbers of citizens with disabilities. 
The SPORTS programme also includes specific actions for people engaging in sports who have 
disabilities. The Community Action Plan to assist Tourism, which was established in 1992, 
considered people with disabilities as a category of tourists which need more focused attention 
since tourism and leisure activities help achieve social integration of people with disabilities. 
Reference must also be made to the Commission's 1996 Green Paper on transport entitled 'The 
Citizens' Network' which takes into account the needs of people with reduced mobility. 
At a broader regional level the Council of Europe, in its own landmark resolution of April 1992 
entitled a 'coherent policy for the integration of persons with disabilities', has also developed 
an interesting model for its Member States to provide equal opportunities for persons with 
disabilities. 
17 
II. 
DRAFT 
RESOLUTION OF THE COUNCIL AND OF REPRESENTATIVES 
OF THE GOVERNMENTS OF THE MEMBER STATES MEETING 
WITHIN THE COUNCIL 
ON 
EQUALITY OF OPPORTUNITY 
FOR PEOPLE WITH DISABILITIES 
96/0216 (CNS) 
DRAFT 
RESOLUTION OF THE COUNCIL AND OF REPRESENTATIVES OF THE 
GOVERNMENTS OF THE MEMBER STATES MEETING WITHIN THE 
COUNCIL 
ON 
EQUALITY OF OPPORTUNITY 
FOR PEOPLE WITH DISABILITIES 
THE COUNCIL OF THE EUROPEAN UNION AND THE REPRESENTATIVES OF THE 
GOVERNMENTS OF THE MEMBER STATES MEETING WITHIN THE COUNCIL 
Having regard to the Treaty establishing the European Community; 
Having regard to the Opinion of the European Parliament; 
Having regard to the Opinion of the Economic and Social Committee; 
Having regard to the Opinion of the Committee of the Regions; 
1. NOTE the Communication of the European Commission entitled "Equality of 
Opportunity for People with Disabilities - A New European Community Disability 
Strategy"; 
2. NOTE that people with disabilities constitute a significant proportion of the population 
of the Community and that, as a group, they face a wide range of obstacles which 
prevent them from achieving equal opportunities, independence and full economic and 
social integration; 
3. NOTE that respect for human rights is a fundamental value of the Member States and 
note that it is specifically mentioned in Article F.2 of the Treaty on European Union; 
4. FURTHER NOTE that the principle of equality of opportunity for all, including 
people with disabilities, represents a core value shared by all Member States; 
19 
5. RECALL that the Council Recommendation of 24 July 1986 on the employment of 
"" * disabled people in the Community1 stipulated that Member States 
"take all appropriate measures to promote fair opportunities for disabled people 
in the field of employment and vocational training including initial training and 
employment as well as rehabilitation and resettlement" 
6. EMPHASISE that the free movement of persons, the completion and development of 
the internal market, and the advancement of the rights of consumers must be ensured 
for the benefit of all the citizens of the European Union, including those with 
disabilities; 
7. CONSIDER that increasing social cohesion within the European Community implies 
promoting the equality of opportunity for, and the elimination of discrimination 
against, people with disabilities; and furthermore, EMPHASISE that access to 
mainstream education and training constitutes a precondition for successful integration 
in economic and social life. 
8. RECALL that the overall purpose of the United Nations Standard Rules on the 
Equalisation of Opportunities for Persons with Disabilities, adopted by the General 
Assembly on 27 December 19932 is to ensure that all people with disabilities may 
exercise the same rights and obligations as others; 
9. RECALL that these Rules call for action at all levels both within States as well as 
through international cooperation to promote the principle of equality of opportunity 
for people with disabilities; 
10. RECALL that the White Paper "European Social Policy - A Way Forward for the 
Union", adopted by the Commission on 27 July 19943, indicated that the Commission 
intended to prepare an appropriate instrument endorsing the principles of the United 
Nations Standard Rules on the Equalisation of Opportunities for Persons with 
Disabilities; 
11. EMPHASISE that while responsibility in this field lies primarily with the Member 
States, the European Community has a contribution to make in promoting cooperation 
between Member States in this field and in encouraging the exchange and 
development of best practice in the Community; 
12. EMPHASISE that the aims set out in this Resolution on the equalisation of 
opportunities for people with disabilities and the ending of discrimination are without 
prejudice to the right of each Member State to lay down its own rules and provisions 
OJ No L 225/43, 12. 8. 1986. 
United Nations General Assembly Resolution 48/46 of 20 December, 1993. 
COM(94) 333 of 27 July 1994. 
20 
for achieving the said aims, and thus take fully into account the principle of 
subsidiarity. 
Hereby ADOPT this Resolution whereby the Member States : 
REAFFIRM the principles and values that underline the United Nations Standard 
Rules on the Equalisation of Opportunities for Persons with Disabilities. This entails 
upholding the principle of equality of opportunity in the development of 
comprehensive policies in the field of disability, and 
avoiding or abolishing any form of discrimination grounded on disability. 
Within the scope of this Resolution, 
"people with disabilities" is taken to include any person with an impairment of 
a physical, sensory, mental, or intellectual nature who faces obstacles to 
participation on equal and equally effective terms with all others in all aspects 
of the life of the community. 
"equalisation of opportunities" denotes the process through which the various 
systems of society and the environment, such as services, activities, information 
and documentation, are made available to all on an equal and equally effective 
basis. 
The principle of equal effective rights implies that the needs of each and every 
individual are of equal importance, that the respect for human diversity must be the 
basis for the planning of societies and that all available resources must be employed 
in such a way as to ensure that every individual has an equal opportunity for 
participation. 
UNDERTAKE to adapt relevant national policies, where necessary or appropriate to 
the Guidelines appended to this Resolution. 
UNDERTAKE that there will be mutual cooperation and co-operation with the 
Commission in the generation and collation of base-line data in respect of people with 
disabilities. 
UNDERTAKE to ensure that representatives of people with disabilities are more 
actively involved in the implementation and follow-up of relevant Community policies 
and actions in their favour. 
21 
Consequently the Member States INVITE the Commission: 
a) To promote through appropriate mechanisms - in collaboration with the Member 
States and with non-governmental organisations of and for people with disabilities -
the systematic exchange of useful information, statistics and experience especially 
concerning innovative policies and good practice. 
b) To ensure that the principles set out in this Resolution and the Guidelines attached 
thereto are also taken into consideration in the internal policies of the Commission and 
in any proposals it submits on Community legislation, programmes and initiatives. 
c) To submit periodic reports to the European Parliament, the Council, the Economic and 
Social Committee and the Committee of the Regions on the basis of information 
supplied by the Member States, describing the progress made and the obstacles 
encountered in implementing this Resolution. 
And INVITE other Community Institutions and organs to consider how they might 
better integrate the aforementioned principles in the framework of their own internal 
policies and activities. 
22 
GUIDELINES. 
Guideline Framework for the Achievement of the principle of equality 
of opportunity for people with disabilities. 
Set out below are a number of areas which should be actively considered by the Member 
States in seeking to achieve equality of opportunity in the field of disability. 
1. Empowering People with Disabilities for Participation in Society 
a. Respect for Autonomy and Independence. This can be done by recognising people 
with disabilities as capable, responsible individuals who have their own and equally legitimate 
life-choices. Among other things, it entails support for the concept of independent living and 
the means necessary to achieve it. The achievement of integration and participation, as well 
as the methods used, should at all times be fully consonant with, and respect the dignity, 
independence and privacy of the individual with disabilities. 
b. Readjusting Education and Training Systems to Facilitate Participation: This can be 
done by priming people with disabilities to the very best of their own talents to enter and 
participate in society on equal terms and to enter the labour market at a level commensurate 
with their abilities. It is to be achieved, inter alia, by accelerating the trend of placing 
children with disabilities into ordinary schools while respecting the principle of choice and 
by ensuring a mutually beneficial and inclusive continuum between 'ordinary' and 'special' 
education. There should be more active labour market measures promoting access to open 
and supported employment of people with disabilities. Experimentation with innovative trends 
(teleworking, self-employment, integration into local employment initiatives and job creation 
projects in the new sectors of employment-intensive growth, etc;) can open new pathways to 
employment. The application of information and communication systems has been shown to 
enhance the efficiency and effectiveness of the contribution of disabled people to the labour 
market. A necessary component of such a strategy entails a re-examination of training 
schemes to ensure their relevance. 
c. Readjusting Welfare and Other Supports to Facilitate Participation: This can be done 
by re-conceptualising such supports to ensure that they do not compound the isolation of the 
individual but that they play their own part in actively facilitating participation. In particular, 
the task of meeting the continuing needs of people with disabilities should be viewed as an 
essential support for ongoing participation. General health and, rehabilitation and preventative 
strategies should be more closely tied, where appropriate, to the pursuit of equal opportunities. 
The positive trend toward Community Based Rehabilitation (CBR) should be actively 
promoted and supported. 
d. Moving Towards a Person-Centred Approach in the Design/Implementation of 
Support Services : This can be done by improving the design and delivery of services. A key 
23 
feature of such changes should be a focusing on the perspective of people with disabilities 
in the initial design and subsequent review of support systems and in their concrete 
implementation. 
e. Mainstreaming : This can be done by giving priority to the provision of services and 
assistance within mainstream structures and ensuring that people with disabilities are able to 
live in the community and pursue an ordinary lifestyle with the necessary level of support 
which should be efficient and cost-effective. 
/ Ensuring Seamless Provision of Services: This can be done by taking steps to ensure 
coordination of service design and delivery, by providing a process for clarifying jurisdictions 
arid fields of responsibilities, by ensuring that provision tracks the life-cycle of people with 
disabilities and that no gaps exist, and by the development of cohesive and accessible 
information strategies. Special consideration should be given to the establishment of inter­
departmental coordination groups. 
I 
g\ Ensuring tlte Principle of Participation: This can be achieved by encouraging and 
facilitating the gro^jvth of directly representative non-governmental organisations (NGOs) of 
people with disabilities and the development of dialogue at all levels in the formulation and 
evaluation of all relevant legislative measures and in the delivery of services. This should 
also include all policy areas which may have implications for the enjoyment of the principle 
of equality of opportunity for people with disabilities. Such participation should be seen as 
a prerequisite to effective policy development. Special consideration should be given to 
supporting national networks of such NGOs through, inter alia, the use of information 
technology. Special consideration should also be given to engaging such NGOs as full 
partners with local authorities, business and commercial organisations, and trade unions in 
developing local strategies in favour of equal opportunities and non-discrimination. 
2. Removing Access Barriers to Participation: 
Viewing access issues in the light of the principle of equality of opportunity and the right to 
participate: This can be done by progressively removing existing architectural, 
communications and transport barriers and by developing detailed and enforceable guidelines 
on accessibility. It can also be done by ensuring a barrier-free environment in the design and 
construction of new facilities and in the development of new communications technologies. 
Special consideration is required of the need to harness positive developments in the field 
of information and communications technologies. 
3. Opening Up Various Spheres of Society 
a. By Upholding the equal civic status of people with disabilities : This can be done by 
giving people with disabilities equal and equally effective rights to enter and participate in 
all spheres of society including the social, educational, economic, cultural, sporting, tourism 
and political spheres. Among other things, this may entail the provision of anti-discrimination 
24 
measures and remedies. Any such anti-discrimination measures should incorporate the 
principle of 'reasonable accommodation' to the situation of people with disabilities. Equal 
concern must also be placed on substantive matters concerning steady and real improvements 
in the quality of life. 
b. By Promoting Employment for people with disabilities as a key to integration: This 
can be done by implementing concerted strategies to that end at various levels: in education, 
training, employment, non-discrimination, social welfare, social services, housing, health, etc. 
Again, these are areas where the introduction of anti-discrimination legislation may be called 
for. Any such legislation should normally include the requirement of 'reasonable 
accommodation' to the situation of the person with disabilities. Special consideration should 
also be given to actively developing and facilitating the trend toward 'supported employment'. 
4. Nurturing Public Opinion to be Receptive to Strategies on Equality of 
Opportunity for People with Disabilities. 
Developing awareness and education: This can be done by the development of strategies 
aimed at influencing fundamental social attitudes to people with disabilities through 
awareness-raising and information. Such strategies should be aimed at focusing public 
attention on the individual before and behind the disability. They should be directed at 
making the public aware of the positive abilities of people with disabilities as well as their 
equal human desire and right to participate and share in the obligations of participation. 
25 
ISSN 0254-1475 
COM(96) 406 final 
DOCUMENTS 
EN 05 04 
Catalogue number : CB-C0-96-422-EN-C 
ISBN 92-78-07942-1 
Office for Official Publications of the European Communities 
L-2985 Luxembourg 
26