Study on "Challenges and good practices in the implementation of ...
Study on "Challenges and good practices in the implementation of ...
Study on "Challenges and good practices in the implementation of ...
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Project TeamDirectors <strong>of</strong> ResearchPr<strong>of</strong>. Gerard Qu<strong>in</strong>nCentre for Disability Law <strong>and</strong> Policy, Nati<strong>on</strong>alUniversity <strong>of</strong> Irel<strong>and</strong>, GalwayPr<strong>of</strong>. Lisa Wadd<strong>in</strong>gt<strong>on</strong>Maastricht University, Faculty <strong>of</strong> LawScientific Supervisi<strong>on</strong>Stefan Tromel SturmerEuropean Disability ForumAcademic/Policy Reference PanelPr<strong>of</strong>. Oddný Mjöll ArnardóttirUniversity <strong>of</strong> ReykjavikPr<strong>of</strong>. Ca<strong>the</strong>r<strong>in</strong>e BarnardUniversity <strong>of</strong> Cambridge, Faculty <strong>of</strong> LawPr<strong>of</strong>. Jerome E. BickenbachSwiss Paraplegic Research (SPF), Nottwil,Switzerl<strong>and</strong>, Department <strong>of</strong> Philosophy, Queen‟sUniversity, K<strong>in</strong>gst<strong>on</strong> (Ontario), CanadaPr<strong>of</strong>. Peter BlanckGlobal Partnership <strong>on</strong> Development <strong>and</strong> DisabilityDr. Agust<strong>in</strong>a PalaciosInstitute <strong>of</strong> Human Rights, University Carlos III <strong>of</strong>MadridCivil Society PanelEuropean Disability ForumEuropean Associati<strong>on</strong> <strong>of</strong> Service Providers forPers<strong>on</strong>s with DisabilitiesProject ManagementResearchersDr. avv. Delia FerriIndependent Researcher <strong>on</strong> European CommunityLawPr<strong>of</strong>. Janet E. LordUniversity <strong>of</strong> Maryl<strong>and</strong> School <strong>of</strong> Law <strong>and</strong> BlueLawInternati<strong>on</strong>al LLPKaren WalshCentre for Disability Law <strong>and</strong> Policy, Nati<strong>on</strong>alUniversity <strong>of</strong> Irel<strong>and</strong>, GalwayPr<strong>of</strong>. Theresia DegenerProtestant University <strong>of</strong> Applied Science, Bochum,GermanyRune HalvorsenNOVA Norwegian Social ResearchBjørn Hv<strong>in</strong>denNOVA Norwegian Social ResearchPr<strong>of</strong>. Rosemary KayessUniversity <strong>of</strong> New South Wales, School <strong>of</strong> LawPr<strong>of</strong>. Rachel MurrayUniversity <strong>of</strong> Bristol, School <strong>of</strong> LawPr<strong>of</strong>. Michael Ste<strong>in</strong>Harvard Law School Project <strong>on</strong> Disability <strong>and</strong> Pr<strong>of</strong>.,William & Mary School <strong>of</strong> LawInclusi<strong>on</strong> EuropeMental Disability Advocacy CentreMarilena VranaEuropean Foundati<strong>on</strong> Centre, European C<strong>on</strong>sortium <strong>of</strong> Foundati<strong>on</strong>s <strong>on</strong> Human Rights <strong>and</strong> DisabilitiesAcknowledgments:In additi<strong>on</strong> to <strong>the</strong> project team whose <strong>in</strong>put was <strong>the</strong> genesis <strong>of</strong> many <strong>in</strong>sights <strong>in</strong>to this report, <strong>the</strong> EFCwould like to thank <strong>in</strong> particular <strong>the</strong> Atlantic Philanthropies <strong>and</strong> <strong>the</strong> follow<strong>in</strong>g organisati<strong>on</strong>s <strong>and</strong>pr<strong>of</strong>essi<strong>on</strong>als for <strong>the</strong>ir additi<strong>on</strong>al support to this project.Academic Network <strong>of</strong> European Disability ExpertsEuropean Network <strong>of</strong> Legal Experts <strong>in</strong> <strong>the</strong> N<strong>on</strong>-Discrim<strong>in</strong>ati<strong>on</strong> FieldAisl<strong>in</strong>g de Paor <strong>and</strong> Róisín NicGhruagá<strong>in</strong>Centre for Disability Law <strong>and</strong> Policy <strong>of</strong> <strong>the</strong> Nati<strong>on</strong>alUniversity <strong>of</strong> Irel<strong>and</strong>, GalwayDr. avv. Mel J. MarquisAdjunct Pr<strong>of</strong>essor <strong>of</strong> Ec<strong>on</strong>omic Law <strong>and</strong> ResearchFellow, University <strong>of</strong> Ver<strong>on</strong>aAvv. Francesca SegnaIndependent Researcher <strong>on</strong> EC LawDr. Francisco BariffiMember <strong>of</strong> <strong>the</strong> UN CRPD Experts Commissi<strong>on</strong> <strong>of</strong><strong>the</strong> Royal "Patr<strong>on</strong>ato" <strong>on</strong> Disability <strong>in</strong> Spa<strong>in</strong>F<strong>in</strong>ally, a special note <strong>of</strong> thanks to Ana Mohedano Escobar for her management <strong>of</strong> <strong>the</strong> study dur<strong>in</strong>g <strong>the</strong><strong>in</strong>itial implementati<strong>on</strong> period.Page | iii
Table <strong>of</strong> C<strong>on</strong>tentsProject Team .................................................................................................................. iiiAcknowledgments: ....................................................................................................... iiiList <strong>of</strong> Abbreviati<strong>on</strong>s ..................................................................................................... 7Executive Summary ...................................................................................................... 8Structure <strong>of</strong> this report: .............................................................................................. 191.0 Introducti<strong>on</strong> ........................................................................................................... 221.1 The UN CRPD: an overview ................................................................................ 221.1.1 UN CRPD Impetus <strong>and</strong> Rati<strong>on</strong>ale .............................................................................241.1.2 Structure <strong>of</strong> <strong>the</strong> UN CRPD <strong>and</strong> its Opti<strong>on</strong>al Protocol ................................................. 241.1.3 UN CRPD as an <strong>in</strong>strument <strong>of</strong> public <strong>in</strong>ternati<strong>on</strong>al law ..............................................261.2 The Status <strong>of</strong> <strong>the</strong> UN CRPD <strong>in</strong> <strong>the</strong> European Legal Order .................................. 281.3 EU declared competence <strong>in</strong> matters governed by <strong>the</strong> UN CRPD ........................ 351.4 Framework <strong>of</strong> Analysis ......................................................................................... 392.0 The Paradigm Shift: A social model <strong>of</strong> disability ............................................... 412.1 Obligati<strong>on</strong>s derived from <strong>the</strong> Paradigm Shift ........................................................ 412.2 General Recommendati<strong>on</strong>s for States Parties ..................................................... 433.0 Articles <strong>of</strong> General <strong>and</strong> cross-cutt<strong>in</strong>g applicati<strong>on</strong> .............................................. 443.1 General Pr<strong>in</strong>ciples <strong>of</strong> <strong>the</strong> UN CRPD .................................................................... 443.1.1 Article 3 obligati<strong>on</strong>s ...................................................................................................443.1.2 General Recommendati<strong>on</strong>s for States Parties to <strong>the</strong> UN CRPD ................................463.2 General Obligati<strong>on</strong>s <strong>of</strong> <strong>the</strong> UN CRPD .................................................................. 463.2.1 Article 4 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> <strong>practices</strong> ..........................................................473.2.2 General Recommendati<strong>on</strong>s for States Parties to <strong>the</strong> UN CRPD ................................523.3 Equality <strong>and</strong> N<strong>on</strong>-Discrim<strong>in</strong>ati<strong>on</strong> .......................................................................... 533.3.1 Article 5 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong> .............................................533.3.2 General Recommendati<strong>on</strong>s for States Parties to <strong>the</strong> UN CRPD ................................623.4 Inter-secti<strong>on</strong>ality: women <strong>and</strong> children with disabilities ........................................ 633.4.1 Article 6 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong> .............................................633.4.2 Article 7 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong> .............................................653.4.3 General Recommendati<strong>on</strong>s for States Parties to <strong>the</strong> UN CRPD ................................67Page | 4
3.5 General Accessibility ............................................................................................ 673.5.1 Article 9 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong> .............................................683.5.2 General Recommendati<strong>on</strong>s for States Parties to <strong>the</strong> UN CRPD ................................804.0 Substantive Provisi<strong>on</strong>s ......................................................................................... 834.1 Dignity Rights ....................................................................................................... 834.1.1 Article 16 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong> ...........................................844.1.2 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 16 ......................................874.1.3 Article 17 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong> ...........................................874.1.4 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 17 ......................................904.2 Aut<strong>on</strong>omy Rights .................................................................................................. 904.2.1 Article 12 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong> ...........................................904.2.2 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 12 .................................... 1004.2.3 Article 19 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong> ......................................... 1024.2.4 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 19 .................................... 1104.3 Specific Accessibility Rights ............................................................................... 1114.3.1 Article 13 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong> ......................................... 1114.3.2 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 13 .................................... 1154.3.3 Article 29 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong> ......................................... 1164.3.4 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 29 .................................... 1204.5 Solidarity Rights ................................................................................................. 1214.5.1 Article 24 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong> ......................................... 1224.5.2 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 24 .................................... 1294.5.3 Article 27 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong> ......................................... 1294.5.4 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 27 .................................... 1375.0 The Dynamic <strong>of</strong> Reform ...................................................................................... 1395.1 Article 31 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong>.................................... 1395.2 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 31 .............................. 1435.3 Article 32 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong>.................................... 1445.4 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 32 .............................. 1515.5 Article 33 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong>.................................... 1525.5.1 A focal po<strong>in</strong>t with<strong>in</strong> <strong>the</strong> European Uni<strong>on</strong> .................................................................. 1585.5.2 Coord<strong>in</strong>ati<strong>on</strong> Mechanisms at <strong>the</strong> EU level ............................................................... 162Page | 5
5.5.3 A framework to promote, protect <strong>and</strong> m<strong>on</strong>itor .......................................................... 1655.6 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 33 .............................. 1726.0 F<strong>in</strong>al recommendati<strong>on</strong>s for policy makers ....................................................... 1746.1 Suggested Practices for <strong>the</strong> Initial Implementati<strong>on</strong> Phase ................................. 1746.2 Suggested <strong>practices</strong> for <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> Article 33 UN CRPD: Instituti<strong>on</strong>alApparatus................................................................................................................. 1806.3 Suggested <strong>practices</strong> for <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> specific issues .......................... 183Page | 6
List <strong>of</strong> Abbreviati<strong>on</strong>sANEDCFICEDAWCRCDAPDGDG EMPLEASPDEDFEFCEUECECHRECJFRAHLGDICTIEMDACNGOn.a.TECTEUTFEUUNUN CRPDAcademic Network <strong>of</strong> European Disability ExpertsCourt <strong>of</strong> First InstanceC<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Elim<strong>in</strong>ati<strong>on</strong> <strong>of</strong> all forms <strong>of</strong> Discrim<strong>in</strong>ati<strong>on</strong> Aga<strong>in</strong>stWomenC<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> <strong>the</strong> ChildDisability Acti<strong>on</strong> PlanDirectorate-GeneralDirectorate-General Employment, Social Affairs <strong>and</strong> Equal OpportunitiesEuropean Associati<strong>on</strong> <strong>of</strong> Service Providers for Pers<strong>on</strong>s with DisabilitiesEuropean Disability ForumEuropean Foundati<strong>on</strong> CentreEuropean Uni<strong>on</strong>European CommunityEuropean C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> Human RightsEuropean Court <strong>of</strong> JusticeFundamental Rights AgencyHigh Level Group <strong>on</strong> DisabilityInformati<strong>on</strong> Communicati<strong>on</strong> TechnologiesInclusi<strong>on</strong> EuropeMental Disability Advocacy CenterN<strong>on</strong>-governmental Organisati<strong>on</strong>N<strong>on</strong>-applicableTreaty establish<strong>in</strong>g <strong>the</strong> European CommunityTreaty <strong>on</strong> <strong>the</strong> European Uni<strong>on</strong>Treaty <strong>on</strong> <strong>the</strong> Functi<strong>on</strong><strong>in</strong>g <strong>of</strong> <strong>the</strong> European Uni<strong>on</strong>United Nati<strong>on</strong>sUnited Nati<strong>on</strong>s C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with DisabilitiesPage | 7
EXECUTIVE SUMMARYThe „<str<strong>on</strong>g>Study</str<strong>on</strong>g> <strong>on</strong> <strong>Challenges</strong> <strong>and</strong> Good Practices <strong>in</strong> <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UNC<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities‟ (here<strong>in</strong>after referred to as „<strong>the</strong>study‟) was carried out by <strong>the</strong> European Foundati<strong>on</strong> Centre (EFC) represent<strong>in</strong>g <strong>the</strong>European C<strong>on</strong>sortium <strong>of</strong> Foundati<strong>on</strong>s <strong>on</strong> Human Rights <strong>and</strong> Disability for <strong>the</strong> Unit for<strong>the</strong> Integrati<strong>on</strong> <strong>of</strong> People with Disabilities (Unit G3) <strong>of</strong> <strong>the</strong> Directorate-GeneralEmployment, Social Affairs <strong>and</strong> Equal Opportunities (DG EMPL), under <strong>the</strong> C<strong>on</strong>tractN o VC/2008/1214, dur<strong>in</strong>g <strong>the</strong> period January 2009 to February 2010.The study aimed to analyse <strong>in</strong> detail <strong>the</strong> obligati<strong>on</strong>s set forth <strong>in</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>, <strong>and</strong> <strong>in</strong>particular to ga<strong>the</strong>r <strong>in</strong>formati<strong>on</strong> about <strong>the</strong> various <strong>practices</strong> related to <strong>the</strong>implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> by <strong>the</strong> EU <strong>and</strong> its Member States. The goal was toidentify challenges that may h<strong>in</strong>der <strong>the</strong> full <strong>and</strong> effective implementati<strong>on</strong> <strong>of</strong> <strong>the</strong>C<strong>on</strong>venti<strong>on</strong>, <strong>and</strong> measures that would facilitate <strong>the</strong> achievement <strong>of</strong> its objectives („<strong>good</strong><strong>practices</strong>‟). The study is designed to support <strong>the</strong> objectives <strong>of</strong> <strong>the</strong> current EU DisabilityActi<strong>on</strong> Plan with its emphasis <strong>on</strong> full participati<strong>on</strong> <strong>and</strong> equal opportunities for all peoplewith disabilities <strong>and</strong> to c<strong>on</strong>tribute to <strong>the</strong> preparati<strong>on</strong> <strong>of</strong> <strong>the</strong> new EU disability strategybased more explicitly <strong>on</strong> <strong>the</strong> UN CRPD.The f<strong>in</strong>d<strong>in</strong>gs <strong>of</strong> this study identified several challenges to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UNCRPD at both <strong>the</strong> EU <strong>and</strong> Member States level. These challenges are ma<strong>in</strong>ly groupedaround <strong>the</strong> follow<strong>in</strong>g fields:• Uneven Implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> Paradigm Shift: research has revealed that, <strong>in</strong>general, <strong>the</strong> paradigm shift embodied <strong>in</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> has not yet been effectivelyreflected <strong>in</strong> <strong>the</strong> majority <strong>of</strong> <strong>the</strong> Member States. Some States have made progress,but <strong>the</strong> movement towards <strong>the</strong> ma<strong>in</strong> less<strong>on</strong> <strong>of</strong> <strong>the</strong> paradigm shift (i.e. treat<strong>in</strong>gpeople with disabilities as full „subjects‟ bear<strong>in</strong>g equal rights <strong>and</strong> deserv<strong>in</strong>g equalrespect, <strong>and</strong> not as „objects‟ to be managed or pitied) has been uneven. The EU led<strong>the</strong> way <strong>in</strong> steer<strong>in</strong>g movement towards <strong>the</strong> paradigm shift <strong>in</strong> mid-1990s. The UNCRPD makes <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> paradigm shift across all policy sectorsmore urgent. As regards <strong>the</strong> European Uni<strong>on</strong>, legislati<strong>on</strong> appears to be implicitlybased <strong>on</strong> a social model <strong>of</strong> disability, <strong>and</strong> <strong>the</strong>refore aims at remov<strong>in</strong>g physical <strong>and</strong>societal barriers that h<strong>in</strong>der full participati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> society.• Lack <strong>of</strong> Nati<strong>on</strong>al Screen<strong>in</strong>g: research has revealed that most <strong>of</strong> <strong>the</strong> MemberStates <strong>of</strong> <strong>the</strong> EU have not yet taken <strong>the</strong> first step towards <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong>UN CRPD, mean<strong>in</strong>g that nati<strong>on</strong>al legislati<strong>on</strong> <strong>and</strong> policies have not yet beensystematically reviewed. Only four complete nati<strong>on</strong>al screen<strong>in</strong>g exercises werePage | 8
identified by this study. In additi<strong>on</strong> to States, <strong>the</strong> obligati<strong>on</strong> to carry out a „screen<strong>in</strong>gexercise‟ applies with equal force to <strong>the</strong> European Uni<strong>on</strong>. The latter has checkedexist<strong>in</strong>g legislati<strong>on</strong> <strong>in</strong> order to identify exist<strong>in</strong>g EU <strong>in</strong>struments related to matterscovered by <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. The outcome <strong>of</strong> this process is <strong>the</strong> Appendix thataccompanies <strong>the</strong> declarati<strong>on</strong> <strong>of</strong> competences, which <strong>in</strong>tends to specify <strong>the</strong> areas <strong>of</strong><strong>the</strong> C<strong>on</strong>venti<strong>on</strong> that fall with<strong>in</strong> <strong>the</strong> EU competence <strong>and</strong> better show to <strong>the</strong> o<strong>the</strong>rc<strong>on</strong>tract<strong>in</strong>g parties <strong>the</strong> distributi<strong>on</strong> <strong>of</strong> competence between <strong>the</strong> EU <strong>and</strong> its MemberStates. However, <strong>the</strong> mere identificati<strong>on</strong> <strong>of</strong> EU legal <strong>in</strong>struments is not sufficient toshow fulfilment <strong>of</strong> <strong>the</strong> obligati<strong>on</strong> to perform a „screen<strong>in</strong>g exercise‟ which entails anobligati<strong>on</strong> to exam<strong>in</strong>e <strong>and</strong> if necessary modify exist<strong>in</strong>g legislati<strong>on</strong>. Never<strong>the</strong>less, it isimportant to c<strong>on</strong>sider that any possible modificati<strong>on</strong> <strong>of</strong> EU legislati<strong>on</strong> (or adopti<strong>on</strong> <strong>of</strong>new EU legislati<strong>on</strong>) can not <strong>in</strong>fluence <strong>the</strong> allocati<strong>on</strong> <strong>of</strong> powers fixed by <strong>the</strong> Treaties.It is <strong>the</strong>refore necessary for any screen<strong>in</strong>g to be c<strong>on</strong>ducted by <strong>the</strong> EU to evaluateEU legislati<strong>on</strong> towards <strong>the</strong> requirements <strong>of</strong> <strong>the</strong> UN CRPD <strong>and</strong> c<strong>on</strong>sider <strong>the</strong> EUcompetence to act <strong>in</strong> <strong>the</strong> fields covered by <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. The latter c<strong>on</strong>siderati<strong>on</strong>(i.e. EU competence) will be important to determ<strong>in</strong>e <strong>the</strong> type <strong>of</strong> measure that <strong>the</strong>EU would need to take <strong>in</strong> order to meet <strong>the</strong> requirements <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. 1• Uneven Reach <strong>of</strong> N<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> Laws: research has revealed thatlegislative acts <strong>on</strong> equality <strong>and</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> exist ma<strong>in</strong>ly with<strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong>employment, at both <strong>the</strong> EU <strong>and</strong> Member State level. Many Member States haveextended <strong>the</strong> applicati<strong>on</strong> <strong>of</strong> <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> bey<strong>on</strong>d <strong>the</strong>workplace. However, significant challenges to implement<strong>in</strong>g <strong>the</strong> UN CRPD rema<strong>in</strong><strong>and</strong> relate to <strong>the</strong> limited applicati<strong>on</strong> <strong>of</strong> <strong>the</strong> duty to provide reas<strong>on</strong>ableaccommodati<strong>on</strong>, <strong>the</strong> n<strong>on</strong>-recogniti<strong>on</strong> <strong>of</strong> <strong>the</strong> denial <strong>of</strong> reas<strong>on</strong>able accommodati<strong>on</strong> asan explicit form <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong>, <strong>the</strong> general lack <strong>of</strong> laws address<strong>in</strong>g <strong>in</strong>ter-secti<strong>on</strong>al<strong>and</strong> multiple-discrim<strong>in</strong>ati<strong>on</strong>, <strong>and</strong> limited material scope.• General Accessibility: as regards <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> Article 9 UN CRPD,research has revealed that some progress has been made by <strong>the</strong> EU, but <strong>the</strong>re isstill room for improvement. Specifically <strong>on</strong>e or more relevant EU <strong>in</strong>strumentsaddress accessibility <strong>and</strong> <strong>the</strong> built envir<strong>on</strong>ment, transport, <strong>good</strong>s <strong>and</strong> services,<strong>in</strong>formati<strong>on</strong> <strong>and</strong> communicati<strong>on</strong> technologies. However, even if <strong>the</strong> Member Stateshave <strong>in</strong>cluded <strong>in</strong> <strong>the</strong>ir nati<strong>on</strong>al laws <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> accessibility, this is not enoughto guarantee enforcement <strong>of</strong> <strong>the</strong>se laws <strong>and</strong> effective implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UNCRPD accessibility requirements. Research <strong>in</strong> <strong>the</strong> Member States <strong>of</strong> <strong>the</strong> EU hasalso revealed that m<strong>on</strong>itor<strong>in</strong>g <strong>of</strong> implementati<strong>on</strong> appears to be <strong>in</strong>effective. Inadditi<strong>on</strong>, excepti<strong>on</strong>s <strong>in</strong>cluded <strong>in</strong> some legislative acts (e.g. <strong>in</strong> some cases oldbuild<strong>in</strong>gs are not required to comply with <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> accessibility), <strong>and</strong> <strong>the</strong> lack1 For fur<strong>the</strong>r <strong>in</strong>formati<strong>on</strong> <strong>on</strong> this matter, please go to secti<strong>on</strong> 3.2 <strong>of</strong> this report.Page | 9
<strong>of</strong> disability specific tra<strong>in</strong><strong>in</strong>g for pr<strong>of</strong>essi<strong>on</strong>als (e.g. architects <strong>and</strong> eng<strong>in</strong>eers) mayh<strong>in</strong>der <strong>the</strong> full access <strong>and</strong> <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities.• Legal capacity – Giv<strong>in</strong>g a Voice Back to People: research <strong>in</strong> <strong>the</strong> EU MemberStates has revealed that <strong>in</strong> <strong>the</strong> field <strong>of</strong> legal capacity, several challenges toimplement<strong>in</strong>g <strong>the</strong> UN CRPD exist. While a few Member States have reformedrelevant legislative measures, embrac<strong>in</strong>g a decisive move away from over-broadplenary guardianship laws towards a „supported decisi<strong>on</strong>-mak<strong>in</strong>g‟ model, a largenumber <strong>of</strong> Member States c<strong>on</strong>t<strong>in</strong>ue to operate far-reach<strong>in</strong>g restrictive guardianshiplaws <strong>and</strong> policies. <strong>Challenges</strong> also exist <strong>in</strong> Member States that are attempt<strong>in</strong>g tomove away from guardianship. While legislative reforms provide for <strong>the</strong>appo<strong>in</strong>tment <strong>of</strong> assistants to support pers<strong>on</strong>s with disabilities <strong>in</strong> decisi<strong>on</strong>-mak<strong>in</strong>g,<strong>the</strong> dist<strong>in</strong>cti<strong>on</strong> between such assistants <strong>and</strong> guardians is not clear enough. In manycases <strong>the</strong>re are <strong>in</strong>sufficient safeguards <strong>in</strong> place to ensure that such assistants d<strong>on</strong>ot exceed <strong>the</strong>ir duties <strong>and</strong> end up displac<strong>in</strong>g <strong>the</strong> legal capacity <strong>of</strong> <strong>the</strong> pers<strong>on</strong> <strong>the</strong>yare purportedly assist<strong>in</strong>g. Ano<strong>the</strong>r challenge may arise from <strong>in</strong>terpretativedeclarati<strong>on</strong>s or „explanatory memor<strong>and</strong>ums‟ that some States have submitted, ormay c<strong>on</strong>sider submitt<strong>in</strong>g, <strong>in</strong> relati<strong>on</strong> to Article 12 UN CRPD.• Independent Liv<strong>in</strong>g – Us<strong>in</strong>g that Voice to Choose How to Live: research <strong>in</strong> thisfield has revealed that <strong>the</strong> existence <strong>of</strong> nati<strong>on</strong>al laws that still permit<strong>in</strong>stituti<strong>on</strong>alisati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities hampers significantly <strong>the</strong>ir social<strong>in</strong>clusi<strong>on</strong> <strong>and</strong> full participati<strong>on</strong> <strong>in</strong> <strong>the</strong>ir society. Several nati<strong>on</strong>al policies are focused<strong>on</strong> improv<strong>in</strong>g <strong>in</strong>stituti<strong>on</strong>al care, <strong>in</strong>stead <strong>of</strong> mov<strong>in</strong>g residents <strong>of</strong> such <strong>in</strong>stituti<strong>on</strong>s <strong>in</strong>to<strong>the</strong> community. In cases where nati<strong>on</strong>al policies promote <strong>in</strong>dependent liv<strong>in</strong>g forpers<strong>on</strong>s with disabilities, <strong>the</strong> frequent absence <strong>of</strong> direct payments, or <strong>in</strong>dividualisedfund<strong>in</strong>g schemes, to allow pers<strong>on</strong>s with disabilities to manage <strong>the</strong>ir own affairs is asignificant challenge to <strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD. With regardsto <strong>the</strong> EU, <strong>the</strong> Council Decisi<strong>on</strong> c<strong>on</strong>cern<strong>in</strong>g <strong>the</strong> c<strong>on</strong>clusi<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD listsseveral <strong>in</strong>struments related to <strong>the</strong> functi<strong>on</strong><strong>in</strong>g <strong>of</strong> <strong>the</strong> <strong>in</strong>ternal market (<strong>in</strong> particular<strong>in</strong>direct taxati<strong>on</strong> <strong>and</strong> state aid), which are relevant to Article 19 UN CRPD.Instruments <strong>of</strong> such nature could positively c<strong>on</strong>tribute to <strong>the</strong> elim<strong>in</strong>ati<strong>on</strong> <strong>of</strong> barriers(such as <strong>in</strong>accessible, or <strong>in</strong>sufficient, <strong>good</strong>s <strong>and</strong> services) for pers<strong>on</strong>s withdisabilities to fully enjoy <strong>the</strong> right to <strong>in</strong>dependent liv<strong>in</strong>g.• Employment – Earn a Liv<strong>in</strong>g by Work freely chosen or accepted <strong>in</strong> <strong>the</strong> labourmarket: research <strong>in</strong> this field has revealed that <strong>the</strong> EU Member States have beenhighly <strong>in</strong>fluenced by EU sec<strong>on</strong>dary legislati<strong>on</strong>, <strong>and</strong> <strong>in</strong> particular <strong>the</strong> EmploymentEquality Directive 2000/78/EC. To this end, Member States have prohibited, by law,discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> disability with<strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong> employment, <strong>and</strong> haveestablished provisi<strong>on</strong>s for reas<strong>on</strong>able accommodati<strong>on</strong>s for pers<strong>on</strong>s with disabilities.Page | 10
N<strong>on</strong>e<strong>the</strong>less, several challenges to <strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPDrema<strong>in</strong>. Research has revealed an <strong>in</strong>c<strong>on</strong>sistent <strong>in</strong>terpretati<strong>on</strong> <strong>of</strong> key c<strong>on</strong>cepts, suchas „discrim<strong>in</strong>ati<strong>on</strong>‟ <strong>and</strong> „reas<strong>on</strong>able accommodati<strong>on</strong>‟, by <strong>the</strong> Member States <strong>of</strong> <strong>the</strong>EU. In additi<strong>on</strong>, as Directive 2000/78/EC does not explicitly def<strong>in</strong>e an unjustifieddenial <strong>of</strong> reas<strong>on</strong>able accommodati<strong>on</strong> as a form <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong>, many MemberStates have not d<strong>on</strong>e so ei<strong>the</strong>r. F<strong>in</strong>ally, poor implementati<strong>on</strong> <strong>of</strong> employment quotas,<strong>and</strong> low participati<strong>on</strong> rates <strong>in</strong> <strong>the</strong> labour market for pers<strong>on</strong>s with disabilities, suggestthat exist<strong>in</strong>g legislati<strong>on</strong> may not be effective <strong>in</strong> practice.• Educati<strong>on</strong> – Full Development <strong>of</strong> pers<strong>on</strong>s with disabilities‟ potential toparticipate effectively <strong>in</strong> society: research for this study has revealed severalchallenges to <strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong> Article 24 UN CRPD by <strong>the</strong> EUMember States. Informati<strong>on</strong> compiled from <strong>the</strong> Member States revealed few effortsto move towards <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> <strong>in</strong>clusive educati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> equalopportunity. In most Member States, while educati<strong>on</strong> for pers<strong>on</strong>s with specialeducati<strong>on</strong>al needs can take place <strong>in</strong> ord<strong>in</strong>ary establishments, <strong>the</strong> opti<strong>on</strong> <strong>of</strong> send<strong>in</strong>gchildren with disabilities to special educati<strong>on</strong>al facilities is permissible <strong>and</strong> <strong>in</strong> mostcases favoured. This is a significant challenge to <strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong>Article 24 UN CRPD, because as l<strong>on</strong>g as <strong>the</strong> opti<strong>on</strong> <strong>of</strong> send<strong>in</strong>g children withdisabilities to special educati<strong>on</strong>al facilities rema<strong>in</strong>s available, <strong>the</strong>ir full <strong>and</strong> effective<strong>in</strong>tegrati<strong>on</strong> <strong>in</strong> an <strong>in</strong>clusive educati<strong>on</strong> system may not be realised. In additi<strong>on</strong>, <strong>the</strong>frequent lack <strong>of</strong> resources for <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> <strong>in</strong>dividualised services <strong>and</strong> support tolearners with disabilities, <strong>and</strong> <strong>the</strong> lack <strong>of</strong> specialised tra<strong>in</strong><strong>in</strong>g for teachers <strong>in</strong>support<strong>in</strong>g learners with disabilities, are also major challenges to <strong>the</strong> full <strong>and</strong>effective <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> <strong>the</strong> educati<strong>on</strong> system.• Uneven Participati<strong>on</strong> <strong>in</strong> Political <strong>and</strong> Public Life: Research <strong>in</strong> <strong>the</strong> MemberStates <strong>of</strong> <strong>the</strong> EU has revealed that even though most Member States have adoptedlegislative provisi<strong>on</strong>s <strong>in</strong> order to ensure that pers<strong>on</strong>s with disabilities can participate<strong>in</strong> vot<strong>in</strong>g procedures, <strong>the</strong>se are not enough to ensure full <strong>and</strong> effective participati<strong>on</strong><strong>of</strong> all pers<strong>on</strong>s with disabilities. Indicative case-studies show that while Statesensure accessibility to poll<strong>in</strong>g stati<strong>on</strong>s, ballots <strong>and</strong> general <strong>in</strong>formati<strong>on</strong> about <strong>the</strong>electi<strong>on</strong>s are not provided <strong>in</strong> alternative formats (e.g. Braille or easy-to-readformats). In additi<strong>on</strong>, <strong>the</strong>re are cases where <strong>the</strong> right <strong>of</strong> pers<strong>on</strong>s with disabilities tovote by secret ballot is not effectively implemented. With regards to participati<strong>on</strong> <strong>in</strong>decisi<strong>on</strong> mak<strong>in</strong>g processes, research for this study has revealed that <strong>the</strong> majority <strong>of</strong><strong>the</strong> EU Member States have created c<strong>on</strong>sultative disability forums <strong>in</strong> order toensure <strong>the</strong> participati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> public life. However, little<strong>in</strong>formati<strong>on</strong> is available <strong>in</strong> relati<strong>on</strong> to <strong>the</strong> effectiveness <strong>of</strong> such forums.Page | 11
• Lack <strong>of</strong> Tra<strong>in</strong><strong>in</strong>g: research for this study has revealed that <strong>the</strong>re is an urgent needfor both <strong>the</strong> EU <strong>and</strong> its Member States to <strong>in</strong>itiate tra<strong>in</strong><strong>in</strong>g sem<strong>in</strong>ars for all types <strong>of</strong>pr<strong>of</strong>essi<strong>on</strong>als, such as judges, lawyers, public adm<strong>in</strong>istrators, architects, eng<strong>in</strong>eers<strong>and</strong> servants related to all policy fields with <strong>the</strong> aim to raise awareness about <strong>the</strong>obligati<strong>on</strong>s set forth <strong>in</strong> <strong>the</strong> UN CRPD. Such tra<strong>in</strong><strong>in</strong>g should also be focused <strong>on</strong> <strong>the</strong>practical implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>, <strong>and</strong> should be accessible to, <strong>and</strong><strong>in</strong>clusive <strong>of</strong>, people with disabilities <strong>and</strong> representatives from organisati<strong>on</strong>srepresent<strong>in</strong>g <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities.• Insufficient Disability-specific Statistics <strong>and</strong> Data: this study could not identifyadequate <strong>in</strong>formati<strong>on</strong> with<strong>in</strong> <strong>the</strong> Member States <strong>of</strong> <strong>the</strong> EU regard<strong>in</strong>g <strong>practices</strong>related to <strong>the</strong> collecti<strong>on</strong> <strong>of</strong> statistics <strong>and</strong> data based <strong>on</strong> a social model <strong>of</strong> disability<strong>and</strong> be<strong>in</strong>g disaggregated, as appropriate, to support policy development <strong>and</strong> <strong>the</strong>m<strong>on</strong>itor<strong>in</strong>g <strong>of</strong> policy implementati<strong>on</strong>. It logically follows that <strong>the</strong>re is a need forfur<strong>the</strong>r research <strong>in</strong> this field. Regard<strong>in</strong>g <strong>the</strong> EU, <strong>in</strong>struments listed <strong>in</strong> <strong>the</strong> CouncilDecisi<strong>on</strong> c<strong>on</strong>cern<strong>in</strong>g <strong>the</strong> c<strong>on</strong>clusi<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD have establishedmethodological frameworks <strong>and</strong> systems for <strong>the</strong> compilati<strong>on</strong> <strong>of</strong> reliable <strong>and</strong>comparable data <strong>in</strong> <strong>the</strong> fields <strong>of</strong> social protecti<strong>on</strong> <strong>and</strong> <strong>in</strong>clusi<strong>on</strong>. However, it appearsthat <strong>the</strong>re is a need to review exist<strong>in</strong>g <strong>in</strong>struments <strong>and</strong> evaluate whe<strong>the</strong>r (or not)such <strong>in</strong>struments are appropriate for <strong>the</strong> compilati<strong>on</strong> <strong>of</strong> disaggregated data <strong>on</strong>disability for matters covered by <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>.• Enhanced Internati<strong>on</strong>al Cooperati<strong>on</strong> <strong>and</strong> Development Aid: Despite someavailable <strong>in</strong>formati<strong>on</strong> <strong>on</strong> ma<strong>in</strong>stream<strong>in</strong>g disability <strong>in</strong> development cooperati<strong>on</strong>, thisstudy could not <strong>in</strong>dicate clear challenges to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> Article 32 UNCRPD as relevant <strong>practices</strong> that have been identified <strong>in</strong> <strong>the</strong> Member States <strong>of</strong> <strong>the</strong>EU are fairly new. With regards to <strong>the</strong> EU, research has revealed that severalpartnerships <strong>and</strong> development programmes have been established with manydevelop<strong>in</strong>g countries around <strong>the</strong> world. Such partnerships cover many areas thatare relevant to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD. Therefore, <strong>the</strong> EU can (<strong>and</strong> asa party to <strong>the</strong> UN CRPD should) <strong>in</strong>fluence <strong>and</strong> support third, or c<strong>and</strong>idate, countriesto ensure <strong>the</strong> realisati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD objectives with<strong>in</strong> <strong>the</strong>ir territory. This goalcan be achieved through, for example, <strong>the</strong> use <strong>of</strong> <strong>the</strong> so called „human rightsclauses‟.F<strong>in</strong>ally, research has revealed that exist<strong>in</strong>g communicati<strong>on</strong> channels with thirdcountries, such as <strong>the</strong> Transatlantic Dialogue, could serve as a role model for <strong>the</strong>establishment by <strong>the</strong> EU <strong>of</strong> similar communicati<strong>on</strong> forums with o<strong>the</strong>r parties to <strong>the</strong>UN CRPD, <strong>and</strong> with <strong>the</strong> aim <strong>of</strong> enhanc<strong>in</strong>g learn<strong>in</strong>g about different approachesrelated to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>.Page | 12
• Nati<strong>on</strong>al Implementati<strong>on</strong> <strong>and</strong> M<strong>on</strong>itor<strong>in</strong>g: Research <strong>in</strong> this field has revealed that<strong>the</strong> majority <strong>of</strong> <strong>the</strong> designated focal po<strong>in</strong>ts have, as required by Article 33(1) UNCRPD, been established at a high level <strong>of</strong> government (i.e. M<strong>in</strong>istry level).However, nati<strong>on</strong>al <strong>in</strong>formati<strong>on</strong> regard<strong>in</strong>g <strong>the</strong> establishment, or designati<strong>on</strong>, <strong>of</strong> acoord<strong>in</strong>ati<strong>on</strong> mechanism is generally poor, which implies that EU Member Stateshave yet to designate a coord<strong>in</strong>ati<strong>on</strong> mechanism. In some cases it is clear that <strong>the</strong>possibility <strong>of</strong> establish<strong>in</strong>g such a mechanism will be reviewed by <strong>the</strong> government <strong>of</strong>a Member State up<strong>on</strong> <strong>of</strong>ficial ratificati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD. Similarly, many MemberStates have yet to nom<strong>in</strong>ate a framework as envisaged by Article 33(2) UN CRPD,<strong>and</strong> may not do so until after <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> is <strong>of</strong>ficially ratified.• EU Implementati<strong>on</strong> <strong>and</strong> M<strong>on</strong>itor<strong>in</strong>g: Article 3 <strong>of</strong> <strong>the</strong> Council Decisi<strong>on</strong> c<strong>on</strong>cern<strong>in</strong>g<strong>the</strong> c<strong>on</strong>clusi<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD designated <strong>the</strong> European Commissi<strong>on</strong> as <strong>the</strong> focalpo<strong>in</strong>t <strong>of</strong> <strong>the</strong> EU for all matters covered by <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. The EuropeanCommissi<strong>on</strong>, as <strong>the</strong> executive body <strong>of</strong> <strong>the</strong> EU, has a unique <strong>and</strong> quite complexstructure <strong>of</strong> governance, which results from <strong>the</strong> Treaty establish<strong>in</strong>g <strong>the</strong> EuropeanCommunity. In this respect, this study c<strong>on</strong>sidered which body with<strong>in</strong> <strong>the</strong>Commissi<strong>on</strong> could perform <strong>the</strong> tasks <strong>of</strong> <strong>the</strong> focal po<strong>in</strong>t <strong>of</strong> <strong>the</strong> EU. In this respect <strong>the</strong>follow<strong>in</strong>g opti<strong>on</strong>s were reviewed: (a) <strong>the</strong> President <strong>of</strong> <strong>the</strong> Commissi<strong>on</strong>; (b) <strong>the</strong>Secretary-General; <strong>and</strong> (c) Commissi<strong>on</strong>er for Justice, Fundamental Rights <strong>and</strong>Citizenship. The f<strong>in</strong>d<strong>in</strong>gs <strong>of</strong> this research suggest that <strong>the</strong> broad m<strong>and</strong>ate <strong>of</strong> <strong>the</strong>President <strong>and</strong> <strong>the</strong> Secretary-General may become a barrier that will potentiallyhamper <strong>the</strong>ir optimal effectiveness as <strong>the</strong> EU‟s focal po<strong>in</strong>t for matters relat<strong>in</strong>g to <strong>the</strong>UN CRPD. Regard<strong>in</strong>g <strong>the</strong> Commissi<strong>on</strong>er for Justice, Fundamental Rights <strong>and</strong>Citizenship, it appears that <strong>the</strong> positi<strong>on</strong> can be c<strong>on</strong>sidered as <strong>the</strong> equivalent <strong>of</strong> aM<strong>in</strong>istry, <strong>and</strong> <strong>the</strong>refore could be tasked with <strong>the</strong> resp<strong>on</strong>sibilities <strong>of</strong> <strong>the</strong> focal po<strong>in</strong>t forall matters related to <strong>the</strong> UN CRPD. However, it is suggested that <strong>the</strong> EU reviews<strong>the</strong> m<strong>and</strong>ate <strong>of</strong> <strong>the</strong> Commissi<strong>on</strong>er, <strong>and</strong> exist<strong>in</strong>g methodological frameworks forhoriz<strong>on</strong>tal m<strong>on</strong>itor<strong>in</strong>g <strong>of</strong> EU legislati<strong>on</strong>, policies <strong>and</strong> programmes that could be <strong>of</strong>added value to <strong>the</strong> Commissi<strong>on</strong>er‟s work, if that positi<strong>on</strong> will be designated as <strong>the</strong>overall focal po<strong>in</strong>t with<strong>in</strong> <strong>the</strong> European Commissi<strong>on</strong>.For matters related to coord<strong>in</strong>ati<strong>on</strong>, research has revealed that severalmechanisms exist at <strong>the</strong> EU level <strong>and</strong> could facilitate coord<strong>in</strong>ati<strong>on</strong> for mattersrelated to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD by <strong>the</strong> EU. Such mechanisms<strong>in</strong>volve, for example, <strong>the</strong> Inter-Service Group <strong>of</strong> Disability (ISGD), which couldfacilitate coord<strong>in</strong>ati<strong>on</strong> am<strong>on</strong>g <strong>the</strong> DGs <strong>of</strong> <strong>the</strong> European Commissi<strong>on</strong>; <strong>and</strong> <strong>the</strong> HighLevel Group <strong>on</strong> Disability (HLGD), which could facilitate coord<strong>in</strong>ati<strong>on</strong> between <strong>the</strong>EU <strong>and</strong> its Member States, <strong>and</strong> am<strong>on</strong>g <strong>the</strong> Member States <strong>of</strong> <strong>the</strong> EU. Similar to <strong>the</strong>HLGD, <strong>the</strong> EU could use <strong>the</strong> Open Method <strong>of</strong> Coord<strong>in</strong>ati<strong>on</strong> (OMC), or couldPage | 13
c<strong>on</strong>sider <strong>the</strong> development <strong>of</strong> a European Pact <strong>on</strong> Equal Rights <strong>of</strong> Pers<strong>on</strong>s withDisabilities, as recently suggested by <strong>the</strong> European Disability Forum. No matterwhat <strong>the</strong> f<strong>in</strong>al choice, <strong>the</strong> EU should carefully review exist<strong>in</strong>g mechanisms <strong>and</strong>, ifnecessary, modify <strong>the</strong>m <strong>in</strong> order to ensure effective coord<strong>in</strong>ati<strong>on</strong> at all levels. Itshould also be noted, that research <strong>in</strong> this area did not identify a mechanism thatwould ensure effective coord<strong>in</strong>ati<strong>on</strong> between Commissi<strong>on</strong> DGs <strong>and</strong> o<strong>the</strong>r EU<strong>in</strong>stituti<strong>on</strong>s, such as <strong>the</strong> Parliament <strong>and</strong> <strong>the</strong> Council. Therefore, <strong>the</strong>re is a need forfur<strong>the</strong>r research <strong>in</strong> this respect.For matters related to <strong>the</strong> establishment <strong>of</strong> a „framework‟ to „promote, protect <strong>and</strong>m<strong>on</strong>itor‟ implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD, research has revealed that <strong>the</strong>re is nos<strong>in</strong>gle EU body with <strong>the</strong> adequate m<strong>and</strong>ate to effectively perform all <strong>the</strong> tasks setforth <strong>in</strong> Article 33(2) UN CRPD. Therefore, <strong>the</strong> EU should c<strong>on</strong>sider <strong>the</strong>establishment <strong>of</strong> a creative „mix‟ <strong>of</strong> <strong>in</strong>stituti<strong>on</strong>s, bodies, <strong>and</strong> agencies for mattersrelated to Article 33(2) UN CRPD. For <strong>the</strong> purposes <strong>of</strong> such a „mix‟ <strong>of</strong> EUorganisati<strong>on</strong>s, this study reviewed several opti<strong>on</strong>s (<strong>the</strong> Fundamental Rights Agency,<strong>the</strong> European Ombudsman <strong>and</strong> <strong>the</strong> European Courts) <strong>and</strong> identified that exist<strong>in</strong>gstructures do not fulfil requirements such as <strong>in</strong>dependence, <strong>and</strong> <strong>the</strong>refore may posecritical challenges to <strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> obligati<strong>on</strong>s to „promote,m<strong>on</strong>itor <strong>and</strong> protect‟ implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD.Recommendati<strong>on</strong>s for nati<strong>on</strong>al <strong>and</strong> EU policy makersBased <strong>on</strong> <strong>the</strong> aforementi<strong>on</strong>ed f<strong>in</strong>d<strong>in</strong>gs <strong>and</strong> <strong>the</strong> obligati<strong>on</strong>s deriv<strong>in</strong>g from <strong>the</strong> UNC<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities, this study suggests <strong>the</strong> follow<strong>in</strong>g<strong>good</strong> <strong>practices</strong> for EU <strong>and</strong> nati<strong>on</strong>al policy-makers for <strong>the</strong> future <strong>and</strong> overallimplementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>and</strong> <strong>the</strong> effective achievement <strong>of</strong> its objectives.• Use <strong>the</strong> process <strong>of</strong> ratificati<strong>on</strong> to raise awareness <strong>and</strong> promote underst<strong>and</strong><strong>in</strong>g <strong>of</strong><strong>the</strong> UN CRPD. To this end, <strong>the</strong> text <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> should be widelydissem<strong>in</strong>ated <strong>in</strong> nati<strong>on</strong>al languages 2 <strong>and</strong> accessible formats to all <strong>in</strong>terested parties(all governmental departments, pers<strong>on</strong>s with disabilities <strong>and</strong> <strong>the</strong>ir representativeorganisati<strong>on</strong>s, NGOs, political parties, <strong>the</strong> judiciary, academia, <strong>and</strong> o<strong>the</strong>rs).• Avoid, where at all possible, <strong>the</strong> use <strong>of</strong> reservati<strong>on</strong>s, <strong>in</strong>terpretative declarati<strong>on</strong>s or„explanatory memor<strong>and</strong>ums‟, as <strong>the</strong>y may dim<strong>in</strong>ish <strong>the</strong> scope <strong>of</strong> protecti<strong>on</strong> affordedby <strong>the</strong> UN CRPD. Where parties to <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> determ<strong>in</strong>e that a reservati<strong>on</strong> to2 It should be noted that as <strong>the</strong> text <strong>of</strong> <strong>the</strong> UN CRPD was annexed <strong>in</strong> Council Decisi<strong>on</strong> 2010/48/ECc<strong>on</strong>cern<strong>in</strong>g <strong>the</strong> c<strong>on</strong>clusi<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> by <strong>the</strong> European Community, it has been translated <strong>in</strong>to allEU languages by <strong>the</strong> Commissi<strong>on</strong> <strong>and</strong> is available at: http://eurlex.europa.eu/JOHtml.do?uri=OJ:L:2010:023:SOM:EN:HTMLPage | 14
<strong>the</strong> UN CRPD is unavoidable, <strong>the</strong>y should endeavour to withdraw <strong>the</strong> reservati<strong>on</strong>, iffeasible, at <strong>the</strong> earliest possible opportunity. 3• As part <strong>of</strong> <strong>the</strong> UN CRPD implementati<strong>on</strong> process, <strong>and</strong> as a matter <strong>of</strong> first priority,<strong>the</strong> EU <strong>and</strong> Member States should c<strong>on</strong>duct a comprehensive „screen<strong>in</strong>g exercise‟<strong>of</strong> EU <strong>and</strong> nati<strong>on</strong>al legislati<strong>on</strong> <strong>and</strong>, if necessary, should modify or abolish exist<strong>in</strong>g<strong>in</strong>struments <strong>in</strong> order to ensure full compliance with <strong>the</strong> UN CRPD. Such a„screen<strong>in</strong>g exercise‟ should be horiz<strong>on</strong>tal <strong>in</strong> order to ensure that all legislati<strong>on</strong>,policies <strong>and</strong> programmes are reviewed <strong>and</strong> evaluated, <strong>and</strong> should c<strong>on</strong>sider <strong>the</strong>C<strong>on</strong>venti<strong>on</strong> not <strong>on</strong>ly article by article, but also holistically, recognis<strong>in</strong>g <strong>the</strong><strong>in</strong>terdependence <strong>and</strong> <strong>in</strong>divisibility <strong>of</strong> human rights. In <strong>the</strong> process <strong>of</strong> <strong>the</strong> „screen<strong>in</strong>gexercise‟ <strong>the</strong> EU <strong>and</strong> Member States should seek <strong>and</strong> facilitate <strong>the</strong> mean<strong>in</strong>gfulc<strong>on</strong>tributi<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>and</strong> <strong>the</strong>ir representative organisati<strong>on</strong>s. Theoutcomes <strong>of</strong> <strong>the</strong> screen<strong>in</strong>g process should be made publicly available <strong>and</strong>dissem<strong>in</strong>ated <strong>in</strong> accessible formats.• Any draft legislati<strong>on</strong>, or amendments to exist<strong>in</strong>g legislati<strong>on</strong>, or adm<strong>in</strong>istrativeregulati<strong>on</strong>s designed to br<strong>in</strong>g laws <strong>in</strong>to alignment with <strong>the</strong> UN CRPD should be <strong>the</strong>subject <strong>of</strong> fur<strong>the</strong>r c<strong>on</strong>sultati<strong>on</strong> with pers<strong>on</strong>s with disabilities <strong>and</strong> <strong>the</strong>ir representativeorganisati<strong>on</strong>s <strong>and</strong> o<strong>the</strong>r <strong>in</strong>terested parties (e.g. employers, teachers, legaloperators, eng<strong>in</strong>eers or o<strong>the</strong>rs). To this end, <strong>the</strong> EU <strong>and</strong> Member States shouldfollow participatory decisi<strong>on</strong>-mak<strong>in</strong>g processes.• For any draft legislati<strong>on</strong>, or amendments to exist<strong>in</strong>g legislati<strong>on</strong>, or adm<strong>in</strong>istrativeregulati<strong>on</strong>s, <strong>the</strong> EU <strong>and</strong> Member States should take <strong>in</strong>to account obligati<strong>on</strong>sderiv<strong>in</strong>g from <strong>the</strong> paradigm shift, <strong>and</strong> article <strong>of</strong> general <strong>and</strong> cross-cutt<strong>in</strong>gnature (i.e. Articles 3, 4, 5, 6, 7 <strong>and</strong> 9 <strong>of</strong> <strong>the</strong> UN CRPD).• The EU <strong>and</strong> Member States should ensure that all legislati<strong>on</strong> <strong>and</strong> policy spr<strong>in</strong>gsfrom <strong>the</strong> social model <strong>of</strong> disability, <strong>and</strong> should thus be reflected <strong>in</strong> <strong>the</strong> overallstatement <strong>of</strong> guid<strong>in</strong>g pr<strong>in</strong>ciples for law <strong>and</strong> policy reform or development. As EUlegislati<strong>on</strong> is implicitly based <strong>on</strong> a rights-based approach to disability, it issuggested for <strong>the</strong> EU to lead by example or use s<strong>of</strong>t law measures (such ascommunicati<strong>on</strong>s, guidel<strong>in</strong>es etc) <strong>in</strong> order to provide guidance for <strong>the</strong> MemberStates <strong>on</strong> how to approach disability, <strong>and</strong> effectively implement <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong>equal treatment <strong>and</strong> equality <strong>of</strong> opportunity.• If <strong>the</strong> word<strong>in</strong>g <strong>of</strong> EU or nati<strong>on</strong>al legislati<strong>on</strong> is open to more than <strong>on</strong>e <strong>in</strong>terpretati<strong>on</strong>,<strong>the</strong> EU <strong>and</strong> Member States should adhere, as far as possible, to <strong>the</strong> <strong>in</strong>terpretati<strong>on</strong>that renders <strong>the</strong> provisi<strong>on</strong> most c<strong>on</strong>sistent with <strong>the</strong> UN CRPD. Therefore, all EU3 For fur<strong>the</strong>r <strong>in</strong>formati<strong>on</strong> <strong>on</strong> reservati<strong>on</strong>s, please go to Secti<strong>on</strong> 1.1.3 <strong>of</strong> this report.Page | 15
<strong>and</strong> nati<strong>on</strong>al governmental <strong>in</strong>stituti<strong>on</strong>s, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> judiciary (EU <strong>and</strong> nati<strong>on</strong>alCourts), should apply EU <strong>and</strong> nati<strong>on</strong>al law <strong>in</strong> a manner that is most c<strong>on</strong>sistent with<strong>the</strong> UN CRPD. To this end, both <strong>the</strong> EU <strong>and</strong> Member States should organise <strong>and</strong>provide appropriate tra<strong>in</strong><strong>in</strong>g <strong>of</strong> public servants, <strong>in</strong>clud<strong>in</strong>g judiciary staff, <strong>on</strong> <strong>the</strong> rightsrecognised <strong>in</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>and</strong> obligati<strong>on</strong>s deriv<strong>in</strong>g from it. 4• The EU <strong>and</strong> Member States should ensure that legislati<strong>on</strong> (EU or nati<strong>on</strong>al) does notlimit <strong>the</strong> scope <strong>of</strong> <strong>the</strong> duty to provide reas<strong>on</strong>able accommodati<strong>on</strong>. The provisi<strong>on</strong><strong>of</strong> reas<strong>on</strong>able accommodati<strong>on</strong> is a necessary measure to promote equality, <strong>and</strong><strong>the</strong>refore its applicati<strong>on</strong> should not be limited to <strong>the</strong> c<strong>on</strong>text <strong>of</strong> employment. Itshould thus be extended to all areas <strong>of</strong> social, political, civil <strong>and</strong> ec<strong>on</strong>omic lifecovered by <strong>the</strong> prohibiti<strong>on</strong> <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong>. Importantly, both nati<strong>on</strong>al as well as EUn<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> legislati<strong>on</strong> should clearly provide that <strong>the</strong> unjustified denial <strong>of</strong>reas<strong>on</strong>able accommodati<strong>on</strong> is a form <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong>.• Equality legislati<strong>on</strong> should foresee <strong>the</strong> adopti<strong>on</strong> <strong>of</strong> positive measures required topromote de facto equality <strong>of</strong> pers<strong>on</strong>s with disabilities, <strong>in</strong> c<strong>on</strong>formity with Article 5(4)UN CRPD.• The EU <strong>and</strong> Member States should explicitly address <strong>the</strong> issue <strong>of</strong> multiplediscrim<strong>in</strong>ati<strong>on</strong><strong>in</strong> c<strong>on</strong>formity with <strong>the</strong> general pr<strong>in</strong>ciples <strong>and</strong> Articles 6 <strong>and</strong> 7 <strong>of</strong> <strong>the</strong>UN CRPD. As multiple-discrim<strong>in</strong>ati<strong>on</strong> is a fairly new topic <strong>in</strong> <strong>the</strong> area <strong>of</strong> n<strong>on</strong>discrim<strong>in</strong>ati<strong>on</strong>,it is suggested for <strong>the</strong> EU <strong>and</strong> Member States to launch researchactivities with <strong>the</strong> aim to identify how a legal prohibiti<strong>on</strong> <strong>of</strong> multiple-discrim<strong>in</strong>ati<strong>on</strong>could be framed <strong>in</strong> order to fully achieve <strong>the</strong> objectives set forth <strong>in</strong> <strong>the</strong> UN CRPD.• For matters related to general accessibility, it is suggested for <strong>the</strong> EU <strong>and</strong> <strong>the</strong>Member States to work <strong>in</strong> close cooperati<strong>on</strong> <strong>in</strong> order to ensure that <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong>accessibility applies to all policy sectors (employment, educati<strong>on</strong>, transport, ICT,justice etc) <strong>and</strong> that adequate accessibility requirements <strong>and</strong> st<strong>and</strong>ards areestablished.Accessibility measures should also <strong>in</strong>clude a clear timeframe for c<strong>on</strong>formity,<strong>in</strong>dicate <strong>the</strong> nature <strong>of</strong> <strong>in</strong>terventi<strong>on</strong>s <strong>in</strong> cases <strong>of</strong> n<strong>on</strong>-compliance (e.g. f<strong>in</strong>ancialsancti<strong>on</strong>), <strong>and</strong> be applied <strong>in</strong> both urban <strong>and</strong> rural areas.It is also suggested for <strong>the</strong> EU <strong>and</strong> Member States to approach accessibility as an<strong>in</strong>vestment that will positively c<strong>on</strong>tribute to <strong>the</strong> <strong>in</strong>ternal market. Any measure thatencourages <strong>the</strong> development <strong>of</strong> universally designed <strong>good</strong>s, services, equipment4 It should be noted that <strong>in</strong> 2009, <strong>the</strong> Commissi<strong>on</strong> committed to fund under PROGRESS tra<strong>in</strong><strong>in</strong>gsem<strong>in</strong>ars for legal <strong>and</strong> policy practiti<strong>on</strong>ers <strong>on</strong> <strong>the</strong> UN C<strong>on</strong>venti<strong>on</strong> <strong>of</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s withDisabilities. Such tra<strong>in</strong><strong>in</strong>gs are expected to be realised with<strong>in</strong> 2011. More <strong>in</strong>formati<strong>on</strong> is available at:http://ec.europa.eu/social/ma<strong>in</strong>.jsp?catId=658&langId=enPage | 16
<strong>and</strong> facilities would reduce, or avoid, <strong>the</strong> costs <strong>of</strong> <strong>the</strong> subsequent dismantl<strong>in</strong>g <strong>of</strong>physical barriers as accessibility issues would be c<strong>on</strong>sidered from <strong>the</strong> outset.• The Member States <strong>of</strong> <strong>the</strong> EU should reform legislati<strong>on</strong> <strong>in</strong> order to abolishrestrictive guardianship laws <strong>and</strong> policies, <strong>in</strong> compliance with Article 12 UNCRPD. To this end, Member States should also take measures to ensure accessfor pers<strong>on</strong>s with disabilities to supported decisi<strong>on</strong>-mak<strong>in</strong>g. In additi<strong>on</strong>, MemberStates which, <strong>in</strong> l<strong>in</strong>e with Article 12 UN CRPD, provide for <strong>the</strong> appo<strong>in</strong>tment <strong>of</strong>assistants to support pers<strong>on</strong>s with disabilities <strong>in</strong> decisi<strong>on</strong>-mak<strong>in</strong>g, should establisheffective safeguards to ensure that such assistants do not exceed <strong>the</strong>ir duties <strong>and</strong>displace <strong>the</strong> legal capacity <strong>of</strong> <strong>the</strong> pers<strong>on</strong> <strong>the</strong>y are assist<strong>in</strong>g.• The Member States <strong>of</strong> <strong>the</strong> EU should implement direct payment or <strong>in</strong>dividualisedfund<strong>in</strong>g schemes to allow pers<strong>on</strong>s with disabilities to manage <strong>the</strong>ir own lives, asrequired by Article 19 UN CRPD. Such schemes should be accessible to allpers<strong>on</strong>s with disabilities. Member States should also establish community basedservices, which should be adequately funded <strong>and</strong> sufficiently resourced for <strong>the</strong>provisi<strong>on</strong> <strong>of</strong> <strong>the</strong> required hours <strong>of</strong> pers<strong>on</strong>al assistance to support <strong>the</strong> liv<strong>in</strong>g needs<strong>and</strong> <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> all aspects <strong>of</strong> society. Importantly,Member States should shift <strong>the</strong>ir focus from improv<strong>in</strong>g <strong>in</strong>stituti<strong>on</strong>al care torelocat<strong>in</strong>g <strong>the</strong> residents <strong>of</strong> such <strong>in</strong>stituti<strong>on</strong>s <strong>in</strong>to <strong>the</strong> community.With regards to <strong>the</strong> EU, sec<strong>on</strong>dary legislati<strong>on</strong> should ensure that any <strong>in</strong>direct taxreliefs for <strong>good</strong>s <strong>and</strong> services, or any fund<strong>in</strong>g to be given, should encourage <strong>and</strong>promote pers<strong>on</strong>s with disabilities‟ <strong>in</strong>dependent liv<strong>in</strong>g, <strong>and</strong> should not support anyresidential, medical, or o<strong>the</strong>r <strong>in</strong>stituti<strong>on</strong> that restricts <strong>the</strong> aut<strong>on</strong>omy <strong>of</strong> pers<strong>on</strong>s withdisabilities.• For matters related to employment, <strong>and</strong> besides <strong>the</strong> applicati<strong>on</strong> <strong>of</strong> <strong>the</strong> equalitypr<strong>in</strong>ciple, it is suggested for <strong>the</strong> EU <strong>and</strong> <strong>the</strong> Member States to develop a comm<strong>on</strong>strategy to promote equal opportunities <strong>and</strong> combat <strong>the</strong> unemployment <strong>of</strong> pers<strong>on</strong>swith disabilities.• For matters related to educati<strong>on</strong>, EU Member States should ensure that legislati<strong>on</strong><strong>and</strong> policy respect <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities to be educated <strong>in</strong> an<strong>in</strong>clusive educati<strong>on</strong> system, which guarantees a comm<strong>on</strong> learn<strong>in</strong>genvir<strong>on</strong>ment for all pers<strong>on</strong>s with disabilities al<strong>on</strong>gside those without disabilities.• For matters related to <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities to fully participate <strong>in</strong> allaspects <strong>of</strong> <strong>the</strong> political <strong>and</strong> public life, EU Member States should ensure thatlegislati<strong>on</strong> <strong>and</strong> policy take <strong>in</strong>to account <strong>the</strong> general pr<strong>in</strong>ciple <strong>of</strong> accessibility, <strong>and</strong>address <strong>the</strong> needs <strong>of</strong> all pers<strong>on</strong>s with disabilities.Page | 17
• The EU <strong>and</strong> its Member States should ensure that disability specific data <strong>and</strong>statistics are compiled <strong>and</strong> disaggregated, as appropriate, to support policydevelopment <strong>and</strong> m<strong>on</strong>itor<strong>in</strong>g related to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD. In thisrespect, exist<strong>in</strong>g methodological tools should be tested, <strong>and</strong> if necessary should bemodified, with <strong>the</strong> aim to ensure <strong>the</strong>ir suitability for matters covered by <strong>the</strong>C<strong>on</strong>venti<strong>on</strong>.• The EU <strong>and</strong> its Member States should ensure that <strong>the</strong>ir <strong>in</strong>ternati<strong>on</strong>aldevelopment programmes respect <strong>the</strong> pr<strong>in</strong>ciples set forth <strong>in</strong> <strong>the</strong> UN CRPD, <strong>and</strong>promote <strong>the</strong> rights <strong>of</strong> all pers<strong>on</strong>s with disabilities, as required by Article 32 UNCRPD.• The EU <strong>and</strong> Member States should designate <strong>on</strong>e (or more) focal po<strong>in</strong>t(s) with<strong>in</strong><strong>the</strong>ir governments for all matters relat<strong>in</strong>g to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong><strong>and</strong> Article 33(1) UN CRPD. The focal po<strong>in</strong>t should be placed at <strong>the</strong> highest level<strong>of</strong> executive authority to guarantee <strong>the</strong> ma<strong>in</strong>stream impact <strong>of</strong> its work, <strong>and</strong> <strong>the</strong>status <strong>of</strong> its recommendati<strong>on</strong>s, while also serv<strong>in</strong>g as a permanent rem<strong>in</strong>der that <strong>the</strong>rights <strong>of</strong> pers<strong>on</strong>s with disabilities need to be respected <strong>in</strong> all areas <strong>of</strong> government.• The EU <strong>and</strong> Member States should c<strong>on</strong>sider <strong>the</strong> establishment or designati<strong>on</strong> <strong>of</strong> acoord<strong>in</strong>ati<strong>on</strong> mechanism at government level to facilitate <strong>the</strong> c<strong>on</strong>sistency <strong>of</strong>related acti<strong>on</strong>s <strong>in</strong> different sectors <strong>and</strong> at different levels, <strong>in</strong> accordance with Article33(1) UN CRPD.As <strong>the</strong> UN CRPD is a „mixed agreement‟, to which both <strong>the</strong> EU <strong>and</strong> its MemberStates are parties, Member States are subject to a duty <strong>of</strong> loyal cooperati<strong>on</strong>between <strong>the</strong>mselves <strong>and</strong> <strong>the</strong> EU (Article 4.3 TEU). In o<strong>the</strong>r words, <strong>the</strong> fieldscovered by <strong>the</strong> UN CRPD fall <strong>in</strong> part with<strong>in</strong> <strong>the</strong> EU competence, <strong>in</strong> part with<strong>in</strong> that<strong>of</strong> <strong>the</strong> Member States, <strong>and</strong> <strong>in</strong> part with<strong>in</strong> <strong>the</strong> shared competence <strong>of</strong> <strong>the</strong> EU <strong>and</strong> itsMember States. It is <strong>the</strong>refore essential for <strong>the</strong> EU <strong>and</strong> <strong>the</strong> Member States toclosely cooperate <strong>in</strong> order to implement legislati<strong>on</strong> stemm<strong>in</strong>g from <strong>the</strong> C<strong>on</strong>venti<strong>on</strong><strong>in</strong> a coherent manner <strong>and</strong> to ensure unity <strong>in</strong> <strong>the</strong> <strong>in</strong>ternati<strong>on</strong>al representati<strong>on</strong> <strong>of</strong> <strong>the</strong>Uni<strong>on</strong>. To this end, any coord<strong>in</strong>ati<strong>on</strong> mechanism to be established by <strong>the</strong> EU <strong>and</strong><strong>the</strong> Member States should take <strong>in</strong>to account <strong>the</strong> necessity to coord<strong>in</strong>ate acti<strong>on</strong>sbetween nati<strong>on</strong>al <strong>and</strong> EU levels.• The EU <strong>and</strong> Member States should, <strong>in</strong> accordance with <strong>the</strong>ir legal <strong>and</strong>adm<strong>in</strong>istrative systems, designate or establish a „framework‟ for all matters relatedto <strong>the</strong> UN CRPD. The framework‟s m<strong>and</strong>ate should be to „promote, protect <strong>and</strong>m<strong>on</strong>itor‟ <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD. Such a framework should <strong>in</strong>clude<strong>on</strong>e or more <strong>in</strong>dependent mechanisms, which should comply with <strong>the</strong> ParisPr<strong>in</strong>ciples.Page | 18
Structure <strong>of</strong> this report:This report presents <strong>the</strong> f<strong>in</strong>d<strong>in</strong>gs <strong>of</strong> <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g> <strong>on</strong> <strong>Challenges</strong> <strong>and</strong> Good Practices <strong>in</strong> <strong>the</strong>Implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> United Nati<strong>on</strong>s C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s withDisabilities (here<strong>in</strong>after referred to as <strong>the</strong> UN CRPD or <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>).The ma<strong>in</strong> objective <strong>of</strong> <strong>the</strong> study is to analyse <strong>the</strong> obligati<strong>on</strong>s set out <strong>in</strong> <strong>the</strong> UN CRPD<strong>and</strong>, <strong>in</strong> particular, to ga<strong>the</strong>r <strong>in</strong>formati<strong>on</strong> about <strong>the</strong> various <strong>practices</strong> <strong>of</strong> <strong>the</strong> EU MemberStates <strong>and</strong> <strong>the</strong> European Uni<strong>on</strong> <strong>in</strong> implement<strong>in</strong>g <strong>the</strong> UN CRPD. The goal <strong>of</strong> <strong>the</strong> studyis to identify challenges <strong>and</strong> measures to facilitate <strong>the</strong> achievement <strong>of</strong> <strong>the</strong> UN CRPDobjectives („<strong>good</strong> <strong>practices</strong>‟). The purpose <strong>of</strong> <strong>the</strong> study is to provide help <strong>and</strong> l<strong>on</strong>g-termguidance for <strong>the</strong> EU Member States, <strong>the</strong> European Uni<strong>on</strong> <strong>and</strong> various stakeholders.The work was carried out by <strong>the</strong> European Foundati<strong>on</strong> Centre (EFC) 5 represent<strong>in</strong>g <strong>the</strong>European C<strong>on</strong>sortium <strong>of</strong> Foundati<strong>on</strong>s <strong>on</strong> Human Rights <strong>and</strong> Disability 6 for <strong>the</strong>European Commissi<strong>on</strong>‟s Directorate-General for Employment, Social Affairs <strong>and</strong> EqualOpportunities (DG EMPL), under <strong>the</strong> C<strong>on</strong>tract n o VC/2008/1214. The views c<strong>on</strong>ta<strong>in</strong>ed<strong>in</strong> this report do not necessarily reflect <strong>the</strong> positi<strong>on</strong> or op<strong>in</strong>i<strong>on</strong> <strong>of</strong> <strong>the</strong> EuropeanCommissi<strong>on</strong>, or <strong>the</strong> views <strong>of</strong> all <strong>the</strong> <strong>in</strong>dividuals <strong>in</strong>volved <strong>in</strong> this study.Secti<strong>on</strong> 1 <strong>of</strong> this report sets <strong>the</strong> appropriate background for <strong>the</strong> analysis that willfollow.Secti<strong>on</strong> 2 <strong>of</strong> this report provides an overview <strong>and</strong> general recommendati<strong>on</strong>s <strong>on</strong> <strong>the</strong>implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> social model <strong>of</strong> disability, <strong>and</strong> core obligati<strong>on</strong>s deriv<strong>in</strong>g fromArticle 1 <strong>and</strong> preambular paragraph (e) <strong>of</strong> <strong>the</strong> UN CRPD.Secti<strong>on</strong> 3 <strong>of</strong> this report provides an overview <strong>and</strong> general recommendati<strong>on</strong>s <strong>on</strong> <strong>the</strong>implementati<strong>on</strong> <strong>of</strong> Article 3 (General Pr<strong>in</strong>ciples), Article 4 (General Obligati<strong>on</strong>s), Article5 (Equality <strong>and</strong> N<strong>on</strong>-Discrim<strong>in</strong>ati<strong>on</strong>), <strong>and</strong> Article 9 (Accessibility) <strong>of</strong> <strong>the</strong> UN CRPD. Thesecti<strong>on</strong> also reviews UN CRPD articles <strong>on</strong> <strong>in</strong>ter-secti<strong>on</strong>ality, namely Articles 6 (Womenwith disabilities) <strong>and</strong> Article 7 (Children with disability). It is worth not<strong>in</strong>g that <strong>the</strong>articles addressed <strong>in</strong> this secti<strong>on</strong> are articles <strong>of</strong> general <strong>and</strong> cross-cutt<strong>in</strong>g applicati<strong>on</strong>5 The European Foundati<strong>on</strong> Centre is an <strong>in</strong>ternati<strong>on</strong>al associati<strong>on</strong> <strong>of</strong> foundati<strong>on</strong>s <strong>and</strong> corporate fundersdedicated to creat<strong>in</strong>g an enabl<strong>in</strong>g legal <strong>and</strong> fiscal envir<strong>on</strong>ment <strong>of</strong> foundati<strong>on</strong>s, streng<strong>the</strong>n<strong>in</strong>g <strong>the</strong><strong>in</strong>frastructure <strong>of</strong> <strong>the</strong> sector, document<strong>in</strong>g <strong>the</strong> foundati<strong>on</strong> l<strong>and</strong>scape, <strong>and</strong> promot<strong>in</strong>g collaborati<strong>on</strong>, botham<strong>on</strong>g foundati<strong>on</strong>s <strong>and</strong> between <strong>the</strong> foundati<strong>on</strong>s <strong>and</strong> o<strong>the</strong>r actors, to advance <strong>the</strong> public <strong>good</strong> <strong>in</strong> Europe<strong>and</strong> bey<strong>on</strong>d. Fur<strong>the</strong>r <strong>in</strong>formati<strong>on</strong> is available: www.efc.be6 Established <strong>in</strong> 2009, <strong>the</strong> EFC European C<strong>on</strong>sortium <strong>of</strong> Foundati<strong>on</strong>s <strong>on</strong> Human Rights <strong>and</strong> Disabilitybr<strong>in</strong>gs toge<strong>the</strong>r funders <strong>and</strong> o<strong>the</strong>r stakeholders committed to promot<strong>in</strong>g implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UNC<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities. Fur<strong>the</strong>r <strong>in</strong>formati<strong>on</strong> is available at:www.efc.be/dig/c<strong>on</strong>sortiumPage | 19
<strong>and</strong> <strong>the</strong>refore <strong>the</strong>ir applicati<strong>on</strong> is relevant for <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> all articles <strong>of</strong> <strong>the</strong>C<strong>on</strong>venti<strong>on</strong>.Secti<strong>on</strong> 4 <strong>of</strong> this report provides an overview <strong>and</strong> general recommendati<strong>on</strong>s <strong>on</strong> <strong>the</strong>implementati<strong>on</strong> <strong>of</strong> selected substantive provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> UN CRPD that apply exist<strong>in</strong>gcivil, political, ec<strong>on</strong>omic, social <strong>and</strong> cultural rights with<strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong> disability.Specifically, <strong>the</strong> secti<strong>on</strong> c<strong>on</strong>siders <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> Articles 16 (freedom fromexploitati<strong>on</strong>, violence <strong>and</strong> abuse) <strong>and</strong> 17 (protect<strong>in</strong>g <strong>the</strong> <strong>in</strong>tegrity <strong>of</strong> <strong>the</strong> pers<strong>on</strong>) whichare seek<strong>in</strong>g to assert protecti<strong>on</strong>s that underscore <strong>the</strong> humanity <strong>of</strong> all pers<strong>on</strong>s withdisabilities. The secti<strong>on</strong> also c<strong>on</strong>siders <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> Articles 12 (equalrecogniti<strong>on</strong> before <strong>the</strong> law) <strong>and</strong> 19 (<strong>in</strong>dependent liv<strong>in</strong>g), both <strong>of</strong> which aim atma<strong>in</strong>ta<strong>in</strong><strong>in</strong>g <strong>and</strong> safeguard<strong>in</strong>g <strong>the</strong> aut<strong>on</strong>omy <strong>of</strong> <strong>the</strong> pers<strong>on</strong>. Fur<strong>the</strong>rmore, articles <strong>on</strong>specific accessibility rights, namely Article 13 (access to justice) <strong>and</strong> Article 29(participati<strong>on</strong> <strong>in</strong> political <strong>and</strong> public life), are likewise addressed. F<strong>in</strong>ally, <strong>the</strong> secti<strong>on</strong>c<strong>on</strong>siders <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> Articles 24 (educati<strong>on</strong>) <strong>and</strong> 27 (work <strong>and</strong>employment).Secti<strong>on</strong> 5 <strong>of</strong> this report c<strong>on</strong>ta<strong>in</strong>s an overview <strong>and</strong> general recommendati<strong>on</strong>s <strong>on</strong> <strong>the</strong>implementati<strong>on</strong> <strong>of</strong> articles that outl<strong>in</strong>e steps that are necessary to support reforms.Specifically, <strong>the</strong> secti<strong>on</strong> c<strong>on</strong>siders <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> Article 31 (statistics <strong>and</strong> datacollecti<strong>on</strong>), Article 32 (<strong>in</strong>ternati<strong>on</strong>al cooperati<strong>on</strong>), <strong>and</strong> Article 33 (nati<strong>on</strong>alimplementati<strong>on</strong> <strong>and</strong> m<strong>on</strong>itor<strong>in</strong>g).Secti<strong>on</strong> 6 <strong>of</strong> this report suggests <strong>good</strong> <strong>practices</strong> for <strong>the</strong> EU <strong>and</strong> nati<strong>on</strong>al policy-makersfor <strong>the</strong> future <strong>and</strong> overall implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>and</strong> <strong>the</strong> effectiveachievement <strong>of</strong> its objectives.F<strong>in</strong>ally, <strong>the</strong> follow<strong>in</strong>g Annexes accompany <strong>the</strong> f<strong>in</strong>d<strong>in</strong>gs <strong>of</strong> this study:• Annex I: Guidel<strong>in</strong>es for UN CRPD implementati<strong>on</strong>: a tool for State Partiesprogress assessment• Annex II: Nati<strong>on</strong>al key actors for <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD• Annex III: EU key actors for <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD• Annex IV: EU <strong>in</strong>struments listed <strong>in</strong> <strong>the</strong> Council Decisi<strong>on</strong> 2010/48/EC <strong>and</strong> giv<strong>in</strong>g<strong>the</strong> Uni<strong>on</strong> competence for matters related to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UNCRPDIt is worth not<strong>in</strong>g that, while it is hard to be def<strong>in</strong>itive, given that <strong>the</strong> UN Committee <strong>on</strong><strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities is still <strong>in</strong> its <strong>in</strong>fancy <strong>and</strong> has yet to pr<strong>on</strong>ounce <strong>on</strong><strong>the</strong> obligati<strong>on</strong>s <strong>of</strong> <strong>the</strong> UN CRPD, it is never<strong>the</strong>less possible <strong>on</strong> <strong>the</strong> basis <strong>of</strong> <strong>the</strong> generalpr<strong>in</strong>ciples <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>and</strong> <strong>in</strong>terpretative tools, such as <strong>the</strong> Vienna C<strong>on</strong>venti<strong>on</strong> <strong>on</strong>Page | 20
<strong>the</strong> Law <strong>of</strong> Treaties, 7 to identify illustrative challenges to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UNCRPD. For <strong>the</strong> purposes <strong>of</strong> this study, <strong>the</strong> review <strong>of</strong> EU <strong>and</strong> Member States policies<strong>and</strong> legal <strong>in</strong>struments is based <strong>on</strong> <strong>the</strong> analysis <strong>of</strong> <strong>the</strong> UN CRPD <strong>and</strong> checklists thatwere produced from this study to measure progress. 8F<strong>in</strong>ally, for <strong>the</strong> purposes <strong>of</strong> this study, a „challenge‟ is def<strong>in</strong>ed as a „difficulty‟ posed byexist<strong>in</strong>g nati<strong>on</strong>al or EU practice which may potentially hamper <strong>the</strong> full <strong>and</strong> effectiveimplementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD by <strong>the</strong> EU Member States <strong>and</strong>/or <strong>the</strong> EuropeanUni<strong>on</strong>. In order to meet such challenges it will be necessary <strong>in</strong>ter alia for <strong>the</strong> EU (asappropriate) 9 <strong>and</strong>/or its Member States to review legislati<strong>on</strong> <strong>and</strong>/or policy with a view t<strong>of</strong>ull compliance. On <strong>the</strong> o<strong>the</strong>r h<strong>and</strong>, a practice is def<strong>in</strong>ed as „<strong>good</strong>‟ if it fulfils certa<strong>in</strong>requirements <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> or ma<strong>in</strong>streams <strong>the</strong> general pr<strong>in</strong>ciples, c<strong>on</strong>sistent withArticle 3 <strong>of</strong> <strong>the</strong> UN CRPD, <strong>and</strong> has an awareness-rais<strong>in</strong>g impact.7 Vienna C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Law <strong>of</strong> Treaties, UN Doc A/CONF 39/38; UNTS 1155, 331, available at:http://untreaty.un.org/ilc/texts/<strong>in</strong>struments/english/c<strong>on</strong>venti<strong>on</strong>s/1_1_1969.pdf8 The checklists that this study has produced are available at Annex I <strong>of</strong> this report.9 For <strong>the</strong> particular situati<strong>on</strong> <strong>of</strong> <strong>the</strong> EU <strong>on</strong> issues related to '<strong>in</strong>ternati<strong>on</strong>al resp<strong>on</strong>sibility', please seesecti<strong>on</strong>s 1.2 <strong>and</strong> 3.2 <strong>of</strong> this report.Page | 21
1.0 Introducti<strong>on</strong>Secti<strong>on</strong> 1 is an <strong>in</strong>troductory secti<strong>on</strong> <strong>and</strong> aims to set <strong>the</strong> appropriate background for <strong>the</strong>analysis that will follow. The secti<strong>on</strong> briefly presents an overview <strong>of</strong> <strong>the</strong> UN CRPD <strong>and</strong>def<strong>in</strong>es its nature with<strong>in</strong> <strong>the</strong> European legal order with <strong>the</strong> aim to underst<strong>and</strong> <strong>the</strong> futureimpact <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> EU <strong>and</strong> its Member States.It should be noted that s<strong>in</strong>ce <strong>the</strong> UN CRPD has been signed by <strong>the</strong> EuropeanCommunity (now Uni<strong>on</strong>), <strong>and</strong> <strong>the</strong> decisi<strong>on</strong> to c<strong>on</strong>clude it has been taken under <strong>the</strong>Treaty establish<strong>in</strong>g <strong>the</strong> European Community (here<strong>in</strong>after referred to as <strong>the</strong> EC Treatyor TEC), this report will <strong>on</strong>ly refer to <strong>the</strong> EC Treaty. When relevant, references to <strong>the</strong>Treaty <strong>of</strong> Lisb<strong>on</strong> will be made (ma<strong>in</strong>ly <strong>in</strong> footnotes), but no thorough analysis will beprovided.As <strong>of</strong> 1 December 2009, due to <strong>the</strong> entry <strong>in</strong>to force <strong>of</strong> <strong>the</strong> Treaty <strong>of</strong> Lisb<strong>on</strong>, <strong>the</strong>European Uni<strong>on</strong> replaced <strong>and</strong> succeeded <strong>the</strong> European Community pursuant to Article1 <strong>of</strong> <strong>the</strong> Treaty <strong>on</strong> European Uni<strong>on</strong> (EU Treaty or TEU). 10 However, <strong>in</strong> <strong>the</strong> presentc<strong>on</strong>tributi<strong>on</strong>, <strong>the</strong> appropriate references to <strong>the</strong> “European Community” will be keptwhen referr<strong>in</strong>g to events, policies or competences relat<strong>in</strong>g to <strong>the</strong> period proceed<strong>in</strong>g 1December 2009. In all o<strong>the</strong>r general remarks as well as when writ<strong>in</strong>g about events,policies or competences relat<strong>in</strong>g to <strong>the</strong> period that follows 1 December 2009, <strong>the</strong> textwill refer to <strong>the</strong> “European Uni<strong>on</strong>”.1.1 The UN CRPD: an overviewThe United Nati<strong>on</strong>s C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities, <strong>and</strong> itsOpti<strong>on</strong>al Protocol were adopted <strong>in</strong> December 2006, <strong>and</strong> entered <strong>in</strong>to force <strong>on</strong> May 3 rd ,2008. The C<strong>on</strong>venti<strong>on</strong> is a l<strong>and</strong>mark piece <strong>of</strong> <strong>in</strong>ternati<strong>on</strong>al human rights law. Not <strong>on</strong>ly itis <strong>the</strong> first human rights treaty <strong>of</strong> <strong>the</strong> 21 st century, but it also represents <strong>the</strong> <strong>of</strong>ficialrecogniti<strong>on</strong> <strong>of</strong> disability as a human rights issue <strong>on</strong> <strong>the</strong> <strong>in</strong>ternati<strong>on</strong>al stage. The UNCRPD c<strong>on</strong>firms a radical shift <strong>of</strong> approach regard<strong>in</strong>g disability, from a medical/charitymodel to a human rights/social model.The UN CRPD provides a clear legal, moral <strong>and</strong> political roadmap for change. It coversa wide variety <strong>of</strong> fields <strong>and</strong> addresses a full range <strong>of</strong> human rights; civil, political,ec<strong>on</strong>omic, social <strong>and</strong> cultural rights. The UN CRPD does not <strong>in</strong>tend to create newrights. It merely seeks to clarify <strong>the</strong> applicability <strong>of</strong> exist<strong>in</strong>g human rights law <strong>in</strong> <strong>the</strong>10 See OJ C115, 9 May 2008, p. 16 available at: http://eurlex.europa.eu/JOHtml.do?uri=OJ:C:2008:115:SOM:en:HTMLPage | 22
specific c<strong>on</strong>text <strong>of</strong> disability. To this end, it tailors exist<strong>in</strong>g human rights law <strong>in</strong> <strong>the</strong>specific circumstances <strong>and</strong> obstacles faced by pers<strong>on</strong>s with disabilities.Unlike o<strong>the</strong>r <strong>in</strong>ternati<strong>on</strong>al <strong>in</strong>struments, <strong>the</strong> UN CRPD, by virtue <strong>of</strong> Article 44, allows forregi<strong>on</strong>al <strong>in</strong>tegrati<strong>on</strong> organisati<strong>on</strong>s (like <strong>the</strong> European Uni<strong>on</strong>), <strong>in</strong> additi<strong>on</strong> to States, tobecome Parties.Presently, 11 146 States have signed <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>, 90 States have ratified it <strong>and</strong> 89States have signed <strong>the</strong> Opti<strong>on</strong>al Protocol <strong>and</strong> 57 have ratified it. At <strong>the</strong> EU level, all 27Member States have signed <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>, <strong>and</strong> 16 have ratified it as well, whilst 21have signed <strong>the</strong> Protocol <strong>and</strong> 14 have ratified it. In additi<strong>on</strong> to <strong>the</strong> EU Member States,<strong>the</strong> European Uni<strong>on</strong> signed <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> (not <strong>the</strong> Opti<strong>on</strong>al Protocol) 12 <strong>on</strong> March 30 th ,2007, <strong>and</strong> <strong>on</strong> November 26 th , 2009 <strong>the</strong> Council <strong>of</strong> <strong>the</strong> European Uni<strong>on</strong> authorised <strong>the</strong>Uni<strong>on</strong> to c<strong>on</strong>clude <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. 13 The <strong>in</strong>strument <strong>of</strong> formal c<strong>on</strong>firmati<strong>on</strong> by <strong>the</strong> EUis foreseen to be deposited after a „Code <strong>of</strong> C<strong>on</strong>duct‟ 14 has been adopted between <strong>the</strong>EU <strong>and</strong> Members. This is <strong>the</strong> first time that <strong>the</strong> Uni<strong>on</strong> will become a party to acomprehensive <strong>in</strong>ternati<strong>on</strong>al human rights treaty.Figure 1 UN CRPD State <strong>of</strong> Play <strong>in</strong> <strong>the</strong> EU Member StatesMember StateUN CRPDOpti<strong>on</strong>al ProtocolSignature Ratificati<strong>on</strong> Signature Ratificati<strong>on</strong>Austria 30/03/2007 26/09/2008 30/03/2007 26/09/2008Belgium 30/03/2007 2/07/2009 30/03/2007 2/07/2009Bulgaria 27/09/2007 No 18/12/2008 NoCyprus 30/03/2007 No 30/03/2007 NoCzech Republic 30/03/2007 28/09/2009 30/03/2007 NoDenmark 30/03/2007 24/07/2009 No NoEst<strong>on</strong>ia 25/09/2007 No No NoF<strong>in</strong>l<strong>and</strong> 30/03/2007 No 30/03/2007 NoFrance 30/03/2007 18/02/2010 23/09/2008 18/02/2010Germany 30/03/2007 24/02/2009 30/03/2007 24/02/2009Greece 30/03/2007 No No NoHungary 30/03/2007 20/07/2007 30/03/2007 20/07/200711Situati<strong>on</strong> as <strong>of</strong> 23 September 2010. More <strong>in</strong>formati<strong>on</strong> is available at:http://treaties.un.org/Pages/ViewDetails.aspx?src=TREATY&mtdsg_no=IV-15&chapter=4&lang=en12 It should be noted that <strong>the</strong> Commissi<strong>on</strong> submitted <strong>in</strong> 2008 a proposal for a Council Decisi<strong>on</strong> <strong>on</strong> <strong>the</strong>ratificati<strong>on</strong> <strong>of</strong> <strong>the</strong> Opti<strong>on</strong>al Protocol by <strong>the</strong> EU; however <strong>the</strong> proposal is still under negotiati<strong>on</strong> <strong>and</strong> an<strong>of</strong>ficial decisi<strong>on</strong> is pend<strong>in</strong>g. See European Commissi<strong>on</strong> proposal COM (2008)530 Proposal for a CouncilDecisi<strong>on</strong> c<strong>on</strong>cern<strong>in</strong>g <strong>the</strong> c<strong>on</strong>clusi<strong>on</strong>, by <strong>the</strong> European Community, <strong>of</strong> <strong>the</strong> Opti<strong>on</strong>al Protocol to <strong>the</strong> UnitedNati<strong>on</strong>s C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities. The progress <strong>of</strong> <strong>the</strong> file can be m<strong>on</strong>itoredat: http://ec.europa.eu/prelex/detail_dossier_real.cfm?CL=en&DosId=19734913 Council Decisi<strong>on</strong> 2010/48/EC <strong>of</strong> 26 November 2009 c<strong>on</strong>cern<strong>in</strong>g <strong>the</strong> c<strong>on</strong>clusi<strong>on</strong>, by <strong>the</strong> EuropeanCommunity, <strong>of</strong> <strong>the</strong> United Nati<strong>on</strong>s C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities (2010/48/EC),available at: http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2010:023:0035:0061:EN:PDF14 The adopti<strong>on</strong> <strong>of</strong> a „Code <strong>of</strong> C<strong>on</strong>duct‟ is a requirement set forth <strong>in</strong> Articles 3 <strong>and</strong> 4 <strong>of</strong> Council Decisi<strong>on</strong>2010/48/EC.Page | 23
Irel<strong>and</strong> 30/03/2007 No No NoItaly 30/03/2007 15/05/2009 30/03/2007 15/05/2009Lithuania 30/03/2007 18/08/2010 30/03/2007 18/08/2010Latvia 18/07/2008 1/03/2010 22/01/2010 31/08/2010Luxemburg 30/03/2007 No 30/03/2007 NoMalta 30/03/2007 No 30/03/2007 NoThe Ne<strong>the</strong>rl<strong>and</strong>s 30/03/2007 No No NoPol<strong>and</strong> 30/03/2007 No No NoPortugal 30/03/2007 23/09/2009 30/03/2007 23/09/2009Romania 26/09/2007 No 25/09/2008 NoSlovak Republic 26/09/2007 26/05/2010 26/09/2007 26/05/2010Slovenia 30/03/2007 24/04/2008 30/03/2007 24/04/2008Spa<strong>in</strong> 30/03/2007 3/12/2007 30/03/2007 3/12/2007Sweden 30/03/2007 15/12/2008 30/03/2007 15/12/2008United K<strong>in</strong>gdom 30/03/2007 8/06/2009 26/02/2009 7/08/20091.1.1 UN CRPD Impetus <strong>and</strong> Rati<strong>on</strong>aleA major impetus for <strong>the</strong> elaborati<strong>on</strong> <strong>of</strong> an <strong>in</strong>ternati<strong>on</strong>al treaty <strong>on</strong> <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>swith disabilities was <strong>the</strong> persistence <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong> <strong>and</strong> marg<strong>in</strong>alisati<strong>on</strong> experiencedby disabled pers<strong>on</strong>s worldwide, coupled with <strong>the</strong> fact that no legally b<strong>in</strong>d<strong>in</strong>g<strong>in</strong>ternati<strong>on</strong>al <strong>in</strong>strument addressed disability rights with any specificity. Although <strong>the</strong>exist<strong>in</strong>g <strong>in</strong>ternati<strong>on</strong>al covenants <strong>and</strong> c<strong>on</strong>venti<strong>on</strong>s <strong>on</strong> human rights did <strong>the</strong>oreticallyapply to pers<strong>on</strong>s with disabilities, this did not always happen <strong>in</strong> practice. Moreover, asemphasised <strong>in</strong> <strong>the</strong> preamble to <strong>the</strong> UN CRPD, <strong>the</strong> isolati<strong>on</strong> experience by pers<strong>on</strong>s withdisabilities <strong>in</strong>hibits <strong>the</strong>ir mean<strong>in</strong>gful c<strong>on</strong>tributi<strong>on</strong> to <strong>the</strong>ir societies, <strong>the</strong>reby underm<strong>in</strong><strong>in</strong>gcommunity cohesi<strong>on</strong> <strong>and</strong> development. Accord<strong>in</strong>gly, a new UN „<strong>the</strong>matic‟ human rightstreaty <strong>on</strong> disability was deemed necessary.The m<strong>and</strong>ate accord<strong>in</strong>g to which <strong>the</strong> UN CRPD was negotiated <strong>and</strong> adopted by <strong>the</strong> UNGeneral Assembly provided for <strong>the</strong> applicability <strong>of</strong> exist<strong>in</strong>g human rights with<strong>in</strong> <strong>the</strong>c<strong>on</strong>text <strong>of</strong> disability. Significantly, <strong>the</strong>refore, <strong>the</strong> obligati<strong>on</strong>s set forth <strong>in</strong> <strong>the</strong> UN CRPDrepresent <strong>the</strong> applicati<strong>on</strong> <strong>of</strong> well-established <strong>and</strong> l<strong>on</strong>g-st<strong>and</strong><strong>in</strong>g human rightsobligati<strong>on</strong>s. The UN CRPD applies <strong>the</strong>se exist<strong>in</strong>g human rights obligati<strong>on</strong>s to <strong>the</strong>particular situati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities. In some circumstances, UN CRPDobligati<strong>on</strong>s represent a progressive development <strong>of</strong> those exist<strong>in</strong>g st<strong>and</strong>ards (e.g., <strong>the</strong>explicit <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> „reas<strong>on</strong>able accommodati<strong>on</strong>‟ as a core element <strong>of</strong> n<strong>on</strong>discrim<strong>in</strong>ati<strong>on</strong>);<strong>in</strong> o<strong>the</strong>r <strong>in</strong>stances, <strong>the</strong>y merely reassert such obligati<strong>on</strong>s <strong>and</strong> re<strong>in</strong>force<strong>the</strong>ir applicati<strong>on</strong> to pers<strong>on</strong>s with disabilities (e.g., right to life; freedom from torture).1.1.2 Structure <strong>of</strong> <strong>the</strong> UN CRPD <strong>and</strong> its Opti<strong>on</strong>al ProtocolPage | 24
The overall structure <strong>of</strong> <strong>the</strong> UN CRPD roughly corresp<strong>on</strong>ds to o<strong>the</strong>r human rightstreaties. The UN CRPD <strong>in</strong>cludes a comprehensive range <strong>of</strong> rights <strong>in</strong> relati<strong>on</strong> to pers<strong>on</strong>swith disabilities, although it also c<strong>on</strong>ta<strong>in</strong>s <strong>in</strong>novati<strong>on</strong>s go<strong>in</strong>g bey<strong>on</strong>d o<strong>the</strong>r <strong>in</strong>ternati<strong>on</strong>alhuman rights agreements.The text <strong>of</strong> <strong>the</strong> UN CRPD is comprised <strong>of</strong> twenty-five preambular paragraphs <strong>and</strong> fiftyarticles. It <strong>in</strong>cludes an <strong>in</strong>troductory set <strong>of</strong> provisi<strong>on</strong>s outl<strong>in</strong><strong>in</strong>g its purpose (Article 1) <strong>and</strong>key def<strong>in</strong>iti<strong>on</strong>s (Article 2), al<strong>on</strong>g with articles <strong>of</strong> general (cross-cutt<strong>in</strong>g) applicati<strong>on</strong>,to be applied across <strong>the</strong> treaty text (Articles 3 to 9). This is <strong>on</strong>e <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>‟s<strong>in</strong>novative features as n<strong>on</strong>e <strong>of</strong> <strong>the</strong> o<strong>the</strong>r core human rights c<strong>on</strong>venti<strong>on</strong>s c<strong>on</strong>ta<strong>in</strong> anexplicit provisi<strong>on</strong> enumerat<strong>in</strong>g general pr<strong>in</strong>ciples, although <strong>the</strong>se are comm<strong>on</strong>lyassociated with framework agreements <strong>in</strong> <strong>the</strong> <strong>in</strong>ternati<strong>on</strong>al envir<strong>on</strong>mental law realm.The UN CRPD also enumerates specific substantive rights elaborated across <strong>the</strong>full spectrum <strong>of</strong> civil, political, ec<strong>on</strong>omic, social <strong>and</strong> cultural rights (Articles 10 to 30).F<strong>in</strong>ally, it establishes a system <strong>of</strong> m<strong>on</strong>itor<strong>in</strong>g <strong>and</strong> implementati<strong>on</strong> (Articles 31 to 40)<strong>and</strong> <strong>in</strong>cludes f<strong>in</strong>al provisi<strong>on</strong>s that govern <strong>the</strong> operati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD (Articles 41 to50). Specially <strong>in</strong>novative for human rights treaties are <strong>the</strong> UN CRPD provisi<strong>on</strong>srequir<strong>in</strong>g close c<strong>on</strong>sultati<strong>on</strong> with <strong>and</strong> active <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities,<strong>in</strong>clud<strong>in</strong>g children with disabilities, through <strong>the</strong>ir representative organisati<strong>on</strong>s <strong>in</strong> <strong>the</strong>development <strong>and</strong> implementati<strong>on</strong> <strong>of</strong> legislati<strong>on</strong> <strong>and</strong> policies to implement <strong>the</strong>C<strong>on</strong>venti<strong>on</strong> (Article 4(3) UN CRPD); <strong>the</strong> provisi<strong>on</strong> recognis<strong>in</strong>g <strong>the</strong> importance <strong>of</strong><strong>in</strong>ternati<strong>on</strong>al cooperati<strong>on</strong> <strong>and</strong> disability <strong>in</strong>clusive development programmes <strong>in</strong> support<strong>of</strong> nati<strong>on</strong>al implementati<strong>on</strong> efforts (Article 32 UN CRPD); <strong>the</strong> provisi<strong>on</strong> requir<strong>in</strong>g <strong>the</strong>establishment <strong>of</strong> nati<strong>on</strong>al m<strong>on</strong>itor<strong>in</strong>g <strong>and</strong> implementati<strong>on</strong> frameworks (Article 33 UNCRPD); <strong>and</strong> procedures to better manage report<strong>in</strong>g deadl<strong>in</strong>es (Articles 35 to 37 UNCRPD). New bodies, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> Committee <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong> withDisabilities <strong>and</strong> C<strong>on</strong>ference <strong>of</strong> States Parties have been created to m<strong>on</strong>itorimplementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD by States Parties. All parties to <strong>the</strong> UN CRPD areobliged to submit regular reports to <strong>the</strong> Committee <strong>on</strong> how <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> is be<strong>in</strong>gimplemented. The Committee <strong>the</strong>n exam<strong>in</strong>es each report <strong>and</strong> makes suggesti<strong>on</strong>s <strong>and</strong>general recommendati<strong>on</strong>s for <strong>the</strong> State Party c<strong>on</strong>cerned.The Opti<strong>on</strong>al Protocol to <strong>the</strong> UN CRPD, comprised <strong>of</strong> eighteen articles, gives <strong>the</strong>Committee competence to exam<strong>in</strong>e <strong>in</strong>dividual compla<strong>in</strong>ts with regard to allegedviolati<strong>on</strong>s <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> by States Parties to <strong>the</strong> Protocol. It also allows StatesParties to opt <strong>in</strong>to participati<strong>on</strong> <strong>in</strong> a „compla<strong>in</strong>ts mechanism‟ 15 as well as an <strong>in</strong>quiry15 See Article 1 <strong>of</strong> <strong>the</strong> Opti<strong>on</strong>al Protocol to <strong>the</strong> UN CRPD. The Committee <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s withdisabilities will receive <strong>and</strong> c<strong>on</strong>sider communicati<strong>on</strong>s from or <strong>on</strong> behalf <strong>of</strong> <strong>in</strong>dividuals or groups <strong>of</strong><strong>in</strong>dividuals who claim to be victims <strong>of</strong> a violati<strong>on</strong> by a State Party to <strong>the</strong> UN CRPD.Page | 25
procedure, all <strong>of</strong> which are overseen by <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>‟s treaty m<strong>on</strong>itor<strong>in</strong>g body, <strong>the</strong>Committee <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities.1.1.3 UN CRPD as an <strong>in</strong>strument <strong>of</strong> public <strong>in</strong>ternati<strong>on</strong>al lawThe UN CRPD, as an <strong>in</strong>ternati<strong>on</strong>al human rights treaty <strong>and</strong> an <strong>in</strong>strument <strong>of</strong> public<strong>in</strong>ternati<strong>on</strong>al law, is governed by <strong>the</strong> <strong>in</strong>ternati<strong>on</strong>al law <strong>of</strong> treaties. The card<strong>in</strong>al rule <strong>in</strong><strong>the</strong> law <strong>of</strong> treaties, expressed <strong>in</strong> Article 26 <strong>of</strong> <strong>the</strong> Vienna C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Law <strong>of</strong>Treaties, 16 is pacta sunt serv<strong>and</strong>a, mean<strong>in</strong>g that “every treaty is b<strong>in</strong>d<strong>in</strong>g up<strong>on</strong> <strong>the</strong>parties to it <strong>and</strong> must be performed by <strong>the</strong>m <strong>in</strong> <strong>good</strong> faith”. 17 Of particular relevance <strong>in</strong>underst<strong>and</strong><strong>in</strong>g <strong>the</strong> UN CRPD <strong>and</strong> obligati<strong>on</strong>s deriv<strong>in</strong>g from it are <strong>the</strong> rules <strong>of</strong> treaty<strong>in</strong>terpretati<strong>on</strong> <strong>and</strong> rules relat<strong>in</strong>g to <strong>the</strong> specific issue <strong>of</strong> reservati<strong>on</strong>s <strong>and</strong> <strong>in</strong>terpretativedeclarati<strong>on</strong>s.The obligati<strong>on</strong>s deriv<strong>in</strong>g from signature <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> by a State Party are alsoimportant to note, particularly given that <strong>the</strong> European Uni<strong>on</strong> <strong>and</strong> a number <strong>of</strong> MemberStates have signed, but not all have yet ratified <strong>the</strong> UN CRPD. Signature <strong>of</strong> an<strong>in</strong>ternati<strong>on</strong>al treaty denotes certa<strong>in</strong> limited obligati<strong>on</strong>s under public <strong>in</strong>ternati<strong>on</strong>al law.C<strong>on</strong>sistent with <strong>the</strong> Vienna C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Law <strong>of</strong> Treaties (1969), 18 signatories toa treaty are bound by <strong>the</strong> obligati<strong>on</strong> not to defeat <strong>the</strong> object <strong>and</strong> purpose <strong>of</strong> <strong>the</strong> treaty<strong>in</strong> questi<strong>on</strong>. Thus, a signatory State Party is obliged to refra<strong>in</strong> from acts that woulddefeat <strong>the</strong> object <strong>and</strong> purpose <strong>of</strong> <strong>the</strong> UN CRPD. 19 For example a signatory party to <strong>the</strong>C<strong>on</strong>venti<strong>on</strong> is obliged not to enact laws that discrim<strong>in</strong>ate aga<strong>in</strong>st people withdisabilities. Such acti<strong>on</strong> would violate <strong>the</strong> forego<strong>in</strong>g proscripti<strong>on</strong>.The central objective <strong>of</strong> rules <strong>of</strong> treaty <strong>in</strong>terpretati<strong>on</strong> under <strong>in</strong>ternati<strong>on</strong>al law is toidentify with precisi<strong>on</strong> <strong>the</strong> rights <strong>and</strong> <strong>the</strong> obligati<strong>on</strong>s <strong>of</strong> participat<strong>in</strong>g parties to a treaty.The text <strong>of</strong> <strong>the</strong> UN CRPD itself assumes a central, though not dispositive, role <strong>in</strong>determ<strong>in</strong><strong>in</strong>g <strong>the</strong> rights <strong>and</strong> obligati<strong>on</strong>s <strong>of</strong> States Parties. Additi<strong>on</strong>al elements mayassume importance, <strong>in</strong>clud<strong>in</strong>g not <strong>on</strong>ly <strong>the</strong> preparatory works (which are extensive <strong>in</strong>16 Vienna C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Law <strong>of</strong> Treaties, UN Doc A/CONF 39/38; UNTS 1155, 331, available at:http://untreaty.un.org/ilc/texts/<strong>in</strong>struments/english/c<strong>on</strong>venti<strong>on</strong>s/1_1_1969.pdf17 In Case C-149/96 Portugal v Council, <strong>the</strong> ECJ used Article 26 <strong>of</strong> <strong>the</strong> Vienna C<strong>on</strong>venti<strong>on</strong> as its start<strong>in</strong>gpo<strong>in</strong>t for verify<strong>in</strong>g whe<strong>the</strong>r or not to grant direct effect to rules <strong>of</strong> <strong>the</strong> 1972 free-trade agreement between<strong>the</strong> EEC <strong>and</strong> Portugal <strong>and</strong> <strong>the</strong> GATT. Specifically <strong>the</strong> Court stated that: “[…] although each c<strong>on</strong>tract<strong>in</strong>gparty is resp<strong>on</strong>sible for execut<strong>in</strong>g fully <strong>the</strong> commitments which it has undertaken it is never<strong>the</strong>less free todeterm<strong>in</strong>e <strong>the</strong> legal means appropriate for atta<strong>in</strong><strong>in</strong>g that end <strong>in</strong> its legal system, unless <strong>the</strong> agreement,<strong>in</strong>terpreted <strong>in</strong> <strong>the</strong> light <strong>of</strong> its subject-matter <strong>and</strong> purpose, itself specifies those means […]” See ECJ, 23November 1999, Portugal v Council, Case C-149/96, [1999] ECR I-8395, para 35.18 See supra note 1619 In o<strong>the</strong>r words, a signatory party agrees to act <strong>in</strong> „<strong>good</strong> faith‟, but is not legally bound by <strong>the</strong>C<strong>on</strong>venti<strong>on</strong>‟s specific provisi<strong>on</strong>s <strong>and</strong> obligati<strong>on</strong>s (Article 18 <strong>of</strong> <strong>the</strong> Vienna C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Law <strong>of</strong>Treaties). The latter means that a signatory party is not obliged to take measures to implement <strong>the</strong>specific provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> UN CRPD.Page | 26
<strong>the</strong> case <strong>of</strong> <strong>the</strong> UN CRPD), but also any <strong>in</strong>terpretative declarati<strong>on</strong>s <strong>and</strong> underst<strong>and</strong><strong>in</strong>gsmade by <strong>on</strong>e or more States Parties. Reservati<strong>on</strong>s <strong>and</strong> objecti<strong>on</strong>s to reservati<strong>on</strong>s areunderstood to impact <strong>on</strong> treaty relati<strong>on</strong>s between <strong>the</strong> parties.The <strong>in</strong>terpretati<strong>on</strong> <strong>of</strong> <strong>in</strong>ternati<strong>on</strong>al treaties is governed by <strong>the</strong> Vienna C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong>Law <strong>of</strong> Treaties, specifically Articles 31-33, which are widely regarded as hav<strong>in</strong>gcodified pre-exist<strong>in</strong>g customary <strong>in</strong>ternati<strong>on</strong>al law. 20 The basic rule <strong>of</strong> treaty<strong>in</strong>terpretati<strong>on</strong> holds that treaties shall be <strong>in</strong>terpreted “<strong>in</strong> <strong>good</strong> faith <strong>and</strong> <strong>in</strong> accordancewith <strong>the</strong> ord<strong>in</strong>ary mean<strong>in</strong>g to be given to <strong>the</strong> terms <strong>of</strong> <strong>the</strong> treaty <strong>in</strong> <strong>the</strong>ir c<strong>on</strong>text <strong>and</strong> <strong>in</strong><strong>the</strong> light <strong>of</strong> its object <strong>and</strong> purpose.” 21 In cases when <strong>in</strong>terpretati<strong>on</strong> <strong>of</strong> <strong>the</strong> text leaves <strong>the</strong>mean<strong>in</strong>g <strong>of</strong> <strong>the</strong> text ambiguous or obscure, or leads to a result which is manifestlyabsurd or unreas<strong>on</strong>able, Article 32 <strong>of</strong> <strong>the</strong> Vienna C<strong>on</strong>venti<strong>on</strong> provides that recoursemay be had to “supplementary means <strong>of</strong> <strong>in</strong>terpretati<strong>on</strong>, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> preparatory work<strong>of</strong> <strong>the</strong> treaty <strong>and</strong> <strong>the</strong> circumstances <strong>of</strong> its c<strong>on</strong>clusi<strong>on</strong>.” 22 Fur<strong>the</strong>rmore, such recoursemay verify or c<strong>on</strong>firm a mean<strong>in</strong>g that emerges as a result <strong>of</strong> <strong>the</strong> textual approach. 23It is a comm<strong>on</strong> - though much criticised – practice for States Parties to human rightsc<strong>on</strong>venti<strong>on</strong>s to enter reservati<strong>on</strong>s to treaties which essentially mean that <strong>the</strong> relevantprovisi<strong>on</strong> does not apply to <strong>the</strong>m. 24 States Parties may also make declarati<strong>on</strong>s orunderst<strong>and</strong><strong>in</strong>gs which accept <strong>the</strong> applicability <strong>of</strong> <strong>the</strong> relevant provisi<strong>on</strong>s, but purport toput a particular <strong>in</strong>terpretati<strong>on</strong> <strong>on</strong> <strong>the</strong>m. Article 46 <strong>of</strong> <strong>the</strong> UN CRPD (Reservati<strong>on</strong>s)provides: “Reservati<strong>on</strong>s <strong>in</strong>compatible with <strong>the</strong> object <strong>and</strong> purpose <strong>of</strong> <strong>the</strong> presentC<strong>on</strong>venti<strong>on</strong> shall not be permitted” <strong>and</strong> fur<strong>the</strong>r, that “[r]eservati<strong>on</strong>s may be withdrawnat any time.” 25 Enter<strong>in</strong>g reservati<strong>on</strong>s to ratificati<strong>on</strong> <strong>in</strong>struments is a highly criticisedpractice <strong>and</strong> has drawn <strong>the</strong> c<strong>on</strong>stant attenti<strong>on</strong> <strong>and</strong> scrut<strong>in</strong>y <strong>of</strong> treaty m<strong>on</strong>itor<strong>in</strong>g bodiesas well as human rights courts <strong>and</strong> tribunals. It is possible that some declarati<strong>on</strong>s <strong>and</strong>underst<strong>and</strong><strong>in</strong>gs could be viewed as disguised reservati<strong>on</strong>s <strong>in</strong> which case <strong>the</strong>iracceptability depends <strong>on</strong> whe<strong>the</strong>r <strong>the</strong>y frustrate <strong>the</strong> „object <strong>and</strong> purpose‟ <strong>of</strong> <strong>the</strong>20 See, <strong>in</strong>ter alia, Avena <strong>and</strong> O<strong>the</strong>r Mexican Nati<strong>on</strong>als (Mexico v. United States <strong>of</strong> America), [2004] ICJReports 37-38 para. 83, not<strong>in</strong>g that <strong>the</strong> mean<strong>in</strong>g <strong>of</strong> a particular treaty term stood to be <strong>in</strong>terpreted“accord<strong>in</strong>g to <strong>the</strong> customary rules <strong>of</strong> treaty <strong>in</strong>terpretati<strong>on</strong> reflected <strong>in</strong> Articles 31 <strong>and</strong> 32 <strong>of</strong> <strong>the</strong> ViennaC<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Law <strong>of</strong> Treaties.” Id. For a review <strong>of</strong> <strong>the</strong> recogniti<strong>on</strong> <strong>of</strong> <strong>the</strong> rules <strong>of</strong> treaty <strong>in</strong>terpretati<strong>on</strong>as customary <strong>in</strong>ternati<strong>on</strong>al law by <strong>the</strong> ICJ <strong>and</strong> <strong>in</strong>deed o<strong>the</strong>r <strong>in</strong>ternati<strong>on</strong>al as well as many domesticcourts, see Richard Gard<strong>in</strong>er, Treaty Interpretati<strong>on</strong> 12-15 (2008).21 Vienna C<strong>on</strong>venti<strong>on</strong>, supra note 16, at Article 31.22 Ibid at Article 3223 See Anth<strong>on</strong>y Aust (2007), „Modern Treaty Law <strong>and</strong> Practice‟, 2 nd editi<strong>on</strong> Cambridge University Press24 For some <strong>of</strong> <strong>the</strong> lead<strong>in</strong>g works relat<strong>in</strong>g to reservati<strong>on</strong>s <strong>in</strong> respect <strong>of</strong> human rights c<strong>on</strong>venti<strong>on</strong>s, see B.Clark, The Vienna C<strong>on</strong>venti<strong>on</strong> Reservati<strong>on</strong>s Regime <strong>and</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> Discrim<strong>in</strong>ati<strong>on</strong> aga<strong>in</strong>stWomen, 85 A.J.I.L. 281 (1991); R.J. Cook, Reservati<strong>on</strong>s to <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Elim<strong>in</strong>ati<strong>on</strong> <strong>of</strong> allforms <strong>of</strong> Discrim<strong>in</strong>ati<strong>on</strong> aga<strong>in</strong>st Women, 30 V. J. Int‟l L. 643 (1990); A. Schabas, Reservati<strong>on</strong>s to HumanRights treaties: Time for Innovati<strong>on</strong> <strong>and</strong> Reform, 32 Canadian Y. Int‟l L. 39 (1994).25 See UN CRPD at article 46.Page | 27
C<strong>on</strong>venti<strong>on</strong>. 26 Treaty bodies are <strong>in</strong>creas<strong>in</strong>gly comment<strong>in</strong>g <strong>on</strong> reservati<strong>on</strong>s <strong>in</strong> <strong>the</strong>irc<strong>on</strong>clud<strong>in</strong>g observati<strong>on</strong>s <strong>of</strong> States Parties reports. For that reas<strong>on</strong>, States Partiesshould c<strong>on</strong>sider <strong>the</strong> matter <strong>of</strong> reservati<strong>on</strong>s with great care <strong>and</strong> c<strong>on</strong>siderablecauti<strong>on</strong>.It is worth not<strong>in</strong>g here that <strong>the</strong> EU (<strong>in</strong> its Decisi<strong>on</strong> 2010/78/EC <strong>on</strong> <strong>the</strong> c<strong>on</strong>clusi<strong>on</strong> <strong>of</strong> <strong>the</strong>UN CRPD) has entered a reservati<strong>on</strong> to Article 27(1) UN CRPD, with <strong>the</strong> aim to clarify<strong>the</strong> extent <strong>of</strong> EU competence for matters related to employment. The reservati<strong>on</strong>states that pursuant to <strong>the</strong> EU law (notably Council Directive 2000/78/EC <strong>of</strong> 27November 2000 establish<strong>in</strong>g a general framework for equal treatment <strong>in</strong> employment<strong>and</strong> occupati<strong>on</strong>), <strong>the</strong> Member States <strong>of</strong> <strong>the</strong> EU may, if appropriate, enter <strong>the</strong>ir ownreservati<strong>on</strong>s to Article 27(1) <strong>of</strong> UN CRPD to <strong>the</strong> extent that Article 3(4) <strong>of</strong> <strong>the</strong> saidCouncil Directive provides <strong>the</strong>m with <strong>the</strong> right to exclude n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong>grounds <strong>of</strong> disability with respect to employment <strong>in</strong> <strong>the</strong> armed forces from <strong>the</strong> scope <strong>of</strong><strong>the</strong> Directive. 27 In o<strong>the</strong>r words, <strong>the</strong> EU clarifies that employment <strong>in</strong> <strong>the</strong> armed forces isan area which rema<strong>in</strong>s with<strong>in</strong> <strong>the</strong> exclusive competence <strong>of</strong> <strong>the</strong> Member States, <strong>and</strong><strong>the</strong>refore it is up to <strong>the</strong> Member States to decide how to address equal treatment <strong>in</strong> <strong>the</strong>armed forces.1.2 The Status <strong>of</strong> <strong>the</strong> UN CRPD <strong>in</strong> <strong>the</strong> European Legal OrderA core questi<strong>on</strong> is whe<strong>the</strong>r <strong>the</strong> provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> UN CRPD, to which <strong>the</strong> EuropeanUni<strong>on</strong> will be a party, will form part <strong>of</strong> <strong>the</strong> European legal order. Secti<strong>on</strong> 1.2 <strong>of</strong> thisreport aims to clarify this questi<strong>on</strong>.In <strong>the</strong> <strong>in</strong>ternati<strong>on</strong>al sett<strong>in</strong>g, <strong>the</strong> European Uni<strong>on</strong> has legal pers<strong>on</strong>ality. 28 It can thus sign<strong>and</strong> c<strong>on</strong>clude <strong>in</strong>ternati<strong>on</strong>al treaties, with respect to its c<strong>on</strong>ferred powers.In areas <strong>of</strong> EU competence, <strong>in</strong>ternati<strong>on</strong>al treaties, <strong>on</strong>ce c<strong>on</strong>cluded by <strong>the</strong> EU, areb<strong>in</strong>d<strong>in</strong>g <strong>on</strong> <strong>the</strong> European <strong>in</strong>stituti<strong>on</strong>s <strong>and</strong> <strong>the</strong> Member States accord<strong>in</strong>g to Article26 See exist<strong>in</strong>g declarati<strong>on</strong>s, reservati<strong>on</strong>s <strong>and</strong> underst<strong>and</strong><strong>in</strong>g to <strong>the</strong> UN CRPD at <strong>the</strong> UN Enable website,available at: http://www.un.org/disabilities/default.asp?id=475. With<strong>in</strong> <strong>the</strong> EU, <strong>the</strong> follow<strong>in</strong>g MemberStates have entered reservati<strong>on</strong>s or <strong>in</strong>terpretative declarati<strong>on</strong> to <strong>the</strong> UN CRPD: Malta (reservati<strong>on</strong> toArticles 25 <strong>and</strong> 29); <strong>the</strong> Ne<strong>the</strong>rl<strong>and</strong>s (<strong>in</strong>terpretative declarati<strong>on</strong>s to Articles 10, 15, 23 <strong>and</strong> 25); France(<strong>in</strong>terpretative declarati<strong>on</strong> to Article 15); Pol<strong>and</strong> (reservati<strong>on</strong> to Articles 23(1) <strong>and</strong> 25); <strong>and</strong> <strong>the</strong> UK(reservati<strong>on</strong>s to Articles 12(4), 24 <strong>and</strong> 27). The present c<strong>on</strong>tributi<strong>on</strong> will briefly overview few <strong>of</strong> <strong>the</strong>aforementi<strong>on</strong>ed reservati<strong>on</strong>s (where appropriate). However, as <strong>the</strong> majority c<strong>on</strong>cerns UN CRPD articlesoutside <strong>of</strong> <strong>the</strong> general framework <strong>of</strong> analysis, a thorough analysis <strong>of</strong> all will not be provided.27 See Council Directive 2010/48/EC, Annex III Reservati<strong>on</strong> by <strong>the</strong> European Community to Article 27(1)<strong>of</strong> <strong>the</strong> UN CRPD.28Until 1 December 2009, <strong>the</strong> European Community had legal pers<strong>on</strong>ality under Article 281 TEC. As <strong>of</strong>1 December 2009, with <strong>the</strong> entry <strong>in</strong>to force <strong>of</strong> <strong>the</strong> Lisb<strong>on</strong> Treaty, <strong>the</strong> European Uni<strong>on</strong>, which replaced<strong>and</strong> acceded <strong>the</strong> European Community, has legal pers<strong>on</strong>ality under Article 47 TFEU. The latter articlereads as follows: “The Uni<strong>on</strong> shall have legal pers<strong>on</strong>ality”Page | 28
300(7) TEC. 29 Article 300(7) TEC applies <strong>the</strong> <strong>in</strong>ternati<strong>on</strong>al law pr<strong>in</strong>ciple <strong>of</strong> pacta suntserv<strong>and</strong>a 30 with<strong>in</strong> EU law, provid<strong>in</strong>g that agreements c<strong>on</strong>cluded under <strong>the</strong> c<strong>on</strong>diti<strong>on</strong>sset out <strong>in</strong> that Article shall be b<strong>in</strong>d<strong>in</strong>g <strong>on</strong> <strong>the</strong> European <strong>in</strong>stituti<strong>on</strong>s <strong>and</strong> <strong>on</strong> MemberStates. In cases <strong>of</strong> mixed <strong>in</strong>ternati<strong>on</strong>al agreements, to which both <strong>the</strong> EU <strong>and</strong> MemberStates are c<strong>on</strong>tract<strong>in</strong>g parties (such as <strong>the</strong> UN CRPD), c<strong>on</strong>clusi<strong>on</strong> by <strong>the</strong> EU denotesthat all provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> agreement fall<strong>in</strong>g with<strong>in</strong> EU competence are b<strong>in</strong>d<strong>in</strong>g <strong>on</strong> <strong>the</strong>European <strong>in</strong>stituti<strong>on</strong>s; while <strong>the</strong> Member States have a Community law obligati<strong>on</strong> (notjust an <strong>in</strong>ternati<strong>on</strong>al law obligati<strong>on</strong>) to implement a mixed agreement <strong>in</strong>s<strong>of</strong>ar as itsprovisi<strong>on</strong>s are “with<strong>in</strong> <strong>the</strong> scope <strong>of</strong> Community (now Uni<strong>on</strong>) competence”. 31As <strong>in</strong>terpreted by <strong>the</strong> European Court <strong>of</strong> Justice (ECJ) <strong>in</strong> several cases, 32 <strong>on</strong>ce an<strong>in</strong>ternati<strong>on</strong>al treaty is c<strong>on</strong>cluded by <strong>the</strong> Council <strong>and</strong> enters <strong>in</strong>to force, its provisi<strong>on</strong>sform an “<strong>in</strong>tegral part” <strong>of</strong> EC (now EU) law. 33 In light <strong>of</strong> Article 300(7) TEC, as<strong>in</strong>terpreted by <strong>the</strong> ECJ <strong>and</strong> <strong>the</strong> Council‟s authorisati<strong>on</strong> for <strong>the</strong> European Uni<strong>on</strong> toc<strong>on</strong>clude <strong>the</strong> UN CRPD, <strong>the</strong> provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> UN CRPD will be b<strong>in</strong>d<strong>in</strong>g <strong>on</strong> <strong>the</strong>European <strong>in</strong>stituti<strong>on</strong>s <strong>and</strong> will form an <strong>in</strong>tegral part <strong>of</strong> EC (now EU) law, mean<strong>in</strong>g thatno particular form <strong>of</strong> transpositi<strong>on</strong> would be necessary. 34With regards to where <strong>in</strong>ternati<strong>on</strong>al agreements are placed <strong>in</strong> <strong>the</strong> hierarchy <strong>of</strong> differentnorms <strong>in</strong> <strong>the</strong> EC (now EU) legal order, <strong>the</strong> ECJ has stated <strong>in</strong> <strong>the</strong> IATA case 35 thatagreements c<strong>on</strong>cluded under Article 300(7) TEC prevail over provisi<strong>on</strong>s <strong>of</strong> sec<strong>on</strong>daryCommunity (now Uni<strong>on</strong>) legislati<strong>on</strong>. However, <strong>in</strong>ternati<strong>on</strong>al agreements do not takeprecedence over primary EC (now EU) law, but would rank between primary <strong>and</strong>29See, e.g., ECJ, 30 April, 1974, R. & V. Haegeman v Belgian State, Case 181/73, ECR 1974, p. 449,para. 5. See also, TREATY OF LISBON, Article 216(2)30 See Secti<strong>on</strong> 1.1.3 <strong>of</strong> this report, p. 2331 For fur<strong>the</strong>r <strong>in</strong>formati<strong>on</strong> <strong>on</strong> mixed <strong>in</strong>ternati<strong>on</strong>al agreements, see pp 33-34 <strong>of</strong> this report.32 See <strong>in</strong>ter alia ECJ, 7 October 2004, Commissi<strong>on</strong> <strong>of</strong> <strong>the</strong> European Communities v French Republic,Case C-239/03, [2004] ECR I-09325. In case C-293/03 <strong>the</strong> ECJ argued that mixed agreementsc<strong>on</strong>cluded by <strong>the</strong> Community, its Member States <strong>and</strong> n<strong>on</strong>-member countries have <strong>the</strong> same status <strong>in</strong><strong>the</strong> Community legal order as purely Community agreements. To this end, Article 300(7) TEC applieswith equal force to mixed agreements, such as <strong>the</strong> UN CRPD.33 See <strong>in</strong>ter alia ECJ, 30 September 1987, Meryem Demirel v Stadt Schwäbisch Gmünd - Reference fora prelim<strong>in</strong>ary rul<strong>in</strong>g: Verwaltungsgericht Stuttgart, Case 12/86, [1987] ECR 03719.34 The fact that no act <strong>of</strong> transpositi<strong>on</strong> is needed shall not to be c<strong>on</strong>fused with questi<strong>on</strong>s <strong>of</strong> implement<strong>in</strong>gmeasures. It is difficult, if not impossible, to generalize or f<strong>in</strong>d useful samples <strong>in</strong> EC practice aboutquesti<strong>on</strong> <strong>of</strong> implementati<strong>on</strong> <strong>and</strong> applicati<strong>on</strong>, as each agreement is different <strong>and</strong> <strong>the</strong> UN CRPD is per sea unicum. Dr. avv. Delia Ferri, Introductory Paper for <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g> <strong>on</strong> <strong>Challenges</strong> <strong>and</strong> Good Practices <strong>in</strong> <strong>the</strong>Implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities VC/2008/1214, p. 39.Whe<strong>the</strong>r <strong>the</strong> correct applicati<strong>on</strong> <strong>of</strong> all <strong>the</strong> provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> UN CRPD requires particular implementati<strong>on</strong>depends <strong>on</strong> <strong>the</strong>ir nature (<strong>and</strong> <strong>the</strong> nature <strong>of</strong> C<strong>on</strong>venti<strong>on</strong> itself). See <strong>in</strong>ter alia Case 12/86, supra note 33,para 14.35 Case C- 344/04 IATA v. Department for Transport [2006] ECR I-403, para 35Page | 29
sec<strong>on</strong>dary law. 36 It can <strong>the</strong>refore be c<strong>on</strong>cluded that <strong>the</strong> UN CRPD, <strong>on</strong>ce c<strong>on</strong>cluded by<strong>the</strong> Uni<strong>on</strong>, will <strong>in</strong> hierarchical terms be placed below <strong>the</strong> Treaties (primary EC/EU law)<strong>and</strong> above sec<strong>on</strong>dary EC/EU law (Regulati<strong>on</strong>s, Directives, Decisi<strong>on</strong>s,Recommendati<strong>on</strong>s or Op<strong>in</strong>i<strong>on</strong>s). In o<strong>the</strong>r words, <strong>the</strong> UN CRPD cannot breach <strong>the</strong>c<strong>on</strong>stituti<strong>on</strong>al pr<strong>in</strong>ciples <strong>of</strong> <strong>the</strong> Treaty establish<strong>in</strong>g <strong>the</strong> European Community (which hasnow been renamed <strong>the</strong> „Treaty <strong>on</strong> <strong>the</strong> Functi<strong>on</strong><strong>in</strong>g <strong>of</strong> <strong>the</strong> European Uni<strong>on</strong>‟), butfollow<strong>in</strong>g its <strong>of</strong>ficial c<strong>on</strong>clusi<strong>on</strong> by <strong>the</strong> EU, it will provide <strong>the</strong> basis for c<strong>on</strong>sistent<strong>in</strong>terpretati<strong>on</strong> <strong>of</strong> EC (now EU) sec<strong>on</strong>dary law.The European Community (now Uni<strong>on</strong>) legal system, sui generis <strong>in</strong> nature, is anaut<strong>on</strong>omous legal order. In 2008, <strong>the</strong> ECJ addressed <strong>the</strong> relati<strong>on</strong>ship betweennati<strong>on</strong>al, Community (now Uni<strong>on</strong>) <strong>and</strong> <strong>in</strong>ternati<strong>on</strong>al legal systems, <strong>in</strong> <strong>the</strong> Kadi case. 37Significantly, <strong>in</strong> its judgment <strong>the</strong> Court po<strong>in</strong>ted out that no <strong>in</strong>ternati<strong>on</strong>al agreementsmay ei<strong>the</strong>r <strong>in</strong>fr<strong>in</strong>ge <strong>on</strong> <strong>the</strong> aut<strong>on</strong>omy <strong>of</strong> <strong>the</strong> EC (now EU) legal order, or breach <strong>the</strong>c<strong>on</strong>stituti<strong>on</strong>al pr<strong>in</strong>ciples <strong>of</strong> <strong>the</strong> Treaty establish<strong>in</strong>g <strong>the</strong> European Community, or<strong>in</strong>fluence <strong>the</strong> allocati<strong>on</strong> <strong>of</strong> powers fixed by <strong>the</strong> Treaties. 38 It logically follows that <strong>the</strong> UNCRPD, as an <strong>in</strong>ternati<strong>on</strong>al human rights treaty, can not affect <strong>the</strong> legal system <strong>of</strong> <strong>the</strong>EU or imply any change <strong>in</strong> <strong>the</strong> competence <strong>of</strong> <strong>the</strong> EU; it must <strong>the</strong>refore be <strong>in</strong>terpreted<strong>in</strong> compliance with <strong>the</strong> c<strong>on</strong>stituti<strong>on</strong>al pr<strong>in</strong>ciples <strong>of</strong> <strong>the</strong> EU. In o<strong>the</strong>r words, <strong>the</strong>implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD by <strong>the</strong> EU must be built <strong>on</strong> a comm<strong>on</strong>ly (comm<strong>on</strong> to<strong>in</strong>ternati<strong>on</strong>al law <strong>and</strong> to EU law) accepted <strong>in</strong>terpretati<strong>on</strong> (<strong>and</strong> level <strong>of</strong> protecti<strong>on</strong>) <strong>of</strong><strong>the</strong>se rights. To enter <strong>in</strong> a fur<strong>the</strong>r discussi<strong>on</strong> <strong>in</strong> this area would however be to venturetoo far away from <strong>the</strong> <strong>in</strong>tended scope <strong>of</strong> this report.A questi<strong>on</strong> arises whe<strong>the</strong>r any UN CRPD articles could have direct effect with<strong>in</strong> <strong>the</strong>European legal order. This is relevant for aggrieved <strong>in</strong>dividuals who might c<strong>on</strong>sidertak<strong>in</strong>g a legal acti<strong>on</strong> based <strong>on</strong> <strong>the</strong> UN CRPD <strong>in</strong> <strong>the</strong> European legal order. Indeterm<strong>in</strong><strong>in</strong>g whe<strong>the</strong>r provisi<strong>on</strong>s <strong>of</strong> <strong>in</strong>ternati<strong>on</strong>al law can have direct effect, two<strong>in</strong>terrelated elements are taken <strong>in</strong>to account:a. whe<strong>the</strong>r <strong>the</strong> parties which negotiated <strong>the</strong> agreement had an express or implied<strong>in</strong>tenti<strong>on</strong> to give <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> that agreement direct effect; <strong>and</strong>36 See M. Crem<strong>on</strong>a, External Relati<strong>on</strong>s <strong>of</strong> <strong>the</strong> EU <strong>and</strong> <strong>the</strong> Member States: Competence, MixedAgreements, Internati<strong>on</strong>al Resp<strong>on</strong>sibility, <strong>and</strong> Effects <strong>of</strong> Internati<strong>on</strong>al Law, EUI WP, 22/2006, athttp://cadmus.eui.eu/dspace/bitstream/1814/6249/1/LAW-2006-22.pdf37 ECJ, 3 September 2008, Yass<strong>in</strong> Abdullah Kadi <strong>and</strong> Al Barakaat Internati<strong>on</strong>al Foundati<strong>on</strong> vs. Council<strong>of</strong> <strong>the</strong> European Uni<strong>on</strong> <strong>and</strong> Commissi<strong>on</strong> <strong>of</strong> <strong>the</strong> European Communities, jo<strong>in</strong>ed cases C-402/05 P <strong>and</strong> C-415/05 P, ECR 2008. This case ma<strong>in</strong>ly deals with <strong>the</strong> UN obligati<strong>on</strong>s <strong>and</strong> <strong>the</strong> effect <strong>of</strong> a Security Councildecisi<strong>on</strong> <strong>and</strong> c<strong>on</strong>cerns <strong>the</strong> mean<strong>in</strong>g <strong>and</strong> <strong>the</strong> scope <strong>of</strong> Article 307 TCE38 It should be noted that <strong>in</strong> <strong>the</strong> Kadi case <strong>the</strong> Advocate General, expressed <strong>the</strong> follow<strong>in</strong>g op<strong>in</strong>i<strong>on</strong>: “[…]<strong>the</strong> relati<strong>on</strong>ship between <strong>in</strong>ternati<strong>on</strong>al law <strong>and</strong> <strong>the</strong> Community legal order is governed by <strong>the</strong> Communitylegal order itself, <strong>and</strong> <strong>in</strong>ternati<strong>on</strong>al law can <strong>on</strong>ly take effect <strong>in</strong> such order under <strong>the</strong> c<strong>on</strong>diti<strong>on</strong>s prescribedby <strong>the</strong> c<strong>on</strong>stituti<strong>on</strong>al pr<strong>in</strong>ciples <strong>of</strong> <strong>the</strong> Community [...]”. Ibid, Op<strong>in</strong>i<strong>on</strong> <strong>of</strong> <strong>the</strong> Advocate General, para 24.Page | 30
. whe<strong>the</strong>r provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> agreement are unc<strong>on</strong>diti<strong>on</strong>al <strong>and</strong> sufficiently precise tohave direct effect. To this end, <strong>the</strong> ECJ exam<strong>in</strong>es <strong>the</strong> word<strong>in</strong>g <strong>of</strong> <strong>the</strong> agreement‟sarticles <strong>in</strong> <strong>the</strong> light <strong>of</strong> <strong>the</strong> c<strong>on</strong>text, object <strong>and</strong> purpose <strong>of</strong> <strong>the</strong> agreement. 39The ECJ‟s determ<strong>in</strong>ati<strong>on</strong> <strong>of</strong> direct effect is l<strong>in</strong>ked to a prelim<strong>in</strong>ary assessment <strong>of</strong> <strong>the</strong>nature <strong>and</strong> spirit <strong>of</strong> <strong>the</strong> agreement. As regards to <strong>the</strong> UN CRPD, all provisi<strong>on</strong>s aredirected to States Parties <strong>and</strong> n<strong>on</strong>e seems to be clear <strong>and</strong> unc<strong>on</strong>diti<strong>on</strong>al. It is,<strong>the</strong>refore, unlikely that any specific articles could have direct effect <strong>in</strong> <strong>the</strong> Europeanlegal order. However, as ruled by <strong>the</strong> ECJ <strong>in</strong> Case C-61/94, 40 <strong>the</strong> primacy <strong>of</strong><strong>in</strong>ternati<strong>on</strong>al agreements c<strong>on</strong>cluded by <strong>the</strong> Community over provisi<strong>on</strong>s <strong>of</strong> sec<strong>on</strong>daryCommunity legislati<strong>on</strong> means that such provisi<strong>on</strong>s must, so far as is possible, be<strong>in</strong>terpreted <strong>in</strong> a manner that is c<strong>on</strong>sistent with those agreements. It can <strong>the</strong>refore bec<strong>on</strong>cluded that accessi<strong>on</strong> to <strong>the</strong> UN CRPD creates an obligati<strong>on</strong> to <strong>in</strong>terpret EU law <strong>in</strong>manner that is c<strong>on</strong>sistent with <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. 41 To this end, if <strong>the</strong> word<strong>in</strong>g <strong>of</strong> EUlegislati<strong>on</strong> is open to more than <strong>on</strong>e <strong>in</strong>terpretati<strong>on</strong>, <strong>the</strong> ECJ should adhere, as far aspossible, to <strong>the</strong> <strong>in</strong>terpretati<strong>on</strong> that renders <strong>the</strong> provisi<strong>on</strong> most c<strong>on</strong>sistent with <strong>the</strong> UNCRPD. Similarly, <strong>and</strong> <strong>in</strong> l<strong>in</strong>e with Article 300(7) TEC, all European <strong>in</strong>stituti<strong>on</strong>s <strong>and</strong> <strong>the</strong>Member States (for matters fall<strong>in</strong>g with<strong>in</strong> EU competence) are required to apply EU law<strong>in</strong> a manner that is c<strong>on</strong>sistent with <strong>the</strong> UN CRPD.The selecti<strong>on</strong> <strong>of</strong> specific articles <strong>of</strong> <strong>the</strong> Treaty establish<strong>in</strong>g <strong>the</strong> European Community toprovide <strong>the</strong> legal basis for <strong>the</strong> c<strong>on</strong>clusi<strong>on</strong> <strong>of</strong> an <strong>in</strong>ternati<strong>on</strong>al agreement is alsoimportant for its implementati<strong>on</strong> <strong>in</strong> <strong>the</strong> European legal order.a. From <strong>the</strong> <strong>in</strong>ternati<strong>on</strong>al law perspective: <strong>the</strong> ECJ has ruled that <strong>the</strong> legal basisgives an <strong>in</strong>dicati<strong>on</strong> to <strong>the</strong> o<strong>the</strong>r c<strong>on</strong>tract<strong>in</strong>g parties <strong>of</strong> <strong>the</strong> extent <strong>of</strong> EUcompetence, 42 <strong>and</strong> <strong>the</strong> divisi<strong>on</strong> <strong>of</strong> competence between <strong>the</strong> EU <strong>and</strong> its MemberStates. However, <strong>the</strong> Court did not add any specificati<strong>on</strong> to this statement. Wecan argue though that those legal bases are to be c<strong>on</strong>sidered <strong>in</strong> order to39 See, e.g., ECJ, 26 October 1982, Hauptzollamt Ma<strong>in</strong>z v C.A. Kupferberg & Cie KG a.A, Case 104/81,ECR 1982 p. 03641.40 ECJ Case C-61/94 Commissi<strong>on</strong> v. Germany [1996] ECR I-3989, para 5241 See also <str<strong>on</strong>g>Study</str<strong>on</strong>g> <strong>of</strong> <strong>the</strong> High Commissi<strong>on</strong>er for Human Rights <strong>on</strong> key legal measures for <strong>the</strong> ratificati<strong>on</strong><strong>and</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities (A/HRC/10/48), para.58, p. 18, available at: http://www2.ohchr.org/english/bodies/hrcouncil/10sessi<strong>on</strong>/reports.htm42 ECJ, Commissi<strong>on</strong> vs. Council, Case 94/03, <strong>in</strong> ECR, 2006, p. I-1. In that case regard<strong>in</strong>g <strong>the</strong> RotterdamC<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>in</strong>ternati<strong>on</strong>al trade <strong>in</strong> hazardous chemicals, <strong>the</strong> Commissi<strong>on</strong> <strong>and</strong> Council differed over<strong>the</strong> appropriate legal base for c<strong>on</strong>clusi<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>, <strong>the</strong> Commissi<strong>on</strong> propos<strong>in</strong>g Article 133 <strong>and</strong><strong>the</strong> Council <strong>in</strong>stead adopt<strong>in</strong>g <strong>the</strong> c<strong>on</strong>clud<strong>in</strong>g Decisi<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> Article 175 para 1 EC. Although <strong>the</strong>disagreement impacted <strong>on</strong> competence, <strong>the</strong> Court, hav<strong>in</strong>g decided that this was case <strong>of</strong> genu<strong>in</strong>ely duallegal base <strong>and</strong> <strong>the</strong>refore that <strong>the</strong> Decisi<strong>on</strong> should have been based <strong>on</strong> both Articles 133 <strong>and</strong> 175(1),discussed <strong>the</strong> implicati<strong>on</strong>s <strong>of</strong> its f<strong>in</strong>d<strong>in</strong>g purely <strong>in</strong> terms <strong>of</strong> procedure. Its c<strong>on</strong>clusi<strong>on</strong> was that <strong>the</strong>re wasno procedural <strong>in</strong>compatibility between <strong>the</strong> legal bases, <strong>the</strong> vot<strong>in</strong>g procedure <strong>in</strong> <strong>the</strong> Council be<strong>in</strong>g <strong>the</strong>same under both provisi<strong>on</strong>s, <strong>and</strong> <strong>the</strong> Parliament‟s prerogatives safeguarded by <strong>the</strong> use <strong>of</strong> Article 175para 2 EC Treaty.Page | 31
evaluate <strong>the</strong> resp<strong>on</strong>sibility <strong>of</strong> <strong>the</strong> EU at <strong>the</strong> <strong>in</strong>ternati<strong>on</strong>al level. 43 However, weshould also c<strong>on</strong>sider that apart from <strong>the</strong> legal basis used, <strong>the</strong> EU hasaccompanied Decisi<strong>on</strong> 2010/48/EC with <strong>the</strong> declarati<strong>on</strong> <strong>of</strong> competence <strong>in</strong> whichexist<strong>in</strong>g sec<strong>on</strong>dary legislati<strong>on</strong> is listed <strong>in</strong> order to dem<strong>on</strong>strate <strong>the</strong> extent <strong>of</strong> EUcompetence for matters related to <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. To this ends, if <strong>the</strong> legal basisgives an „<strong>in</strong>dicati<strong>on</strong>‟, <strong>the</strong> declarati<strong>on</strong> <strong>of</strong> competence annexed is <strong>in</strong>tended to bettershow to <strong>the</strong> o<strong>the</strong>r c<strong>on</strong>tract<strong>in</strong>g parties <strong>the</strong> distributi<strong>on</strong> <strong>of</strong> competence between <strong>the</strong>EU <strong>and</strong> its Member States. In o<strong>the</strong>r words, <strong>the</strong> declarati<strong>on</strong> aims at specify<strong>in</strong>gwhich areas <strong>of</strong> <strong>the</strong> agreement fall with<strong>in</strong> EU competence, for <strong>the</strong> purpose <strong>of</strong> alegal certa<strong>in</strong>ty at <strong>the</strong> <strong>in</strong>ternati<strong>on</strong>al level; this means that <strong>the</strong> listed EU legislati<strong>on</strong>(currently <strong>in</strong> force) is relevant to determ<strong>in</strong>e <strong>the</strong> existence <strong>of</strong> <strong>in</strong>ternati<strong>on</strong>alresp<strong>on</strong>sibility up<strong>on</strong> <strong>the</strong> EU. However, we can also argue that acts listed <strong>in</strong> <strong>the</strong>declarati<strong>on</strong> do not prevent <strong>the</strong> EU to implement <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>, with<strong>in</strong> areas that(accord<strong>in</strong>g to <strong>the</strong> EU Treaty <strong>and</strong> <strong>the</strong> TFEU) fall under its competence, but are notyet covered by existent legislati<strong>on</strong>. It is worth not<strong>in</strong>g that <strong>in</strong> case <strong>of</strong> c<strong>on</strong>currentcompetences (i.e. shared between <strong>the</strong> EU <strong>and</strong> its Member States) both <strong>the</strong>Uni<strong>on</strong> <strong>and</strong> <strong>the</strong> Member States may legislate <strong>and</strong> adopt legally b<strong>in</strong>d<strong>in</strong>g acts <strong>in</strong> thatarea. However, <strong>the</strong> Member States shall exercise <strong>the</strong>ir competence to <strong>the</strong> extentthat <strong>the</strong> Uni<strong>on</strong> has not exercised its competence or has decided to cease itscompetence. 44 The latter statement means that <strong>on</strong>ce <strong>the</strong> EU moves to legislate <strong>in</strong>a certa<strong>in</strong> field, Member States cannot enact aut<strong>on</strong>omously new legislati<strong>on</strong> with<strong>in</strong>that field. In <strong>the</strong> exercise <strong>of</strong> <strong>the</strong>se competences, both <strong>the</strong> pr<strong>in</strong>ciples <strong>of</strong> subsidiarity<strong>and</strong> proporti<strong>on</strong>ality have to be respected.43 At this po<strong>in</strong>t, it is important to clarify <strong>the</strong> mean<strong>in</strong>g <strong>of</strong> „<strong>in</strong>ternati<strong>on</strong>al resp<strong>on</strong>sibility‟. The term does nei<strong>the</strong>rrefer to political accountability, nor to EU‟s <strong>in</strong>ternati<strong>on</strong>al credibility, nor exclusively to <strong>the</strong> scope <strong>of</strong> EUcompetence <strong>in</strong> <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. „Internati<strong>on</strong>al resp<strong>on</strong>sibility‟ is a legal (i.e.technical) issue, <strong>and</strong> it is related to <strong>the</strong> violati<strong>on</strong> <strong>of</strong> an <strong>in</strong>ternati<strong>on</strong>al obligati<strong>on</strong>. The noti<strong>on</strong> <strong>of</strong> <strong>in</strong>ternati<strong>on</strong>alresp<strong>on</strong>sibility, <strong>in</strong> particular resp<strong>on</strong>sibility <strong>of</strong> <strong>in</strong>ternati<strong>on</strong>al organisati<strong>on</strong>s (such as <strong>the</strong> EU which under<strong>in</strong>ternati<strong>on</strong>al law is c<strong>on</strong>sidered a sui generis <strong>in</strong>ternati<strong>on</strong>al organisati<strong>on</strong>), is an issue still underdevelopment. It is worth not<strong>in</strong>g though that <strong>in</strong> 2009, <strong>the</strong> Internati<strong>on</strong>al Law Commissi<strong>on</strong> (ILC) adopted aset <strong>of</strong> 66 draft articles <strong>on</strong> <strong>the</strong> resp<strong>on</strong>sibility <strong>of</strong> <strong>in</strong>ternati<strong>on</strong>al organisati<strong>on</strong>s which (based <strong>on</strong> <strong>the</strong> ILC‟s workprogramme) will be fur<strong>the</strong>r discussed <strong>in</strong> 2011. Based <strong>on</strong> <strong>the</strong> draft articles adopted by <strong>the</strong> ILC, „awr<strong>on</strong>gful act‟ means an acti<strong>on</strong> or omissi<strong>on</strong> that is attributable to an <strong>in</strong>ternati<strong>on</strong>al organisati<strong>on</strong> under<strong>in</strong>ternati<strong>on</strong>al law <strong>and</strong> c<strong>on</strong>stitutes breach <strong>of</strong> an <strong>in</strong>ternati<strong>on</strong>al obligati<strong>on</strong> by <strong>the</strong> <strong>in</strong>ternati<strong>on</strong>al organisati<strong>on</strong> <strong>in</strong>questi<strong>on</strong>. The latter def<strong>in</strong>iti<strong>on</strong> may lead us to <strong>the</strong> c<strong>on</strong>clusi<strong>on</strong> that <strong>in</strong>ternati<strong>on</strong>al resp<strong>on</strong>sibility may occur if<strong>the</strong> EU acts “not <strong>in</strong> c<strong>on</strong>formity” with an obligati<strong>on</strong> assumed under <strong>the</strong> UN CRPD, i.e. acts <strong>in</strong> breach <strong>of</strong><strong>the</strong> general pr<strong>in</strong>ciple pacta sunt serv<strong>and</strong>a (Article 24 <strong>of</strong> <strong>the</strong> Vienna C<strong>on</strong>venti<strong>on</strong>). Therefore, <strong>the</strong> EU mustimplement <strong>the</strong> UN CRPD <strong>in</strong> <strong>good</strong> faith, ensur<strong>in</strong>g that its own domestic law is c<strong>on</strong>sistent with what isrequired by <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> (compliance). As regards <strong>the</strong> practical implicati<strong>on</strong>s for <strong>the</strong> EU <strong>in</strong> cases <strong>of</strong> „awr<strong>on</strong>gful act‟, while it is hard to be def<strong>in</strong>itive, given that <strong>the</strong> ILC is still work<strong>in</strong>g <strong>on</strong> this issue, it isnever<strong>the</strong>less possible to <strong>in</strong>dicate (based <strong>on</strong> <strong>the</strong> draft articles adopted by <strong>the</strong> ILC) <strong>the</strong> current positi<strong>on</strong> <strong>of</strong><strong>the</strong> ILC which is <strong>the</strong> follow<strong>in</strong>g: “<strong>in</strong> case an <strong>in</strong>ternati<strong>on</strong>al organisati<strong>on</strong> c<strong>on</strong>ducts an „<strong>in</strong>ternati<strong>on</strong>ally wr<strong>on</strong>gfulact‟, it will be under an obligati<strong>on</strong> to cease that act, to <strong>of</strong>fer appropriate guarantees <strong>of</strong> n<strong>on</strong>-repetiti<strong>on</strong> (art.29), <strong>and</strong> to make full reparati<strong>on</strong> for <strong>the</strong> <strong>in</strong>jury caused by <strong>the</strong> <strong>in</strong>ternati<strong>on</strong>ally wr<strong>on</strong>gful act (art. 30). Theresp<strong>on</strong>sible <strong>in</strong>ternati<strong>on</strong>al organizati<strong>on</strong> may not rely <strong>on</strong> its rules as justificati<strong>on</strong> [for <strong>the</strong> „wr<strong>on</strong>gful act‟] (art.31)”. For fur<strong>the</strong>r <strong>in</strong>formati<strong>on</strong>, see at http://untreaty.un.org/ilc/summaries/9_11.htm44 See Article 2(2) TFEUPage | 32
. From <strong>the</strong> EU law perspective: <strong>the</strong> legal basis for <strong>the</strong> c<strong>on</strong>clusi<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPDsignals <strong>the</strong> appropriate legal basis for its implementati<strong>on</strong> with<strong>in</strong> <strong>the</strong> EU. Inthis respect <strong>and</strong> <strong>in</strong> l<strong>in</strong>e with Article 4 UN CRPD, implementati<strong>on</strong> implies that<strong>in</strong>struments may be adopted or modified by <strong>the</strong> Uni<strong>on</strong> <strong>in</strong> order to comply with <strong>the</strong>C<strong>on</strong>venti<strong>on</strong> <strong>and</strong> give effect to its provisi<strong>on</strong>s <strong>and</strong> pr<strong>in</strong>ciples. Although <strong>the</strong> choice <strong>of</strong><strong>the</strong> legal basis for <strong>the</strong> decisi<strong>on</strong> c<strong>on</strong>clud<strong>in</strong>g an <strong>in</strong>ternati<strong>on</strong>al agreement is veryimportant, it is not decisive for implementati<strong>on</strong>. In Case C-178/03 45 c<strong>on</strong>cerned<strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> Rotterdam C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>in</strong>ternati<strong>on</strong>al trade <strong>in</strong>hazardous chemicals, <strong>the</strong> ECJ stated that “<strong>the</strong> fact that <strong>on</strong>e or more provisi<strong>on</strong>s <strong>of</strong><strong>the</strong> Treaty have been chosen as legal bases for <strong>the</strong> approval <strong>of</strong> an <strong>in</strong>ternati<strong>on</strong>alagreement is not sufficient to show that those same provisi<strong>on</strong>s must also be usedas legal bases for <strong>the</strong> adopti<strong>on</strong> <strong>of</strong> measures <strong>in</strong>tended to implement thatagreement at Community level”. 46 The latter statement means that EC (now EU)Treaty provisi<strong>on</strong>s o<strong>the</strong>r than those menti<strong>on</strong>ed <strong>in</strong> <strong>the</strong> Council decisi<strong>on</strong> to c<strong>on</strong>clude<strong>the</strong> UN CRPD can be used as legal bases to implement UN CRPD obligati<strong>on</strong>s <strong>in</strong>specific fields.The United Nati<strong>on</strong>s C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities is an<strong>in</strong>ternati<strong>on</strong>al human rights agreement where both <strong>the</strong> EU <strong>and</strong> its Member States arec<strong>on</strong>tract<strong>in</strong>g parties. As already menti<strong>on</strong>ed, <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> is thus a mixed agreement.Mixed agreements <strong>in</strong>volve a shared c<strong>on</strong>tractual relati<strong>on</strong>ship between <strong>the</strong> EU, itsMember States <strong>and</strong> <strong>on</strong>e or more third countries <strong>and</strong>/or <strong>in</strong>ternati<strong>on</strong>al organisati<strong>on</strong>s. Asa mixed agreement, <strong>the</strong> UN CRPD covers fields that fall <strong>in</strong> part with<strong>in</strong> <strong>the</strong> competence<strong>of</strong> <strong>the</strong> EU, <strong>in</strong> part with<strong>in</strong> that <strong>of</strong> <strong>the</strong> Member States <strong>and</strong> <strong>in</strong> part with<strong>in</strong> <strong>the</strong> sharedcompetence <strong>of</strong> <strong>the</strong> EU <strong>and</strong> its Member States. It is <strong>the</strong>refore essential for <strong>the</strong> EU <strong>and</strong><strong>the</strong> Member States to closely cooperate <strong>in</strong> order to implement legislati<strong>on</strong> stemm<strong>in</strong>gfrom <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>in</strong> a coherent manner <strong>and</strong> ensure unity <strong>in</strong> <strong>the</strong> <strong>in</strong>ternati<strong>on</strong>alrepresentati<strong>on</strong> <strong>of</strong> <strong>the</strong> Uni<strong>on</strong>. 47EU Member States, when participat<strong>in</strong>g <strong>in</strong> mixed agreements, do not act as entirelyaut<strong>on</strong>omous subjects <strong>of</strong> <strong>in</strong>ternati<strong>on</strong>al law; <strong>the</strong>y are subject to a duty <strong>of</strong> loyalcooperati<strong>on</strong> between <strong>on</strong>e ano<strong>the</strong>r <strong>and</strong> <strong>the</strong> EU. This duty extends to each <strong>of</strong> <strong>the</strong>negotiati<strong>on</strong>, c<strong>on</strong>clusi<strong>on</strong> <strong>and</strong> implementati<strong>on</strong> phases. In this sense <strong>the</strong>re is a collectivemanagement <strong>of</strong> <strong>the</strong> obligati<strong>on</strong>s under <strong>in</strong>ternati<strong>on</strong>al law. The duty <strong>of</strong> loyalcooperati<strong>on</strong>, deriv<strong>in</strong>g from Article 10 TEC, 48 embraces two sets <strong>of</strong> obligati<strong>on</strong>s: first,Member States shall take appropriate measures, whe<strong>the</strong>r general or particular, to45 See ECJ, 10 January 2006 Commissi<strong>on</strong> <strong>of</strong> <strong>the</strong> European Communities v European Parliament <strong>and</strong>Council <strong>of</strong> <strong>the</strong> European Uni<strong>on</strong>, Case C-178/03, ECR 2006, I-00107, available at: http://eurlex.europa.eu/LexUriServ/LexUriServ.do?uri=CELEX:62003J0178:EN:HTML46 Ibid, See Case C-178/03, para 40-4647 See also Decisi<strong>on</strong> 2010/48/EC, preambular paragraph (7)48 TREATY OF LISBON: Article 4(3) TEUPage | 33
ensure fulfilment <strong>of</strong> <strong>the</strong> obligati<strong>on</strong>s aris<strong>in</strong>g out <strong>of</strong> <strong>the</strong> EC Treaty or result<strong>in</strong>g from acti<strong>on</strong>taken by <strong>the</strong> EU <strong>in</strong>stituti<strong>on</strong>s; <strong>and</strong> sec<strong>on</strong>d: Member States shall facilitate <strong>the</strong>achievement <strong>of</strong> <strong>the</strong> Uni<strong>on</strong>‟s tasks <strong>and</strong> shall absta<strong>in</strong> from any measure which couldjeopardise <strong>the</strong> atta<strong>in</strong>ment <strong>of</strong> <strong>the</strong> objectives <strong>of</strong> <strong>the</strong> EC Treaty (now TFEU).In relati<strong>on</strong> to EU Member States‟ compliance with a mixed agreement c<strong>on</strong>cluded by<strong>the</strong> EU, <strong>the</strong> Court has <strong>in</strong>ferred that for matters fall<strong>in</strong>g with<strong>in</strong> EU competence, <strong>the</strong>Member States fulfil, with<strong>in</strong> <strong>the</strong> EU system, an obligati<strong>on</strong> <strong>in</strong> relati<strong>on</strong> to <strong>the</strong> Uni<strong>on</strong>, whichhas assumed resp<strong>on</strong>sibility for <strong>the</strong> due performance <strong>of</strong> <strong>the</strong> agreement. In o<strong>the</strong>r words,if a Member State fails to take all appropriate measures to implement provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong>mixed agreement that fall with<strong>in</strong> <strong>the</strong> competence <strong>of</strong> <strong>the</strong> EU not <strong>on</strong>ly fails to fulfil its<strong>in</strong>ternati<strong>on</strong>al obligati<strong>on</strong>, but is also act<strong>in</strong>g <strong>in</strong> breach <strong>of</strong> EU law. The Commissi<strong>on</strong> maythus br<strong>in</strong>g an <strong>in</strong>fr<strong>in</strong>gement case aga<strong>in</strong>st a Member State that has not properly fulfilledits duty. 49 The pr<strong>in</strong>ciple underp<strong>in</strong>n<strong>in</strong>g such mechanisms is <strong>the</strong> duty <strong>of</strong> loyalcooperati<strong>on</strong>, which provides <strong>the</strong> foundati<strong>on</strong> for manag<strong>in</strong>g shared competence with<strong>in</strong>mixed agreements.The l<strong>in</strong>e divid<strong>in</strong>g <strong>in</strong>ternati<strong>on</strong>al resp<strong>on</strong>sibility for implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> <strong>in</strong>ternati<strong>on</strong>almixed agreement between <strong>the</strong> EU <strong>and</strong> its Member States depends <strong>on</strong> <strong>the</strong> obligati<strong>on</strong>srespectively assumed. 50 The UN CRPD c<strong>on</strong>ta<strong>in</strong>s a clause sett<strong>in</strong>g out “separate”resp<strong>on</strong>sibility. Accord<strong>in</strong>g to Article 44(1) UN CRPD, regi<strong>on</strong>al <strong>in</strong>tegrati<strong>on</strong> organisati<strong>on</strong>sacced<strong>in</strong>g to <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> should declare, <strong>in</strong> <strong>the</strong>ir <strong>in</strong>struments <strong>of</strong> formal c<strong>on</strong>firmati<strong>on</strong>or accessi<strong>on</strong>, <strong>the</strong> extent <strong>of</strong> <strong>the</strong>ir competence. This divisi<strong>on</strong> <strong>of</strong> resp<strong>on</strong>sibility forimplementati<strong>on</strong> implies that <strong>the</strong> European Uni<strong>on</strong> <strong>on</strong>ly bears resp<strong>on</strong>sibility for <strong>the</strong>breach <strong>of</strong> <strong>the</strong> obligati<strong>on</strong>s it has assumed.The Council Decisi<strong>on</strong> 2010/48/EC <strong>on</strong> <strong>the</strong> c<strong>on</strong>clusi<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD referred to <strong>the</strong>EU competence <strong>in</strong> respect to matters governed by <strong>the</strong> UN CRPD, <strong>and</strong> listed EU<strong>in</strong>struments that dem<strong>on</strong>strate such competence. Secti<strong>on</strong> 1.3 that follows provides anoverview <strong>of</strong> <strong>the</strong> EU competence <strong>in</strong> matters governed by <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>.49 A prom<strong>in</strong>ent example is <strong>the</strong> Etang <strong>the</strong> Berre case (ECJ, 7 October 2004, Commissi<strong>on</strong> <strong>of</strong> <strong>the</strong> EuropeanCommunities v French Republic, Case C-239/03, [2004] ECR I-9325). In this case, <strong>the</strong> ECJ held that aMember State could be <strong>in</strong> breach <strong>of</strong> its Community law obligati<strong>on</strong>s by fail<strong>in</strong>g to implement a mixedagreement, even though <strong>the</strong> alleged breach c<strong>on</strong>cerned an aspect <strong>of</strong> <strong>the</strong> agreement which was notcovered by Community legislati<strong>on</strong>; it was enough that <strong>the</strong> field <strong>in</strong> general was “covered <strong>in</strong> largemeasure” by Community legislati<strong>on</strong> <strong>and</strong> <strong>in</strong> such cases “<strong>the</strong>re is a Community <strong>in</strong>terest <strong>in</strong> compliance byboth <strong>the</strong> Community <strong>and</strong> its Member States with commitments entered <strong>in</strong>to”. Once <strong>the</strong> agreement hasbeen c<strong>on</strong>cluded, it has become a part <strong>of</strong> Community law <strong>and</strong> <strong>the</strong> Community <strong>in</strong>terest <strong>in</strong> hold<strong>in</strong>g <strong>the</strong>Member States to account under Community law is relevant to its enforcement as well as its<strong>in</strong>terpretati<strong>on</strong>. See M. Crem<strong>on</strong>a, External Relati<strong>on</strong>s <strong>of</strong> <strong>the</strong> EU <strong>and</strong> <strong>the</strong> Member States: Competence,Mixed Agreements, Internati<strong>on</strong>al Resp<strong>on</strong>sibility, <strong>and</strong> Effects <strong>of</strong> Internati<strong>on</strong>al Law, cit., especially p. 18 etseq.50 For <strong>the</strong> noti<strong>on</strong> <strong>of</strong> <strong>in</strong>ternati<strong>on</strong>al resp<strong>on</strong>sibility, see supra note 43.Page | 34
1.3 EU declared competence <strong>in</strong> matters governed by <strong>the</strong> UNCRPDAs menti<strong>on</strong>ed earlier <strong>in</strong> this report, <strong>the</strong> UN CRPD has been signed by <strong>the</strong> EuropeanCommunity (now Uni<strong>on</strong>), <strong>and</strong> <strong>the</strong> decisi<strong>on</strong> to c<strong>on</strong>clude it has been taken under <strong>the</strong> ECTreaty. Therefore, secti<strong>on</strong> 1.3 will <strong>on</strong>ly refer to <strong>the</strong> EC Treaty. When relevant,references to <strong>the</strong> Treaty <strong>of</strong> Lisb<strong>on</strong> will be made, but no thorough analysis will beprovided.Before <strong>the</strong> Council adopted its f<strong>in</strong>al Decisi<strong>on</strong> <strong>on</strong> <strong>the</strong> c<strong>on</strong>clusi<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD by <strong>the</strong>EU, <strong>the</strong> High Level Group <strong>on</strong> Disability (HLGD), <strong>in</strong> its First Report <strong>on</strong> <strong>the</strong> UN CRPDimplementati<strong>on</strong>, 51 identified n<strong>in</strong>e areas <strong>of</strong> mutual <strong>in</strong>terest for <strong>the</strong> EU (c<strong>on</strong>sider<strong>in</strong>g both<strong>the</strong> EU <strong>and</strong> its Member States) with regard to implementati<strong>on</strong>. These areas are:accessibility (Article 9 UN CRPD); legal capacity (Article 12 UN CRPD); access tojustice (Article 13 UN CRPD); <strong>in</strong>dependent liv<strong>in</strong>g (Article 19 UN CRPD) <strong>and</strong> adequatest<strong>and</strong>ard <strong>of</strong> liv<strong>in</strong>g (Article 28 UN CRPD); vot<strong>in</strong>g rights (Article 29 UN CRPD);m<strong>on</strong>itor<strong>in</strong>g mechanisms (Articles 33 <strong>and</strong> 35 UN CRPD); <strong>and</strong> empower<strong>in</strong>g <strong>of</strong> pers<strong>on</strong>swith disabilities (Article 3 UN CRPD). Some <strong>of</strong> <strong>the</strong> matters addressed by <strong>the</strong> HLGD arebey<strong>on</strong>d <strong>the</strong> scope <strong>of</strong> EU legal competence to act. N<strong>on</strong>e<strong>the</strong>less, at <strong>the</strong> M<strong>in</strong>isterialMeet<strong>in</strong>g <strong>of</strong> 22 May 2008, Member States c<strong>on</strong>firmed that collaborati<strong>on</strong> at <strong>the</strong> Europeanlevel (e.g. exchanges <strong>of</strong> <strong>in</strong>formati<strong>on</strong> <strong>and</strong> <strong>good</strong> practice) would be <strong>of</strong> added value forimplement<strong>in</strong>g <strong>the</strong> paradigm shift <strong>and</strong> achiev<strong>in</strong>g effective implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UNCRPD. 52 To this end, <strong>the</strong> EU could become <strong>the</strong> „platform‟ to facilitate Member Statescollaborati<strong>on</strong>.On November 26 th , 2009 <strong>the</strong> Council adopted Decisi<strong>on</strong> 2010/48/EC c<strong>on</strong>cern<strong>in</strong>g <strong>the</strong>c<strong>on</strong>clusi<strong>on</strong>, by <strong>the</strong> European Uni<strong>on</strong>, <strong>of</strong> <strong>the</strong> UN CRPD. Secti<strong>on</strong> 1.3 briefly outl<strong>in</strong>escompetences that were explicitly referred to <strong>in</strong> <strong>the</strong> Decisi<strong>on</strong>. These competences set<strong>the</strong> general framework for <strong>the</strong> UN CRPD implementati<strong>on</strong> by <strong>the</strong> EU.Firstly, as expla<strong>in</strong>ed <strong>in</strong> previous secti<strong>on</strong> 1.2, <strong>the</strong> legal basis <strong>of</strong> Decisi<strong>on</strong> 2010/48/ECgives an <strong>in</strong>dicati<strong>on</strong> <strong>of</strong> <strong>the</strong> extent <strong>of</strong> EU competence for matters related to <strong>the</strong>C<strong>on</strong>venti<strong>on</strong>. Regardless <strong>of</strong> <strong>the</strong> Commissi<strong>on</strong>‟s proposal to use multiple legal bases, 5351 First Disability High Level Group Report <strong>on</strong> Implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong>Pers<strong>on</strong>s with Disabilities (2008), available at:http://ec.europa.eu/social/BlobServlet?docId=2293&langId=en52 Follow<strong>in</strong>g <strong>the</strong> M<strong>in</strong>isterial Meet<strong>in</strong>g <strong>of</strong> May 2008, EU Member States <strong>and</strong> representatives <strong>of</strong> civil societyhave reported to <strong>the</strong> HLGD progress <strong>in</strong> implement<strong>in</strong>g <strong>the</strong> UN C<strong>on</strong>venti<strong>on</strong> <strong>in</strong> <strong>the</strong>se areas <strong>and</strong> have notedevidence <strong>of</strong> <strong>the</strong> need for collaborati<strong>on</strong>.53 COM(2008) 530 f<strong>in</strong>al, <strong>of</strong> 2/09/2008, Proposal for a Council Decisi<strong>on</strong> c<strong>on</strong>cern<strong>in</strong>g <strong>the</strong> c<strong>on</strong>clusi<strong>on</strong>, by <strong>the</strong>European Community, <strong>of</strong> <strong>the</strong> United Nati<strong>on</strong>s C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities,Presented by <strong>the</strong> European Commissi<strong>on</strong>.Page | 35
<strong>the</strong> Council decided to use <strong>on</strong>ly Articles 13 <strong>and</strong> 95 <strong>in</strong> c<strong>on</strong>juncti<strong>on</strong> with <strong>the</strong> sec<strong>on</strong>dsentence <strong>of</strong> <strong>the</strong> first paragraph <strong>of</strong> article 300(2) <strong>and</strong> <strong>the</strong> first subparagraph <strong>of</strong> article300(3) <strong>of</strong> <strong>the</strong> Treaty establish<strong>in</strong>g <strong>the</strong> European Community as legal bases for <strong>the</strong>c<strong>on</strong>clusi<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD.Article 13 TEC 54 empowers <strong>the</strong> Council to take appropriate acti<strong>on</strong> to combatdiscrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> grounds <strong>of</strong> disability, <strong>and</strong> requires unanimous vot<strong>in</strong>g <strong>in</strong> <strong>the</strong>Council (Article 13(1) TEC). Article 13(2) TEC provides that when <strong>the</strong> Council acts, itdoes so, <strong>on</strong> a proposal from <strong>the</strong> Commissi<strong>on</strong> <strong>and</strong> after c<strong>on</strong>sult<strong>in</strong>g <strong>the</strong> EuropeanParliament, us<strong>in</strong>g <strong>the</strong> co-decisi<strong>on</strong> procedure. In additi<strong>on</strong>, acti<strong>on</strong>s under Article 13should exclude any harm<strong>on</strong>isati<strong>on</strong> <strong>of</strong> laws <strong>and</strong> regulati<strong>on</strong>s <strong>of</strong> <strong>the</strong> Member States.Article 13 TEC established <strong>the</strong> EU competence <strong>in</strong> <strong>the</strong> field <strong>of</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>. Inthis respect <strong>the</strong> EU can take measures to combat discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong>, <strong>in</strong>teralia, disability. However, Article 13(2) TEC <strong>on</strong>ly allows for <strong>the</strong> adopti<strong>on</strong> <strong>of</strong> support<strong>in</strong>g(<strong>and</strong> not harm<strong>on</strong>is<strong>in</strong>g) measures. Fur<strong>the</strong>rmore, Article 13 TEC does not produce directeffect, <strong>and</strong> <strong>the</strong>refore it does not c<strong>on</strong>fer rights <strong>on</strong> <strong>in</strong>dividuals. The article also allows for<strong>the</strong> adopti<strong>on</strong> <strong>of</strong> not <strong>on</strong>ly legally b<strong>in</strong>d<strong>in</strong>g measures, but also sui generis s<strong>of</strong>t measures,such as guidel<strong>in</strong>es <strong>and</strong> acti<strong>on</strong> programmes. It should fur<strong>the</strong>r be noted that combat<strong>in</strong>gdiscrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> disability falls under <strong>the</strong> shared competence <strong>of</strong> <strong>the</strong> EU<strong>and</strong> <strong>the</strong> Member States.Article 95 TEC 55 enables <strong>the</strong> Uni<strong>on</strong> to adopt harm<strong>on</strong>is<strong>in</strong>g measures which have as<strong>the</strong>ir object <strong>the</strong> establishment <strong>and</strong> functi<strong>on</strong><strong>in</strong>g <strong>of</strong> <strong>the</strong> <strong>in</strong>ternal market. Given that <strong>the</strong><strong>in</strong>ternal market is a broad c<strong>on</strong>cept that encompasses <strong>the</strong> removal <strong>of</strong> all k<strong>in</strong>ds <strong>of</strong>barriers to free movement <strong>of</strong> <strong>good</strong>s, pers<strong>on</strong>s, services <strong>and</strong> capital, <strong>the</strong> Uni<strong>on</strong> can, <strong>on</strong><strong>the</strong> basis <strong>of</strong> Article 95 TEC, address many different areas l<strong>in</strong>ked to <strong>the</strong> UN CRPD. Todate, a h<strong>and</strong>ful <strong>of</strong> <strong>in</strong>struments based <strong>on</strong> Article 95 TEC have already recognised aspecific disability dimensi<strong>on</strong> to secur<strong>in</strong>g <strong>the</strong> <strong>in</strong>ternal market. 56 For example, Directive95/16/EC 57 <strong>on</strong> lifts refers to <strong>the</strong> need to ensure accessibility for disabled pers<strong>on</strong>s;54 In <strong>the</strong> Treaty <strong>of</strong> Lisb<strong>on</strong>, pr<strong>in</strong>ciples <strong>of</strong> Article 13 TEC are set forth <strong>on</strong> Article 19 TFEU. In additi<strong>on</strong>Article 10 TFEU foresees that <strong>in</strong> def<strong>in</strong><strong>in</strong>g <strong>and</strong> implement<strong>in</strong>g its policies <strong>and</strong> activities, <strong>the</strong> Uni<strong>on</strong> shall aimto combat discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> <strong>in</strong>ter alia disability55 In <strong>the</strong> Treaty <strong>of</strong> Lisb<strong>on</strong>, pr<strong>in</strong>ciples <strong>of</strong> Article 95 TEC set forth <strong>in</strong> Article 114 TFEU. It should be notedthough, that <strong>the</strong> new article 114 has a significantly different text <strong>of</strong> article 92, as it provides forexcepti<strong>on</strong>s <strong>in</strong> <strong>the</strong> areas <strong>of</strong> envir<strong>on</strong>ment <strong>and</strong> health.56 See Wadd<strong>in</strong>gt<strong>on</strong>, Lisa (2008), The Internal Market <strong>and</strong> Disability Accessibility: Us<strong>in</strong>g EC Law toEstablish an Internal Market <strong>in</strong> Disability Accessible Goods <strong>and</strong> Services, Maastricht Faculty <strong>of</strong> LawWork<strong>in</strong>g Paper no. 3, August 200857 Directive 1995/16/EC <strong>of</strong> <strong>the</strong> European Parliament <strong>and</strong> <strong>of</strong> <strong>the</strong> Council <strong>of</strong> 29 June 1995 <strong>on</strong> <strong>the</strong>approximati<strong>on</strong> <strong>of</strong> <strong>the</strong> laws <strong>of</strong> <strong>the</strong> Member States relat<strong>in</strong>g to lifts [1995] OJ L213/1 as amended. TheDirective establishes EU legal requirements for <strong>the</strong> design, <strong>in</strong>stallati<strong>on</strong> <strong>and</strong> plac<strong>in</strong>g <strong>on</strong> <strong>the</strong> market <strong>of</strong> newlifts. It also sets out <strong>the</strong> c<strong>on</strong>formity assessment procedures to be followed by lift <strong>in</strong>stallers to ensurec<strong>on</strong>formity with <strong>the</strong>se requirements. The provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> Directive are implemented <strong>in</strong> <strong>the</strong> nati<strong>on</strong>al lawPage | 36
Directives 2004/17/EC 58 <strong>and</strong> Directive 2004/18/EC 59 <strong>on</strong> public procurement allowaccessibility for disabled people <strong>and</strong> design for all requirements to be taken <strong>in</strong>toaccount dur<strong>in</strong>g <strong>the</strong> different stages <strong>of</strong> public procurement; <strong>and</strong> many o<strong>the</strong>r examplescould be given. Lastly, it should be noted that <strong>in</strong> <strong>the</strong> <strong>in</strong>ternal market area, <strong>the</strong> EuropeanUni<strong>on</strong> shares competence with <strong>the</strong> Member States, <strong>and</strong> <strong>the</strong>refore close cooperati<strong>on</strong>between EU <strong>and</strong> Member States acti<strong>on</strong>s is deemed necessary.F<strong>in</strong>ally, Article 300 TEC establishes <strong>the</strong> procedure for <strong>the</strong> c<strong>on</strong>clusi<strong>on</strong> <strong>of</strong> <strong>in</strong>ternati<strong>on</strong>alagreements. The article provides that a Council decisi<strong>on</strong> is <strong>the</strong> <strong>on</strong>ly appropriate legal<strong>in</strong>strument for <strong>the</strong> Uni<strong>on</strong> to c<strong>on</strong>clude an <strong>in</strong>ternati<strong>on</strong>al normative text. The Councilshould <strong>on</strong>ly c<strong>on</strong>clude such agreements after c<strong>on</strong>sult<strong>in</strong>g with <strong>the</strong> European Parliament.Moreover, Article 300(6) TEC provides that <strong>the</strong> Court may be requested by <strong>the</strong>Council, <strong>the</strong> Commissi<strong>on</strong> or a Member-State to assess whe<strong>the</strong>r an agreement to bec<strong>on</strong>cluded is compatible with <strong>the</strong> provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> Treaty. To date, no op<strong>in</strong>i<strong>on</strong> hasbeen requested from <strong>the</strong> ECJ regard<strong>in</strong>g <strong>the</strong> UN CRPD. This could be seen asevidence that no questi<strong>on</strong>s can be raised <strong>on</strong> EU competence <strong>in</strong> deal<strong>in</strong>g with humanrights, while <strong>the</strong> overall compatibility <strong>of</strong> <strong>the</strong> UN CRPD with <strong>the</strong> Uni<strong>on</strong>‟s legal system asit st<strong>and</strong>s could not be denied.In additi<strong>on</strong> to <strong>the</strong> aforementi<strong>on</strong>ed legal bases, Annex II <strong>of</strong> <strong>the</strong> Decisi<strong>on</strong> <strong>in</strong>dicates <strong>the</strong>competence <strong>of</strong> <strong>the</strong> EU for matters governed by <strong>the</strong> UN CRPD. The Decisi<strong>on</strong> statesthat, at present, <strong>the</strong> Uni<strong>on</strong> has exclusive competence as regards <strong>the</strong> compatibility <strong>of</strong>state aid with <strong>the</strong> comm<strong>on</strong> market, <strong>the</strong> comm<strong>on</strong> custom tariffs, <strong>and</strong> matters related toits own public adm<strong>in</strong>istrati<strong>on</strong> (e.g. recruitment, remunerati<strong>on</strong>, tra<strong>in</strong><strong>in</strong>g etc). In <strong>the</strong> fields<strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong>, free movement <strong>of</strong> <strong>good</strong>s, pers<strong>on</strong>s, services <strong>and</strong> capital agriculture,transport, taxati<strong>on</strong>, <strong>in</strong>ternal market, equal pay for male <strong>and</strong> female workers, <strong>and</strong> Trans-European policy <strong>and</strong> statistics, <strong>the</strong> Uni<strong>on</strong> shares competence with its Member States.The Decisi<strong>on</strong> fur<strong>the</strong>r clarifies that <strong>in</strong> <strong>the</strong> aforementi<strong>on</strong>ed areas <strong>of</strong> shared competence,<strong>the</strong> Uni<strong>on</strong> has exclusive competence to enter <strong>in</strong>to <strong>the</strong> UN CRPD <strong>in</strong> respect <strong>of</strong> thosematters <strong>on</strong>ly to <strong>the</strong> extent that provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> UN CRPD or legal <strong>in</strong>struments adopted<strong>in</strong> its implementati<strong>on</strong> <strong>the</strong>re<strong>of</strong> affect comm<strong>on</strong> rules previously established by <strong>the</strong> Uni<strong>on</strong>.<strong>of</strong> each Member State <strong>of</strong> <strong>the</strong> EU. Accessibility for pers<strong>on</strong>s with disabilities is address <strong>in</strong> Annex I <strong>of</strong> <strong>the</strong>Directive.58 Directive 2004/17/EC <strong>of</strong> <strong>the</strong> European Parliament <strong>and</strong> <strong>of</strong> <strong>the</strong> Council <strong>of</strong> 31 March 2004 coord<strong>in</strong>at<strong>in</strong>g<strong>the</strong> procurement procedures <strong>of</strong> entities operat<strong>in</strong>g <strong>in</strong> <strong>the</strong> water, energy, transport <strong>and</strong> postal servicessectors [2004] OJ L134/1. The Directive coord<strong>in</strong>ates legislati<strong>on</strong> <strong>on</strong> public procurement procedures <strong>of</strong>entities <strong>in</strong> <strong>the</strong> fields covered. Accessibility for pers<strong>on</strong>s with disabilities is menti<strong>on</strong>ed <strong>in</strong> Articles 28 <strong>and</strong> 34as well as <strong>in</strong> Annex XXI <strong>of</strong> <strong>the</strong> Directive. For fur<strong>the</strong>r <strong>in</strong>formati<strong>on</strong>, see Annex IV <strong>of</strong> this report.59 Directive 2004/18/EC <strong>of</strong> <strong>the</strong> European Parliament <strong>and</strong> <strong>of</strong> <strong>the</strong> Council <strong>of</strong> 31 March 2004 <strong>on</strong> <strong>the</strong>coord<strong>in</strong>ati<strong>on</strong> <strong>of</strong> procedures for <strong>the</strong> award <strong>of</strong> public works c<strong>on</strong>tracts, public supply c<strong>on</strong>tracts <strong>and</strong> publicservice c<strong>on</strong>tracts [2004] OJ L134/114. The Directive coord<strong>in</strong>ates legislati<strong>on</strong> <strong>on</strong> public procurementprocedures <strong>in</strong> <strong>the</strong> fields covered. Accessibility for pers<strong>on</strong>s with disabilities is menti<strong>on</strong>ed <strong>in</strong> Articles 19<strong>and</strong> 23 <strong>in</strong> c<strong>on</strong>juncti<strong>on</strong> with Annex VI <strong>of</strong> <strong>the</strong> Directive. For fur<strong>the</strong>r <strong>in</strong>formati<strong>on</strong>, see Annex IV <strong>of</strong> this report.Page | 37
In additi<strong>on</strong>, <strong>the</strong> Decisi<strong>on</strong> lists, <strong>in</strong> <strong>the</strong> Appendix <strong>of</strong> Annex II, specific Community acts thatillustrate <strong>the</strong> extent <strong>of</strong> <strong>the</strong> area <strong>of</strong> competence <strong>of</strong> <strong>the</strong> Community (now Uni<strong>on</strong>) <strong>in</strong>accordance with <strong>the</strong> EC Treaty. As <strong>the</strong> Decisi<strong>on</strong> clarifies,<strong>the</strong> extent <strong>of</strong> <strong>the</strong> European Uni<strong>on</strong>‟s competence ensu<strong>in</strong>g from <strong>the</strong>se acts must beassessed by reference to <strong>the</strong> precise provisi<strong>on</strong>s <strong>of</strong> each measure, <strong>and</strong> <strong>in</strong> particular, <strong>the</strong>extent to which <strong>the</strong>se provisi<strong>on</strong>s establish comm<strong>on</strong> rules. 60In o<strong>the</strong>r words, each <strong>in</strong>dividual <strong>in</strong>strument menti<strong>on</strong>ed <strong>in</strong> <strong>the</strong> Decisi<strong>on</strong> must beexam<strong>in</strong>ed to establish <strong>the</strong> exact extent <strong>of</strong> <strong>the</strong> competence exercised by <strong>the</strong> EU withregard to <strong>the</strong> rights <strong>of</strong> people with disabilities <strong>in</strong> <strong>the</strong> relevant field thus far. It shouldthough be recalled that <strong>the</strong> fact that <strong>on</strong>ly exist<strong>in</strong>g legislati<strong>on</strong> (mean<strong>in</strong>g legislati<strong>on</strong> that iscurrently <strong>in</strong> force) is listed <strong>in</strong> <strong>the</strong> decisi<strong>on</strong>, does not prevent <strong>the</strong> Uni<strong>on</strong> to implement <strong>the</strong>C<strong>on</strong>venti<strong>on</strong>, with<strong>in</strong> areas that (accord<strong>in</strong>g to <strong>the</strong> EU Treaty <strong>and</strong> <strong>the</strong> TFEU) fall under itscompetence, but are not yet covered by existent legislati<strong>on</strong>. 61Importantly, Decisi<strong>on</strong> 2010/48/EC underl<strong>in</strong>es that:The scope <strong>and</strong> <strong>the</strong> exercise <strong>of</strong> EU competence are, by <strong>the</strong>ir nature, subject to c<strong>on</strong>t<strong>in</strong>uousdevelopment <strong>and</strong> <strong>the</strong> EU will complete or amend this Declarati<strong>on</strong>, if necessary, <strong>in</strong>accordance with article 44(1) <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. 62It is <strong>in</strong> o<strong>the</strong>r words recognised that while it is hard to be def<strong>in</strong>itive, given that EUcompetences are sui generis <strong>in</strong> nature, it is never<strong>the</strong>less possible <strong>on</strong> <strong>the</strong> basis <strong>of</strong> <strong>the</strong>EC Treaty (now TFEU) <strong>and</strong> sec<strong>on</strong>dary legislati<strong>on</strong> adopted by <strong>the</strong> EU thus far, to<strong>in</strong>dicate which areas <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> fall under <strong>the</strong> EU competence. In additi<strong>on</strong>, wemay argue that <strong>the</strong> aforementi<strong>on</strong>ed statement may also imply a need for <strong>the</strong> EU toperform a c<strong>on</strong>t<strong>in</strong>uous exam<strong>in</strong>ati<strong>on</strong> <strong>of</strong> EU legislati<strong>on</strong> for matters related to <strong>the</strong>implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>, with <strong>the</strong> aim to verify <strong>the</strong> l<strong>in</strong>e divid<strong>in</strong>g <strong>in</strong>ternati<strong>on</strong>alresp<strong>on</strong>sibility for implementati<strong>on</strong> between <strong>the</strong> EU <strong>and</strong> its Member States, which iscritical <strong>in</strong> manag<strong>in</strong>g <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> at <strong>the</strong> EU level, <strong>and</strong> forms<strong>the</strong> basis for an ultimate divisi<strong>on</strong> <strong>of</strong> <strong>in</strong>ternati<strong>on</strong>al resp<strong>on</strong>sibility. 63F<strong>in</strong>ally, <strong>the</strong> Decisi<strong>on</strong> refers to EC (now EU) policies that may be relevant to <strong>the</strong> UNCRPD. These policies <strong>in</strong>clude: (a) cooperati<strong>on</strong> between <strong>the</strong> Uni<strong>on</strong> <strong>and</strong> its MemberStates for <strong>the</strong> development <strong>of</strong> a coord<strong>in</strong>ated strategy for employment; (b) c<strong>on</strong>tributi<strong>on</strong>to <strong>the</strong> development <strong>of</strong> quality <strong>of</strong> educati<strong>on</strong> by encourag<strong>in</strong>g cooperati<strong>on</strong> between <strong>the</strong>Member States <strong>of</strong> <strong>the</strong> EU <strong>and</strong>, if necessary, by support<strong>in</strong>g <strong>and</strong> supplement<strong>in</strong>g <strong>the</strong>ir60 See Decisi<strong>on</strong> 2010/48/EC, supra note 13, Annex II, p. 461 For fur<strong>the</strong>r details see Secti<strong>on</strong> 1.2 <strong>of</strong> this report.62 See Decisi<strong>on</strong> 2010/48/EC, supra note 13, Annex II, p. 263 For fur<strong>the</strong>r <strong>in</strong>formati<strong>on</strong> <strong>on</strong> <strong>the</strong> noti<strong>on</strong> <strong>of</strong> „<strong>in</strong>ternati<strong>on</strong>al resp<strong>on</strong>sibility‟ see supra note 43Page | 38
acti<strong>on</strong>; <strong>and</strong> (c) development cooperati<strong>on</strong> policy with third countries without prejudice to<strong>the</strong> respective competence <strong>of</strong> <strong>the</strong> Members States <strong>of</strong> <strong>the</strong> EU.1.4 Framework <strong>of</strong> AnalysisFollow<strong>in</strong>g <strong>the</strong> <strong>in</strong>troductory analysis that aimed to set <strong>the</strong> appropriate background,secti<strong>on</strong> 1.4 provides a brief overview <strong>of</strong> <strong>the</strong> study‟s framework <strong>of</strong> analysis.This study did not cover each <strong>and</strong> every article <strong>of</strong> <strong>the</strong> UN C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong>Pers<strong>on</strong>s with Disabilities. Articles most relevant to <strong>the</strong> study‟s goals were selected foranalysis. Therefore, <strong>the</strong> UN CRPD has been classified <strong>in</strong>to <strong>the</strong>matic areas, whichprovide <strong>the</strong> ma<strong>in</strong> framework <strong>of</strong> <strong>the</strong> analysis <strong>and</strong> <strong>the</strong> structure <strong>of</strong> this report. 64 The<strong>the</strong>matic areas were chosen <strong>in</strong> order to address <strong>the</strong> core areas <strong>of</strong> <strong>the</strong> paradigm shift<strong>and</strong> areas <strong>of</strong> mutual <strong>in</strong>terest identified by <strong>the</strong> High Level Group <strong>on</strong> Disability (HLGD).The table below illustrates <strong>the</strong> UN CRPD <strong>the</strong>matic areas, <strong>and</strong> articles to be analysed <strong>in</strong><strong>the</strong> follow<strong>in</strong>g secti<strong>on</strong>s <strong>of</strong> this report. The table also identifies whe<strong>the</strong>r or not <strong>the</strong>implementati<strong>on</strong> <strong>of</strong> an article falls under <strong>the</strong> EU <strong>and</strong>/or Member States competence. Itshould be noted that for <strong>the</strong> purposes <strong>of</strong> this study, <strong>the</strong> identificati<strong>on</strong> <strong>of</strong> EU competenceis solely based <strong>on</strong> <strong>the</strong> Council Decisi<strong>on</strong> 2010/48/EC, <strong>and</strong> <strong>the</strong> list <strong>of</strong> <strong>in</strong>struments thatwere <strong>in</strong>cluded <strong>in</strong> <strong>the</strong> Decisi<strong>on</strong> to illustrate <strong>the</strong> extent <strong>of</strong> such competence.Figure 2Framework <strong>of</strong> AnalysisFramework <strong>of</strong>analysisParadigm ShiftShould be established<strong>in</strong> alllegislati<strong>on</strong>/policiesUN CRPDArticlesPreamblesArt. 1Articles <strong>of</strong> General Cross-Cutt<strong>in</strong>g Applicati<strong>on</strong>General pr<strong>in</strong>ciples <strong>and</strong>obligati<strong>on</strong>sEquality & N<strong>on</strong>-Discrim<strong>in</strong>ati<strong>on</strong>CompetenceHLGDPriorityAreaDecisi<strong>on</strong>2010/48/ECEU + Member States n.a n.aArts. 3 - 4 EU + Member States n.a. n.aArt. 5 EU + Member States No YesInter-secti<strong>on</strong>ality Arts. 6 - 7 EU + Member States No NoAccessibility Art. 9 EU + Member States Yes YesSubstantive Provisi<strong>on</strong>sDignity Rights64 The framework <strong>of</strong> <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g> was discussed <strong>and</strong> adopted by <strong>the</strong> team <strong>in</strong> 1 st Coord<strong>in</strong>ati<strong>on</strong> Meet<strong>in</strong>g held<strong>in</strong> Brussels <strong>on</strong> March 3 rd , 2009.Page | 39
Right aga<strong>in</strong>stViolence, Exploitati<strong>on</strong><strong>and</strong> AbuseArt. 16 Member States No NoIntegrity <strong>of</strong> <strong>the</strong> Pers<strong>on</strong> Art. 17 Member States No NoAut<strong>on</strong>omy RightsLegal Capacity Art. 12 Member States Yes NoLiv<strong>in</strong>g Independently Art. 19 EU + Member States Yes NoSpecific Accessibility RightsAccess to Justice Art. 13 Member States Yes NoAccess to, <strong>and</strong>Participati<strong>on</strong> <strong>in</strong>, <strong>the</strong>Political <strong>and</strong> Public lifeSolidarity RightsEducati<strong>on</strong> Art. 24Art. 29 Member States Yes NoMember StatesEU supplementarycompetenceEmployment Art. 27 EU + Member States No YesThe Dynamic <strong>of</strong> Reform 65Statistics <strong>and</strong> DataCollecti<strong>on</strong>Internati<strong>on</strong>alCooperati<strong>on</strong>Implementati<strong>on</strong> <strong>and</strong>M<strong>on</strong>itor<strong>in</strong>gNoYesArt. 31 EU + Member States No YesArt. 32 66 EU + Member States No YesArt. 33 EU + Member States Yes YesThe analysis that follows c<strong>on</strong>siders how UN CRPD obligati<strong>on</strong>s, derived from <strong>the</strong>aforementi<strong>on</strong>ed articles, can be implemented at EU <strong>and</strong> Member States levels.Indicative examples <strong>of</strong> EU <strong>and</strong> Member States <strong>in</strong>struments will be reviewed <strong>in</strong> light <strong>of</strong><strong>the</strong> purpose <strong>and</strong> objectives <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. The f<strong>in</strong>al aim <strong>of</strong> <strong>the</strong> analysis is toprovide general guidance for future implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> by both <strong>the</strong> EU<strong>and</strong> its Member States.65 This <strong>the</strong>matic area <strong>in</strong>cludes articles <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> that outl<strong>in</strong>e practical steps that are necessary tosupport nati<strong>on</strong>al implementati<strong>on</strong> efforts.66 Article 32(1) <strong>of</strong> <strong>the</strong> UN CRPD explicitly recognises <strong>the</strong> importance <strong>of</strong> <strong>in</strong>ternati<strong>on</strong>al cooperati<strong>on</strong> <strong>in</strong>support <strong>of</strong> nati<strong>on</strong>al implementati<strong>on</strong> efforts for <strong>the</strong> realisati<strong>on</strong> <strong>of</strong> <strong>the</strong> purpose <strong>and</strong> objectives <strong>of</strong> <strong>the</strong>C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> nati<strong>on</strong>al levels. For fur<strong>the</strong>r analysis <strong>of</strong> Article 32, go to secti<strong>on</strong> 5.2 <strong>of</strong> this reportPage | 40
2.0 The Paradigm Shift: A social model <strong>of</strong> disabilitySecti<strong>on</strong> 2 <strong>of</strong> this report provides an overview <strong>of</strong> <strong>the</strong> social model <strong>of</strong> disability <strong>and</strong> coreobligati<strong>on</strong>s derived from Article 1 <strong>and</strong> preambular paragraph (e) <strong>of</strong> <strong>the</strong> UN CRPD. Thesecti<strong>on</strong> is accompanied by general recommendati<strong>on</strong>s <strong>on</strong> <strong>the</strong> applicati<strong>on</strong> <strong>of</strong> <strong>the</strong>paradigm shift. Detailed checklists, c<strong>on</strong>ta<strong>in</strong>ed <strong>in</strong> Annex I <strong>of</strong> this report, also accompanythis analysis.2.1 Obligati<strong>on</strong>s derived from <strong>the</strong> Paradigm ShiftThe UN CRPD embodies a social underst<strong>and</strong><strong>in</strong>g <strong>of</strong> disability accord<strong>in</strong>g to whichsocietal c<strong>on</strong>stra<strong>in</strong>ts <strong>and</strong> barriers (not <strong>in</strong>dividual limitati<strong>on</strong>) serve to <strong>in</strong>hibit fullparticipati<strong>on</strong> by, <strong>and</strong> <strong>in</strong>clusi<strong>on</strong> <strong>of</strong>, pers<strong>on</strong>s with disabilities <strong>in</strong> society. It is thisunderst<strong>and</strong><strong>in</strong>g that creates <strong>the</strong> c<strong>on</strong>ceptual po<strong>in</strong>t <strong>of</strong> departure for articulat<strong>in</strong>g disabilityrights. The UN CRPD requires a holistic applicati<strong>on</strong> <strong>of</strong> human rights, <strong>and</strong> <strong>the</strong>reforemedical models <strong>of</strong> disability do not afford <strong>the</strong> c<strong>on</strong>ceptual breadth required for full <strong>and</strong>effective implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>.Significantly for shap<strong>in</strong>g <strong>the</strong> overall thrust <strong>of</strong> <strong>the</strong> UN CRPD, preambular paragraph (e)toge<strong>the</strong>r with Article 1 UN CRPD, evoke <strong>the</strong> social model, by describ<strong>in</strong>g disability as ac<strong>on</strong>diti<strong>on</strong> aris<strong>in</strong>g from “<strong>in</strong>teracti<strong>on</strong> with various barriers [that] may h<strong>in</strong>der <strong>the</strong>ir full <strong>and</strong>effective participati<strong>on</strong> <strong>in</strong> society <strong>on</strong> an equal basis with o<strong>the</strong>rs” <strong>in</strong>stead <strong>of</strong> <strong>in</strong>herentlimitati<strong>on</strong>s. This situates <strong>the</strong> UN CRPD firmly with<strong>in</strong> a social model, which is rightsbased,as opposed to a medical model <strong>of</strong> disability which <strong>in</strong>volves health-orientedlegislative <strong>in</strong>struments. 67The paradigm shift is not <strong>on</strong>ly ethical or ideological, but also legal. The UN CRPD is<strong>the</strong> first <strong>in</strong>ternati<strong>on</strong>al human rights treaty to embrace <strong>the</strong> social model <strong>of</strong> disability.Internati<strong>on</strong>al <strong>in</strong>struments adopted <strong>in</strong> <strong>the</strong> past (both b<strong>in</strong>d<strong>in</strong>g <strong>and</strong> n<strong>on</strong>-b<strong>in</strong>d<strong>in</strong>g) 68 couldhave been <strong>in</strong>terpreted to apply <strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong> disability, but were not. Therefore, itmay be necessary for some provisi<strong>on</strong>s <strong>in</strong> earlier general <strong>and</strong> <strong>the</strong>matic c<strong>on</strong>venti<strong>on</strong>s tobe re-c<strong>on</strong>sidered <strong>in</strong> light <strong>of</strong> <strong>the</strong> UN CRPD. The UN CRPD should be c<strong>on</strong>sidered as <strong>the</strong>highest st<strong>and</strong>ard <strong>of</strong> protecti<strong>on</strong> <strong>of</strong> <strong>the</strong> human rights <strong>of</strong> pers<strong>on</strong>s with disabilities, <strong>and</strong><strong>the</strong>refore, when a state or regi<strong>on</strong>al <strong>in</strong>tegrati<strong>on</strong> organisati<strong>on</strong> accede to <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>,67 See Report A/HRC/10/48, supra note 41, at p. 1168 For example: Pr<strong>in</strong>ciples 1(6), 11(6) or 11(15) <strong>of</strong> <strong>the</strong> Pr<strong>in</strong>ciples for <strong>the</strong> protecti<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with<strong>in</strong>tellectual or psycho-social disability <strong>and</strong> <strong>the</strong> improvement <strong>of</strong> mental health care; Pr<strong>in</strong>ciple 82 <strong>of</strong> <strong>the</strong>St<strong>and</strong>ard m<strong>in</strong>imum rules for <strong>the</strong> treatment <strong>of</strong> pris<strong>on</strong>ers (referr<strong>in</strong>g to <strong>in</strong>sane <strong>and</strong> pris<strong>on</strong>ers psycho-socialdisability); Article 1(2)(b) <strong>of</strong> <strong>the</strong> Inter-American C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Elim<strong>in</strong>ati<strong>on</strong> <strong>of</strong> All Forms <strong>of</strong>Discrim<strong>in</strong>ati<strong>on</strong> Aga<strong>in</strong>st Pers<strong>on</strong>s With Disabilities; Article 5(e) <strong>of</strong> <strong>the</strong> European C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> HumanRights; <strong>and</strong> <strong>the</strong> Council‟s <strong>of</strong> Europe C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> Human Rights <strong>and</strong> Biomedic<strong>in</strong>e (Oviedo, 4.IV.1997)Page | 41
its provisi<strong>on</strong>s, <strong>in</strong>clud<strong>in</strong>g its reflecti<strong>on</strong> <strong>of</strong> <strong>the</strong> social model <strong>of</strong> disability, should prevail.This statement f<strong>in</strong>ds support <strong>in</strong> both, <strong>the</strong> lex-posterior, 69 <strong>and</strong> pro-hom<strong>in</strong>e 70 pr<strong>in</strong>ciples. 71The challenge, when apply<strong>in</strong>g <strong>the</strong> paradigm shift at domestic level, is <strong>the</strong> subtle, <strong>and</strong>not always acknowledged, difference between <strong>the</strong> terms „impairment‟ <strong>and</strong> „disability‟. 72The noti<strong>on</strong> <strong>of</strong> „disability‟ used <strong>in</strong> <strong>the</strong> UN CRPD focuses <strong>on</strong> barriers, which may h<strong>in</strong>derfull <strong>and</strong> effective participati<strong>on</strong> <strong>in</strong> society <strong>on</strong> an equal basis with o<strong>the</strong>rs, <strong>and</strong> not <strong>on</strong><strong>in</strong>dividual impairments. This is particularly important for <strong>the</strong> applicati<strong>on</strong> <strong>of</strong> certa<strong>in</strong> rights,such as legal capacity (Article 12 UN CRPD). In recognis<strong>in</strong>g <strong>the</strong> evolv<strong>in</strong>g c<strong>on</strong>cept <strong>of</strong>disability, <strong>the</strong> UN CRPD places a str<strong>on</strong>g emphasis <strong>on</strong> remov<strong>in</strong>g social barriers. Thisreflecti<strong>on</strong> <strong>of</strong> <strong>the</strong> social model <strong>of</strong> disability recognises that <strong>the</strong> major obstacle <strong>in</strong> <strong>the</strong>realisati<strong>on</strong> <strong>of</strong> rights for pers<strong>on</strong>s with disabilities relates to attitud<strong>in</strong>al, physical,communicati<strong>on</strong>, legal <strong>and</strong> o<strong>the</strong>r barriers that <strong>in</strong>hibit <strong>the</strong> full participati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s withdisabilities <strong>in</strong> society. 73Research for this study <strong>in</strong> <strong>the</strong> Member States <strong>of</strong> <strong>the</strong> EU has revealed that, <strong>in</strong> general,<strong>the</strong> paradigm shift embodied <strong>in</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> has not yet been effectively reflected <strong>in</strong><strong>the</strong> majority <strong>of</strong> <strong>the</strong> Member States. Some progress has been made, but overall <strong>the</strong>embracement <strong>of</strong> <strong>the</strong> social model <strong>of</strong> disability <strong>in</strong> all policy areas related to <strong>the</strong>C<strong>on</strong>venti<strong>on</strong>, has not yet been achieved. 74 Regard<strong>in</strong>g def<strong>in</strong>iti<strong>on</strong>s <strong>of</strong> disability <strong>in</strong> nati<strong>on</strong>allaws, even though some states have c<strong>on</strong>ceptualised disability with<strong>in</strong> a social c<strong>on</strong>text,this is not <strong>the</strong> case for <strong>the</strong> majority. Fur<strong>the</strong>rmore, reference to specific types <strong>of</strong>impairments with<strong>in</strong> some nati<strong>on</strong>al def<strong>in</strong>iti<strong>on</strong>s, may hamper <strong>the</strong> full protecti<strong>on</strong> <strong>and</strong><strong>in</strong>clusi<strong>on</strong> <strong>of</strong> all pers<strong>on</strong>s with disabilities. Examples <strong>of</strong> nati<strong>on</strong>al def<strong>in</strong>iti<strong>on</strong>s <strong>on</strong> disabilitywill be outl<strong>in</strong>ed <strong>in</strong> <strong>the</strong> follow<strong>in</strong>g secti<strong>on</strong>s <strong>of</strong> <strong>the</strong> report, when specific legislative actsfrom <strong>the</strong> Member States <strong>of</strong> <strong>the</strong> EU will be presented, <strong>in</strong> order to underst<strong>and</strong> challengesthat may arise to <strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD.69 This means that when <strong>the</strong>re is a c<strong>on</strong>tradicti<strong>on</strong> between laws, <strong>the</strong> most recently adopted prevails. Ino<strong>the</strong>r words, <strong>the</strong> UN CRPD prevails over <strong>in</strong>ternati<strong>on</strong>al <strong>in</strong>strument adopted <strong>in</strong> <strong>the</strong> past <strong>and</strong> are relevantfor matters related to disability.70 This means that <strong>the</strong> provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> UN CRPD prevail over <strong>in</strong>ternati<strong>on</strong>al <strong>in</strong>struments adopted <strong>in</strong> <strong>the</strong>past, because <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>of</strong>fers higher protecti<strong>on</strong> to pers<strong>on</strong>s with disabilities.71 Agust<strong>in</strong>a Palacios, statement at <strong>the</strong> Open-ended c<strong>on</strong>sultati<strong>on</strong> <strong>on</strong> key legal measures for <strong>the</strong>ratificati<strong>on</strong> <strong>and</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities, 24 October2008, Geneva. Available at:http://www2.ohchr.org/english/issues/disability/docs/F<strong>in</strong>alC<strong>on</strong>sultati<strong>on</strong>report.doc72 See Palacios A. & Walls M, “Chang<strong>in</strong>g <strong>the</strong> Paradigm – <strong>the</strong> Potential impact <strong>of</strong> <strong>the</strong> United Nati<strong>on</strong>sC<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities”, Irish Yearbook <strong>of</strong> Internati<strong>on</strong>al Law Vol. 1, 2007.73 Traustadóttir, Rannveig (2008), Disability Studies, <strong>the</strong> Social Model <strong>and</strong> Legal Developments, <strong>in</strong>Oddný M. Arnardóttir <strong>and</strong> Gerard Qu<strong>in</strong>n (eds.), The UN C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s withDisabilities: European <strong>and</strong> Sc<strong>and</strong><strong>in</strong>avian Perspectives, pp. 14-2474 For example <strong>in</strong> <strong>the</strong> area <strong>of</strong> legal capacity, <strong>the</strong> majority <strong>of</strong> <strong>the</strong> Member States c<strong>on</strong>t<strong>in</strong>ue to operateguardianship laws premised <strong>on</strong> a medical model <strong>of</strong> disability.Page | 42
As regards <strong>the</strong> European Uni<strong>on</strong>, even if a clear def<strong>in</strong>iti<strong>on</strong> <strong>of</strong> disability is not<strong>in</strong>corporated <strong>in</strong> EU law, it appears that legislati<strong>on</strong> is implicitly based <strong>on</strong> a rights-basedapproach to disability, <strong>and</strong> <strong>the</strong>refore aims at remov<strong>in</strong>g physical <strong>and</strong> societal barriersthat h<strong>in</strong>der full participati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> <strong>the</strong> society. Both <strong>the</strong>Commissi<strong>on</strong> <strong>and</strong> <strong>the</strong> Council have recognised <strong>the</strong> need to base EU policy <strong>on</strong> <strong>the</strong> socialmodel <strong>of</strong> disability. 75 Already back <strong>in</strong> 1996, a Communicati<strong>on</strong> <strong>of</strong> <strong>the</strong> Commissi<strong>on</strong> <strong>on</strong>Equality <strong>of</strong> Opportunity for People with Disabilities 76 noted that <strong>the</strong> way <strong>in</strong> whichsociety is organised serves to exclude citizens, <strong>and</strong> fur<strong>the</strong>r elaborated about <strong>the</strong>development <strong>of</strong> an „equal opportunities model‟ for pers<strong>on</strong>s with disabilities. In <strong>the</strong> sameyear, <strong>the</strong> Council adopted a Resoluti<strong>on</strong> <strong>on</strong> Equality <strong>of</strong> Opportunity for People withDisabilities 77 <strong>and</strong> reaffirmed its commitment to <strong>the</strong> pr<strong>in</strong>ciples <strong>and</strong> values <strong>of</strong> <strong>the</strong> UNSt<strong>and</strong>ard Rules <strong>on</strong> <strong>the</strong> Equalisati<strong>on</strong> <strong>of</strong> Opportunities for Pers<strong>on</strong>s with Disabilities, 78 <strong>and</strong><strong>in</strong> particular <strong>the</strong> pr<strong>in</strong>ciples <strong>of</strong> equality <strong>of</strong> opportunity <strong>and</strong> <strong>the</strong> elim<strong>in</strong>at<strong>in</strong>g negativediscrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> disability. S<strong>in</strong>ce <strong>the</strong>n, EU legislati<strong>on</strong> susta<strong>in</strong>s a rightsbasedapproach to disability <strong>and</strong> EU <strong>in</strong>stituti<strong>on</strong>s c<strong>on</strong>t<strong>in</strong>ue to stress regularly <strong>the</strong>ircommitment to <strong>the</strong> social model disability. 79Today, as <strong>the</strong> EU is a party to <strong>the</strong> UN CRPD, <strong>the</strong> obligati<strong>on</strong> to apply <strong>the</strong> social model<strong>of</strong> disability applies to all EU <strong>in</strong>stituti<strong>on</strong>s, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> ECJ, which should apply EU law<strong>in</strong> manner c<strong>on</strong>sistent with <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. Fur<strong>the</strong>rmore, <strong>the</strong> Member States <strong>of</strong> <strong>the</strong> EU,when transpos<strong>in</strong>g EU law <strong>in</strong>to <strong>the</strong>ir nati<strong>on</strong>al systems, should ensure fulfilment <strong>of</strong> <strong>the</strong>obligati<strong>on</strong> to implement a rights-based approach to disability.2.2 General Recommendati<strong>on</strong>s for States PartiesStates Parties‟ law <strong>and</strong> policy reform should spr<strong>in</strong>g from <strong>the</strong> social modelunderst<strong>and</strong><strong>in</strong>g <strong>of</strong> disability <strong>and</strong> this should be reflected <strong>in</strong> <strong>the</strong> overall statement <strong>of</strong>guid<strong>in</strong>g pr<strong>in</strong>ciples for domestic law <strong>and</strong> policy.The social model <strong>of</strong> disability should also <strong>in</strong>form <strong>the</strong> approach taken to def<strong>in</strong><strong>in</strong>gdisability <strong>in</strong> law <strong>and</strong> policy, no matter <strong>the</strong> specific c<strong>on</strong>text, whe<strong>the</strong>r employment,educati<strong>on</strong>, pensi<strong>on</strong>s or o<strong>the</strong>r area.75 See Wadd<strong>in</strong>gt<strong>on</strong>, Lisa (2007), Case C-13/05 Chacón Navas vs Eurest Colectividades SA, judgement<strong>of</strong> <strong>the</strong> Gr<strong>and</strong> Chamber <strong>of</strong> 11 July 2006, nyr, <strong>in</strong> Comm<strong>on</strong> Market Law Review, Kluwer Law Internati<strong>on</strong>al76 Communicati<strong>on</strong> <strong>of</strong> <strong>the</strong> Commissi<strong>on</strong> <strong>on</strong> “Equality <strong>of</strong> Opportunity for People with Disabilities” <strong>of</strong> 30 July1996, COM(96) 406 f<strong>in</strong>al.77 Resoluti<strong>on</strong> <strong>of</strong> <strong>the</strong> Council <strong>and</strong> <strong>of</strong> Representatives <strong>of</strong> <strong>the</strong> Governments <strong>of</strong> <strong>the</strong> Member States meet<strong>in</strong>gwith<strong>in</strong> <strong>the</strong> Council <strong>of</strong> 20 December 1996 <strong>on</strong> equality <strong>of</strong> opportunity for people with disabilities, O.J. 1997,C12/178 UN General Assembly Resoluti<strong>on</strong> 48/47 <strong>of</strong> 20 December 199379 See Wadd<strong>in</strong>gt<strong>on</strong>, Lisa (2007), supra note 75, pp 491-492Page | 43
3.0 Articles <strong>of</strong> General <strong>and</strong> cross-cutt<strong>in</strong>g applicati<strong>on</strong>Secti<strong>on</strong> 3 will provide an overview <strong>of</strong> <strong>the</strong> obligati<strong>on</strong>s derived from Articles 3 to 9 <strong>of</strong> <strong>the</strong>UN CRPD. These are articles <strong>of</strong> general applicati<strong>on</strong>, <strong>and</strong> thus should be appliedacross <strong>the</strong> treaty text. Specifically, this secti<strong>on</strong> <strong>of</strong> <strong>the</strong> report highlights core obligati<strong>on</strong>saris<strong>in</strong>g out <strong>of</strong> Article 3 (General pr<strong>in</strong>ciples), Article 4 (General obligati<strong>on</strong>s) <strong>and</strong> Article 9(Accessibility) <strong>and</strong> provides general recommendati<strong>on</strong>s for implementati<strong>on</strong>. Articles <strong>on</strong><strong>in</strong>ter-secti<strong>on</strong>ality, namely, Article 6 (Women with disabilities) <strong>and</strong> Article 7 (Childrenwith disabilities) are likewise addressed. Detailed checklists c<strong>on</strong>ta<strong>in</strong>ed <strong>in</strong> Annex I <strong>of</strong>this report accompany this analysis.It is important to note that given <strong>the</strong> cross-cutt<strong>in</strong>g nature <strong>of</strong> Articles 3 to 9, <strong>the</strong>y have arole to play <strong>in</strong> guid<strong>in</strong>g <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> all UN CRPD obligati<strong>on</strong>s. In o<strong>the</strong>r words,bey<strong>on</strong>d <strong>the</strong> specific obligati<strong>on</strong> to implement <strong>the</strong> provisi<strong>on</strong>s <strong>of</strong> Articles 3 to 9, obligati<strong>on</strong>sderiv<strong>in</strong>g from <strong>the</strong>se articles are <strong>of</strong> cross-cutt<strong>in</strong>g nature <strong>and</strong> <strong>the</strong>refore should also beapplied with<strong>in</strong> any assessment <strong>of</strong> a specific substantive provisi<strong>on</strong> (i.e. Articles 10 to 30UN CRPD) <strong>and</strong> <strong>in</strong> relati<strong>on</strong> to certa<strong>in</strong> m<strong>on</strong>itor<strong>in</strong>g <strong>and</strong> implementati<strong>on</strong> provisi<strong>on</strong>s (i.e.Articles 31 to 33 UN CRPD) <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>.3.1 General Pr<strong>in</strong>ciples <strong>of</strong> <strong>the</strong> UN CRPDArticle 3 <strong>of</strong> <strong>the</strong> UN CRPD sets forth <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>‟s general pr<strong>in</strong>ciples, 80 <strong>and</strong> thusenunciates <strong>the</strong> general (or normative) pr<strong>in</strong>ciples up<strong>on</strong> which <strong>the</strong> UN CRPD is based.Secti<strong>on</strong> 3.1 presents <strong>the</strong> core elements <strong>and</strong> obligati<strong>on</strong>s for States Parties, deriv<strong>in</strong>gfrom Article 3 UN CRPD. The secti<strong>on</strong> aims to provide general recommendati<strong>on</strong>s forfuture implementati<strong>on</strong>. Due to <strong>the</strong> general character <strong>of</strong> Article 3, it is not possible toprovide a dist<strong>in</strong>ct overview <strong>of</strong> <strong>practices</strong> related to its implementati<strong>on</strong> by <strong>the</strong> EU <strong>and</strong> itsMember States. However, <strong>the</strong> general pr<strong>in</strong>ciples <strong>of</strong> <strong>the</strong> UN CRPD will be exam<strong>in</strong>ed(where appropriate) <strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong> specific Articles <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>.3.1.1 Article 3 obligati<strong>on</strong>sArticle 3 <strong>of</strong> <strong>the</strong> UN CRPD articulates <strong>the</strong> general pr<strong>in</strong>ciples that will serve to guide <strong>the</strong><strong>in</strong>terpretati<strong>on</strong> <strong>of</strong> <strong>the</strong> entire text <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. The general pr<strong>in</strong>ciples <strong>of</strong> <strong>the</strong> UNCRPD provide what <strong>on</strong>e senior commentator has referred to as <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>‟s80 A detailed overview <strong>of</strong> <strong>the</strong> general pr<strong>in</strong>ciples is provided <strong>in</strong> <strong>the</strong> Brief<strong>in</strong>g Paper “General Pr<strong>in</strong>ciples <strong>and</strong>Core Obligati<strong>on</strong>s under <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities”, written by Janet E.Lord <strong>and</strong> Pr<strong>of</strong>. M. Ste<strong>in</strong> for <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g> VC/2008/1214.Page | 44
“moral compass”. 81 They are benchmarks aga<strong>in</strong>st which EU <strong>and</strong> Member States legalframeworks should be assessed <strong>in</strong> order to determ<strong>in</strong>e overall compliance. Generalpr<strong>in</strong>ciples <strong>in</strong>clude: respect for <strong>in</strong>dividual dignity, aut<strong>on</strong>omy, <strong>and</strong> <strong>in</strong>dependence; respectfor difference <strong>and</strong> acceptance <strong>of</strong> disability as human diversity; n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> <strong>and</strong>equality <strong>of</strong> opportunity; full <strong>and</strong> effective participati<strong>on</strong>; accessibility; gender equality;<strong>and</strong> respect for children‟s rights <strong>and</strong> support <strong>of</strong> <strong>the</strong>ir evolv<strong>in</strong>g capacities.While <strong>the</strong> terms „respect for <strong>in</strong>herent dignity‟, „<strong>in</strong>dividual aut<strong>on</strong>omy‟ <strong>and</strong> „<strong>in</strong>dependence<strong>of</strong> pers<strong>on</strong>s‟ (Article 3(a) UN CRPD) are not specifically def<strong>in</strong>ed <strong>in</strong> <strong>the</strong> UN CRPD,toge<strong>the</strong>r <strong>the</strong>y encompass <strong>the</strong> overall thrust <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>, namely, that pers<strong>on</strong>swith disabilities, as human be<strong>in</strong>gs, have <strong>the</strong> right to all human rights <strong>and</strong> freedoms.The pr<strong>in</strong>ciple „respect for difference <strong>and</strong> acceptance <strong>of</strong> disability as human diversity‟,(Article 3(a) UN CRPD) is also not def<strong>in</strong>ed <strong>in</strong> <strong>the</strong> UN CRPD, nor does it attach toexist<strong>in</strong>g human rights c<strong>on</strong>venti<strong>on</strong> term<strong>in</strong>ology; though <strong>the</strong> pr<strong>in</strong>ciple clearlyacknowledges, for example, a basic idea <strong>of</strong> human rights law that <strong>in</strong>dividuals are activesubjects <strong>of</strong> human rights, as opposed to objects to be acted up<strong>on</strong>. Moreover, <strong>in</strong>recognis<strong>in</strong>g disability as a natural part <strong>of</strong> human diversity, Article 3(a) UN CRPDunderl<strong>in</strong>es <strong>the</strong> social c<strong>on</strong>text <strong>of</strong> disability. It thus obliges States Parties to abolishexist<strong>in</strong>g <strong>practices</strong> based <strong>on</strong> outmoded approaches to disability.N<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> requires States Parties to ensure <strong>the</strong> equality <strong>of</strong> <strong>in</strong>dividuals withdisabilities, as well as prohibit<strong>in</strong>g any discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> disability. Asrecognised under human rights law, a robust n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> <strong>and</strong> equalityframework recognises that <strong>the</strong> achievement <strong>of</strong> de facto equality may require <strong>the</strong><strong>in</strong>troducti<strong>on</strong> <strong>of</strong> specific, or affirmative acti<strong>on</strong> measures <strong>in</strong> order to achieve equality, <strong>and</strong>to lessen, <strong>and</strong> eradicate c<strong>on</strong>diti<strong>on</strong>s that re<strong>in</strong>force <strong>and</strong> perpetuate discrim<strong>in</strong>ati<strong>on</strong>. 82 Thepr<strong>in</strong>ciple <strong>of</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> is fur<strong>the</strong>r articulated as a substantive right <strong>in</strong> Article 5UN CRPD, <strong>and</strong> exemplifies a particularly robust versi<strong>on</strong> <strong>of</strong> equality. Thus, formalequality measures, such as simple guarantees <strong>of</strong> equality, without any support<strong>in</strong>gmeasures, are not enough to realise <strong>the</strong> substantive equality visi<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD.Participati<strong>on</strong> <strong>and</strong> <strong>in</strong>clusi<strong>on</strong> denote <strong>the</strong> right to participate <strong>in</strong> decisi<strong>on</strong>-mak<strong>in</strong>g <strong>and</strong>should be understood broadly <strong>and</strong> well bey<strong>on</strong>d <strong>the</strong> vot<strong>in</strong>g c<strong>on</strong>text. The c<strong>on</strong>text <strong>of</strong>participati<strong>on</strong> is fur<strong>the</strong>r elaborated <strong>in</strong> Article 29 UN CRPD.81 Gerard Qu<strong>in</strong>n, Key Note Address to German European Uni<strong>on</strong> Presidency M<strong>in</strong>isterial C<strong>on</strong>ference:Empower<strong>in</strong>g Pers<strong>on</strong>s with Disabilities, The UN C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Human Rights <strong>of</strong> Pers<strong>on</strong>s withDisabilities: A Trigger for Worldwide Law Reform, Berl<strong>in</strong>, 11 June 2007, available at:http://www.eu2007.bmas.de/EU2007/Redakti<strong>on</strong>/Deutsch/PDF/2007-06-12-redequ<strong>in</strong>n,property¼pdf,bereich¼eu2007,sprache¼de,rwb¼true.pdf82 See Human Rights Committee, General Comment 18, n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>, para. 10; CERD, art. 1(4);CEDSAW, Article 4(1).Page | 45
The pr<strong>in</strong>ciple <strong>of</strong> „equality <strong>of</strong> opportunity‟ (Article 3 (e) UN CRPD) compliments <strong>the</strong>pr<strong>in</strong>ciple <strong>of</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>. Equality <strong>of</strong> opportunity reflects <strong>the</strong> social model <strong>of</strong>disability <strong>in</strong> recognis<strong>in</strong>g that <strong>the</strong> <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities requiresmodificati<strong>on</strong> <strong>of</strong> societal systems <strong>and</strong> <strong>the</strong> envir<strong>on</strong>ment.The pr<strong>in</strong>ciple <strong>of</strong> accessibility (Article 3(f) UN CRPD) requires State Parties to dismantle<strong>and</strong> prevent barriers result<strong>in</strong>g from discrim<strong>in</strong>atory attitudes by promot<strong>in</strong>g different forms<strong>of</strong> accessibility <strong>in</strong> <strong>the</strong> public <strong>and</strong> private spheres, <strong>in</strong>clud<strong>in</strong>g physical, technological,ec<strong>on</strong>omic <strong>and</strong> social accessibility, as well as <strong>in</strong>formati<strong>on</strong> <strong>and</strong> communicati<strong>on</strong>accessibility. The pr<strong>in</strong>ciple <strong>of</strong> accessibility is fur<strong>the</strong>r elaborated <strong>in</strong> Article 9 <strong>of</strong> <strong>the</strong> UNCRPD, <strong>and</strong> <strong>the</strong>refore will be elaborated <strong>in</strong> Secti<strong>on</strong> 3.5 <strong>of</strong> this report.Gender equality (Article 3(g) UN CRPD) refers to equality between men <strong>and</strong> womenwith disabilities. The pr<strong>in</strong>ciple is also addressed <strong>in</strong> Article 6 <strong>of</strong> <strong>the</strong> UN CRPD, <strong>and</strong><strong>the</strong>refore will be elaborated <strong>in</strong> Secti<strong>on</strong> 3.4 <strong>of</strong> this report.F<strong>in</strong>ally, <strong>the</strong> pr<strong>in</strong>ciple „respect for <strong>the</strong> evolv<strong>in</strong>g capacities <strong>of</strong> children with disabilities‟(Article 3(h) UN CRPD) requires that <strong>the</strong> human rights <strong>and</strong> fundamental freedoms setout <strong>in</strong> <strong>the</strong> UN CRPD, be <strong>in</strong>terpreted <strong>and</strong> applied <strong>in</strong> a manner that recognises <strong>and</strong>accommodates <strong>the</strong> development <strong>and</strong> <strong>in</strong>dependence <strong>of</strong> children with disabilitiestowards adulthood. The pr<strong>in</strong>ciple is also addressed <strong>in</strong> Article 7 <strong>of</strong> <strong>the</strong> UN CRPD, <strong>and</strong><strong>the</strong>refore will be elaborated <strong>in</strong> Secti<strong>on</strong> 3.4 <strong>of</strong> this report.3.1.2 General Recommendati<strong>on</strong>s for States Parties to <strong>the</strong> UN CRPDStates Parties should, as part <strong>of</strong> <strong>the</strong> implementati<strong>on</strong> process <strong>of</strong> <strong>the</strong> UN CRPD, assesswhe<strong>the</strong>r <strong>the</strong> general pr<strong>in</strong>ciples <strong>of</strong> <strong>the</strong> UN CRPD are reflected <strong>in</strong> legislati<strong>on</strong>, policy <strong>and</strong><strong>in</strong> adm<strong>in</strong>istrative arrangements related to <strong>the</strong> overall implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD.States Parties should, <strong>in</strong>ter alia, ensure respect for <strong>the</strong> general pr<strong>in</strong>ciples <strong>of</strong> <strong>the</strong> UNCRPD <strong>in</strong> all measures related to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD, <strong>in</strong>clud<strong>in</strong>g <strong>in</strong>arrangements for prepar<strong>in</strong>g States Parties reports under <strong>the</strong> UN CRPD, <strong>and</strong> <strong>in</strong>mechanisms for <strong>the</strong> development <strong>of</strong> legislati<strong>on</strong>, policy <strong>and</strong> practice which may affectpers<strong>on</strong>s with disabilities.3.2 General Obligati<strong>on</strong>s <strong>of</strong> <strong>the</strong> UN CRPDArticle 4 <strong>of</strong> <strong>the</strong> UN CRPD requires States Parties to give effect to UN CRPDobligati<strong>on</strong>s with<strong>in</strong> <strong>the</strong>ir domestic legal orders. 8383 A detailed overview <strong>of</strong> <strong>the</strong> general obligati<strong>on</strong>s is provided <strong>in</strong> <strong>the</strong> Brief<strong>in</strong>g Paper “General Pr<strong>in</strong>ciples<strong>and</strong> Core Obligati<strong>on</strong>s under <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities”, written by JanetE. Lord <strong>and</strong> Pr<strong>of</strong>. M. Ste<strong>in</strong> for <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g> VC/2008/1214Page | 46
Secti<strong>on</strong> 3.2 presents <strong>the</strong> core elements <strong>and</strong> obligati<strong>on</strong>s for States Parties, deriv<strong>in</strong>gfrom Article 4 UN CRPD. The secti<strong>on</strong> also provides an overview <strong>of</strong> <strong>in</strong>dicative practicalexamples from <strong>the</strong> European Uni<strong>on</strong> <strong>and</strong> its Member States, <strong>and</strong> aims to providegeneral recommendati<strong>on</strong>s for future implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD.3.2.1 Article 4 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> <strong>practices</strong>Article 4 (paragraph 1 <strong>in</strong> particular) requires States Parties to take measures thatensure <strong>the</strong> promoti<strong>on</strong> <strong>and</strong> full realisati<strong>on</strong> <strong>of</strong> all human rights <strong>and</strong> fundamental freedomsfor all pers<strong>on</strong>s with disabilities, while also prohibit<strong>in</strong>g any form <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong> <strong>in</strong> <strong>the</strong>iratta<strong>in</strong>ment. Article 4 imposes both obligati<strong>on</strong>s <strong>of</strong> c<strong>on</strong>duct 84 <strong>and</strong> obligati<strong>on</strong>s <strong>of</strong>result. 85 Specifically, <strong>the</strong> provisi<strong>on</strong> enumerates <strong>the</strong> obligati<strong>on</strong>s <strong>on</strong> States Parties toadopt legislative, adm<strong>in</strong>istrative <strong>and</strong> o<strong>the</strong>r measures to implement <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>and</strong>to abolish or amend exist<strong>in</strong>g laws, regulati<strong>on</strong>s, customs <strong>and</strong> <strong>practices</strong> thatdiscrim<strong>in</strong>ate aga<strong>in</strong>st pers<strong>on</strong>s with disabilities (Articles 4(1)(a) <strong>and</strong> (b) UN CRPD). Itlogically follows, that <strong>the</strong> UN CRPD requires States Parties to c<strong>on</strong>duct some form <strong>of</strong>screen<strong>in</strong>g exercise, <strong>in</strong> order to measure compliance with <strong>the</strong> UN CRPD acrosslegislative <strong>and</strong> regulatory schemes, as well as reviews <strong>of</strong> customs <strong>and</strong> <strong>practices</strong>. Thec<strong>on</strong>duct <strong>of</strong> a screen<strong>in</strong>g exercise should be a matter <strong>of</strong> first priority for <strong>the</strong> UN CRPDimplementati<strong>on</strong>. This natural read<strong>in</strong>g <strong>of</strong> <strong>the</strong> word<strong>in</strong>g <strong>of</strong> Article 4 UN CRPD f<strong>in</strong>dssupport <strong>in</strong> a recent statement <strong>of</strong> <strong>the</strong> Chair <strong>of</strong> <strong>the</strong> CEDAW 86 Committee <strong>in</strong> 2008 that <strong>the</strong>obligati<strong>on</strong> to modify <strong>and</strong> abolish laws c<strong>on</strong>ta<strong>in</strong>ed <strong>in</strong> <strong>the</strong> parallel provisi<strong>on</strong> <strong>of</strong> CEDAW(Article 2) is an „immediate‟ obligati<strong>on</strong> <strong>of</strong> States Parties even if <strong>in</strong> practice it takestime to implement. 87 Fur<strong>the</strong>rmore, <strong>the</strong> OHCHR has also underl<strong>in</strong>ed that <strong>the</strong> obligati<strong>on</strong>for a comprehensive review requires rigorous acti<strong>on</strong>, <strong>and</strong> that such a review shouldc<strong>on</strong>sider <strong>the</strong> UN CRPD “not <strong>on</strong>ly article by article, but also holistically, recognis<strong>in</strong>g <strong>the</strong><strong>in</strong>terdependence <strong>and</strong> <strong>in</strong>divisibility <strong>of</strong> human rights.” 8884 See, Richard Pierre Claude <strong>and</strong> Burns West<strong>on</strong>, Human Rights <strong>in</strong> <strong>the</strong> World Community 159 (1992).Obligati<strong>on</strong>s <strong>of</strong> c<strong>on</strong>duct may be def<strong>in</strong>ed as specified behaviour, whe<strong>the</strong>r active or passive, that <strong>the</strong> dutybearer should ei<strong>the</strong>r follow or absta<strong>in</strong> from do<strong>in</strong>g.85 Ibid, Obligati<strong>on</strong>s <strong>of</strong> result are broadly crafted obligati<strong>on</strong>s associated with atta<strong>in</strong><strong>in</strong>g a particular effect,applied especially <strong>in</strong> relati<strong>on</strong> to ec<strong>on</strong>omic, social <strong>and</strong> cultural rights. An obligati<strong>on</strong> <strong>of</strong> c<strong>on</strong>duct, as notedabove, refers to <strong>the</strong> result that <strong>the</strong> duty bearer must ei<strong>the</strong>r achieve or refra<strong>in</strong> from do<strong>in</strong>g.86 C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Elim<strong>in</strong>ati<strong>on</strong> <strong>of</strong> all forms <strong>of</strong> Discrim<strong>in</strong>ati<strong>on</strong> Aga<strong>in</strong>st Women (CEDAW)87 See Ms. Šim<strong>on</strong>ović‟s statement, Informal panel discussi<strong>on</strong> <strong>on</strong> <strong>the</strong> UN mechanisms, 4 April 2008, p 5available at:http://www2.ohchr.org/english/bodies/cedaw/docs/statement/Discrim<strong>in</strong>atory_Laws_Statement_Sim<strong>on</strong>ovic_04.04.08.pdf88 See A/HRC/10/48, supra note 41, p. 10, para. 30. See also Committee <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> <strong>the</strong> Child,General Comment No. 5 (CRC/GC/2003/5), para 18, available at:http://www2.ohchr.org/english/bodies/crc/comments.htmPage | 47
The obligati<strong>on</strong> to modify <strong>and</strong> abolish any laws, regulati<strong>on</strong>s, customs <strong>and</strong> <strong>practices</strong> thatdiscrim<strong>in</strong>ate aga<strong>in</strong>st people with disabilities (Article 4(1) UNCRPD) clearly entails anobligati<strong>on</strong> to exam<strong>in</strong>e whe<strong>the</strong>r exist<strong>in</strong>g laws <strong>and</strong> <strong>practices</strong> do so discrim<strong>in</strong>ate, <strong>and</strong> notsimply to wait until a pers<strong>on</strong> who has been discrim<strong>in</strong>ated aga<strong>in</strong>st, br<strong>in</strong>gs an acti<strong>on</strong> tochallenge that practice, or for a party to <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> to wait until it adopts newlegislati<strong>on</strong> <strong>in</strong> that particular field anyway. O<strong>the</strong>rwise <strong>the</strong> obligati<strong>on</strong> to „modify <strong>and</strong>abolish‟ discrim<strong>in</strong>atory laws would be rendered virtually empty.Article 4 fur<strong>the</strong>r requires States Parties to adopt an <strong>in</strong>clusive approach to protect <strong>and</strong>promote <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> all policies <strong>and</strong> programmes, whichsuggests <strong>the</strong> need for a screen<strong>in</strong>g exercise to assess policy <strong>and</strong> programm<strong>in</strong>g<strong>in</strong>clusi<strong>on</strong> across all sectors.Article 4 should be read <strong>in</strong> c<strong>on</strong>juncti<strong>on</strong> with Article 33 <strong>of</strong> <strong>the</strong> UN CRPD, whichrecommends States Parties to give due c<strong>on</strong>siderati<strong>on</strong> to <strong>the</strong> establishment ordesignati<strong>on</strong> <strong>of</strong> a governmental coord<strong>in</strong>ati<strong>on</strong> mechanism to facilitate cross-sectoral<strong>and</strong> multi-tiered implementati<strong>on</strong>. C<strong>on</strong>sistent with o<strong>the</strong>r human rights c<strong>on</strong>venti<strong>on</strong>s,<strong>the</strong> UN CRPD provides that States Parties should refra<strong>in</strong> from c<strong>on</strong>duct that violates <strong>the</strong>C<strong>on</strong>venti<strong>on</strong>, <strong>and</strong> also requires that public bodies respect <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s withdisabilities. 89 The UN CRPD likewise requires States Parties to take measures toabolish disability discrim<strong>in</strong>ati<strong>on</strong> by pers<strong>on</strong>s, organisati<strong>on</strong>s or private enterprises. 90Implementati<strong>on</strong> <strong>of</strong> Article 4 UN CRPD by States Parties entails a variety <strong>of</strong> methodsbey<strong>on</strong>d <strong>the</strong> enactment <strong>of</strong> legislati<strong>on</strong>, or screen<strong>in</strong>g <strong>of</strong> exist<strong>in</strong>g legislati<strong>on</strong> to assesscompliance with <strong>the</strong> UN CRPD. 91 These methods <strong>in</strong>clude, for example, policy reviews,robust tra<strong>in</strong><strong>in</strong>g <strong>on</strong> disability rights, <strong>and</strong> <strong>in</strong>formati<strong>on</strong> shar<strong>in</strong>g. The UN CRPD alsorequires States Parties to engage <strong>in</strong> research <strong>and</strong> development <strong>of</strong> accessible <strong>good</strong>s,services <strong>and</strong> technologies for pers<strong>on</strong>s with disabilities <strong>and</strong> to promote o<strong>the</strong>rs toundertake such research. 92 States Parties should also provide accessible <strong>in</strong>formati<strong>on</strong>about assistive technology to pers<strong>on</strong>s with disabilities, 93 <strong>and</strong> promote pr<strong>of</strong>essi<strong>on</strong>al <strong>and</strong>staff tra<strong>in</strong><strong>in</strong>g <strong>on</strong> <strong>the</strong> UN CRPD for those work<strong>in</strong>g with pers<strong>on</strong>s with disabilities. 94 Article4 also requires c<strong>on</strong>sultati<strong>on</strong> with, <strong>and</strong> <strong>in</strong>volvement <strong>of</strong>, pers<strong>on</strong>s with disabilities <strong>in</strong>89 UN CRPD at article 4(1)(d).90 UN CRPD at article 4(1)(e).91 The method <strong>of</strong> translat<strong>in</strong>g <strong>in</strong>ternati<strong>on</strong>al legal obligati<strong>on</strong>s <strong>in</strong>to nati<strong>on</strong>al law is dependent up<strong>on</strong> <strong>the</strong>nature <strong>of</strong> <strong>the</strong> domestic legal system. For a straight-forward account <strong>of</strong> this process, see Report <strong>of</strong> <strong>the</strong>United Nati<strong>on</strong>s C<strong>on</strong>sultative Expert Group Meet<strong>in</strong>g <strong>on</strong> Internati<strong>on</strong>al Norms <strong>and</strong> St<strong>and</strong>ards Relat<strong>in</strong>g toDisability, Berkeley, California, pp 20-24 (December 8-12, 1998).92 UN CRPD at articles 4(1)(f) & (g).93 UN CRPD at article 4(1)(h).94 UN CRPD at article 4(1)(i).Page | 48
develop<strong>in</strong>g <strong>and</strong> implement<strong>in</strong>g legislati<strong>on</strong> <strong>and</strong> policies <strong>and</strong> <strong>in</strong> decisi<strong>on</strong>-mak<strong>in</strong>gprocesses c<strong>on</strong>cern<strong>in</strong>g UN CRPD rights. 95C<strong>on</strong>sider<strong>in</strong>g obligati<strong>on</strong>s set forth <strong>in</strong> Article 4, research for this study <strong>in</strong> <strong>the</strong> EU MemberStates 96 has revealed that most Member States have not yet taken <strong>the</strong> first steptowards fulfilment <strong>of</strong> obligati<strong>on</strong>s aris<strong>in</strong>g out <strong>of</strong> <strong>the</strong> UN CRPD, mean<strong>in</strong>g that nati<strong>on</strong>allegislati<strong>on</strong>s <strong>and</strong> policies have not yet been systematically reviewed. Only four completenati<strong>on</strong>al screen<strong>in</strong>g exercises were identified by this study. The EU Member States,which have fulfilled <strong>the</strong>ir „screen<strong>in</strong>g obligati<strong>on</strong>‟ under <strong>the</strong> UN CRPD, are Austria, 97Germany, Sweden <strong>and</strong> <strong>the</strong> UK.For example, Sweden launched its screen<strong>in</strong>g exercise <strong>in</strong> 2007, before <strong>the</strong> UN CRPDratificati<strong>on</strong>. The process was ma<strong>in</strong>ly largely centralised, <strong>and</strong> <strong>the</strong> resp<strong>on</strong>sibility <strong>of</strong> an<strong>in</strong>vestigator who was appo<strong>in</strong>ted with<strong>in</strong> <strong>the</strong> Government‟s <strong>of</strong>fice to perform <strong>the</strong> follow<strong>in</strong>gtasks: (a) to review (<strong>and</strong> translate) <strong>the</strong> Articles <strong>of</strong> <strong>the</strong> UN CRPD; (b) identify relevantSwedish legislati<strong>on</strong> <strong>and</strong> policies; <strong>and</strong> (c) evaluate whe<strong>the</strong>r or not changes wereneeded. The screen<strong>in</strong>g process lasted approximately a year, <strong>and</strong> results werepublished <strong>in</strong> a report <strong>in</strong> March 2008. 98 The ma<strong>in</strong> c<strong>on</strong>clusi<strong>on</strong> <strong>of</strong> <strong>the</strong> report was that“although much rema<strong>in</strong>s to be d<strong>on</strong>e” before Sweden fully satisfies its obligati<strong>on</strong>s under<strong>the</strong> UN CRPD, “no legislative changes were needed” <strong>in</strong> order to ratify <strong>the</strong> UN CRPD<strong>and</strong> its Opti<strong>on</strong>al Protocol. 99 Even though <strong>the</strong> screen<strong>in</strong>g report does identify some gaps<strong>in</strong> Swedish <strong>practices</strong> related to disability, <strong>the</strong> report‟s c<strong>on</strong>clusi<strong>on</strong>s c<strong>on</strong>ta<strong>in</strong> no c<strong>on</strong>creteproposals for necessary changes (e.g. legislative amendment, adopti<strong>on</strong> <strong>of</strong> new policiesor o<strong>the</strong>r). 100Regard<strong>in</strong>g <strong>the</strong> <strong>in</strong>volvement <strong>of</strong> pers<strong>on</strong>s with disabilities, as stated by a Swedishrepresentative, a reference group represent<strong>in</strong>g <strong>the</strong> disability movement was appo<strong>in</strong>ted95 UN CRPD at article 4(3).96 See Research paper <strong>on</strong> “Nati<strong>on</strong>al overview <strong>of</strong> legislati<strong>on</strong> <strong>and</strong> policies that needed/needs to beadjusted <strong>in</strong> order to comply with <strong>the</strong> UN CRPD”, written by Karen Walsh <strong>of</strong> <strong>the</strong> Center for Disability Law<strong>and</strong> Policy <strong>of</strong> <strong>the</strong> Nati<strong>on</strong>al University <strong>of</strong> Irel<strong>and</strong>, Galway, for <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g> VC/2008/1214.97 Austrian resp<strong>on</strong>se to <str<strong>on</strong>g>Study</str<strong>on</strong>g>‟s questi<strong>on</strong>naire <strong>on</strong> “Nati<strong>on</strong>al Instituti<strong>on</strong>al <strong>and</strong> Policy Apparatus”. Austrialaunched a screen<strong>in</strong>g exercise dur<strong>in</strong>g UN CRPD negotiati<strong>on</strong>s. As <strong>the</strong> Austrian representative stated,“many topics, which <strong>the</strong> UN CRPD c<strong>on</strong>stitutes, were determ<strong>in</strong>ed <strong>in</strong> Austria before UN CRPD signature<strong>and</strong> ratificati<strong>on</strong>. All federal m<strong>in</strong>istries were <strong>in</strong>volved <strong>in</strong> <strong>the</strong> screen<strong>in</strong>g process <strong>of</strong> Austrian law c<strong>on</strong>cern<strong>in</strong>gcompatibility with <strong>the</strong> UN CRPD”. However it was not clearly determ<strong>in</strong>ed whe<strong>the</strong>r pers<strong>on</strong>s withdisabilities were c<strong>on</strong>sulted or whe<strong>the</strong>r <strong>the</strong> results <strong>of</strong> this screen<strong>in</strong>g exercise were made available for <strong>the</strong>public. Informati<strong>on</strong> about <strong>the</strong> outcomes <strong>of</strong> <strong>the</strong> Austrian screen<strong>in</strong>g exercise was obta<strong>in</strong>ed by this study,but a s<strong>in</strong>gle report c<strong>on</strong>ta<strong>in</strong><strong>in</strong>g all outcomes <strong>of</strong> <strong>the</strong> exercise was not identified.98The published results <strong>of</strong> <strong>the</strong> Swedish screen<strong>in</strong>g process are available (<strong>in</strong> Swedish) at:http://www.reger<strong>in</strong>gen.se/sb/d/10055/a/10191899 Swedish resp<strong>on</strong>se to <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g>‟s Questi<strong>on</strong>naire <strong>on</strong> “<strong>good</strong> <strong>practices</strong> <strong>in</strong> <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UNC<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities”100 It should be noted though that some guidance for changes is given <strong>in</strong> <strong>the</strong> report.Page | 49
to help <strong>the</strong> <strong>in</strong>vestigator, <strong>and</strong> <strong>the</strong> screen<strong>in</strong>g report was developed <strong>in</strong> close cooperati<strong>on</strong>with representatives from disability organisati<strong>on</strong>s. 101In additi<strong>on</strong> to nati<strong>on</strong>al governmental screen<strong>in</strong>g exercises, a screen<strong>in</strong>g exercise wasalso identified <strong>in</strong> Spa<strong>in</strong> that was a n<strong>on</strong>-governmental <strong>in</strong>itiative. This civil society<strong>in</strong>itiative satisfies <strong>the</strong> screen<strong>in</strong>g requirements set forth <strong>in</strong> Article 4 <strong>of</strong> <strong>the</strong> UN CRPD,<strong>and</strong> <strong>the</strong>refore <strong>the</strong> <strong>in</strong>itiative could be characterised as a „<strong>good</strong> practice‟.In 2007, <strong>the</strong> Spanish Committee <strong>of</strong> People with Disabilities (CERMI) 102 <strong>in</strong> cooperati<strong>on</strong>with University Carlos III <strong>of</strong> Madrid <strong>and</strong> supported by Fundación ONCE, decided tolaunch a screen<strong>in</strong>g <strong>of</strong> Spanish <strong>practices</strong> relevant to <strong>the</strong> UN CRPD, evaluatecompliance, <strong>and</strong> identify areas where changes are needed. To this purpose, <strong>the</strong>screen<strong>in</strong>g exercise addressed <strong>the</strong> follow<strong>in</strong>g issues:a. <strong>the</strong> situati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> Spa<strong>in</strong>;b. <strong>the</strong> exist<strong>in</strong>g legal framework for ensur<strong>in</strong>g <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities;c. <strong>the</strong> need for law <strong>and</strong> policy reform <strong>in</strong> <strong>the</strong> light <strong>of</strong> <strong>the</strong> UN CRPD; <strong>and</strong>d. an exam<strong>in</strong>ati<strong>on</strong> <strong>of</strong> nati<strong>on</strong>al bodies that could play <strong>the</strong> role <strong>of</strong> a focal po<strong>in</strong>t, <strong>and</strong>/orcoord<strong>in</strong>ati<strong>on</strong> mechanism, <strong>and</strong>/or mechanisms with <strong>the</strong> m<strong>and</strong>ate to m<strong>on</strong>itor,protect <strong>and</strong> promote <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities.University Carlos III <strong>of</strong> Madrid assembled a team <strong>of</strong> high level pr<strong>of</strong>essi<strong>on</strong>als from adiverse range <strong>of</strong> fields to perform <strong>the</strong> legislative evaluati<strong>on</strong>, <strong>and</strong> ensure a crosssectoralanalysis. Representatives <strong>of</strong> organisati<strong>on</strong>s represent<strong>in</strong>g <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>swith disabilities also participated <strong>in</strong> <strong>the</strong> project team.In additi<strong>on</strong> to <strong>the</strong> legislative screen<strong>in</strong>g, CERMI compiled <strong>in</strong>formati<strong>on</strong> <strong>on</strong> <strong>the</strong> situati<strong>on</strong> <strong>of</strong>pers<strong>on</strong>s with disabilities, <strong>on</strong> <strong>the</strong> basis <strong>of</strong> a number <strong>of</strong> sources, <strong>in</strong>clud<strong>in</strong>g queries <strong>and</strong>compla<strong>in</strong>ts received by CERMI, <strong>in</strong>formati<strong>on</strong> from o<strong>the</strong>r associati<strong>on</strong>s <strong>and</strong> <strong>the</strong> media. Asa result <strong>of</strong> this process, a report entitled “Human Rights <strong>and</strong> Disability” was published<strong>in</strong> 2008. 103 The aim <strong>of</strong> <strong>the</strong> report was to raise awareness <strong>of</strong> <strong>the</strong> real situati<strong>on</strong> <strong>of</strong>pers<strong>on</strong>s with disabilities with<strong>in</strong> Spa<strong>in</strong>, through <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> <strong>in</strong>formati<strong>on</strong> <strong>on</strong> where <strong>the</strong>rights <strong>of</strong> disabled pers<strong>on</strong>s were be<strong>in</strong>g violated, <strong>and</strong> <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> c<strong>on</strong>creterecommendati<strong>on</strong>s <strong>on</strong> necessary steps that need to be taken by <strong>the</strong> State <strong>in</strong> order toprotect <strong>and</strong> promote <strong>the</strong> rights <strong>of</strong> disabled people, as encompassed <strong>in</strong> <strong>the</strong> UN CRPD.101 Swedish resp<strong>on</strong>se to <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g>‟s Questi<strong>on</strong>naire <strong>on</strong> <strong>good</strong> <strong>practices</strong>. As <strong>in</strong>dicated <strong>in</strong> <strong>the</strong> foreword <strong>of</strong> <strong>the</strong>report, reference group represent<strong>in</strong>g <strong>the</strong> disability movement <strong>in</strong>cludes representatives from The SwedishDisability Federati<strong>on</strong> (H<strong>and</strong>ikappförbundens samarbetsorgan - HSO) <strong>and</strong> The Swedish Associati<strong>on</strong> <strong>of</strong>Pers<strong>on</strong>s with visual impairments (Synskadades Riksför-bund)102 CERMI is a Spanish umbrella group for disabled people‟s organisati<strong>on</strong>s, represent<strong>in</strong>g more than5,000 associati<strong>on</strong>s <strong>and</strong> organisati<strong>on</strong>s <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>and</strong> <strong>the</strong>ir families.103 The CERMI Report is available (<strong>in</strong> Spanish) from http://www.cermi.es/NR/rd<strong>on</strong>lyres/A6D627AE-6A58-4213-884D-6C4F9BE20C5A/28913/DerechosHumanos2.pdfPage | 50
Both screen<strong>in</strong>g reports, prepared by University Carlos III <strong>of</strong> Madrid, <strong>and</strong> CERMI werepresented to Spanish parliamentarians.This Spanish civil society <strong>in</strong>itiative fulfils all <strong>the</strong> necessary requirements for an effectivescreen<strong>in</strong>g exercise. Practical experience ga<strong>in</strong>ed from Spanish actors <strong>in</strong>volved <strong>in</strong> <strong>the</strong>screen<strong>in</strong>g process could be <strong>of</strong> added value for EU Member States which have not yetc<strong>on</strong>ducted a screen<strong>in</strong>g exercise, as required by Article 4 UN CRPD.In additi<strong>on</strong> to States, <strong>the</strong> obligati<strong>on</strong> <strong>of</strong> a „screen<strong>in</strong>g exercise‟ applies with equal force to<strong>the</strong> European Uni<strong>on</strong> up<strong>on</strong> <strong>the</strong> c<strong>on</strong>clusi<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. Am<strong>on</strong>g <strong>the</strong> moreimportant <strong>of</strong> <strong>the</strong>se general obligati<strong>on</strong>s, Article 4(1) UN CRPD implies an <strong>on</strong>go<strong>in</strong>gprocess <strong>of</strong> reflecti<strong>on</strong> with regard to exist<strong>in</strong>g laws (Uni<strong>on</strong> acquis) <strong>and</strong> policies aga<strong>in</strong>st<strong>the</strong> requirements <strong>of</strong> <strong>the</strong> UN CRPD. The EU is not exempted from this obligati<strong>on</strong>. Ino<strong>the</strong>r words, <strong>the</strong> argument that <strong>the</strong> EU has limited competence for matters related to<strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> is not sufficient to show that <strong>the</strong> EU is exemptedfrom <strong>the</strong> obligati<strong>on</strong> to exam<strong>in</strong>e <strong>and</strong>, if necessary, to modify exist<strong>in</strong>g legislati<strong>on</strong> withregard to matters covered by <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>and</strong> fall<strong>in</strong>g under EU competence. 104 Toargue o<strong>the</strong>rwise would militate aga<strong>in</strong>st <strong>the</strong> pla<strong>in</strong> mean<strong>in</strong>g <strong>of</strong> <strong>the</strong> text <strong>and</strong> frustrate <strong>on</strong>e<strong>of</strong> <strong>the</strong> ma<strong>in</strong> objects <strong>and</strong> purpose <strong>of</strong> <strong>the</strong> UN CRPD, which is to challenge <strong>the</strong> legacy <strong>of</strong><strong>the</strong> past.As menti<strong>on</strong>ed earlier <strong>in</strong> Secti<strong>on</strong> 1.2, Article 44(1) <strong>of</strong> <strong>the</strong> UN CRPD requires for <strong>the</strong> EUto declare <strong>the</strong> extent <strong>of</strong> its competence with respect to matters covered by <strong>the</strong>C<strong>on</strong>venti<strong>on</strong>. As such, <strong>the</strong> EU has performed an exercise to identify exist<strong>in</strong>g EU<strong>in</strong>struments related to matters covered by C<strong>on</strong>venti<strong>on</strong>. The outcome <strong>of</strong> this process is<strong>the</strong> Appendix that accompanies <strong>the</strong> declarati<strong>on</strong> <strong>of</strong> competences (annexed <strong>in</strong> CouncilDecisi<strong>on</strong> 2010/48/EC), which <strong>in</strong>tends to specify <strong>the</strong> areas <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> that fallwith<strong>in</strong> <strong>the</strong> EU competence <strong>and</strong> better show to <strong>the</strong> o<strong>the</strong>r c<strong>on</strong>tract<strong>in</strong>g parties <strong>the</strong>distributi<strong>on</strong> <strong>of</strong> competence between <strong>the</strong> EU <strong>and</strong> its Member States. 105 However, <strong>the</strong>mere identificati<strong>on</strong> <strong>of</strong> EU legal <strong>in</strong>struments is not sufficient to show fulfilment <strong>of</strong> <strong>the</strong>obligati<strong>on</strong> to perform a „screen<strong>in</strong>g exercise‟ which entails an obligati<strong>on</strong> to exam<strong>in</strong>e <strong>and</strong>if necessary modify exist<strong>in</strong>g legislati<strong>on</strong>. It is important though to recall that, if anexam<strong>in</strong>ati<strong>on</strong> <strong>of</strong> EU legislati<strong>on</strong> suggests that changes need to be made, such changescan not affect <strong>the</strong> legal system <strong>of</strong> <strong>the</strong> EU or imply any change <strong>in</strong> <strong>the</strong> competence <strong>of</strong> <strong>the</strong>EU. In o<strong>the</strong>r words, any change to be made <strong>in</strong> EU legislati<strong>on</strong>, or <strong>the</strong> adopti<strong>on</strong> <strong>of</strong> newEU legislati<strong>on</strong>, with <strong>the</strong> aim to implement <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>, may not <strong>in</strong>fr<strong>in</strong>ge <strong>on</strong> <strong>the</strong>aut<strong>on</strong>omy <strong>of</strong> <strong>the</strong> EC (now EU) legal order, or <strong>in</strong>fluence <strong>the</strong> allocati<strong>on</strong> <strong>of</strong> powers fixed by<strong>the</strong> Treaties. 106 It logically follows that any screen<strong>in</strong>g to be c<strong>on</strong>ducted by <strong>the</strong> EU should104 For fur<strong>the</strong>r details <strong>on</strong> „<strong>in</strong>ternati<strong>on</strong>al resp<strong>on</strong>sibility‟ <strong>of</strong> <strong>the</strong> EU, see supra note 43105 Ibid106 See ECJ rul<strong>in</strong>g <strong>in</strong> <strong>the</strong> Kadi case, supra note 37Page | 51
evaluate EU legislati<strong>on</strong> towards <strong>the</strong> requirements <strong>of</strong> <strong>the</strong> UN CRPD <strong>and</strong> c<strong>on</strong>sider <strong>the</strong>competence <strong>of</strong> <strong>the</strong> EU to act <strong>in</strong> <strong>the</strong> fields covered by <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. The latterc<strong>on</strong>siderati<strong>on</strong> (i.e. EU competence) will be important to def<strong>in</strong>e <strong>the</strong> type <strong>of</strong> measuresthat <strong>the</strong> EU would need to take <strong>in</strong> order to meet <strong>the</strong> requirements <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>.In c<strong>on</strong>clusi<strong>on</strong>, <strong>the</strong> EU is required to exam<strong>in</strong>e (with<strong>in</strong> <strong>the</strong> areas <strong>of</strong> its competence)exist<strong>in</strong>g EU <strong>in</strong>struments <strong>in</strong> order to identify whe<strong>the</strong>r <strong>the</strong>y are <strong>in</strong> l<strong>in</strong>e with <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>or may need to be adapted (as appropriate) <strong>in</strong> order to ensure that are c<strong>on</strong>sistent withwhat is required by <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>.3.2.2 General Recommendati<strong>on</strong>s for States Parties to <strong>the</strong> UN CRPDStates Parties should undertake a comprehensive screen<strong>in</strong>g exercise to assesswhat measures have been taken, <strong>and</strong> should still be taken, to implement <strong>the</strong> rightsrecognised <strong>in</strong> <strong>the</strong> UN CRPD, <strong>in</strong>clud<strong>in</strong>g, legislative, adm<strong>in</strong>istrative <strong>and</strong> o<strong>the</strong>r types <strong>of</strong>measures. More specifically:• The screen<strong>in</strong>g exercise should <strong>in</strong>clude an assessment <strong>of</strong>:a. measures needed to modify or abolish exist<strong>in</strong>g laws, regulati<strong>on</strong>s, customs<strong>and</strong> <strong>practices</strong> that c<strong>on</strong>stitute discrim<strong>in</strong>ati<strong>on</strong> aga<strong>in</strong>st pers<strong>on</strong>s with disabilitiesb. measures to ensure that <strong>the</strong> protecti<strong>on</strong> <strong>and</strong> promoti<strong>on</strong> <strong>of</strong> <strong>the</strong> human rights <strong>of</strong>pers<strong>on</strong>s with disabilities is reflected <strong>in</strong> all policies <strong>and</strong> programmes (acrossall relevant fields covered by <strong>the</strong> UN CRPD);c. measures to ensure that <strong>the</strong> State Party refra<strong>in</strong>s from acts or <strong>practices</strong><strong>in</strong>c<strong>on</strong>sistent with <strong>the</strong> UN CPRD;d. measures to ensure that public authorities <strong>and</strong> <strong>in</strong>stituti<strong>on</strong>s act <strong>in</strong> c<strong>on</strong>formitywith <strong>the</strong> UN CRPD;e. measures to elim<strong>in</strong>ate discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> disability by any pers<strong>on</strong>,organisati<strong>on</strong> or private enterprise;f. measures to implement ec<strong>on</strong>omic, social <strong>and</strong> cultural rights; <strong>and</strong>g. whe<strong>the</strong>r pers<strong>on</strong>s with disabilities are actively <strong>in</strong>volved <strong>in</strong> <strong>the</strong> development <strong>of</strong>legislati<strong>on</strong> <strong>and</strong> policies to implement <strong>the</strong> UN CRPD• The assessment should also address whe<strong>the</strong>r law prohibits disabilitydiscrim<strong>in</strong>ati<strong>on</strong> (across all relevant fields, e.g., <strong>in</strong> employment, educati<strong>on</strong>, sport &recreati<strong>on</strong>, health, vot<strong>in</strong>g) <strong>and</strong> whe<strong>the</strong>r remedies are available for <strong>in</strong>fr<strong>in</strong>gements.• The screen<strong>in</strong>g exercise should also determ<strong>in</strong>e whe<strong>the</strong>r legislati<strong>on</strong> <strong>in</strong>cludes orcould <strong>in</strong>clude provisi<strong>on</strong>s more c<strong>on</strong>ducive to <strong>the</strong> realisati<strong>on</strong> <strong>of</strong> rights <strong>of</strong> pers<strong>on</strong>swith disabilities than those <strong>in</strong> <strong>the</strong> UN CRPD <strong>and</strong> should also <strong>in</strong>clude coverage -Page | 52
<strong>in</strong> relevant jurisdicti<strong>on</strong>s – <strong>of</strong> all parts <strong>of</strong> federal states without any limitati<strong>on</strong>s orexcepti<strong>on</strong>s.• Pers<strong>on</strong>s with disabilities, <strong>in</strong>clud<strong>in</strong>g children with disabilities, through <strong>the</strong>irrepresentative organisati<strong>on</strong>s, should be closely c<strong>on</strong>sulted <strong>and</strong> actively <strong>in</strong>volved<strong>in</strong> <strong>the</strong> process <strong>of</strong> <strong>the</strong> screen<strong>in</strong>g exercise.States Parties are required by Article 4(1)(f) UN CRPD to develop measures <strong>on</strong>universally designed <strong>good</strong>s, services, equipment <strong>and</strong> facilities <strong>and</strong> st<strong>and</strong>ards <strong>and</strong>guidel<strong>in</strong>es to promote universal design.States Parties should also take measures to provide accessible <strong>in</strong>formati<strong>on</strong> topers<strong>on</strong>s with disabilities about <strong>the</strong>ir rights, forms <strong>of</strong> assistance available to <strong>the</strong>m(Article 4(1)(h) UN CRPD), <strong>and</strong> legislati<strong>on</strong> adopted or adapted to implement <strong>the</strong> UNCRPD.States Parties should, with <strong>the</strong> <strong>in</strong>volvement <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>and</strong> <strong>the</strong>irrepresentative organisati<strong>on</strong>s, establish programmes to promote tra<strong>in</strong><strong>in</strong>g <strong>on</strong> <strong>the</strong> rightsrecognised <strong>in</strong> <strong>the</strong> UN CRPD for pr<strong>of</strong>essi<strong>on</strong>als <strong>and</strong> staff work<strong>in</strong>g with pers<strong>on</strong>s withdisabilities (Article 4(1)(i) UN CRPD).States Parties should closely c<strong>on</strong>sult with <strong>and</strong> actively <strong>in</strong>volve pers<strong>on</strong>s with disabilities,<strong>in</strong>clud<strong>in</strong>g children with disabilities, through <strong>the</strong>ir representative organisati<strong>on</strong>s <strong>in</strong> <strong>the</strong>development <strong>and</strong> implementati<strong>on</strong> <strong>of</strong> legislati<strong>on</strong> <strong>and</strong> policy <strong>and</strong> o<strong>the</strong>r decisi<strong>on</strong>-mak<strong>in</strong>gprocesses c<strong>on</strong>cern<strong>in</strong>g issues relat<strong>in</strong>g to pers<strong>on</strong>s with disabilities (Article 4(3) UNCRPD).3.3 Equality <strong>and</strong> N<strong>on</strong>-Discrim<strong>in</strong>ati<strong>on</strong>Secti<strong>on</strong> 3.3 presents <strong>the</strong> core elements <strong>and</strong> obligati<strong>on</strong>s for States Parties, deriv<strong>in</strong>gfrom Article 5 UN CRPD. The secti<strong>on</strong> also provides an overview <strong>of</strong> examples <strong>of</strong>legislati<strong>on</strong> from <strong>the</strong> EU <strong>and</strong> its Member States, <strong>and</strong> aims to provide generalrecommendati<strong>on</strong>s for future implementati<strong>on</strong>.Detailed checklists, c<strong>on</strong>ta<strong>in</strong>ed <strong>in</strong> Annex I <strong>of</strong> this report, accompany this analysis.3.3.1 Article 5 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong>Article 5 UN CRPD enumerates obligati<strong>on</strong>s relat<strong>in</strong>g to equality <strong>and</strong> n<strong>on</strong>discrim<strong>in</strong>ati<strong>on</strong>,107 <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> obligati<strong>on</strong> to provide reas<strong>on</strong>able accommodati<strong>on</strong>.These obligati<strong>on</strong>s have general (horiz<strong>on</strong>tal) applicati<strong>on</strong> across <strong>the</strong> UN CRPD.107 Apart from Article 5 UN CRPD, references to equality <strong>and</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> are also <strong>in</strong>cluded <strong>in</strong> <strong>the</strong>UN CRPD preambles, purpose (Article 1), <strong>and</strong> general pr<strong>in</strong>ciples (Article 3)Page | 53
Therefore, Article 5 UN CRPD should be read <strong>in</strong> c<strong>on</strong>juncti<strong>on</strong> with all specific measures<strong>in</strong>cluded <strong>in</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>; for example <strong>in</strong> matters related to educati<strong>on</strong>, parenthood,employment, st<strong>and</strong>ard <strong>of</strong> liv<strong>in</strong>g, health, participati<strong>on</strong> <strong>in</strong> public <strong>and</strong> political life, <strong>and</strong>o<strong>the</strong>rs.Article 5(1) UN CRPD affirms that “all pers<strong>on</strong>s are equal before <strong>and</strong> under <strong>the</strong> law <strong>and</strong>are entitled without any discrim<strong>in</strong>ati<strong>on</strong> to <strong>the</strong> equal protecti<strong>on</strong> <strong>and</strong> equal benefit <strong>of</strong> <strong>the</strong>law.” More specifically, Article 5(2) established <strong>the</strong> obligati<strong>on</strong> for States Parties toprohibit all forms <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> disability. Disability discrim<strong>in</strong>ati<strong>on</strong> isdef<strong>in</strong>ed <strong>in</strong> Article 2 UN CRPD to mean:[A]ny dist<strong>in</strong>cti<strong>on</strong>, exclusi<strong>on</strong> or restricti<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> disability which has <strong>the</strong> purposeor effect <strong>of</strong> impair<strong>in</strong>g or nullify<strong>in</strong>g <strong>the</strong> recogniti<strong>on</strong>, enjoyment or exercise, <strong>on</strong> an equalbasis with o<strong>the</strong>rs, <strong>of</strong> all human rights <strong>and</strong> fundamental freedoms <strong>in</strong> <strong>the</strong> political,ec<strong>on</strong>omic, social, cultural, civil or any o<strong>the</strong>r field. It <strong>in</strong>cludes all forms <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong>,<strong>in</strong>clud<strong>in</strong>g denial <strong>of</strong> reas<strong>on</strong>able accommodati<strong>on</strong>. 108The prohibiti<strong>on</strong> <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> disability is thus focussed <strong>on</strong> <strong>the</strong> result<strong>of</strong> an acti<strong>on</strong>, <strong>and</strong> not <strong>the</strong> <strong>in</strong>tenti<strong>on</strong>. 109 S<strong>in</strong>ce it is discrim<strong>in</strong>ati<strong>on</strong> „<strong>on</strong> <strong>the</strong> basis <strong>of</strong> disability‟that is prohibited, it is perhaps fair to <strong>in</strong>fer that <strong>the</strong> protecti<strong>on</strong> extends to pers<strong>on</strong>s whowork with, or are related to, pers<strong>on</strong>s with disabilities, <strong>and</strong> pers<strong>on</strong>s, who might, forexample, acquire a disability <strong>in</strong> <strong>the</strong> future. The former is also compatible with <strong>the</strong> ECJrul<strong>in</strong>g <strong>in</strong> <strong>the</strong> case S. Coleman vs Attridge Law, <strong>in</strong> which <strong>the</strong> ECJ held that <strong>the</strong>Employment Equality Directive 2000/78/EC prohibited direct discrim<strong>in</strong>ati<strong>on</strong> aga<strong>in</strong>st amo<strong>the</strong>r <strong>of</strong> a disabled child, where that discrim<strong>in</strong>ati<strong>on</strong> was based <strong>on</strong> <strong>the</strong> disability <strong>of</strong> herchild (discrim<strong>in</strong>ati<strong>on</strong> by associati<strong>on</strong>). 110C<strong>on</strong>sequently, discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> disability <strong>in</strong>cludes all forms <strong>of</strong>discrim<strong>in</strong>ati<strong>on</strong>; direct, <strong>in</strong>direct, structural, multiple or o<strong>the</strong>r, as well as discrim<strong>in</strong>ati<strong>on</strong> byassociati<strong>on</strong> <strong>and</strong> discrim<strong>in</strong>ati<strong>on</strong> based <strong>on</strong> assumed or future disability. Crucially, <strong>the</strong>drafters <strong>of</strong> <strong>the</strong> UN CRPD were very careful to explicitly l<strong>in</strong>k a denial <strong>of</strong> reas<strong>on</strong>ableaccommodati<strong>on</strong> to discrim<strong>in</strong>ati<strong>on</strong>. That is to say, an unjustified denial <strong>of</strong> reas<strong>on</strong>ableaccommodati<strong>on</strong> is a form <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong>. This noti<strong>on</strong> should apply across <strong>the</strong>C<strong>on</strong>venti<strong>on</strong>. Moreover, <strong>the</strong> <strong>in</strong>tegrati<strong>on</strong> <strong>of</strong> reas<strong>on</strong>able accommodati<strong>on</strong> <strong>in</strong>to <strong>the</strong> def<strong>in</strong>iti<strong>on</strong><strong>of</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> establishes that <strong>the</strong> realisati<strong>on</strong> <strong>of</strong> fundamental civil <strong>and</strong> politicalrights requires <strong>in</strong>dividualised measures, <strong>in</strong> order to address <strong>on</strong>go<strong>in</strong>g systemic108 See UN CRPD at Article 2109 See, <strong>in</strong>ter alia, Agust<strong>in</strong>a Palacios, statement at <strong>the</strong> Open-ended c<strong>on</strong>sultati<strong>on</strong> <strong>on</strong> key legal measuresfor <strong>the</strong> ratificati<strong>on</strong> <strong>and</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities,Geneva, 24 October 2008. Available athttp://www2.ohchr.org/english/issues/disability/docs/F<strong>in</strong>alC<strong>on</strong>sultati<strong>on</strong>report.doc110 See ECJ, 17 July 2008, S. Coleman vs Attridge Law, Steve Law, Case C-303/06, OJ C 223 <strong>of</strong>30.08.2008, p.6Page | 54
discrim<strong>in</strong>ati<strong>on</strong> aga<strong>in</strong>st pers<strong>on</strong>s with disabilities. Specifically, States Parties should “takeall appropriate steps to ensure that reas<strong>on</strong>able accommodati<strong>on</strong> is provided” 111 <strong>in</strong> orderto “promote equality <strong>and</strong> elim<strong>in</strong>ate discrim<strong>in</strong>ati<strong>on</strong>”. 112 Article 5, al<strong>on</strong>g with Article 8(Awareness-rais<strong>in</strong>g) <strong>of</strong> <strong>the</strong> UN CRPD, requires not <strong>on</strong>ly <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> reas<strong>on</strong>ableaccommodati<strong>on</strong> but also positive measures <strong>in</strong> relati<strong>on</strong> to rais<strong>in</strong>g awareness <strong>of</strong> <strong>the</strong> dutyto accommodate <strong>and</strong> compliance mechanisms. 113 Accord<strong>in</strong>gly, Article 5(4) UN CRPD,which requires specific measures to accelerate, or achieve de facto equality,necessitates <strong>the</strong> adopti<strong>on</strong> <strong>of</strong> specific positive measure (such as positive acti<strong>on</strong>programmes, or educati<strong>on</strong> at all levels <strong>on</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>, or <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> fiscal<strong>and</strong> ec<strong>on</strong>omic <strong>in</strong>centives, or o<strong>the</strong>rs) to facilitate substantive equality.On <strong>the</strong> basis <strong>of</strong> Article 5(3) UN CRPD States Parties should (by means <strong>of</strong> nati<strong>on</strong>allegislati<strong>on</strong>) extend <strong>the</strong> duty to provide reas<strong>on</strong>able accommodati<strong>on</strong> to a broad array<strong>of</strong> social actors, such as nati<strong>on</strong>al adm<strong>in</strong>istrati<strong>on</strong>s, employers, educati<strong>on</strong> providers,health care providers, test<strong>in</strong>g <strong>and</strong> qualificati<strong>on</strong> bodies, providers <strong>of</strong> <strong>good</strong>s <strong>and</strong> services,<strong>and</strong> private clubs. The duty requires <strong>the</strong>se actors to reas<strong>on</strong>ably adjust policies,<strong>practices</strong> <strong>and</strong> premises that impede <strong>the</strong> <strong>in</strong>clusi<strong>on</strong>, <strong>and</strong> participati<strong>on</strong>, <strong>of</strong> pers<strong>on</strong>s withdisabilities. While <strong>the</strong> duty <strong>of</strong> reas<strong>on</strong>able accommodati<strong>on</strong> falls with<strong>in</strong> <strong>the</strong> articles <strong>of</strong>general applicati<strong>on</strong>, <strong>and</strong> <strong>the</strong>refore applies across all <strong>of</strong> <strong>the</strong> articles <strong>of</strong> <strong>the</strong> UN CRPD, itis also specifically referred to <strong>in</strong> <strong>the</strong> substantive articles, such as Article 13 which refersto access to justice <strong>and</strong> <strong>the</strong> “provisi<strong>on</strong> <strong>of</strong> procedural <strong>and</strong> age appropriateaccommodati<strong>on</strong>s”. 114 The l<strong>in</strong>k between reas<strong>on</strong>able accommodati<strong>on</strong> <strong>and</strong> disabilitydiscrim<strong>in</strong>ati<strong>on</strong> <strong>in</strong> <strong>the</strong> UN CRPD creates an obligati<strong>on</strong> <strong>of</strong> immediate effect. 115Accord<strong>in</strong>gly, <strong>the</strong> UN CRPD ensures that reas<strong>on</strong>able accommodati<strong>on</strong> is equallyrequired <strong>in</strong> relati<strong>on</strong> to civil <strong>and</strong> political rights, <strong>and</strong> ec<strong>on</strong>omic, social <strong>and</strong> cultural rights.The provisi<strong>on</strong> <strong>of</strong> reas<strong>on</strong>able accommodati<strong>on</strong> requires an <strong>in</strong>dividual analysis that takesaccount <strong>of</strong> <strong>the</strong> situati<strong>on</strong> <strong>of</strong> <strong>the</strong> <strong>in</strong>dividual. Therefore, an appropriate accommodati<strong>on</strong>should always be an <strong>in</strong>dividually tailored soluti<strong>on</strong>. 116 As it is not possible to foreseeall reas<strong>on</strong>able accommodati<strong>on</strong> <strong>in</strong>terventi<strong>on</strong>s that may be required, it is important fordomestic legislati<strong>on</strong> to <strong>in</strong>corporate <strong>the</strong> c<strong>on</strong>cept <strong>of</strong> „reas<strong>on</strong>able accommodati<strong>on</strong>‟ <strong>in</strong> an111 See UN CRPD at Article 5(2)112 See UN CRPD at Article 5(3)113 See Anna Laws<strong>on</strong> (2008), Disability <strong>and</strong> Equality Law <strong>in</strong> Brita<strong>in</strong>: The Role <strong>of</strong> Reas<strong>on</strong>able Adjustment,Hart Publishers 32114 See UN CRPD, at article 13(1)115 See Anna Laws<strong>on</strong>, The UN C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities <strong>and</strong> EuropeanDisability Law: A Catalyst for Cohesi<strong>on</strong>? <strong>in</strong> O. Arnardottir & G. Qu<strong>in</strong>n, (eds.) The United Nati<strong>on</strong>sC<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities: European <strong>and</strong> Sc<strong>and</strong><strong>in</strong>avian Perspectives 19(2009).116 See Pr<strong>of</strong>. Wadd<strong>in</strong>gt<strong>on</strong>, Lisa, When it is Reas<strong>on</strong>able for Europeans to be C<strong>on</strong>fused: Underst<strong>and</strong><strong>in</strong>gwhen a Disability Accommodati<strong>on</strong> is „Reas<strong>on</strong>able‟ from a Comparative Perspective, 29 ComparativeLabor Law & Policy Journal 3, April 2008, pp. 101-124.Page | 55
open-format <strong>and</strong> ensure that accessibility measures are taken as general measures, 117<strong>and</strong> are effectively implemented.Research for this study 118 has revealed that EU Member States have adoptedlegislati<strong>on</strong> ensur<strong>in</strong>g equality <strong>and</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> <strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong> employment.Nati<strong>on</strong>al legislati<strong>on</strong> ma<strong>in</strong>ly results from <strong>the</strong> need to transpose <strong>the</strong> Employment EqualityDirective 2000/78/EC. 119 The Directive, due to its material scope, will be analysedunder secti<strong>on</strong> 4.5.3 <strong>of</strong> this report dedicated to employment (Article 27 UN CRPD).Additi<strong>on</strong>ally, research has revealed that many Member States have extended <strong>the</strong>applicati<strong>on</strong> <strong>of</strong> <strong>the</strong> pr<strong>in</strong>ciple <strong>in</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> bey<strong>on</strong>d <strong>the</strong> fields <strong>of</strong> employment, <strong>and</strong>have adopted general n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> legislati<strong>on</strong>. 120 However, a significantchallenge <strong>in</strong> order to reach full compliance with Article 5 UN CRPD is <strong>the</strong> limitedapplicati<strong>on</strong> <strong>of</strong> reas<strong>on</strong>able accommodati<strong>on</strong> obligati<strong>on</strong>s outside <strong>the</strong> c<strong>on</strong>text <strong>of</strong>employment.The “Thematic Report <strong>on</strong> Disability N<strong>on</strong>-Discrim<strong>in</strong>ati<strong>on</strong> Law <strong>in</strong> <strong>the</strong> European Uni<strong>on</strong>” <strong>of</strong><strong>the</strong> European Network <strong>of</strong> Legal Experts <strong>in</strong> <strong>the</strong> N<strong>on</strong>-Discrim<strong>in</strong>ati<strong>on</strong> field, has noted thatmany countries provide some protecti<strong>on</strong> from disability discrim<strong>in</strong>ati<strong>on</strong> <strong>in</strong> fields o<strong>the</strong>rthan employment. 121 The Report fur<strong>the</strong>r notes that all Member States, o<strong>the</strong>r thanDenmark, Greece <strong>and</strong> Pol<strong>and</strong>, address disability discrim<strong>in</strong>ati<strong>on</strong> outside <strong>of</strong> <strong>the</strong>employment c<strong>on</strong>text <strong>in</strong> some way. Additi<strong>on</strong>ally, it is highlighted that:[..] <strong>in</strong> different countries, <strong>the</strong> relevant c<strong>on</strong>cepts <strong>and</strong> obligati<strong>on</strong>s are set out <strong>in</strong> a variety <strong>of</strong>different types <strong>of</strong> legal <strong>in</strong>strument, e.g. <strong>in</strong> c<strong>on</strong>stituti<strong>on</strong>al guarantees <strong>of</strong> equality, <strong>in</strong> crim<strong>in</strong>allaw provisi<strong>on</strong>s <strong>and</strong> <strong>in</strong> dedicated n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> law statutes. 122For <strong>the</strong> purposes <strong>of</strong> this study, examples <strong>of</strong> anti-discrim<strong>in</strong>ati<strong>on</strong> or equality legislativeacts identified <strong>in</strong> Austria, Belgium, Irel<strong>and</strong> <strong>and</strong> <strong>the</strong> United K<strong>in</strong>gdom are presented117 It is worth recall<strong>in</strong>g that <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> accessibility features <strong>in</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> as general pr<strong>in</strong>ciple(Article 3(f) UN CRPD) as well as an article <strong>of</strong> general <strong>and</strong> cross-cutt<strong>in</strong>g applicati<strong>on</strong> (Article 9 UN CRPD)<strong>and</strong> <strong>the</strong>refore applies across <strong>the</strong> treaty text. In o<strong>the</strong>r words, <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> accessibility should be<strong>in</strong>corporated with<strong>in</strong> every specific or general measure that implements <strong>the</strong> rights recognised <strong>in</strong> <strong>the</strong>C<strong>on</strong>venti<strong>on</strong>.118 Research <strong>on</strong> <strong>the</strong> Member States was c<strong>on</strong>ducted by Karen Walsh <strong>of</strong> <strong>the</strong> Nati<strong>on</strong>al University <strong>of</strong> Irel<strong>and</strong>,Galway <strong>and</strong> f<strong>in</strong>d<strong>in</strong>gs are presented <strong>in</strong> <strong>the</strong> Research Paper <strong>on</strong> “Nati<strong>on</strong>al overview <strong>of</strong> legislati<strong>on</strong> <strong>and</strong>policies that needed/needs to be adjusted <strong>in</strong> order to comply with <strong>the</strong> UN CRPD”, written for <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g>VC/2008/1214.119 Examples <strong>of</strong> Member States <strong>and</strong> EU legislati<strong>on</strong> related to n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> <strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong>employment are presented <strong>in</strong> Secti<strong>on</strong> 4.4 <strong>of</strong> this report.120 For example n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> acts (cover<strong>in</strong>g disability bey<strong>on</strong>d employment) exist <strong>in</strong> Austria,Belgium, Bulgaria, F<strong>in</strong>l<strong>and</strong>, Germany, Hungary, Irel<strong>and</strong>, Spa<strong>in</strong>, <strong>and</strong> <strong>the</strong> UK.121 European Network <strong>of</strong> Legal Experts <strong>in</strong> <strong>the</strong> N<strong>on</strong>-Discrim<strong>in</strong>ati<strong>on</strong> Field, Report <strong>on</strong> Disability N<strong>on</strong>-Discrim<strong>in</strong>ati<strong>on</strong> Law <strong>in</strong> <strong>the</strong> European Uni<strong>on</strong>, 2009, prepared by Lisa Wadd<strong>in</strong>gt<strong>on</strong> <strong>and</strong> Anna Laws<strong>on</strong>122 Ibid p. 46 - 47Page | 56
elow, <strong>and</strong> aim to illustrate <strong>the</strong> different approaches taken by <strong>the</strong> EU Member States <strong>in</strong><strong>the</strong> area <strong>of</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>.Austria adopted <strong>in</strong> 2005 <strong>the</strong> Federal Disability Equality Act(Beh<strong>in</strong>dertengleichstellungsgesetz, here<strong>in</strong>after referred to as BGStG), 123 with <strong>the</strong> aimto elim<strong>in</strong>ate (<strong>and</strong>/or prevent) discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> disability; thus ensur<strong>in</strong>g <strong>the</strong>equal participati<strong>on</strong> <strong>of</strong> people with disabilities <strong>in</strong> <strong>the</strong> community, <strong>and</strong> enabl<strong>in</strong>g <strong>the</strong>m tolive <strong>in</strong>dependently (BGStG Secti<strong>on</strong> 1). Disability is def<strong>in</strong>ed <strong>in</strong> Article 3 to mean „<strong>the</strong>effects <strong>of</strong> not merely temporary impairment <strong>of</strong> a bodily, mental or psychosocial functi<strong>on</strong>or an impairment <strong>of</strong> <strong>the</strong> functi<strong>on</strong>s <strong>of</strong> <strong>the</strong> senses, which makes participati<strong>on</strong> <strong>in</strong> <strong>the</strong> life <strong>of</strong>society more difficult‟. 124 The Act does not cover discrim<strong>in</strong>ati<strong>on</strong> <strong>in</strong> <strong>the</strong> fields <strong>of</strong>employment, 125 <strong>and</strong> prohibits discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> ground <strong>of</strong> disability <strong>in</strong> access to,<strong>and</strong> supply <strong>of</strong>, <strong>good</strong>s <strong>and</strong> services that are available to <strong>the</strong> public, <strong>in</strong>clud<strong>in</strong>g hous<strong>in</strong>g(BGStG Secti<strong>on</strong> 2). The def<strong>in</strong>iti<strong>on</strong> <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong> is similar to <strong>the</strong> <strong>on</strong>e <strong>in</strong>cluded <strong>in</strong> <strong>the</strong>Employment Equality Directive 2000/78/EC, but encompasses both direct <strong>and</strong> <strong>in</strong>directdiscrim<strong>in</strong>ati<strong>on</strong>, while harassment is also <strong>in</strong>cluded as a form <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong> (BGStGSecti<strong>on</strong>s 4 <strong>and</strong> 5). F<strong>in</strong>ally, penalties <strong>in</strong> cases <strong>of</strong> violati<strong>on</strong> (e.g. compensati<strong>on</strong> <strong>of</strong> <strong>the</strong>disabled pers<strong>on</strong> for damage suffered) are also listed <strong>in</strong> Secti<strong>on</strong> 9 <strong>of</strong> BGStG. Theprovisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> Act do not explicitly refer to reas<strong>on</strong>able accommodati<strong>on</strong>, or to <strong>the</strong>denial <strong>of</strong> reas<strong>on</strong>able accommodati<strong>on</strong> as a form <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong>, as required by Article5(3) <strong>of</strong> <strong>the</strong> UN CRPD. However, Secti<strong>on</strong> 6 <strong>of</strong> BGStG states that:[...] It shall not be deemed <strong>in</strong>direct discrim<strong>in</strong>ati<strong>on</strong> if <strong>the</strong> removal <strong>of</strong> c<strong>on</strong>diti<strong>on</strong>s whichc<strong>on</strong>stitute <strong>the</strong> disadvantage, especially <strong>of</strong> barriers, would be illegal or would pose adisproporti<strong>on</strong>ate burden 126 […] In case <strong>the</strong> removal <strong>of</strong> c<strong>on</strong>diti<strong>on</strong>s which c<strong>on</strong>stitute <strong>the</strong>disadvantage turns out to be a disproporti<strong>on</strong>ate burden it shall still be deemeddiscrim<strong>in</strong>ati<strong>on</strong> if <strong>the</strong> provider failed to improve <strong>the</strong> situati<strong>on</strong> <strong>of</strong> <strong>the</strong> affected pers<strong>on</strong> at least<strong>in</strong> a c<strong>on</strong>siderable way <strong>in</strong> order to reach <strong>the</strong> best possible approximati<strong>on</strong> to equaltreatment [...]The aforementi<strong>on</strong>ed provisi<strong>on</strong> seems to imply a duty <strong>of</strong> reas<strong>on</strong>able accommodati<strong>on</strong>,suggest<strong>in</strong>g that when <strong>the</strong> issue <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong> because <strong>of</strong> barriers is exam<strong>in</strong>ed, anassessment has to be made as to whe<strong>the</strong>r <strong>the</strong> removal <strong>of</strong> barriers would cause an123 Available <strong>in</strong> DE at: http://www.bizeps.or.at/gleichstellung/rechte/bgstg.php124 See Williams, Anth<strong>on</strong>y (2009), An <strong>in</strong>troducti<strong>on</strong> to <strong>the</strong> Austrian Federal Disability Equality Act, <strong>in</strong> G.Qu<strong>in</strong>n <strong>and</strong> L. Wadd<strong>in</strong>gt<strong>on</strong> (eds), European Yearbook <strong>of</strong> Disability Law, (Intersentia, 2009).125 Discrim<strong>in</strong>ati<strong>on</strong> <strong>in</strong> <strong>the</strong> fields <strong>of</strong> employment is covered by <strong>the</strong> Act <strong>on</strong> <strong>the</strong> Employment <strong>of</strong> People withDisabilities, Beh<strong>in</strong>dertene<strong>in</strong>stellungsgesetz,. BGBl. Nr. 22/1970, last amended by Federal Law Gazette INr. 82/2005126 See European Network <strong>of</strong> Legal Experts <strong>in</strong> <strong>the</strong> N<strong>on</strong>-Discrim<strong>in</strong>ati<strong>on</strong> Field, Austrian report <strong>on</strong>measures to combat discrim<strong>in</strong>ati<strong>on</strong>. Available at http://www.n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>.net/c<strong>on</strong>tent/media/2007-AT-Country%20Report%20F<strong>in</strong>al.pdfPage | 57
unreas<strong>on</strong>able burden. 127 In additi<strong>on</strong>, if barriers cannot be removed due tounreas<strong>on</strong>able burden (e.g. unreas<strong>on</strong>ably high cost), a decisive improvement <strong>in</strong> <strong>the</strong>situati<strong>on</strong> still has to be atta<strong>in</strong>ed for <strong>the</strong> pers<strong>on</strong> c<strong>on</strong>cerned, <strong>in</strong> order to achieve equaltreatment. 128 C<strong>on</strong>clud<strong>in</strong>g, it appears that <strong>the</strong> Act is <strong>in</strong> l<strong>in</strong>e with <strong>the</strong> UN CRPD, <strong>and</strong> evenif reas<strong>on</strong>able accommodati<strong>on</strong> is not explicitly referred to, practical implementati<strong>on</strong> <strong>of</strong>BGStG Secti<strong>on</strong> 6 appears to be <strong>in</strong> l<strong>in</strong>e with <strong>the</strong> obligati<strong>on</strong> deriv<strong>in</strong>g from <strong>the</strong> duty toprovide reas<strong>on</strong>able accommodati<strong>on</strong>.Belgium adopted, <strong>in</strong> 2007, <strong>the</strong> General Anti-discrim<strong>in</strong>ati<strong>on</strong> Federal Act. 129 The BelgianAct prohibits discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> different grounds, <strong>in</strong>clud<strong>in</strong>g <strong>on</strong> <strong>the</strong> basis <strong>of</strong> disability.The Act also takes <strong>in</strong>to account <strong>the</strong> gender dimensi<strong>on</strong> (as required by Article 6 UNCRPD). The list <strong>of</strong> prohibited grounds <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong> is <strong>in</strong>spired by <strong>the</strong> EU Charter <strong>of</strong>Fundamental Rights, <strong>and</strong> <strong>the</strong> Act applies <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> <strong>in</strong> a broadrange <strong>of</strong> fields. 130The Belgian Act addressed both direct <strong>and</strong> <strong>in</strong>direct discrim<strong>in</strong>ati<strong>on</strong>. The scope <strong>of</strong> <strong>the</strong> Actcovers areas which fall with<strong>in</strong> <strong>the</strong> competence <strong>of</strong> <strong>the</strong> Federal State (not areas under<strong>the</strong> competence <strong>of</strong> regi<strong>on</strong>s or communities). It applies to social rights, <strong>in</strong>clud<strong>in</strong>g mattersrelat<strong>in</strong>g to access to employment, health care, social security <strong>and</strong> benefits, public life(such as access to labour <strong>and</strong> trade uni<strong>on</strong>s), <strong>and</strong> access to <strong>good</strong>s <strong>and</strong> services <strong>in</strong> asfar as <strong>the</strong>se areas fall under Federal competence. It fur<strong>the</strong>r provides that a denial <strong>of</strong>reas<strong>on</strong>able accommodati<strong>on</strong> for pers<strong>on</strong>s with disabilities is a form <strong>of</strong> prohibiteddiscrim<strong>in</strong>ati<strong>on</strong>. Reas<strong>on</strong>able accommodati<strong>on</strong> is def<strong>in</strong>ed <strong>in</strong> c<strong>on</strong>formity with <strong>the</strong>Employment Equality Directive 2000/78/EC, while <strong>the</strong> pr<strong>in</strong>ciple is applicable to a muchbroader range <strong>of</strong> fields. 131 The Act also foresees legal protecti<strong>on</strong> not <strong>on</strong>ly for victims <strong>of</strong>discrim<strong>in</strong>ati<strong>on</strong>, but also for witnesses <strong>in</strong> cases <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong>.In c<strong>on</strong>clusi<strong>on</strong>, we could say that <strong>the</strong> Belgian Act reveals positive ways <strong>of</strong> implement<strong>in</strong>gArticle 5 <strong>of</strong> <strong>the</strong> UN CRPD. It can thus be characterised as be<strong>in</strong>g a „<strong>good</strong> practice‟ <strong>in</strong><strong>the</strong> area <strong>of</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>. It should fur<strong>the</strong>r be taken <strong>in</strong>to account that harassmentis addressed <strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong> employment by <strong>the</strong> Belgian Act <strong>of</strong> August 4 th , 1996, 132127 See Williams Anth<strong>on</strong>y (2009), supra note 124128 Ibid129 More <strong>in</strong>formati<strong>on</strong> are available <strong>on</strong> <strong>the</strong> website <strong>of</strong> <strong>the</strong> Belgian Federal Public Service Employment,Labour <strong>and</strong> Social Dialogue: http://www.employment.belgium.be/defaultTab.aspx?id=6224130 Informati<strong>on</strong> about <strong>the</strong> basic pr<strong>in</strong>ciples <strong>of</strong> Belgian Labour Law is available at:http://www.employment.belgium.be/defaultTab.aspx?id=6224131 See European Network <strong>of</strong> Legal Experts <strong>in</strong> <strong>the</strong> N<strong>on</strong>-Discrim<strong>in</strong>ati<strong>on</strong> Field, Belgian report <strong>on</strong> measuresto combat discrim<strong>in</strong>ati<strong>on</strong>. Available athttp://www.n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>.net/c<strong>on</strong>tent/media/2007-BE-Summary%20F<strong>in</strong>al.pdf132 Federal Act <strong>of</strong> 4 August 1996 <strong>on</strong> welfare <strong>of</strong> workers <strong>in</strong> <strong>the</strong> performance <strong>of</strong> <strong>the</strong>ir work <strong>and</strong> itsimplement<strong>in</strong>g decisi<strong>on</strong>. Informati<strong>on</strong> about Belgian Labour Law is available at:http://www.employment.belgium.be/defaultTab.aspx?id=6224Page | 58
which covers <strong>the</strong> welfare <strong>of</strong> employees <strong>and</strong> transposes <strong>in</strong>to Belgian law CouncilDirective 89/391/EEC <strong>of</strong> 12 June 1989 <strong>on</strong> <strong>the</strong> <strong>in</strong>troducti<strong>on</strong> <strong>of</strong> measures to encourageimprovements <strong>in</strong> <strong>the</strong> safety <strong>and</strong> health <strong>of</strong> workers at work.Irel<strong>and</strong> adopted, <strong>in</strong> 2004, <strong>the</strong> Equality Act, amend<strong>in</strong>g <strong>the</strong> Employment Equality Act1998, Pensi<strong>on</strong>s Act 1990 <strong>and</strong> Equal Status Act 2000, <strong>in</strong> order to establish betterprovisi<strong>on</strong>s <strong>in</strong> relati<strong>on</strong> to equality <strong>of</strong> treatment <strong>in</strong> <strong>the</strong> workplace <strong>and</strong> elsewhere. TheEquality Act gives effect to EU anti-discrim<strong>in</strong>ati<strong>on</strong> legislati<strong>on</strong>. More specifically, <strong>the</strong> Actaims at transpos<strong>in</strong>g Council Directive 2000/43/EC implement<strong>in</strong>g <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> equaltreatment between pers<strong>on</strong>s irrespective <strong>of</strong> racial or ethnic orig<strong>in</strong>; <strong>the</strong> Council Directive2000/78/EC establish<strong>in</strong>g a general framework for equal treatment <strong>in</strong> employment <strong>and</strong>occupati<strong>on</strong>; <strong>and</strong> <strong>the</strong> Directive 2002/73/EC <strong>of</strong> <strong>the</strong> European Parliament <strong>and</strong> <strong>of</strong> <strong>the</strong>Council amend<strong>in</strong>g Council Directive 76/207/EEC <strong>on</strong> <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> pr<strong>in</strong>ciple<strong>of</strong> equal treatment for men <strong>and</strong> women as regards access to employment, vocati<strong>on</strong>altra<strong>in</strong><strong>in</strong>g <strong>and</strong> promoti<strong>on</strong>, <strong>and</strong> work<strong>in</strong>g c<strong>on</strong>diti<strong>on</strong>s.The Irish Equal Status Act, as amended by <strong>the</strong> Equality Act, addresses access to <strong>and</strong>disposal <strong>of</strong> <strong>good</strong>s <strong>and</strong> provisi<strong>on</strong> <strong>of</strong> services, 133 <strong>the</strong> disposal <strong>of</strong> premises <strong>and</strong> <strong>the</strong>provisi<strong>on</strong> <strong>of</strong> accommodati<strong>on</strong> <strong>and</strong> educati<strong>on</strong>. 134 Under secti<strong>on</strong> 4 <strong>of</strong> <strong>the</strong> Equal Status Act,discrim<strong>in</strong>ati<strong>on</strong> is def<strong>in</strong>ed as a refusal or failure by a provider to do all that is reas<strong>on</strong>ableto accommodate <strong>the</strong> needs <strong>of</strong> a pers<strong>on</strong> with a disability by provid<strong>in</strong>g special treatmentor facilities, if without such special treatment or facilities it would be impossible orunduly difficult for <strong>the</strong> pers<strong>on</strong> to avail himself or herself <strong>of</strong> <strong>the</strong> <strong>good</strong>s, services,accommodati<strong>on</strong>, educati<strong>on</strong> etc. In o<strong>the</strong>r words, a pers<strong>on</strong> sell<strong>in</strong>g <strong>good</strong>s, 135 or provid<strong>in</strong>gany k<strong>in</strong>d <strong>of</strong> services, must do all that is reas<strong>on</strong>able to accommodate <strong>the</strong> needs <strong>of</strong>pers<strong>on</strong>s with disabilities. A failure to provide <strong>the</strong> necessary special treatment orfacilities will not be deemed reas<strong>on</strong>able unless such provisi<strong>on</strong> would give rise to a cost,o<strong>the</strong>r than a nom<strong>in</strong>al cost, to <strong>the</strong> provider <strong>of</strong> <strong>the</strong> service <strong>in</strong> questi<strong>on</strong>. 136 However, <strong>the</strong>133 The Equal Status Act def<strong>in</strong>es services as a facility <strong>of</strong> any nature, which is generally available to <strong>the</strong>public, or a secti<strong>on</strong> <strong>of</strong> <strong>the</strong> public. The Act particularly lists <strong>the</strong> follow<strong>in</strong>g services: (a) Access to <strong>and</strong> <strong>the</strong>use <strong>of</strong> any place. (b) Facilities for: (i) bank<strong>in</strong>g, <strong>in</strong>surance, grants, loans, credit or f<strong>in</strong>anc<strong>in</strong>g; (ii)enterta<strong>in</strong>ment, recreati<strong>on</strong> or refreshment; (iii) cultural activities; <strong>and</strong> (iv) transport or travel. (c) A serviceor facility provided by a club (whe<strong>the</strong>r or not it is a club hold<strong>in</strong>g a certificate <strong>of</strong> registrati<strong>on</strong> under <strong>the</strong>Registrati<strong>on</strong> <strong>of</strong> Clubs Acts, 1904 to 1999) which is available to <strong>the</strong> public generally or a secti<strong>on</strong> <strong>of</strong> <strong>the</strong>public, whe<strong>the</strong>r <strong>on</strong> payment or without payment. (d) A pr<strong>of</strong>essi<strong>on</strong>al or trade service.134 In o<strong>the</strong>r words, <strong>the</strong> Act applies to people who: (i) buy <strong>and</strong> sell a wide variety <strong>of</strong> <strong>good</strong>s; (ii) use orprovide a wide range <strong>of</strong> services; (iii) obta<strong>in</strong> or dispose accommodati<strong>on</strong>; <strong>and</strong> (iv) attend at or are <strong>in</strong>charge <strong>of</strong> educati<strong>on</strong>al <strong>in</strong>stituti<strong>on</strong>s. For detailed <strong>in</strong>formati<strong>on</strong> <strong>on</strong> <strong>the</strong> applicati<strong>on</strong> <strong>of</strong> <strong>the</strong> Act <strong>and</strong> fieldscovered by it, see <strong>the</strong> booklet “The Equal Status Acts 2000 to 2004” by <strong>the</strong> Equality Authority <strong>of</strong> Irel<strong>and</strong>,available at: http://www.equality.ie/getFile.asp?FC_ID=162&docID=226135 It is important to clarify that <strong>the</strong> Irish Equal Status Act, when referr<strong>in</strong>g to providers <strong>of</strong> <strong>good</strong>s, isreferr<strong>in</strong>g to pers<strong>on</strong>s sell<strong>in</strong>g <strong>good</strong>s <strong>and</strong> not manufacturers <strong>of</strong> <strong>good</strong>s.136 European Network <strong>of</strong> Legal Experts <strong>in</strong> <strong>the</strong> N<strong>on</strong>-Discrim<strong>in</strong>ati<strong>on</strong> Field, Irish report <strong>on</strong> measures tocombat discrim<strong>in</strong>ati<strong>on</strong>. Available atPage | 59
st<strong>and</strong>ards <strong>of</strong> necessary reas<strong>on</strong>able accommodati<strong>on</strong>, under <strong>the</strong> Equal Status Act, aremuch lower (<strong>on</strong>ly <strong>in</strong> nom<strong>in</strong>al costs) than <strong>the</strong> <strong>on</strong>es expected <strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong>employment (disproporti<strong>on</strong>ate burden), under <strong>the</strong> Employment Equality Act. 137C<strong>on</strong>sequently, such limitati<strong>on</strong>s <strong>on</strong> <strong>the</strong> circumstances <strong>in</strong> which <strong>the</strong> provider <strong>of</strong> a servicehas an obligati<strong>on</strong> to provide reas<strong>on</strong>able accommodati<strong>on</strong>, may prove challeng<strong>in</strong>g for <strong>the</strong>effective implementati<strong>on</strong> <strong>of</strong> Article 5 <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>.In <strong>the</strong> UK, <strong>the</strong> Disability Discrim<strong>in</strong>ati<strong>on</strong> Act (DDA) 138 <strong>of</strong> 1995 <strong>and</strong> 2005, as amended by<strong>the</strong> Equality Act 2010, 139 has established <strong>the</strong> prohibiti<strong>on</strong> <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis<strong>of</strong> disability <strong>in</strong> employment, educati<strong>on</strong>, provisi<strong>on</strong> <strong>of</strong> <strong>good</strong>s <strong>and</strong> services, 140 <strong>the</strong> builtenvir<strong>on</strong>ment, <strong>and</strong> buy<strong>in</strong>g <strong>and</strong> rent<strong>in</strong>g property. 141 The Disability Act requires that, <strong>in</strong>areas covered by <strong>the</strong> Act, reas<strong>on</strong>able accommodati<strong>on</strong> should be provided for pers<strong>on</strong>swith disabilities. In relati<strong>on</strong> to employers, <strong>the</strong> duty to provide reas<strong>on</strong>ableaccommodati<strong>on</strong> is n<strong>on</strong>-anticipatory, mean<strong>in</strong>g that employers do not have a duty tomake reas<strong>on</strong>able adjustments if <strong>the</strong>y do not know that a pers<strong>on</strong> is disabled <strong>and</strong> couldnot reas<strong>on</strong>ably be expected to know. 142 On <strong>the</strong> o<strong>the</strong>r h<strong>and</strong>, <strong>in</strong> relati<strong>on</strong> to providers <strong>of</strong><strong>good</strong>s <strong>and</strong> services, <strong>the</strong> duty to provide reas<strong>on</strong>able accommodati<strong>on</strong> is anticipatory.More specifically, Secti<strong>on</strong> 21 <strong>of</strong> <strong>the</strong> Disability Discrim<strong>in</strong>ati<strong>on</strong> Act <strong>of</strong> 1995, referr<strong>in</strong>g toservice providers, states thatwhere a provider <strong>of</strong> services has a practice, policy or procedure which makes itimpossible or unreas<strong>on</strong>ably difficult for disabled pers<strong>on</strong>s to make use <strong>of</strong> a service whichs/he provides, or is prepared to provide, to o<strong>the</strong>r members <strong>of</strong> <strong>the</strong> public, it is his/her dutyto take such steps as it is reas<strong>on</strong>able <strong>in</strong> all <strong>the</strong> circumstances <strong>of</strong> <strong>the</strong> case for him/her tohttp://www.n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>.net/c<strong>on</strong>tent/media/2007-IE-Country%20Report%20F<strong>in</strong>al.pdf137 On <strong>the</strong> basis <strong>of</strong> <strong>the</strong> Employment Equality Act an employer is obliged to take appropriate measures toenable a pers<strong>on</strong> with disabilities to participate <strong>in</strong> employment unless such measures would impose adisproporti<strong>on</strong>ate burden <strong>on</strong> <strong>the</strong> employer. The Irish Employment Equality Act will be discussed <strong>in</strong> greaterdetail under Article 27 UN CRPD.138 The UK Disability Discrim<strong>in</strong>ati<strong>on</strong> Act is available at:http://www.direct.gov.uk/en/DisabledPeople/RightsAndObligati<strong>on</strong>s/DisabilityRights/DG_4001068139 From 1 October 2010, <strong>the</strong> majority <strong>of</strong> <strong>the</strong> Equality Act 2010 will be implemented <strong>and</strong> will replacemajor parts <strong>of</strong> <strong>the</strong> provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> Disability Discrim<strong>in</strong>ati<strong>on</strong> Act. Fur<strong>the</strong>r <strong>in</strong>formati<strong>on</strong> <strong>on</strong> <strong>the</strong> Equality Act2010 is available at: http://www.equalities.gov.uk/equality_act_2010.aspx140 It should be clarified that <strong>in</strong> relati<strong>on</strong> to <strong>good</strong>s <strong>the</strong> Act does not cover manufacturers <strong>of</strong> <strong>good</strong>s but <strong>on</strong>ly<strong>the</strong> providers. Secti<strong>on</strong> 19 <strong>of</strong> <strong>the</strong> Disability Discrim<strong>in</strong>ati<strong>on</strong> Act <strong>of</strong> 1995 def<strong>in</strong>es that: “provisi<strong>on</strong> <strong>of</strong> services<strong>in</strong>cludes <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> any <strong>good</strong>s or facilities”; <strong>and</strong> a pers<strong>on</strong> is „a provider <strong>of</strong> services‟ if s/he isc<strong>on</strong>cerned with <strong>the</strong> provisi<strong>on</strong>, <strong>in</strong> <strong>the</strong> United K<strong>in</strong>gdom, <strong>of</strong> services to <strong>the</strong> public or to a secti<strong>on</strong> <strong>of</strong> <strong>the</strong>public; <strong>and</strong> it s irrelevant whe<strong>the</strong>r a service is provided <strong>on</strong> payment or without payment. For fur<strong>the</strong>rdetails see at: http://www.opsi.gov.uk/acts/acts1995/ukpga_19950050_en_4#pt3-pb1-l1g21141 Fur<strong>the</strong>r <strong>in</strong>formati<strong>on</strong> are also available at <strong>the</strong> UK country pr<strong>of</strong>ile, by ANED athttp://www.disability-europe.net/c<strong>on</strong>tent/pdf/United%20K<strong>in</strong>gdom%20-%20ANED%20country%20pr<strong>of</strong>ile.pdf142 European Network <strong>of</strong> Legal Experts <strong>in</strong> <strong>the</strong> N<strong>on</strong>-Discrim<strong>in</strong>ati<strong>on</strong> Field, United K<strong>in</strong>gdom Report <strong>on</strong>measures to combat discrim<strong>in</strong>ati<strong>on</strong>. Available athttp://www.n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>.net/c<strong>on</strong>tent/media/2007-UK-Country%20Report%20F<strong>in</strong>al.pdfPage | 60
have to take <strong>in</strong> order to change that practice, policy or procedure so that it no l<strong>on</strong>ger hasthat effect.Because <strong>the</strong> word<strong>in</strong>g <strong>of</strong> <strong>the</strong> Act specifically refers to „disabled pers<strong>on</strong>s‟, <strong>the</strong> duty toprovide reas<strong>on</strong>able accommodati<strong>on</strong> targets all pers<strong>on</strong>s with disabilities. Thereforeproviders <strong>of</strong> any <strong>good</strong>s or service to which Secti<strong>on</strong>s 20 <strong>and</strong> 21 <strong>of</strong> <strong>the</strong> 1995 DisabilityDiscrim<strong>in</strong>ati<strong>on</strong> Act apply, 143 should c<strong>on</strong>sider what reas<strong>on</strong>able adjustments could bemade to ensure that provisi<strong>on</strong> <strong>of</strong> <strong>good</strong>s <strong>and</strong> services is accessible to all pers<strong>on</strong>s withdisabilities; <strong>and</strong> <strong>the</strong>y should not wait until a disabled pers<strong>on</strong> requests <strong>the</strong>ir <strong>good</strong>s orservices. 144 A provider <strong>of</strong> any services is not however required by <strong>the</strong> Act to take anysteps that would fundamentally alter <strong>the</strong> nature <strong>of</strong> <strong>the</strong> service <strong>in</strong> questi<strong>on</strong> or <strong>the</strong> nature<strong>of</strong> his/her trade, pr<strong>of</strong>essi<strong>on</strong> or bus<strong>in</strong>ess.In additi<strong>on</strong> to <strong>the</strong> EU Member States, <strong>the</strong> European Uni<strong>on</strong> is also a party to <strong>the</strong> UNCRPD with shared (with <strong>the</strong> Member States) competence <strong>in</strong> <strong>the</strong> field <strong>of</strong> n<strong>on</strong>discrim<strong>in</strong>ati<strong>on</strong>.145 Such competence, derive from Article 13 TEC, which (as menti<strong>on</strong>ed<strong>in</strong> Secti<strong>on</strong> 1.3 <strong>of</strong> this report) empowers <strong>the</strong> Council to take appropriate acti<strong>on</strong> tocombat discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong>, <strong>in</strong>ter alia, disability. However, <strong>in</strong>struments listed<strong>in</strong> <strong>the</strong> Appendix <strong>of</strong> <strong>the</strong> declarati<strong>on</strong> <strong>of</strong> competence (annexed <strong>in</strong> Decisi<strong>on</strong> 2010/48/EC)<strong>in</strong>clude <strong>on</strong>ly <strong>in</strong>struments that <strong>in</strong>dicate <strong>the</strong> EU competence to combat discrim<strong>in</strong>ati<strong>on</strong> formatters related to employment. Therefore, exist<strong>in</strong>g EU <strong>practices</strong> related to n<strong>on</strong>discrim<strong>in</strong>ati<strong>on</strong>will be exam<strong>in</strong>ed <strong>in</strong> Secti<strong>on</strong> 4.5.3 <strong>of</strong> this report <strong>and</strong> with<strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong>Article 27 <strong>of</strong> <strong>the</strong> UN CRPD.Never<strong>the</strong>less, as highlighted <strong>in</strong> Secti<strong>on</strong> 1.2 <strong>of</strong> this report, <strong>the</strong> fact that <strong>the</strong> listed EUlegislati<strong>on</strong> does not <strong>in</strong>clude any EU legislative <strong>in</strong>strument address<strong>in</strong>g n<strong>on</strong>discrim<strong>in</strong>ati<strong>on</strong>bey<strong>on</strong>d employment does not imply that <strong>the</strong> EU has no competence todo so. The Appendix <strong>of</strong> <strong>the</strong> declarati<strong>on</strong> <strong>on</strong>ly quotes legislative acts that exist <strong>and</strong> are <strong>in</strong>force. The legal basis used for <strong>the</strong> adopti<strong>on</strong> <strong>of</strong> <strong>the</strong> Decisi<strong>on</strong> to c<strong>on</strong>clude <strong>the</strong> UN CRPDalso gives an <strong>in</strong>dicati<strong>on</strong> <strong>of</strong> <strong>the</strong> extent <strong>of</strong> <strong>the</strong> EU competence for matters covered by <strong>the</strong>C<strong>on</strong>venti<strong>on</strong>. 146 To this end, <strong>the</strong> EU, by virtue <strong>of</strong> Article 13 TEC, which is used <strong>in</strong>ter aliaas <strong>the</strong> legal basis <strong>of</strong> Decisi<strong>on</strong> 2010/78/EC, shows that <strong>the</strong> EU is competent to addressn<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> <strong>in</strong> general <strong>and</strong> bey<strong>on</strong>d <strong>the</strong> c<strong>on</strong>text <strong>of</strong> employment. Therefore, <strong>the</strong>143 See supra note 140144 Rune Halvorsen (2009), Brief<strong>in</strong>g paper <strong>on</strong> “The accessibility pr<strong>in</strong>ciple <strong>in</strong> <strong>the</strong> UN CRPD <strong>and</strong>implicati<strong>on</strong>s for EU disability law <strong>and</strong> policy” for <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g> VC/2008/1214, when referr<strong>in</strong>g to DisabilityRights Commissi<strong>on</strong>: Code <strong>of</strong> Practice. Rights <strong>of</strong> Access: services to <strong>the</strong> public, public authorityfuncti<strong>on</strong>s, private clubs <strong>and</strong> premises <strong>of</strong> 2006. Dr. Rune Halvorsen is Senior Researcher <strong>on</strong> <strong>the</strong>Norwegian Social Research Institute (NOVA) <strong>and</strong> a member <strong>of</strong> <strong>the</strong> Academic Panel for <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g>VC/2008/1214145 See Decisi<strong>on</strong> 2010/48/EC, supra note 13, Annex II, p. 4 <strong>and</strong> Appendix, p. 11146 For fur<strong>the</strong>r <strong>in</strong>formati<strong>on</strong>, see Secti<strong>on</strong> 1.2 <strong>of</strong> this report.Page | 61
Commissi<strong>on</strong> proposal for a new Council Directive <strong>on</strong> implement<strong>in</strong>g <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong>equal treatment between pers<strong>on</strong>s irrespective <strong>of</strong> religi<strong>on</strong> or belief, disability, age orsexual orientati<strong>on</strong>, 147 which is currently under discussi<strong>on</strong> <strong>in</strong> <strong>the</strong> Council, 148 should be <strong>in</strong>l<strong>in</strong>e with <strong>the</strong> requirements set forth <strong>in</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>.It is important to note that <strong>the</strong> OHCHR has stated, for <strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong><strong>the</strong> pr<strong>in</strong>ciples <strong>of</strong> equality <strong>and</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>, it is above all necessary for StatesParties to <strong>in</strong>clude <strong>in</strong> legislati<strong>on</strong> a general guarantee <strong>of</strong> equality <strong>and</strong> prohibiti<strong>on</strong> <strong>of</strong> n<strong>on</strong>discrim<strong>in</strong>ati<strong>on</strong><strong>on</strong> <strong>the</strong> basis <strong>of</strong> disability. 149 Fur<strong>the</strong>rmore, as is evident from <strong>the</strong> nati<strong>on</strong>al<strong>practices</strong> exam<strong>in</strong>ed above, <strong>the</strong> EU Member States are highly <strong>in</strong>fluenced <strong>in</strong> <strong>the</strong> area <strong>of</strong>n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> by EU sec<strong>on</strong>dary legislati<strong>on</strong> (ma<strong>in</strong>ly directives). Nati<strong>on</strong>al legislativeacts <strong>on</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> identified generally aim to transpose EU legislati<strong>on</strong>. To thisend, <strong>the</strong> European Uni<strong>on</strong> can play a key role <strong>in</strong> <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> equalitypr<strong>in</strong>ciple by <strong>the</strong> EU Member States.3.3.2 General Recommendati<strong>on</strong>s for States Parties to <strong>the</strong> UN CRPDStates Parties should c<strong>on</strong>duct a screen<strong>in</strong>g exercise to ensure that all legislati<strong>on</strong> is <strong>in</strong>l<strong>in</strong>e with <strong>the</strong> pr<strong>in</strong>ciples <strong>of</strong> equality <strong>and</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>. Pers<strong>on</strong>s with disabilities,<strong>in</strong>clud<strong>in</strong>g children with disabilities, through <strong>the</strong>ir representative organisati<strong>on</strong>s, shouldbe closely c<strong>on</strong>sulted <strong>and</strong> actively <strong>in</strong>volved <strong>in</strong> this process.States Parties should prohibit by law discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> disability.Discrim<strong>in</strong>ati<strong>on</strong> should, under law, be def<strong>in</strong>ed as <strong>in</strong>clud<strong>in</strong>g direct <strong>and</strong> <strong>in</strong>directdiscrim<strong>in</strong>ati<strong>on</strong> <strong>and</strong> multiple-discrim<strong>in</strong>ati<strong>on</strong>, mean<strong>in</strong>g discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> more than <strong>on</strong>eground (e.g. disability <strong>and</strong> age, sex, religi<strong>on</strong> etc). Denial <strong>of</strong> reas<strong>on</strong>ableaccommodati<strong>on</strong> should also be, by law, prohibited as a form <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong>.Anti-discrim<strong>in</strong>ati<strong>on</strong> legislati<strong>on</strong> should <strong>in</strong>corporate <strong>the</strong> c<strong>on</strong>cept <strong>of</strong> „reas<strong>on</strong>ableaccommodati<strong>on</strong>‟ <strong>in</strong> an open-format <strong>and</strong> ensure that accessibility measures aretaken as general measures, <strong>and</strong> are effectively implemented.States Parties should adopt positive measures designed to promote <strong>and</strong> achieveequality for pers<strong>on</strong>s with disabilities (for example, positive acti<strong>on</strong> programmes <strong>and</strong>policies).147 COM/2008/0426 f<strong>in</strong>al, European Commissi<strong>on</strong> Proposal for a Council Directive implement<strong>in</strong>g <strong>the</strong>pr<strong>in</strong>ciple <strong>of</strong> equal treatment between pers<strong>on</strong>s irrespective <strong>of</strong> religi<strong>on</strong> or belief, disability, age or sexualorientati<strong>on</strong>148 The process <strong>of</strong> <strong>the</strong> proposal can be m<strong>on</strong>itored athttp://ec.europa.eu/prelex/detail_dossier_real.cfm?CL=en&DosId=197196149 See A/HRC/10/48, supra note 41, at p. 11, para 39Page | 62
States Parties should establish an effective legal framework <strong>and</strong> implementati<strong>on</strong> <strong>and</strong>m<strong>on</strong>itor<strong>in</strong>g mechanisms to protect pers<strong>on</strong>s with disabilities aga<strong>in</strong>st discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong><strong>the</strong> basis <strong>of</strong> disability.States Parties should c<strong>on</strong>sult with <strong>and</strong> actively <strong>in</strong>volve pers<strong>on</strong>s with disabilities,<strong>in</strong>clud<strong>in</strong>g children with disabilities, through <strong>the</strong>ir representative organisati<strong>on</strong>s, <strong>on</strong> <strong>the</strong>development <strong>and</strong> implementati<strong>on</strong> <strong>of</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> legislati<strong>on</strong>.States Parties should develop a strategy (fully <strong>in</strong>clusive <strong>of</strong>, <strong>and</strong> accessible to, pers<strong>on</strong>swith disabilities) identify<strong>in</strong>g clear goals to be achieved <strong>in</strong> <strong>the</strong> area <strong>of</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>.Development <strong>of</strong> progress <strong>in</strong>dicators would be very useful <strong>in</strong> this respect.States Parties should raise awareness (for example through public awarenesscampaigns) <strong>on</strong> <strong>the</strong> situati<strong>on</strong> <strong>and</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities.3.4 Inter-secti<strong>on</strong>ality: women <strong>and</strong> children with disabilitiesArticles 6 (Women with disabilities) <strong>and</strong> 7 (Children with disabilities), <strong>in</strong> additi<strong>on</strong> tocerta<strong>in</strong> preambular paragraphs, are directed at specific groups who may experienceparticular forms <strong>of</strong> disability discrim<strong>in</strong>ati<strong>on</strong>. In this sense, <strong>the</strong>se provisi<strong>on</strong>s evoke <strong>in</strong>tersecti<strong>on</strong>alitywith<strong>in</strong> <strong>the</strong> UN CRPD framework; <strong>the</strong>y are also horiz<strong>on</strong>tal <strong>in</strong> effect,mean<strong>in</strong>g that <strong>the</strong>y apply across <strong>the</strong> text <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. In some <strong>in</strong>stances, specificsubstantive provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> UN CRPD have gender-specific or child-specificreferences (for example Article 24 <strong>on</strong> educati<strong>on</strong> or Article 30(5) <strong>on</strong> sport <strong>and</strong>recreati<strong>on</strong>). Notwithst<strong>and</strong><strong>in</strong>g specific references, all obligati<strong>on</strong>s should be read <strong>and</strong>applied <strong>in</strong> such way that is sensitive <strong>and</strong> resp<strong>on</strong>sive to women, girls <strong>and</strong> all childrenwith disabilities. Legislati<strong>on</strong> <strong>and</strong> policy should appropriately reflect <strong>the</strong> specific needs <strong>of</strong>women <strong>and</strong> girls with disabilities <strong>and</strong> all children with disabilities.Secti<strong>on</strong> 3.4 provides an overview <strong>of</strong> <strong>the</strong> core obligati<strong>on</strong>s <strong>and</strong> guidel<strong>in</strong>es forimplementati<strong>on</strong> <strong>of</strong> Articles 6 <strong>and</strong> 7 UN CRPD.3.4.1 Article 6 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong>Article 6 UN CRPD recognises that women <strong>and</strong> girls with disabilities are subject tomultiple-discrim<strong>in</strong>ati<strong>on</strong>, requires States Parties to tackle this issue <strong>and</strong> <strong>in</strong> additi<strong>on</strong>obliges <strong>the</strong>m to “take all appropriate measures to ensure <strong>the</strong> full development,advancement <strong>and</strong> empowerment <strong>of</strong> women”. The purpose <strong>of</strong> both duties is to ensureequal enjoyment <strong>of</strong> all human rights <strong>and</strong> fundamental freedoms. The UN CRPD is <strong>the</strong>first UN human rights treaty that specifically addresses <strong>the</strong> issue <strong>of</strong> multiplediscrim<strong>in</strong>ati<strong>on</strong>.In additi<strong>on</strong>, references to disabled women are to be found <strong>in</strong> <strong>the</strong>Page | 63
preamble <strong>and</strong> Articles 8, 16, 25 <strong>and</strong> 28 UN CRPD. Thus, <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> c<strong>on</strong>ta<strong>in</strong>sexplicit duties relat<strong>in</strong>g to women with disabilities <strong>in</strong> <strong>the</strong> follow<strong>in</strong>g areas:• anti-discrim<strong>in</strong>ati<strong>on</strong> policies <strong>and</strong> measures;• awareness rais<strong>in</strong>g;• protecti<strong>on</strong> from exploitati<strong>on</strong>, violence, <strong>and</strong> abuse;• health policy <strong>and</strong> programmes; <strong>and</strong>• poverty policy <strong>and</strong> programmesMultiple-discrim<strong>in</strong>ati<strong>on</strong> is a challenge for n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> law for various reas<strong>on</strong>s.First <strong>of</strong> all, it is a fairly new topic <strong>in</strong> <strong>the</strong> area <strong>of</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> <strong>and</strong> <strong>the</strong>reforedifferent <strong>and</strong> diverse approaches exist. Currently, many n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> laws ares<strong>in</strong>gle-ground oriented. 150 There are <strong>of</strong>ten different levels <strong>of</strong> protecti<strong>on</strong>s for differentgrounds lead<strong>in</strong>g to a hierarchy <strong>of</strong> grounds. While discrim<strong>in</strong>ati<strong>on</strong> based <strong>on</strong> race <strong>and</strong>gender <strong>of</strong>ten is strictly prohibited, (broad) justificati<strong>on</strong>s allow<strong>in</strong>g for difference <strong>of</strong>treatment related to disability <strong>and</strong> age may exist. While racial discrim<strong>in</strong>ati<strong>on</strong> may beprohibited <strong>in</strong> employment, educati<strong>on</strong> <strong>and</strong> <strong>the</strong> area <strong>of</strong> <strong>good</strong>s <strong>and</strong> services, disabilitybaseddiscrim<strong>in</strong>ati<strong>on</strong> may <strong>on</strong>ly be prohibited, for example, <strong>in</strong> employment (this is <strong>the</strong>case <strong>in</strong> EU Law).Research for this study has not revealed any EU Member State legislati<strong>on</strong> thatexplicitly addresses issues <strong>of</strong> multiple-discrim<strong>in</strong>ati<strong>on</strong> <strong>and</strong> this is a critical challenge for<strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD. General n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>, disabilityspecific,or gender-specific legislative acts do exist <strong>in</strong> <strong>the</strong> Member States. However,n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> legislati<strong>on</strong> is ma<strong>in</strong>ly s<strong>in</strong>gle-ground oriented. This may be <strong>the</strong> casebecause EU n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> legislati<strong>on</strong>, which <strong>in</strong>fluences nati<strong>on</strong>al legislati<strong>on</strong> <strong>in</strong> <strong>the</strong>field <strong>of</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>, is also s<strong>in</strong>gle-ground oriented.With regard to <strong>the</strong> European Uni<strong>on</strong>, Council Decisi<strong>on</strong> 2010/48/EC did not explicitlyrefer to competence to address multiple-discrim<strong>in</strong>ati<strong>on</strong> (i.e. discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis<strong>of</strong> gender <strong>and</strong> disability). However, <strong>the</strong> Appendix <strong>of</strong> <strong>the</strong> Decisi<strong>on</strong> <strong>in</strong>cluded <strong>in</strong>strumentsthat dem<strong>on</strong>strate EU competence to address discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> disability,<strong>and</strong> (separately) <strong>on</strong> <strong>the</strong> basis <strong>of</strong> gender, <strong>and</strong> with<strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong> employment. In <strong>the</strong>c<strong>on</strong>text <strong>of</strong> gender, <strong>the</strong> <strong>in</strong>strument to illustrate <strong>the</strong> competence <strong>of</strong> <strong>the</strong> EU is <strong>the</strong> RecastGender Directive 2006/54/EC, 151 which will be exam<strong>in</strong>ed <strong>in</strong> secti<strong>on</strong> 4.5.3 <strong>of</strong> this report,with<strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong> employment (Article 27 UN CRPD). Never<strong>the</strong>less, as EUsec<strong>on</strong>dary legislati<strong>on</strong> highly <strong>in</strong>fluences nati<strong>on</strong>al n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> legislati<strong>on</strong>, <strong>and</strong>s<strong>in</strong>ce <strong>the</strong> EU has competence to address discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> different grounds, it is150 This is also <strong>the</strong> case EU Law.151 Council Directive 2006/54/EC <strong>of</strong> <strong>the</strong> EP <strong>and</strong> <strong>of</strong> <strong>the</strong> Council <strong>of</strong> 5 July 2006 <strong>on</strong> <strong>the</strong> implementati<strong>on</strong> <strong>of</strong><strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> equal opportunities <strong>and</strong> equal treatment <strong>of</strong> men <strong>and</strong> women <strong>in</strong> matters <strong>of</strong> employment<strong>and</strong> occupati<strong>on</strong> (recast) OJ L 204, 26.07.2006 p. 0023.Page | 64
ecommended that <strong>the</strong> EU discusses with <strong>the</strong> Member States how to better address<strong>the</strong> issue <strong>of</strong> multiple-discrim<strong>in</strong>ati<strong>on</strong>.In c<strong>on</strong>clusi<strong>on</strong>, <strong>the</strong> f<strong>in</strong>d<strong>in</strong>gs <strong>of</strong> this study suggest that <strong>in</strong> <strong>the</strong> field <strong>of</strong> multiplediscrim<strong>in</strong>ati<strong>on</strong><strong>the</strong>re is an urgent need for both <strong>the</strong> EU <strong>and</strong> its Member States toc<strong>on</strong>duct research with <strong>the</strong> aim <strong>of</strong> identify<strong>in</strong>g approaches that would ensure <strong>the</strong> effectiveprotecti<strong>on</strong> <strong>of</strong> people with disabilities (such as women <strong>and</strong> girls with disabilities) whomay face multiple forms <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong>.3.4.2 Article 7 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong>Article 7 UN CRPD imposes an obligati<strong>on</strong> <strong>on</strong> States Parties to ensure that children withdisabilities are able to exercise <strong>the</strong>ir human rights <strong>and</strong> fundamental freedoms <strong>on</strong> anequal basis with o<strong>the</strong>r children. Article 7 has an <strong>in</strong>tegrative goal, <strong>and</strong> thus aims toensure that all <strong>of</strong> <strong>the</strong> general <strong>and</strong> specific obligati<strong>on</strong>s <strong>in</strong> <strong>the</strong> UN CRPD areimplemented <strong>in</strong> a manner that acknowledge <strong>the</strong> particular susceptibility <strong>of</strong> children <strong>and</strong>youth with disabilities to human rights violati<strong>on</strong>s, as well as <strong>the</strong> particular needs thisgroup may have <strong>in</strong> realis<strong>in</strong>g <strong>the</strong>ir rights. Thus, Article 7 obliges States Parties to take<strong>in</strong>to account <strong>the</strong> child dimensi<strong>on</strong> <strong>of</strong> <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD,underst<strong>and</strong><strong>in</strong>g not <strong>on</strong>ly <strong>the</strong> particular barriers that might st<strong>and</strong> <strong>in</strong> <strong>the</strong> way <strong>of</strong> <strong>the</strong>realisati<strong>on</strong> <strong>of</strong> disability rights for this group, but likewise underscor<strong>in</strong>g that children withdisabilities may require specifically tailored measures <strong>in</strong> order for <strong>the</strong>ir rights to berealised.Research for this study <strong>in</strong> <strong>the</strong> EU Member States, has revealed that some MemberStates have adopted legislative acts with <strong>the</strong> aim to generally protect <strong>the</strong> rights <strong>of</strong>children, 152 while o<strong>the</strong>rs have adopted legislati<strong>on</strong> <strong>on</strong>ly with<strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong>educati<strong>on</strong>. 153 However, <strong>the</strong> f<strong>in</strong>d<strong>in</strong>gs <strong>of</strong> this study suggest that problems aris<strong>in</strong>g fromlegislati<strong>on</strong> that is established <strong>in</strong> Member States <strong>of</strong> <strong>the</strong> EU, pose challenges to <strong>the</strong> fullenjoyment <strong>of</strong> all human rights <strong>and</strong> fundamental freedoms by children with disabilities<strong>on</strong> an equal basis with o<strong>the</strong>r children. 154 In this respect, <strong>in</strong>dicative examples fromBulgaria <strong>and</strong> Est<strong>on</strong>ia are presented below.Bulgaria, adopted <strong>the</strong> Child Protecti<strong>on</strong> Act <strong>in</strong> 2000. 155 The Act calls for specialprotecti<strong>on</strong> for „children at risk‟ or „children <strong>of</strong> prom<strong>in</strong>ent talent‟. The Act def<strong>in</strong>es „at risk‟a child who is „afflicted‟ with <strong>in</strong>tellectual or physical disabilities <strong>and</strong> difficult to treat152 This is <strong>the</strong> case for example <strong>in</strong> <strong>the</strong> Bulgaria <strong>and</strong> Est<strong>on</strong>ia153 This is <strong>the</strong> case for <strong>the</strong> majority <strong>of</strong> <strong>the</strong> Member States154 This failure is particularly evident <strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong> educati<strong>on</strong>, which will be exam<strong>in</strong>ed <strong>in</strong> Secti<strong>on</strong> 4 <strong>of</strong>this report.155 The Bulgarian Child Protecti<strong>on</strong> Act <strong>of</strong> 2000 is available <strong>in</strong> English <strong>on</strong> <strong>the</strong> website <strong>of</strong> Child RightsInformati<strong>on</strong> Network (CRIN). See at http://www.cr<strong>in</strong>.org/Law/<strong>in</strong>strument.asp?InstID=1300Page | 65
illnesses. 156 As is evident, <strong>the</strong> def<strong>in</strong>iti<strong>on</strong> used <strong>in</strong> <strong>the</strong> Act approaches disability from amedical perspective, while <strong>the</strong> UN CRPD requires <strong>the</strong> recogniti<strong>on</strong> <strong>of</strong> societalc<strong>on</strong>stra<strong>in</strong>ts <strong>and</strong> barriers (not <strong>in</strong>dividual limitati<strong>on</strong>) which <strong>in</strong>hibit full participati<strong>on</strong> by, <strong>and</strong><strong>in</strong>clusi<strong>on</strong> <strong>of</strong>, pers<strong>on</strong>s with disabilities <strong>in</strong> society. Therefore, a critical challenge to <strong>the</strong> full<strong>and</strong> effective protecti<strong>on</strong> <strong>of</strong> all children with disabilities may arise from <strong>the</strong> Act.Fur<strong>the</strong>rmore, as <strong>the</strong> Mental Disability Advocacy Centre (MDAC) noted <strong>in</strong> its 2008Shadow Report <strong>on</strong> <strong>the</strong> Implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> <strong>the</strong> Child,<strong>the</strong> Act does not c<strong>on</strong>tribute to <strong>the</strong> establishment <strong>of</strong> an <strong>in</strong>clusive educati<strong>on</strong>al system forchildren with disabilities, 157 <strong>and</strong> this ano<strong>the</strong>r challenge for <strong>the</strong> effective implementati<strong>on</strong><strong>of</strong> <strong>the</strong> UN CRPD.Est<strong>on</strong>ia also adopted <strong>in</strong> 1992 a Child Protecti<strong>on</strong> Act. The Act has established that adisabled or ill child has an equal right to receive assistance <strong>and</strong> care <strong>and</strong> to develop. 158In additi<strong>on</strong>, Secti<strong>on</strong> 52 <strong>of</strong> <strong>the</strong> Act has fur<strong>the</strong>r established that a physically or<strong>in</strong>tellectually disabled child has <strong>the</strong> right to live <strong>in</strong> c<strong>on</strong>diti<strong>on</strong>s which promote dignity,self-reliance <strong>and</strong> development. The text <strong>of</strong> <strong>the</strong> Act appears to have positive elementsfor children‟s protecti<strong>on</strong> <strong>and</strong> equality <strong>of</strong> opportunity. However, a supplementary reportto Est<strong>on</strong>ia‟s country report <strong>on</strong> <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights<strong>of</strong> <strong>the</strong> Child <strong>in</strong> 2002, noted that <strong>the</strong> legislati<strong>on</strong> may challenge <strong>the</strong> <strong>in</strong>tegrati<strong>on</strong> <strong>of</strong> childrenwith disabilities <strong>in</strong> all aspects <strong>of</strong> society, <strong>and</strong> <strong>in</strong> particular <strong>in</strong>to schools. 159 The absence<strong>of</strong> any <strong>in</strong>dicati<strong>on</strong> as to who (<strong>the</strong> State or <strong>the</strong> parents <strong>of</strong> a disabled child, or o<strong>the</strong>r) isresp<strong>on</strong>sible for any f<strong>in</strong>ancial cost that may be required for <strong>the</strong> <strong>in</strong>tegrati<strong>on</strong> <strong>of</strong> disabledchildren <strong>in</strong> ord<strong>in</strong>ary schools may hamper <strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong> children‟srights as envisaged by <strong>the</strong> UN CRPD.F<strong>in</strong>ally, with regards to <strong>the</strong> European Uni<strong>on</strong>, Council Decisi<strong>on</strong> 2010/48/EC did notexplicitly referred to competences for matters related to Article 7 UN CRPD. As no<strong>in</strong>strument was listed <strong>in</strong> <strong>the</strong> Appendix <strong>of</strong> <strong>the</strong> Decisi<strong>on</strong>, EU <strong>practices</strong> will not bepresented <strong>in</strong> this report.156 Ibid, See Additi<strong>on</strong>al Provisi<strong>on</strong>, para 5(d)157 MDAC‟s Shadow Report <strong>on</strong> <strong>the</strong> Implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>of</strong> <strong>the</strong> Rights <strong>of</strong> <strong>the</strong> Child byBulgaria, available at:http://rs6.net/tn.jsp?t=xsf5cncab.0.0.zjvx9icab.0&p=http%3A%2F%2Fwww.mdac.<strong>in</strong>fo%2Fimages%2Fpage_image%2FMay%25202008%2520MDAC%2520shadow%2520report%2520CRC.doc&id=preview158 More specifically, Secti<strong>on</strong> 10 <strong>of</strong> <strong>the</strong> Act states that “<strong>the</strong> child has an equal right to receive assistance<strong>and</strong> care <strong>and</strong> to develop, regardless <strong>of</strong> his or her sex or ethnic orig<strong>in</strong>, regardless <strong>of</strong> whe<strong>the</strong>r <strong>the</strong> childlives <strong>in</strong> a two parent family or s<strong>in</strong>gle parent family, whe<strong>the</strong>r <strong>the</strong> child is adopted or under curatorship,whe<strong>the</strong>r <strong>the</strong> child is born <strong>in</strong> wedlock or out <strong>of</strong> wedlock, or whe<strong>the</strong>r <strong>the</strong> child is healthy, ill or disabled”.The Est<strong>on</strong>ian Act is available <strong>in</strong> English <strong>on</strong> <strong>the</strong> website <strong>of</strong> Child Rights Informati<strong>on</strong> Network (CRIN). Seeat: http://www.cr<strong>in</strong>.org/Law/<strong>in</strong>strument.asp?InstID=1292159 Est<strong>on</strong>ian Uni<strong>on</strong> for Child Welfare, supplementary report to Est<strong>on</strong>ia‟s country report <strong>on</strong> <strong>the</strong>implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> <strong>the</strong> Child. Available at:http://www.cr<strong>in</strong>.org/resources/<strong>in</strong>foDetail.asp?ID=3280Page | 66
3.4.3 General Recommendati<strong>on</strong>s for States Parties to <strong>the</strong> UN CRPDStates Parties should ensure that legislati<strong>on</strong> is <strong>in</strong> place to promote <strong>the</strong> right <strong>of</strong> women<strong>and</strong> girls with disabilities to enjoy all human rights <strong>and</strong> fundamental freedoms.Therefore, States Parties should recognise that women with disabilities are subject tovarious forms <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong> <strong>and</strong> that it is essential to adopt legislati<strong>on</strong> that works toelim<strong>in</strong>ate such discrim<strong>in</strong>ati<strong>on</strong>. Fur<strong>the</strong>rmore, legislati<strong>on</strong> should ensure that women withdisabilities are fully able to participate <strong>in</strong> society.States Parties should ensure that legislati<strong>on</strong> is <strong>in</strong> place to promote <strong>the</strong> right <strong>of</strong> childrenwith disabilities to enjoy all human rights <strong>and</strong> fundamental freedoms <strong>on</strong> an equal basiswith o<strong>the</strong>r children (e.g., access to healthcare, educati<strong>on</strong>, sport <strong>and</strong> recreati<strong>on</strong>, familylife, etc). To ensure children with disabilities can enjoy <strong>the</strong>se rights <strong>on</strong> an equal basiswith o<strong>the</strong>rs, States Parties need to ensure programmes <strong>and</strong> facilities are accessible tochildren with disabilities.In matters c<strong>on</strong>cern<strong>in</strong>g children with disabilities, States Parties should c<strong>on</strong>sider what is<strong>in</strong> <strong>the</strong> best <strong>in</strong>terest <strong>of</strong> <strong>the</strong> child <strong>in</strong> determ<strong>in</strong><strong>in</strong>g <strong>the</strong> outcome.States Parties‟ legislati<strong>on</strong> should also provide that children with disabilities have <strong>the</strong>right to express <strong>the</strong>ir op<strong>in</strong>i<strong>on</strong> <strong>on</strong> all matters affect<strong>in</strong>g <strong>the</strong>m, <strong>in</strong> accordance with <strong>the</strong>irage <strong>and</strong> maturity <strong>on</strong> an equal basis with o<strong>the</strong>r children. To realise this right, childrenwith disabilities should be provided with age <strong>and</strong> disability-appropriate assistance tohelp <strong>the</strong>m freely express <strong>the</strong>ir views.States Parties should promote <strong>the</strong> full development, advancement <strong>and</strong> empowerment<strong>of</strong> women <strong>and</strong> children with disabilities.Legislati<strong>on</strong> should provide for reas<strong>on</strong>able accommodati<strong>on</strong>s for women <strong>and</strong> childrenwith disabilities to reach <strong>the</strong>ir full potential.States Parties should set up comprehensive m<strong>on</strong>itor<strong>in</strong>g <strong>and</strong> evaluati<strong>on</strong>mechanisms to ensure that women <strong>and</strong> children with disabilities are be<strong>in</strong>g afforded<strong>the</strong>ir human rights <strong>and</strong> fundamental freedoms.3.5 General AccessibilityAccessibility features as a general pr<strong>in</strong>ciple <strong>in</strong> <strong>the</strong> UN CRPD <strong>in</strong> Article 3 <strong>and</strong> is alsoelaborated as a separate provisi<strong>on</strong> <strong>in</strong> Article 9. Accessibility also gives rise to specificapplicati<strong>on</strong>s <strong>in</strong> o<strong>the</strong>r substantive articles. Accessibility rights <strong>in</strong> <strong>the</strong> UN CRPD serve <strong>the</strong>functi<strong>on</strong> <strong>of</strong> facilitat<strong>in</strong>g access <strong>in</strong> various c<strong>on</strong>texts, <strong>in</strong>clud<strong>in</strong>g generally <strong>in</strong> public <strong>and</strong>private spheres, as well as specifically, <strong>in</strong> <strong>the</strong> access to justice <strong>and</strong> political decisi<strong>on</strong>mak<strong>in</strong>gc<strong>on</strong>texts.Page | 67
Secti<strong>on</strong> 3.5 provides an overview <strong>of</strong> <strong>the</strong> core obligati<strong>on</strong>s derived from Article 9, <strong>and</strong>aims to give general guidel<strong>in</strong>es for <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> accessibility pr<strong>in</strong>ciple byStates Parties to <strong>the</strong> UN CRPD.3.5.1 Article 9 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong>Article 9 aims to dismantle barriers erected <strong>on</strong> account <strong>of</strong> discrim<strong>in</strong>atory attitudes 160by promot<strong>in</strong>g different forms <strong>of</strong> accessibility <strong>in</strong> <strong>the</strong> public <strong>and</strong> private spheres, <strong>in</strong>clud<strong>in</strong>gphysical, technological, ec<strong>on</strong>omic <strong>and</strong> social accessibility, as well as <strong>in</strong>formati<strong>on</strong> <strong>and</strong>communicati<strong>on</strong> accessibility. Accessibility is a guid<strong>in</strong>g pr<strong>in</strong>ciple <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>and</strong>is relevant to all areas <strong>of</strong> implementati<strong>on</strong>. Article 9 imposes a general obligati<strong>on</strong> <strong>on</strong>States Parties to enable pers<strong>on</strong>s with disabilities to live <strong>in</strong>dependently <strong>and</strong> participatefully <strong>in</strong> all aspects <strong>of</strong> life by ensur<strong>in</strong>g <strong>the</strong>ir access to <strong>the</strong> envir<strong>on</strong>ment. The provisi<strong>on</strong>requires States Parties to identify <strong>and</strong> elim<strong>in</strong>ate obstacles <strong>and</strong> barriers to accessibility(Article 9(1) UN CRPD), <strong>and</strong> specifically highlights <strong>in</strong> this regard access to public <strong>and</strong>domestic build<strong>in</strong>gs; transport <strong>and</strong> transport <strong>in</strong>frastructure; <strong>in</strong>formati<strong>on</strong> <strong>and</strong>communicati<strong>on</strong> technologies <strong>and</strong> systems; <strong>and</strong> public services <strong>and</strong> facilities. Inadditi<strong>on</strong>, Article 9 requires that medical facilities, electr<strong>on</strong>ic services <strong>and</strong> emergencyservices be accessible to pers<strong>on</strong>s with disabilities (Article 9(1)(a) UN CRPD).Therefore, all <strong>in</strong>frastructures should be based <strong>on</strong> designs that take disabilityaccessibility fully <strong>in</strong>to account. 161 To this end, <strong>the</strong> use <strong>of</strong> universal design will be <strong>of</strong>added value, because accessibility issues will be c<strong>on</strong>sidered from <strong>the</strong> outset.For build<strong>in</strong>gs, accessibility measures such as ramps <strong>and</strong> signage <strong>in</strong> Braille <strong>and</strong> <strong>in</strong>easy-to-read <strong>and</strong> audio formats (Article 9(2)(d) UN CRPD) should be made availablefor pers<strong>on</strong>s with disabilities. Fur<strong>the</strong>rmore, live assistance <strong>and</strong> <strong>in</strong>termediaries should beavailable (Article 9(2)(e) UN CRPD), where required, to facilitate access by pers<strong>on</strong>swith disabilities to build<strong>in</strong>gs <strong>and</strong> o<strong>the</strong>r facilities open to <strong>the</strong> public.160 Article 9 <strong>of</strong> <strong>the</strong> UN CRPD does not explicitly menti<strong>on</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>. However, <strong>the</strong> requirement <strong>of</strong>Article 9(1) to ensure access to pers<strong>on</strong>s with disabilities <strong>on</strong> an equal basis with o<strong>the</strong>rs implicitly imports<strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> equal treatment to accessibility. In additi<strong>on</strong> we should also recall that ultimate purpose <strong>of</strong><strong>the</strong> C<strong>on</strong>venti<strong>on</strong> (as expressed <strong>in</strong> Article 1 UN CRPD) is ensure <strong>the</strong> full <strong>and</strong> equal enjoyment <strong>of</strong> allhuman rights for pers<strong>on</strong>s with disabilities. Given <strong>the</strong> ultimate purpose <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>, Article 5(equality <strong>and</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>) assumes central <strong>and</strong> <strong>in</strong>deed c<strong>on</strong>troll<strong>in</strong>g importance. It seeks to reverseunequal treatment <strong>and</strong> discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> disability. It is <strong>the</strong> prism through which all o<strong>the</strong>rprovisi<strong>on</strong>s are refracted. In <strong>the</strong>ir own way all o<strong>the</strong>r provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> provide <strong>the</strong> variousc<strong>on</strong>crete <strong>and</strong> positive measures that need to be taken to reverse <strong>the</strong> legacy <strong>of</strong> unequal treatment <strong>and</strong>discrim<strong>in</strong>ati<strong>on</strong> <strong>in</strong> <strong>the</strong> various fields. Article 5 <strong>the</strong>refore affects how all rights <strong>in</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> are to beapproached, understood <strong>and</strong> <strong>in</strong>deed <strong>in</strong>terpreted. In a way, Article 9 outl<strong>in</strong>es <strong>the</strong> extra steps needed toremove exist<strong>in</strong>g barriers <strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong> accessibility. It sets out a series <strong>of</strong> obligati<strong>on</strong>s <strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong>accessibility, all <strong>of</strong> which aim <strong>in</strong> <strong>the</strong>ir own way towards <strong>the</strong> removal <strong>of</strong> discrim<strong>in</strong>atory barriers.161 See OHCHR, “From Exclusi<strong>on</strong> to Equality. Realis<strong>in</strong>g <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities. AH<strong>and</strong>book for parliamentarians <strong>on</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities <strong>and</strong>Opti<strong>on</strong>al Protocol”, UN publicati<strong>on</strong> No 14-2007, pp 79-81Page | 68
Article 9 also underscores <strong>the</strong> need for States Parties to promote access for pers<strong>on</strong>swith disabilities to new <strong>in</strong>formati<strong>on</strong> as well as communicati<strong>on</strong>s technologies <strong>and</strong>systems, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> Internet (Article 9(2)(f) <strong>and</strong> (g) UN CRPD). As highlighted by <strong>the</strong>H<strong>and</strong>book for Parliamentarians <strong>on</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s withDisabilities <strong>and</strong> Opti<strong>on</strong>al Protocol, <strong>the</strong> <strong>in</strong>ternet provides a crucial l<strong>in</strong>k to educati<strong>on</strong>,employment opportunities, news <strong>and</strong> health-care <strong>in</strong>formati<strong>on</strong>, <strong>and</strong> is a channel for civicengagement <strong>and</strong> social network<strong>in</strong>g. 162 In o<strong>the</strong>r words, through <strong>the</strong> use <strong>of</strong> <strong>the</strong> <strong>in</strong>ternet,<strong>in</strong>dividuals ga<strong>in</strong> a certa<strong>in</strong> degree <strong>of</strong> <strong>in</strong>volvement <strong>in</strong> society, <strong>and</strong> <strong>the</strong>refore pers<strong>on</strong>s withdisabilities should have equal access to <strong>the</strong> <strong>in</strong>ternet. Therefore, States Parties mustpromote <strong>the</strong> <strong>in</strong>corporati<strong>on</strong> <strong>of</strong> accessibility measures <strong>in</strong>to <strong>the</strong> design, development,producti<strong>on</strong> <strong>and</strong> distributi<strong>on</strong> <strong>of</strong> accessible <strong>in</strong>formati<strong>on</strong> <strong>and</strong> communicati<strong>on</strong> technologies<strong>and</strong> systems at an early stage, so that <strong>the</strong>se technologies <strong>and</strong> systems becomeaccessible at a m<strong>in</strong>imum cost (Article 9(2)(h) UN CRPD).Article 9 requires equivalent levels <strong>of</strong> accessibility to be available <strong>in</strong> both urban <strong>and</strong>rural areas. It is also important to note that <strong>the</strong> obligati<strong>on</strong>s imposed by <strong>the</strong> article applyto public services <strong>and</strong> facilities provided by government, <strong>and</strong> <strong>the</strong> private sector (Article9(2)(b) UN CRPD). F<strong>in</strong>ally, Article 9 clarifies that accessibility is to be achieved througha variety <strong>of</strong> implementati<strong>on</strong> measures, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> development <strong>and</strong> m<strong>on</strong>itor<strong>in</strong>g <strong>of</strong>m<strong>in</strong>imum st<strong>and</strong>ards <strong>and</strong> guidel<strong>in</strong>es for accessibility (Article 9(2)(a) UN CRPD), <strong>and</strong> <strong>the</strong>provisi<strong>on</strong> <strong>of</strong> tra<strong>in</strong><strong>in</strong>g for stakeholders <strong>in</strong> accessibility issues (Article 9(2)(c) UN CRPD).It should be noted that <strong>the</strong> OHCHR, <strong>in</strong> its Thematic study <strong>on</strong> enhanc<strong>in</strong>g awareness <strong>and</strong>underst<strong>and</strong><strong>in</strong>g <strong>of</strong> <strong>the</strong> UN CRPD, identified <strong>the</strong> adopti<strong>on</strong> <strong>of</strong> m<strong>in</strong>imum st<strong>and</strong>ards <strong>and</strong>accessibility guidel<strong>in</strong>es, as a matter <strong>of</strong> first priority to implement Article 9 <strong>of</strong> <strong>the</strong> UNCRPD. 163 The Thematic study fur<strong>the</strong>r clarified that such st<strong>and</strong>ards <strong>and</strong> guidel<strong>in</strong>esshould be comprehensive, address various types <strong>of</strong> barriers faced by pers<strong>on</strong>s withdisabilities, <strong>and</strong> <strong>in</strong>clude a clear timeframe for progressive c<strong>on</strong>formity, <strong>and</strong> <strong>the</strong> nature <strong>of</strong>possible <strong>in</strong>terventi<strong>on</strong>s <strong>in</strong> cases <strong>of</strong> <strong>in</strong>compliance. 164Research for this study <strong>in</strong> <strong>the</strong> EU Member States has revealed that Member Stateshave established accessibility legislati<strong>on</strong> relevant to Article 9 UN CRPD. However, anumber <strong>of</strong> significant challenges rema<strong>in</strong> for <strong>the</strong> satisfactory implementati<strong>on</strong> <strong>of</strong> Article 9UN CRPD. In many identified cases, <strong>the</strong> c<strong>on</strong>cept <strong>of</strong> accessibility is understood <strong>in</strong> anarrow sense, encompass<strong>in</strong>g access to <strong>the</strong> physical envir<strong>on</strong>ment <strong>and</strong>/or transport, withfew (or <strong>in</strong> some cases without) explicit references to access to <strong>in</strong>formati<strong>on</strong> or162 Ibid163 See A/HRC/10/48, supra note 41, p. 14164 IbidPage | 69
communicati<strong>on</strong>s, 165 <strong>in</strong>clud<strong>in</strong>g <strong>in</strong>formati<strong>on</strong> <strong>and</strong> communicati<strong>on</strong>s technologies <strong>and</strong>systems (ICT). 166 Additi<strong>on</strong>ally, <strong>in</strong> many Member States, despite <strong>the</strong> existence <strong>of</strong>accessibility legislati<strong>on</strong>, m<strong>on</strong>itor<strong>in</strong>g <strong>of</strong> implementati<strong>on</strong> appears to be <strong>in</strong>effective. 167Accessibility requirements are fur<strong>the</strong>r not adhered to <strong>and</strong> penalties for n<strong>on</strong>-complianceare not strictly enforced. Fur<strong>the</strong>r important challenges are <strong>the</strong> exempti<strong>on</strong>s fromcompliance that some States <strong>in</strong>clude <strong>in</strong> <strong>the</strong>ir accessibility legislati<strong>on</strong>. For example, <strong>on</strong>certa<strong>in</strong> occasi<strong>on</strong>s, nati<strong>on</strong>al legislati<strong>on</strong> <strong>in</strong>troduc<strong>in</strong>g accessibility requirements exemptsold build<strong>in</strong>gs from meet<strong>in</strong>g <strong>the</strong>se requirements; <strong>on</strong>ly new build<strong>in</strong>gs are obliged to bemade accessible. 168 Similarly, <strong>in</strong> some Member States, accessibility legislati<strong>on</strong> <strong>on</strong>lyapplies to public build<strong>in</strong>gs, while private actors, who n<strong>on</strong>e<strong>the</strong>less provide <strong>good</strong>s <strong>and</strong>services to <strong>the</strong> public, are not required to follow accessibility requirements. 169 F<strong>in</strong>ally,<strong>the</strong>re is <strong>in</strong>sufficient <strong>in</strong>formati<strong>on</strong> <strong>on</strong> access to build<strong>in</strong>gs, roads, transportati<strong>on</strong> <strong>and</strong> o<strong>the</strong>rfacilities (such as schools, hospitals, houses etc) <strong>of</strong> n<strong>on</strong>-urban areas (such as villagesor o<strong>the</strong>r areas with low populati<strong>on</strong> density).Indicative <strong>practices</strong> from France, Greece <strong>and</strong> Spa<strong>in</strong> are presented below aim<strong>in</strong>g toillustrate some <strong>of</strong> <strong>the</strong> aforementi<strong>on</strong>ed challenges as well as some legislative progress.The French policy <strong>on</strong> accessibility for pers<strong>on</strong>s with disabilities is covered by Law No2005-102 <strong>of</strong> 11 February 2005. 170 The law addresses accessibility to public <strong>and</strong> private165 For examples <strong>of</strong> EU Member States‟ <strong>practices</strong> related to <strong>in</strong>formati<strong>on</strong> <strong>and</strong> communicati<strong>on</strong>, see <strong>in</strong>teralia Internati<strong>on</strong>al Disability Rights M<strong>on</strong>itor (IDMR) 2007, Regi<strong>on</strong>al Report <strong>of</strong> Europe, pp. 34-35, availableat: http://www.ideanet.org/cir/uploads/File/IDRM_Europe_2007.pdf166 For example, <strong>in</strong> Irel<strong>and</strong>, access to <strong>in</strong>formati<strong>on</strong> <strong>and</strong> communicati<strong>on</strong>s technologies <strong>and</strong> systems is notexplicitly menti<strong>on</strong>ed <strong>in</strong> <strong>the</strong> Disability Act <strong>of</strong> 2005. However, access to public services <strong>and</strong> <strong>in</strong>formati<strong>on</strong> iscovered by Secti<strong>on</strong>s 26 to 28 <strong>of</strong> <strong>the</strong> Act. To this end, we may say that ICT is implicitly covered.Never<strong>the</strong>less, <strong>the</strong> accessibility provisi<strong>on</strong>s apply <strong>on</strong>ly to public bodies, such as M<strong>in</strong>istries, while privateactors are not covered by <strong>the</strong> Act. It should be noted that <strong>in</strong>formati<strong>on</strong> <strong>on</strong> <strong>practices</strong> <strong>in</strong> <strong>the</strong> field <strong>of</strong> ICT by<strong>the</strong> EU Member States is available by <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g> <strong>on</strong> Measur<strong>in</strong>g <strong>the</strong> Progress <strong>of</strong> eAccessibility <strong>in</strong> Europe(MeAC 2008), available at: www.eaccessibility-progress.eu167 This is <strong>the</strong> case for several Member States <strong>and</strong> <strong>in</strong> several fields related to accessibility. For example,while Greek Law 3230/2004 requires all public services to operate a dedicated unit for produc<strong>in</strong>g,implement<strong>in</strong>g <strong>and</strong> m<strong>on</strong>itor<strong>in</strong>g acti<strong>on</strong> plans <strong>on</strong> improv<strong>in</strong>g accessibility, <strong>the</strong> M<strong>in</strong>istry <strong>of</strong> Internal Affairs,<strong>in</strong>dicated <strong>in</strong> 2008 that <strong>on</strong>ly a small m<strong>in</strong>ority <strong>of</strong> public services operate such units.168For example, this is <strong>the</strong> case for Greece where Article 28 <strong>of</strong> Law 2831/2000 <strong>on</strong> General UrbanPlann<strong>in</strong>g Regulati<strong>on</strong>s, sets accessibility requirements for new build<strong>in</strong>gs host<strong>in</strong>g public services, publicspaces for educati<strong>on</strong>, health <strong>and</strong> social welfare, trade <strong>and</strong> <strong>of</strong>fices. The law def<strong>in</strong>es as „new‟, build<strong>in</strong>gs tobe built follow<strong>in</strong>g <strong>the</strong> adopti<strong>on</strong> <strong>of</strong> <strong>the</strong> Law <strong>and</strong> for which <strong>the</strong> urban plann<strong>in</strong>g permit will be issued underLaw 2831/2000. On <strong>the</strong> o<strong>the</strong>r h<strong>and</strong>, Greek Law 3230/2004 obliges old <strong>and</strong> new build<strong>in</strong>gs host<strong>in</strong>g publicservices to be accessible. See ANED Country Pr<strong>of</strong>ile for Greece, available at http://www.disabilityeurope.net/c<strong>on</strong>tent/pdf/Greece%20-%20ANED%20country%20pr<strong>of</strong>ile.pdf169 See supra notes 167 <strong>and</strong> 168170 Loi n° 2005-102 du 11 février 2005 pour l'égalité des droits et des chances, la participati<strong>on</strong> et lacitoyenneté des pers<strong>on</strong>nes h<strong>and</strong>icapées. The c<strong>on</strong>solidated versi<strong>on</strong> <strong>of</strong> <strong>the</strong> law is available <strong>in</strong> French at:http://www.legifrance.gouv.fr/affichTexte.do?cidTexte=JORFTEXT000000809647. It is worth not<strong>in</strong>g that<strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> accessibility for all was already <strong>in</strong>troduced by <strong>the</strong> French Accessibility Law No 91-663 <strong>of</strong>13 July 1991 (Loi n°91-663 du 13 juillet 1991 portant diverses mesures dest<strong>in</strong>ées à favoriserPage | 70
uild<strong>in</strong>gs (Article 41); transportati<strong>on</strong> (Article 45); <strong>and</strong> <strong>on</strong>-l<strong>in</strong>e communicati<strong>on</strong>s (Article46). Good elements <strong>of</strong> <strong>the</strong> law <strong>in</strong>clude <strong>the</strong> m<strong>and</strong>atory tra<strong>in</strong><strong>in</strong>g <strong>of</strong> architects, eng<strong>in</strong>eers<strong>and</strong> o<strong>the</strong>r pr<strong>of</strong>essi<strong>on</strong>als related to c<strong>on</strong>structi<strong>on</strong>s as well as <strong>the</strong> c<strong>on</strong>ceptualisati<strong>on</strong> <strong>of</strong>accessibility <strong>in</strong> a broad sense <strong>in</strong>clud<strong>in</strong>g hous<strong>in</strong>g, workplaces, facilities open to <strong>the</strong>public, services provided to <strong>the</strong> public, equipment for public use <strong>and</strong> <strong>on</strong>-l<strong>in</strong>ecommunicati<strong>on</strong>s. 171 In additi<strong>on</strong> <strong>the</strong> law allows l<strong>and</strong>lords to c<strong>on</strong>sult with specialisedservices to determ<strong>in</strong>e <strong>and</strong> make adaptati<strong>on</strong>s to <strong>the</strong>ir hous<strong>in</strong>g facilities, <strong>in</strong> order to meet<strong>the</strong> needs <strong>of</strong> tenants with disabilities. 172 Ano<strong>the</strong>r <strong>good</strong> element is <strong>the</strong> <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> a timelimit (that is 2015) to comply with <strong>the</strong> accessibility provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> law. However, <strong>the</strong>applicati<strong>on</strong> <strong>of</strong> <strong>the</strong> law is limited as it generally focuses <strong>on</strong> <strong>the</strong> public sphere; that is tosay, for example, that all public <strong>on</strong>l<strong>in</strong>e services (which by virtue <strong>of</strong> Article 47 <strong>of</strong> Law No2005-102 are required to be accessible) c<strong>on</strong>cern <strong>on</strong>l<strong>in</strong>e services <strong>of</strong> <strong>the</strong> French publicadm<strong>in</strong>istrati<strong>on</strong> <strong>and</strong> not services from private actors.Available data from exist<strong>in</strong>g studies <strong>and</strong> surveys <strong>on</strong> accessibility <strong>in</strong> France, suggestthat although work rema<strong>in</strong>s to be d<strong>on</strong>e, some improvement has been made <strong>in</strong> <strong>the</strong> buildenvir<strong>on</strong>ment <strong>of</strong> large cities, 173 as well as <strong>in</strong>formati<strong>on</strong> <strong>and</strong> communicati<strong>on</strong> technologies(such as websites, broadcast<strong>in</strong>g etc). 174In Greece, Law No 2831/2000 <strong>on</strong> General Urban Plann<strong>in</strong>g Regulati<strong>on</strong>s requireshoriz<strong>on</strong>tal <strong>and</strong> vertical accessibility to all new build<strong>in</strong>gs host<strong>in</strong>g public services, publicspaces for educati<strong>on</strong>, health <strong>and</strong> social welfare, trade <strong>and</strong> <strong>of</strong>fices. The law appliesaccessibility requirements for <strong>the</strong> build<strong>in</strong>gs covered, as well as <strong>the</strong>ir park<strong>in</strong>g places.The law makes no reference to old build<strong>in</strong>gs <strong>and</strong> def<strong>in</strong>es as „new‟, build<strong>in</strong>gs to be builtfollow<strong>in</strong>g <strong>the</strong> adopti<strong>on</strong> <strong>of</strong> <strong>the</strong> Law <strong>and</strong> for which <strong>the</strong> urban plann<strong>in</strong>g permit will beissued under Law 2831/2000. In terms <strong>of</strong> practical implementati<strong>on</strong>, a study c<strong>on</strong>ductedby <strong>the</strong> Internati<strong>on</strong>al Disability Rights M<strong>on</strong>itor<strong>in</strong>g (IDRM) <strong>in</strong> 2007, <strong>in</strong>dicated that <strong>the</strong>reare no mechanisms <strong>in</strong> place to ensure actual <strong>and</strong> correct applicati<strong>on</strong> <strong>of</strong> Law2831/2000. 175 The IDRM Report fur<strong>the</strong>r <strong>in</strong>dicated that <strong>the</strong> law covers accessibility <strong>of</strong>l'accessibilité aux pers<strong>on</strong>nes h<strong>and</strong>icapées des locaux d'habitati<strong>on</strong>, des lieux de travail et des<strong>in</strong>stallati<strong>on</strong>s recevant du public). Law 2005-102 reaffirmed <strong>the</strong> accessibility pr<strong>in</strong>ciple, but <strong>in</strong>cludes newaccessibility criteria <strong>and</strong> set a timeframe for c<strong>on</strong>formity.171 For fur<strong>the</strong>r analysis <strong>of</strong> Law 2005-102, see French ANED report <strong>on</strong> <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> policiessupport<strong>in</strong>g <strong>in</strong>dependent liv<strong>in</strong>g for disabled people, available at http://www.disabilityeurope.net/c<strong>on</strong>tent/pdf/ANED%20Independent%20Liv<strong>in</strong>g%20report%20-%20France.pdf.For fur<strong>the</strong>r<strong>in</strong>formati<strong>on</strong> <strong>on</strong> <strong>the</strong> French def<strong>in</strong>iti<strong>on</strong> <strong>of</strong> accessibility, see <strong>the</strong> „Guide <strong>on</strong> <strong>the</strong> Def<strong>in</strong>iti<strong>on</strong> <strong>of</strong> Accessibility‟,prepared by an <strong>in</strong>ter-m<strong>in</strong>isterial delegati<strong>on</strong> for people with disabilities <strong>in</strong> 2007 <strong>and</strong> is available at:http://www.srfph-aquita<strong>in</strong>e.fr/IMG/pdf/Guide_Accessibilite_DIPH.pdf172 Article 50 <strong>of</strong> Law 2005-102; see supra note 171.173 See, for example, survey „Le baromètre APF de l‟accessibilité‟ published <strong>in</strong> February 2010 by APF(Associati<strong>on</strong> des Paralysés de France) at http://dd85.blogs.apf.asso.fr/media/02/01/1601839867.pdf174 See, for example, „Measur<strong>in</strong>g Progress <strong>of</strong> eAccessibility <strong>in</strong> Europe‟ (MeAC Project), France countrypr<strong>of</strong>ile at http://www.eaccessibility-progress.eu/country-pr<strong>of</strong>iles/france/levels-<strong>of</strong>-eaccessibility-<strong>in</strong>-france/175 IDMR Regi<strong>on</strong>al Report <strong>of</strong> Europe 2007, supra note 166, pp. 246-247Page | 71
new build<strong>in</strong>gs host<strong>in</strong>g public services, but <strong>the</strong> majority <strong>of</strong> public services are seated <strong>in</strong>old build<strong>in</strong>gs. 176 However, accord<strong>in</strong>g to Law 3230/2004 all build<strong>in</strong>gs, whe<strong>the</strong>r new orold, host<strong>in</strong>g public services are required to ensure accessibility for pers<strong>on</strong>s withdisabilities. In additi<strong>on</strong>, all public services are required to operate a dedicated unit forproduc<strong>in</strong>g, implement<strong>in</strong>g <strong>and</strong> m<strong>on</strong>itor<strong>in</strong>g acti<strong>on</strong> plans <strong>on</strong> improv<strong>in</strong>g accessibility. 177Never<strong>the</strong>less, a report by <strong>the</strong> M<strong>in</strong>istry <strong>of</strong> Internal Affairs <strong>in</strong> 2008 178 highlighted that <strong>the</strong>majority <strong>of</strong> public services are partially accessible to people with disabilities, while <strong>on</strong>lya small m<strong>in</strong>ority <strong>of</strong> public services operate dedicated units <strong>on</strong> accessibility. 179Spa<strong>in</strong> has applied, by means <strong>of</strong> legislati<strong>on</strong>, <strong>the</strong> accessibility pr<strong>in</strong>ciple <strong>in</strong> severalc<strong>on</strong>texts, such as access to general State adm<strong>in</strong>istrati<strong>on</strong>; access<strong>in</strong>g <strong>and</strong> us<strong>in</strong>g publicspaces <strong>and</strong> build<strong>in</strong>gs; access to technologies; products <strong>and</strong> services related to <strong>the</strong><strong>in</strong>formati<strong>on</strong> society <strong>and</strong> social communicati<strong>on</strong> media <strong>and</strong> access to <strong>and</strong> use <strong>of</strong> means<strong>of</strong> transportati<strong>on</strong>. 180 Accessibility requirements have been <strong>in</strong>troduced by <strong>the</strong> Law <strong>of</strong>Equal Opportunities, N<strong>on</strong>-Discrim<strong>in</strong>ati<strong>on</strong> <strong>and</strong> Universal Access for People withDisabilities (LIONDAU, Act nº 51/2003), 181 as well as a number <strong>of</strong> Royal Decrees. Asregards LIONDAU, accessibility features am<strong>on</strong>g <strong>the</strong> pr<strong>in</strong>ciples <strong>of</strong> <strong>the</strong> law (set forth <strong>in</strong>Article 2) to mean requirements that need to be followed to ensure that pers<strong>on</strong>s withdisabilities have access to envir<strong>on</strong>ments (physical, social, cultural or o<strong>the</strong>r), <strong>good</strong>s,services, tools <strong>and</strong> o<strong>the</strong>rs available for all people <strong>in</strong> society. In additi<strong>on</strong>, <strong>the</strong> law def<strong>in</strong>esthat accessibility presupposed <strong>the</strong> use <strong>of</strong> „design for all‟. The latter c<strong>on</strong>cept means thataccessibility should be taken <strong>in</strong>to account (whenever possible) from <strong>the</strong> outset so thatenvir<strong>on</strong>ments, <strong>good</strong>s <strong>and</strong> services are usable by people with disabilities to <strong>the</strong> greatestpossible extent. 182 LIONDAU has a universal scope <strong>and</strong> <strong>the</strong>refore applies totelecommunicati<strong>on</strong>s <strong>and</strong> <strong>in</strong>formati<strong>on</strong> society; urban public spaces, <strong>in</strong>frastructure <strong>and</strong>build<strong>in</strong>gs; transportati<strong>on</strong>; <strong>good</strong>s <strong>and</strong> services open to <strong>the</strong> public; relati<strong>on</strong>s with publicadm<strong>in</strong>istrati<strong>on</strong>s (Article 3 <strong>of</strong> <strong>the</strong> LIONDAU). The law appears to be a <strong>good</strong> legislativemeasure that facilitates access for people with disabilities <strong>in</strong> all aspects <strong>of</strong> life.176 Ibid177 See also ANED Country Pr<strong>of</strong>ile, Greece at http://www.disability-europe.net/c<strong>on</strong>tent/pdf/Greece%20-%20ANED%20country%20pr<strong>of</strong>ile.pdf178 Report „Accessibility <strong>of</strong> public services for people with disabilities” by <strong>the</strong> M<strong>in</strong>istry <strong>of</strong> Internal Affairs(2008) athttp://www.gspa.gr/(1811599934994291)/documents/υ.3_2_6644_εγκσλκιος%20για%20προσβτα%202008.doc179 Ibid180High Level Group <strong>on</strong> Disability, Sec<strong>on</strong>d Disability High Level Group Report <strong>on</strong> Implementati<strong>on</strong> <strong>of</strong> <strong>the</strong>UN C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities, June 2009, p.195181 Available at http://sid.usal.es/leyes/discapacidad/13769/3-1-2/law-51-<strong>of</strong>-december-2-2003-<strong>on</strong>-equalopportunities-n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>-<strong>and</strong>-universal-access-<strong>of</strong>-people-with-disabilities.aspx182 Un<strong>of</strong>ficial translati<strong>on</strong>. For <strong>the</strong> <strong>of</strong>ficial def<strong>in</strong>iti<strong>on</strong>s <strong>of</strong> „accessibility‟ <strong>and</strong> „design for all‟ see Article 2 <strong>of</strong> <strong>the</strong>LIONDAU, supra note 182.Page | 72
However, LIONDAU is a nati<strong>on</strong>al framework law, 183 which requires <strong>the</strong> adopti<strong>on</strong> <strong>of</strong>subsidiary legislati<strong>on</strong> (<strong>in</strong> <strong>the</strong> different fields covered) for its implementati<strong>on</strong>. Somecriticism has <strong>the</strong>refore been raised with regard to its effective implementati<strong>on</strong>. Forexample, <strong>in</strong> <strong>the</strong> fields <strong>of</strong> urban plann<strong>in</strong>g, social services <strong>and</strong> hous<strong>in</strong>g, accessibility fallsunder <strong>the</strong> exclusive competence <strong>of</strong> <strong>the</strong> Aut<strong>on</strong>omous Communities, which areresp<strong>on</strong>sible for <strong>the</strong> adopti<strong>on</strong> <strong>of</strong> subsidiary legislati<strong>on</strong> that will determ<strong>in</strong>e <strong>the</strong> specificaspects <strong>of</strong> LIONDAU implementati<strong>on</strong> process <strong>in</strong> <strong>the</strong>ir regi<strong>on</strong>s. As a c<strong>on</strong>sequence,subsidiary accessibility measures adopted by <strong>the</strong> Communities, lead to <strong>in</strong>c<strong>on</strong>sistenciesbetween different regi<strong>on</strong>s. 184Available data from exist<strong>in</strong>g surveys <strong>and</strong> studies <strong>on</strong> accessibility <strong>in</strong> Spa<strong>in</strong>, 185 suggestthat some improvement has been made, but <strong>the</strong>re is still work to be d<strong>on</strong>e <strong>in</strong> order forpeople with disabilities to enjoy full access to all envir<strong>on</strong>ments (physical, social, culturalor o<strong>the</strong>r), <strong>good</strong>s <strong>and</strong> services <strong>and</strong> <strong>in</strong> both public <strong>and</strong> private spheres. For example, <strong>the</strong>Internati<strong>on</strong>al Disability Rights M<strong>on</strong>itor Report <strong>of</strong> 2007 recognised that public <strong>and</strong>private attitudes to accessibility are start<strong>in</strong>g to change <strong>and</strong> efforts are be<strong>in</strong>g made to<strong>in</strong>vest <strong>in</strong> improv<strong>in</strong>g <strong>in</strong> <strong>the</strong> accessibility <strong>of</strong> transportati<strong>on</strong> services. 186 However, <strong>the</strong> report<strong>in</strong>dicated that deficiencies do exist <strong>in</strong> <strong>the</strong> means <strong>of</strong> public transport. As regards accessto <strong>in</strong>formati<strong>on</strong> <strong>and</strong> communicati<strong>on</strong>, <strong>the</strong> MeAC study <strong>of</strong> 2008 187 revealed progress <strong>in</strong>improv<strong>in</strong>g accessibility. Specifically, <strong>the</strong> study identified that three out <strong>of</strong> <strong>the</strong> five publicwebsites evaluated were accessible; emergency numbers were directly accessible bymeans <strong>of</strong> text teleph<strong>on</strong>es; text <strong>and</strong> video relay services were also available. Inadditi<strong>on</strong>, <strong>the</strong> study <strong>in</strong>dicates that <strong>the</strong> two ma<strong>in</strong> public TV channels provided subtitledprogramm<strong>in</strong>g for 75% <strong>and</strong> 90% respectively <strong>of</strong> <strong>the</strong> overall programmes, while both alsoprovided programmes with sign<strong>in</strong>g for 5% <strong>and</strong> 15% respectively <strong>of</strong> <strong>the</strong>irprogramm<strong>in</strong>g. 188In c<strong>on</strong>clusi<strong>on</strong>, examples presented above show that legislative measures adopted bygovernments are important towards ensur<strong>in</strong>g accessibility for pers<strong>on</strong>s with disabilities,but are not enough to guarantee effective implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> accessibility pr<strong>in</strong>ciple183 Mean<strong>in</strong>g that it sets out recommendati<strong>on</strong>s for <strong>the</strong> Aut<strong>on</strong>omous Communities <strong>on</strong> how to address, <strong>in</strong>teralia, accessibility <strong>and</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>.184 For criticism raised <strong>on</strong> LIONDAU, see <strong>in</strong>ter alia IDMR Regi<strong>on</strong>al Report <strong>of</strong> Europe 2007, supra note166, p. 442185 See, <strong>in</strong>ter alia, IDMR Regi<strong>on</strong>al Report <strong>of</strong> Europe 2007, supra note 166, pp. 453-472; <strong>and</strong> CERMIreport 2008, available at: http://www.cermi.es/NR/rd<strong>on</strong>lyres/A6D627AE-6A58-4213-884D-6C4F9BE20C5A/28913/DerechosHumanos2.pdf186 It is worth not<strong>in</strong>g that <strong>in</strong> 2006, over 80 percent <strong>of</strong> Madrid‟s bus l<strong>in</strong>es were adapted. See IDMRRegi<strong>on</strong>al Report <strong>of</strong> Europe 2007, supra note 166, p. 466187 MeAC <str<strong>on</strong>g>Study</str<strong>on</strong>g> 2008, supra note 167, Spa<strong>in</strong> Country pr<strong>of</strong>ile at: http://www.eaccessibilityprogress.eu/country-pr<strong>of</strong>iles/spa<strong>in</strong>/levels-<strong>of</strong>-eaccessibility-<strong>in</strong>-spa<strong>in</strong>/188 Measur<strong>in</strong>g Progress <strong>of</strong> eAccessibility <strong>in</strong> Europe, Spa<strong>in</strong>, Country Pr<strong>of</strong>ile. Available athttp://www.eaccessibility-progress.eu/country-pr<strong>of</strong>iles/spa<strong>in</strong>/levels-<strong>of</strong>-eaccessibility-<strong>in</strong>-spa<strong>in</strong>/Page | 73
as set forth <strong>in</strong> Article 9 <strong>of</strong> <strong>the</strong> UN CRPD. Therefore, it would be important to <strong>in</strong>clude <strong>in</strong>legislati<strong>on</strong> clear timeframes for c<strong>on</strong>formity with accessibility requirements as well as toestablish m<strong>on</strong>itor<strong>in</strong>g mechanisms to ensure <strong>the</strong> correct applicati<strong>on</strong> <strong>of</strong> accessibilitylegislati<strong>on</strong>. In additi<strong>on</strong>, <strong>the</strong> use <strong>of</strong> „universal design‟ (as def<strong>in</strong>ed <strong>in</strong> Article 2 <strong>of</strong> <strong>the</strong> UNCRPD) will c<strong>on</strong>sider accessibility from <strong>the</strong> outset <strong>and</strong> <strong>the</strong>refore will reduce, or avoid,any cost <strong>of</strong> <strong>the</strong> subsequent dismantl<strong>in</strong>g <strong>of</strong> barriers for people with disabilities. 189As Council Decisi<strong>on</strong> 2010/48/EC notes, <strong>the</strong> European Uni<strong>on</strong> has some (limited)competence with regard to accessibility <strong>in</strong> <strong>the</strong> fields <strong>of</strong> <strong>good</strong>s, services, pers<strong>on</strong>almobility (e.g. transport), <strong>and</strong> <strong>in</strong>formati<strong>on</strong> <strong>and</strong> communicati<strong>on</strong> technologies. Thiscompetence is shared with <strong>the</strong> Member States. With <strong>the</strong> aim <strong>of</strong> illustrat<strong>in</strong>g <strong>the</strong> extent <strong>of</strong>such competence, <strong>the</strong> Council listed several <strong>in</strong>struments <strong>in</strong> <strong>the</strong> Decisi<strong>on</strong>, which refer toaccessibility. This secti<strong>on</strong> will <strong>on</strong>ly provide an overview <strong>of</strong> <strong>in</strong>dicative examples from <strong>the</strong>list provided <strong>in</strong> <strong>the</strong> Decisi<strong>on</strong>. It should be noted that more examples are available <strong>in</strong>Annex IV <strong>of</strong> this report.In <strong>the</strong> area <strong>of</strong> <strong>good</strong>s <strong>and</strong> services with<strong>in</strong> <strong>the</strong> <strong>in</strong>ternal market, <strong>the</strong> EU <strong>in</strong>struments thathave been reviewed for <strong>the</strong> purposes <strong>of</strong> this study, 190 <strong>and</strong> are <strong>in</strong>cluded <strong>in</strong> <strong>the</strong> Decisi<strong>on</strong>2010/48/EC, seem to be generally <strong>in</strong> l<strong>in</strong>e with access requirements set forth by Article9 UN CRPD. However, as illustrative examples analysed below show, <strong>the</strong>re is stillroom for improvement.For example, Directive 2004/18/EC 191 aims to coord<strong>in</strong>ate procedures for <strong>the</strong> award<strong>in</strong>g<strong>of</strong> public works c<strong>on</strong>tracts, public supply c<strong>on</strong>tracts <strong>and</strong> public service c<strong>on</strong>tracts. Article 2<strong>of</strong> <strong>the</strong> Directive requires c<strong>on</strong>tract<strong>in</strong>g public authorities to act <strong>in</strong> a transparent way <strong>and</strong>treat all „ec<strong>on</strong>omic operators‟ 192 equally <strong>and</strong> n<strong>on</strong>-discrim<strong>in</strong>atorily. The Directive doesnot clearly set out disability accessibility requirements for nati<strong>on</strong>al public authorities t<strong>of</strong>ollow when draw<strong>in</strong>g up tenders or award<strong>in</strong>g c<strong>on</strong>tracts, but does encourage MemberStates to def<strong>in</strong>e technical specificati<strong>on</strong>s (for example <strong>in</strong> c<strong>on</strong>tracts) so as to take <strong>in</strong>toaccount accessibility criteria for pers<strong>on</strong>s with disabilities. 193 In o<strong>the</strong>r words, Directive2004/18/EC, <strong>in</strong> l<strong>in</strong>e with <strong>the</strong> UN CRPD, recognises that Member States should189 For fur<strong>the</strong>r recommendati<strong>on</strong>s, see at <strong>the</strong> end <strong>of</strong> this secti<strong>on</strong> as well as secti<strong>on</strong> 5 <strong>of</strong> this report.190 A list <strong>of</strong> <strong>the</strong>se EC <strong>in</strong>struments is provided <strong>in</strong> Annex IV <strong>of</strong> this report. Delia Ferri, “The EuropeanCommunity competence to implement <strong>the</strong> UN CRPD”, research paper for <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g> <strong>on</strong> <strong>Challenges</strong> <strong>and</strong>Good Practices <strong>in</strong> <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD, VC/2008/1214191 Directive 2004/18/EC <strong>of</strong> <strong>the</strong> European Parliament <strong>and</strong> <strong>of</strong> <strong>the</strong> Council <strong>of</strong> 31 March 2004 <strong>on</strong> <strong>the</strong>coord<strong>in</strong>ati<strong>on</strong> <strong>of</strong> procedures for <strong>the</strong> award <strong>of</strong> public works c<strong>on</strong>tracts, public supply c<strong>on</strong>tracts <strong>and</strong> publicservice c<strong>on</strong>tracts, OJ L 134, 30.4.2004, p. 114–240192 The Directive def<strong>in</strong>es <strong>the</strong> term broadly to <strong>in</strong>clude any natural or legal pers<strong>on</strong> or public entity or group<strong>of</strong> such pers<strong>on</strong>s <strong>and</strong>/or bodies which <strong>of</strong>fers <strong>on</strong> <strong>the</strong> market, respectively, <strong>the</strong> executi<strong>on</strong> <strong>of</strong> works <strong>and</strong>/or awork, products or services. See Directive 2004/18/EC, Article 1.193 Ibid, Directive 2004/18/EC Article 23: “Whenever possible [ …] technical specificati<strong>on</strong>s should bedef<strong>in</strong>ed so as to take <strong>in</strong>to account accessibility criteria for people with disabilities or design for all users.”Page | 74
c<strong>on</strong>sider disability accessibility <strong>in</strong> relati<strong>on</strong> to public procurement, but it does not obligeMember States to do so. Therefore, with <strong>the</strong> aim <strong>of</strong> ensur<strong>in</strong>g <strong>the</strong> full implementati<strong>on</strong> <strong>of</strong>Article 9 UN CRPD, it is recommended that <strong>the</strong> EU research how far such disabilityaccessibility requirements are be<strong>in</strong>g <strong>in</strong>cluded <strong>in</strong> tenders <strong>and</strong> result<strong>in</strong>g c<strong>on</strong>tracts <strong>in</strong>practice. If such research reveals that disability accessibility is be<strong>in</strong>g addressed<strong>in</strong>adequately, <strong>the</strong>n <strong>the</strong> EU should c<strong>on</strong>sider amend<strong>in</strong>g <strong>the</strong> Directive <strong>in</strong> order tostreng<strong>the</strong>n provisi<strong>on</strong>s referr<strong>in</strong>g to pers<strong>on</strong>s with disabilities, <strong>and</strong> set out clearaccessibility requirements that Member States should follow.Positive elements relat<strong>in</strong>g to accessibility can be found <strong>in</strong> Directive 2001/85/EC. 194The Directive aims to guarantee <strong>the</strong> safety <strong>of</strong> passengers, <strong>and</strong> has established specialprovisi<strong>on</strong>s for vehicles used for <strong>the</strong> carriage <strong>of</strong> passengers compris<strong>in</strong>g more than eightseats. The Directive addressed <strong>the</strong> needs <strong>of</strong> pers<strong>on</strong>s with reduced mobility 195 through<strong>the</strong> provisi<strong>on</strong> <strong>of</strong> technical prescripti<strong>on</strong>s to foster accessibility <strong>in</strong> accordance with EUtransport <strong>and</strong> social policies. The Directive sets out harm<strong>on</strong>is<strong>in</strong>g technicalrequirements 196 for <strong>the</strong> design <strong>of</strong> vehicles compris<strong>in</strong>g more than eight seats <strong>in</strong> additi<strong>on</strong>to <strong>the</strong> driver‟s seat. Technical requirements <strong>in</strong>clude, for example, <strong>the</strong> height <strong>of</strong> <strong>the</strong> firststep from <strong>the</strong> ground; <strong>the</strong> <strong>in</strong>stallati<strong>on</strong> <strong>of</strong> a kneel<strong>in</strong>g system <strong>and</strong>/or retractable step; am<strong>in</strong>imum number <strong>and</strong> design <strong>of</strong> seats for passengers; provisi<strong>on</strong>s for <strong>the</strong> <strong>in</strong>stallati<strong>on</strong> <strong>of</strong>communicati<strong>on</strong> devices <strong>and</strong> pictograms; <strong>and</strong> provisi<strong>on</strong>s for wheelchair accommodati<strong>on</strong><strong>in</strong> <strong>the</strong> passenger compartment <strong>and</strong> o<strong>the</strong>rs. The Directive does not establish a specificenforcement or m<strong>on</strong>itor<strong>in</strong>g mechanism, but as <strong>of</strong> April 2009, an enforcementmechanism for <strong>in</strong>dividual approvals for new vehicles, as well as m<strong>on</strong>itor<strong>in</strong>g is ensuredthrough Directive 2007/46/EC. The latter established a framework for <strong>the</strong> approval <strong>of</strong>motor vehicles <strong>and</strong> <strong>the</strong>ir trailers, <strong>and</strong> <strong>of</strong> systems, comp<strong>on</strong>ents <strong>and</strong> separate technicalunits <strong>in</strong>tended for such vehicles, 197 which also requires compliance with <strong>the</strong> technicalspecificati<strong>on</strong>s set <strong>in</strong> Directive 2001/85/EC. Based <strong>on</strong> Directive 2007/46/EC, <strong>in</strong>dividualapprovals for new vehicles fall under EU law. Given <strong>the</strong> provisi<strong>on</strong>s <strong>of</strong> Article 24 <strong>of</strong> <strong>the</strong>Directive, <strong>the</strong> competent authorities <strong>of</strong> <strong>the</strong> Member States are not allowed to grant an194 Council Directive 2001/85/EC relat<strong>in</strong>g to special provisi<strong>on</strong>s for vehicles used for <strong>the</strong> carriage <strong>of</strong>passengers compris<strong>in</strong>g more than eight seats <strong>in</strong> additi<strong>on</strong> to <strong>the</strong> driver‟s seat, <strong>and</strong> amend<strong>in</strong>g Directives1970/156/EEC <strong>and</strong> 1997/27/EC [2002] OJ L43/1195 It should be noted that <strong>the</strong> def<strong>in</strong>iti<strong>on</strong> <strong>of</strong> „pers<strong>on</strong>s with reduced mobility‟, <strong>in</strong>cluded <strong>in</strong> <strong>the</strong> Directive2001/85/EC, is broad <strong>and</strong> <strong>in</strong>cludes all people who have difficulty when us<strong>in</strong>g public transport, such asdisabled people (<strong>in</strong>clud<strong>in</strong>g people with sensory <strong>and</strong> <strong>in</strong>tellectual impairments, <strong>and</strong> wheelchair users);people with limb impairments; people <strong>of</strong> small stature; people with heavy luggage; elderly people;pregnant women; people with shopp<strong>in</strong>g trolleys; <strong>and</strong> people with children (<strong>in</strong>clud<strong>in</strong>g children seated <strong>in</strong>pushchairs).196 See Annex VII <strong>of</strong> Directive 2001/85/EC197 Directive 2007/46/EC <strong>of</strong> <strong>the</strong> European Parliament <strong>and</strong> <strong>of</strong> <strong>the</strong> Council <strong>of</strong> 5 September 2007establish<strong>in</strong>g a framework for <strong>the</strong> approval <strong>of</strong> motor vehicles <strong>and</strong> <strong>the</strong>ir trailers, <strong>and</strong> <strong>of</strong> systems,comp<strong>on</strong>ents <strong>and</strong> separate technical units <strong>in</strong>tended for such vehicles (Framework Directive) Text withEEA relevance, [2007] O.J. L. 263, 09/10/2007 p. 0001 - 0160Page | 75
<strong>in</strong>dividual approval for a new vehicle if <strong>the</strong> latter does not comply with <strong>the</strong> harm<strong>on</strong>isedtechnical requirements <strong>in</strong> force <strong>in</strong> <strong>the</strong> European Uni<strong>on</strong>, or with technical requirementswhich have been recognised as provid<strong>in</strong>g an equivalent level <strong>of</strong> safety. 198 As isevident, Directive 2001/85/EC, <strong>in</strong> c<strong>on</strong>juncti<strong>on</strong> with Directive 2007/46/EC, has severalpositive elements that are <strong>in</strong> l<strong>in</strong>e with obligati<strong>on</strong>s deriv<strong>in</strong>g from Article 9 UN CRPD, <strong>and</strong><strong>in</strong> particular Article 9(1) which requires <strong>the</strong> identificati<strong>on</strong> <strong>and</strong> elim<strong>in</strong>ati<strong>on</strong> <strong>of</strong> barriers toaccessibility <strong>in</strong> <strong>the</strong> area <strong>of</strong> transportati<strong>on</strong>.In <strong>the</strong> area <strong>of</strong> product safety <strong>and</strong> c<strong>on</strong>sumer protecti<strong>on</strong>, research for this study hasrevealed that while EU <strong>in</strong>struments <strong>in</strong>corporate some accessibility requirementsrelat<strong>in</strong>g to pers<strong>on</strong>s with disabilities, <strong>the</strong>se requirements do not always reflect <strong>the</strong> needs<strong>of</strong> all people with disabilities. For example, Directive 2001/83/EC 199 <strong>on</strong> medicalproducts for human use requires that <strong>in</strong>formati<strong>on</strong> <strong>in</strong> Braille is provided <strong>on</strong> <strong>the</strong> package.In additi<strong>on</strong>, <strong>the</strong> Directive requires that <strong>the</strong> market<strong>in</strong>g authorisati<strong>on</strong> holder should ensurethat <strong>the</strong> package <strong>in</strong>formati<strong>on</strong> leaflet is also available <strong>in</strong> formats appropriate for bl<strong>in</strong>d<strong>and</strong> partially sighted pers<strong>on</strong>s. 200 Measures laid down by <strong>the</strong> Directive have establishedaccessibility requirements relat<strong>in</strong>g to pers<strong>on</strong>s with visual impairments. However, <strong>the</strong>Directive has not addressed accessibility requirements for pers<strong>on</strong>s with o<strong>the</strong>rdisabilities, <strong>and</strong> <strong>in</strong> particular pers<strong>on</strong>s with <strong>in</strong>tellectual disabilities, who may requiredifferent accommodati<strong>on</strong>s, such as, for example, a symbol or pictogram that willdem<strong>on</strong>strate <strong>the</strong> purpose <strong>of</strong> <strong>the</strong> product.In <strong>the</strong> area <strong>of</strong> transport, research for this study has revealed that EU legislati<strong>on</strong> isquite advanced <strong>and</strong> addresses <strong>the</strong> needs <strong>of</strong> pers<strong>on</strong>s with disabilities. An example <strong>of</strong><strong>good</strong> practice related to transport, which is ma<strong>in</strong>ly aimed at ensur<strong>in</strong>g pers<strong>on</strong>al mobilityfor pers<strong>on</strong>s with disabilities, is Regulati<strong>on</strong> 1107/2006/EC, 201 which was based <strong>on</strong>Article 80(2) TEC. It should be noted that <strong>in</strong> Council Decisi<strong>on</strong> 2010/48/EC, <strong>the</strong>Regulati<strong>on</strong> was listed as an <strong>in</strong>strument that illustrates EU competence for mattersrelated to pers<strong>on</strong>al mobility (Article 20 UN CRPD). However, as accessibility is ageneral pr<strong>in</strong>ciple that aims to enable pers<strong>on</strong>s with disabilities to live <strong>in</strong>dependently <strong>and</strong>participate fully <strong>in</strong> all aspects <strong>of</strong> life (<strong>in</strong>clud<strong>in</strong>g transportati<strong>on</strong>), Regulati<strong>on</strong>1107/2006/EC, for <strong>the</strong> purposes <strong>of</strong> this study, is c<strong>on</strong>sidered as be<strong>in</strong>g relevant toillustrate EU competence <strong>and</strong> progress related to access to transportati<strong>on</strong>.198 See, European Parliament, 17 April 2008, Parliamentary questi<strong>on</strong> E-0959/08 <strong>on</strong> Directive2007/46/EC, Answer given by Mr Verheugen <strong>on</strong> behalf <strong>of</strong> <strong>the</strong> Commissi<strong>on</strong>, available at:http://www.europarl.europa.eu/sides/getAllAnswers.do?reference=E-2008-0959&language=NL199 Directive 2001/83/EC <strong>of</strong> <strong>the</strong> European Parliament <strong>and</strong> <strong>of</strong> <strong>the</strong> Council <strong>of</strong> 6 November 2001 <strong>on</strong> <strong>the</strong>Community code relat<strong>in</strong>g to medic<strong>in</strong>al products for human use, [2001] O.J. L.311/67.200 See Article 56(a) <strong>of</strong> Directive 2001/83/EC.201 Regulati<strong>on</strong> (EC) No 1107/2006 <strong>of</strong> <strong>the</strong> Parliament <strong>and</strong> <strong>of</strong> <strong>the</strong> Council <strong>of</strong> 5 July 2006 c<strong>on</strong>cern<strong>in</strong>g <strong>the</strong>rights <strong>of</strong> disabled pers<strong>on</strong>s <strong>and</strong> pers<strong>on</strong>s with reduced mobility when travell<strong>in</strong>g by air OJ L 204 <strong>of</strong>26.7.2006.Page | 76
The Regulati<strong>on</strong> is a disability-specific EU measure designed to protect <strong>the</strong> rights <strong>of</strong>disabled pers<strong>on</strong>s, <strong>and</strong> pers<strong>on</strong>s with reduced mobility, when travell<strong>in</strong>g by air.Specifically, <strong>the</strong> basic pr<strong>in</strong>ciples <strong>of</strong> <strong>the</strong> Regulati<strong>on</strong>, which are <strong>in</strong> l<strong>in</strong>e with <strong>the</strong> UN CRPD,are:a. Pers<strong>on</strong>s with disabilities should not be denied board<strong>in</strong>g or book<strong>in</strong>g;b. Pers<strong>on</strong>s with disabilities should receive seamless assistance at no additi<strong>on</strong>alcharge. The resp<strong>on</strong>sibility for <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> <strong>the</strong> assistance lies with <strong>the</strong>manag<strong>in</strong>g body <strong>of</strong> <strong>the</strong> airport; <strong>and</strong>c. All staff deal<strong>in</strong>g directly with <strong>the</strong> travell<strong>in</strong>g public should receive disabilityawareness<strong>and</strong> disability equality tra<strong>in</strong><strong>in</strong>g.The Regulati<strong>on</strong> also sets out st<strong>and</strong>ards for assistance 202 <strong>and</strong> requires air companies tocomply with those st<strong>and</strong>ards. 203 Ano<strong>the</strong>r important feature <strong>of</strong> <strong>the</strong> Regulati<strong>on</strong> is <strong>the</strong>obligati<strong>on</strong> <strong>on</strong> Member States to designate an enforcement body resp<strong>on</strong>sible for <strong>the</strong>implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> Regulati<strong>on</strong>. 204 Additi<strong>on</strong>ally, Member States are obliged todesignate a body to which pers<strong>on</strong>s with disabilities can submit compla<strong>in</strong>ts about analleged <strong>in</strong>fr<strong>in</strong>gement <strong>of</strong> <strong>the</strong> Regulati<strong>on</strong>. 205In c<strong>on</strong>clusi<strong>on</strong>, Regulati<strong>on</strong> 1107/2006/EC is a disability specific EU <strong>in</strong>strument thatreflects many requirements derived from <strong>the</strong> general pr<strong>in</strong>ciple <strong>of</strong> accessibility, <strong>and</strong> <strong>in</strong>particular Article 9(1) UN CRPD, which requires Parties to <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> to enablepers<strong>on</strong>s with disabilities to live <strong>in</strong>dependently, participate fully <strong>in</strong> all aspects <strong>of</strong> life <strong>and</strong>have access to, <strong>in</strong>ter alia, transportati<strong>on</strong>. The Regulati<strong>on</strong> is also <strong>in</strong> l<strong>in</strong>e with <strong>the</strong> generalobligati<strong>on</strong> to promote <strong>the</strong> tra<strong>in</strong><strong>in</strong>g <strong>of</strong> pr<strong>of</strong>essi<strong>on</strong>als <strong>and</strong> staff work<strong>in</strong>g with pers<strong>on</strong>s withdisabilities (Article 4(1)(i) UN CRPD), <strong>and</strong> with Article 20 UN CRPD, which requiresParties to <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> to ensure pers<strong>on</strong>al mobility with <strong>the</strong> greatest possible<strong>in</strong>dependence for pers<strong>on</strong>s with disabilities. It can thus be c<strong>on</strong>sidered as a „<strong>good</strong>practice‟ <strong>of</strong> <strong>the</strong> EU <strong>in</strong> <strong>the</strong> area <strong>of</strong> transport.F<strong>in</strong>ally, research for this study <strong>in</strong> <strong>the</strong> area <strong>of</strong> <strong>in</strong>formati<strong>on</strong> <strong>and</strong> communicati<strong>on</strong>stechnologies (ICT) 206 has revealed that relevant EU <strong>in</strong>struments (ma<strong>in</strong>ly based <strong>on</strong>Article 95 TEC) are, <strong>in</strong> l<strong>in</strong>e with Article 9 UN CRPD, designed to elim<strong>in</strong>ate barriers toaccessibility <strong>and</strong> promote „universal design‟. However, <strong>the</strong>ir practical implementati<strong>on</strong>202 Ibid, See Annex I <strong>and</strong> II <strong>of</strong> <strong>the</strong> Regulati<strong>on</strong>.203 Ibid, See Article 9 <strong>of</strong> <strong>the</strong> Regulati<strong>on</strong>.204 Ibid, See Article 14 <strong>of</strong> <strong>the</strong> Regulati<strong>on</strong>.205 Ibid, See Article 15 <strong>of</strong> <strong>the</strong> Regulati<strong>on</strong>.206 The European Community/Uni<strong>on</strong> supports <strong>the</strong> development <strong>of</strong> <strong>the</strong> ICT, which is a pillar <strong>of</strong> <strong>the</strong> Lisb<strong>on</strong>Strategy. European ICT policies <strong>and</strong> activities are <strong>in</strong>tended to complement <strong>and</strong> support <strong>the</strong> nati<strong>on</strong>algovernments‟ acti<strong>on</strong> plans. The goals <strong>of</strong> EC <strong>in</strong>itiatives are to improve quality <strong>of</strong> life, stimulate growth,competitiveness <strong>and</strong> jobs across Europe <strong>and</strong> reduce social exclusi<strong>on</strong>. Accessible <strong>and</strong> Assistive ICT arevery important for people with disabilities, because <strong>the</strong>y can enhance disabled pers<strong>on</strong>s‟ capacities <strong>in</strong> away that will facilitate <strong>the</strong>ir <strong>in</strong>dependent liv<strong>in</strong>g <strong>and</strong> <strong>in</strong>clusi<strong>on</strong> <strong>in</strong> society.Page | 77
still needs to be improved <strong>in</strong> order to ensure full <strong>and</strong> effective access to pers<strong>on</strong>s withdisabilities.For example, Directive 2002/21/EC 207 has established a harm<strong>on</strong>ised framework for<strong>the</strong> regulati<strong>on</strong> <strong>of</strong> electr<strong>on</strong>ic communicati<strong>on</strong>s services, electr<strong>on</strong>ic communicati<strong>on</strong>snetworks, associated facilities <strong>and</strong> associated services. The Directive establishes tasksfor nati<strong>on</strong>al regulatory authorities <strong>and</strong> a set <strong>of</strong> procedures to ensure <strong>the</strong> harm<strong>on</strong>isedapplicati<strong>on</strong> <strong>of</strong> <strong>the</strong> regulatory framework throughout <strong>the</strong> EU. It also refers to users withdisabilities several times. For example, Recital 8 calls <strong>on</strong> regulators to encouragenetwork operators <strong>and</strong> term<strong>in</strong>al equipment manufacturers to cooperate <strong>in</strong> order t<strong>of</strong>acilitate access by users with disabilities to electr<strong>on</strong>ic communicati<strong>on</strong>s services. Article8 <strong>of</strong> <strong>the</strong> Directive fur<strong>the</strong>r establishes policy objectives <strong>and</strong> regulatory pr<strong>in</strong>ciples <strong>and</strong>requires nati<strong>on</strong>al regulatory authorities to promote competiti<strong>on</strong> by, <strong>in</strong>ter alia, ensur<strong>in</strong>gthat users, <strong>in</strong>clud<strong>in</strong>g disabled users, derive maximum benefit <strong>in</strong> terms <strong>of</strong> choice, price,<strong>and</strong> quality. Article 8 <strong>of</strong> Directive 2002/21/EC (as amended by Directive2009/140/EC) 208 also requires nati<strong>on</strong>al authorities to ensure that <strong>the</strong>re is nodiscrim<strong>in</strong>ati<strong>on</strong> <strong>in</strong> <strong>the</strong> treatment <strong>of</strong> undertak<strong>in</strong>gs provid<strong>in</strong>g electr<strong>on</strong>ic communicati<strong>on</strong>snetworks <strong>and</strong> services <strong>in</strong> <strong>the</strong> <strong>in</strong>ternal market, <strong>and</strong> to cooperate with each o<strong>the</strong>r <strong>and</strong>with <strong>the</strong> Commissi<strong>on</strong> <strong>and</strong> <strong>the</strong> Body <strong>of</strong> European Regulators for Electr<strong>on</strong>icCommunicati<strong>on</strong>s (BEREC) so as to ensure <strong>the</strong> development <strong>of</strong> c<strong>on</strong>sistent regulatorypractice <strong>and</strong> applicati<strong>on</strong> <strong>of</strong> <strong>the</strong> Directive. Additi<strong>on</strong>ally, Article 8(4) <strong>of</strong> <strong>the</strong> Directiverequires regulatory authorities to promote <strong>the</strong> <strong>in</strong>terests <strong>of</strong> <strong>the</strong> citizens <strong>of</strong> <strong>the</strong> EuropeanUni<strong>on</strong> by, <strong>in</strong>ter alia, address<strong>in</strong>g <strong>the</strong> needs <strong>of</strong> specific social groups, <strong>and</strong> <strong>in</strong> particularpers<strong>on</strong>s with disabilities, <strong>and</strong> promot<strong>in</strong>g <strong>the</strong> ability <strong>of</strong> end-users to access <strong>and</strong>distribute <strong>in</strong>formati<strong>on</strong> or run applicati<strong>on</strong>s <strong>and</strong> services <strong>of</strong> <strong>the</strong>ir choice. 209The provisi<strong>on</strong>s <strong>of</strong> Directive 2002/21/EC appear to fulfil several accessibilityrequirements set forth <strong>in</strong> <strong>the</strong> UN CRPD, <strong>and</strong> promote equality <strong>of</strong> opportunity, which is<strong>on</strong>e <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>‟s general pr<strong>in</strong>ciples. It can thus be characterised as <strong>good</strong>legislative practice <strong>in</strong> <strong>the</strong> area <strong>of</strong> ICT. Research <strong>on</strong> <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> Directive2002/21/EC (before <strong>the</strong> <strong>in</strong>troducti<strong>on</strong> <strong>of</strong> amendments by virtue <strong>of</strong> Directive2009/140/EC) <strong>in</strong> <strong>the</strong> Member States <strong>of</strong> <strong>the</strong> EU has revealed that nati<strong>on</strong>al provisi<strong>on</strong>s d<strong>on</strong>ot seem to address <strong>the</strong> needs <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> practice. As identified by207 Directive 2002/21/EC <strong>on</strong> a comm<strong>on</strong> regulatory framework for electr<strong>on</strong>ic communicati<strong>on</strong>s networks<strong>and</strong> services (Framework Directive) [2002] OJ L108/35.208 Directive 2009/140/EC <strong>of</strong> <strong>the</strong> European Parliament <strong>of</strong> <strong>the</strong> Council <strong>of</strong> 25 November 2009 amend<strong>in</strong>gDirectives 2002/21/EC <strong>on</strong> a comm<strong>on</strong> regulatory framework for electr<strong>on</strong>ic communicati<strong>on</strong>s networks <strong>and</strong>services, 2002/19/EC <strong>on</strong> access to, <strong>and</strong> <strong>in</strong>terc<strong>on</strong>necti<strong>on</strong> <strong>of</strong>, electr<strong>on</strong>ic communicati<strong>on</strong>s networks <strong>and</strong>associated facilities, <strong>and</strong> 2002/20/EC <strong>on</strong> <strong>the</strong> authorisati<strong>on</strong> <strong>of</strong> electr<strong>on</strong>ic communicati<strong>on</strong>s networks <strong>and</strong>services (Text with EEA relevance), OJ L 337/37, 18.12.2009209 See Article 8(4) <strong>of</strong> Directive 2002/21/EC, as amended by Directive 2009/140/EC.Page | 78
<strong>the</strong> Inclusive Communicati<strong>on</strong>s Group (INCOM), 210 transpositi<strong>on</strong> <strong>of</strong> Directive2002/21/EC <strong>in</strong>to nati<strong>on</strong>al legislati<strong>on</strong> appears to follow <strong>the</strong> word<strong>in</strong>g <strong>of</strong> <strong>the</strong> compulsoryprovisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> Directive, while <strong>the</strong> potential <strong>of</strong> <strong>the</strong> n<strong>on</strong>-compulsory <strong>on</strong>es have notbeen exploited. For example, as INCOM reported <strong>in</strong> 2006, no nati<strong>on</strong>al measures seemto be available to assess (<strong>and</strong> promote) <strong>the</strong> <strong>in</strong>terests <strong>of</strong> pers<strong>on</strong>s with disabilities. 211Follow<strong>in</strong>g <strong>the</strong> report by INCOM, some amendments have been <strong>in</strong>troduced to Directive2002/21/EC by Directive 2009/140/EC. 212 It is however advisable for <strong>the</strong> EU toc<strong>on</strong>t<strong>in</strong>ue <strong>the</strong> compilati<strong>on</strong> <strong>of</strong> data <strong>on</strong> <strong>the</strong> practical implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> legal provisi<strong>on</strong>s<strong>and</strong> <strong>on</strong> <strong>the</strong> situati<strong>on</strong> <strong>of</strong> users with disabilities, <strong>in</strong> order to assess <strong>the</strong>ir needs.Depend<strong>in</strong>g <strong>on</strong> f<strong>in</strong>d<strong>in</strong>gs, <strong>the</strong> EU should ensure that amendments <strong>in</strong>troduced to Directive2002/21/EC by virtue <strong>of</strong> Directive 2009/140/EC, are effectively implemented <strong>in</strong>practice. F<strong>in</strong>ally, <strong>the</strong> development by <strong>the</strong> EU <strong>of</strong> <strong>in</strong>dicators to measure performance <strong>of</strong>undertak<strong>in</strong>gs <strong>in</strong> <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> services to disabled users may also be ano<strong>the</strong>r acti<strong>on</strong>that would positively c<strong>on</strong>tribute to <strong>the</strong> full <strong>and</strong> effective access to pers<strong>on</strong>s withdisabilities to electr<strong>on</strong>ic communicati<strong>on</strong>s services, electr<strong>on</strong>ic communicati<strong>on</strong>snetworks, associated facilities <strong>and</strong> associated services.In c<strong>on</strong>clusi<strong>on</strong>, examples from EU legislati<strong>on</strong> show that even if legislati<strong>on</strong> has beenadopted or improved <strong>in</strong> some areas (e.g. transport <strong>and</strong> ICT) it is not enough toguarantee effective practical implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> accessibility requirements <strong>of</strong> <strong>the</strong>UN CRPD, as <strong>the</strong>y are not wide enough <strong>and</strong> <strong>the</strong>ir enforcement capabilities are notstr<strong>on</strong>g enough. Therefore, <strong>the</strong> EU should assess <strong>the</strong> situati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s withdisabilities <strong>in</strong> <strong>the</strong> EU <strong>in</strong> relati<strong>on</strong> to <strong>the</strong>ir access <strong>in</strong> <strong>the</strong> <strong>in</strong>ternal market, <strong>and</strong> adaptexist<strong>in</strong>g measures so as to ensure full <strong>and</strong> effective implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> accessibilitypr<strong>in</strong>ciple. As nati<strong>on</strong>al <strong>practices</strong> related to accessibility are not satisfactory, <strong>the</strong> EUshould establish a better m<strong>on</strong>itor<strong>in</strong>g <strong>and</strong> coord<strong>in</strong>ati<strong>on</strong> process with its Member States.It would also be advisable for <strong>the</strong> EU to stress to <strong>the</strong> Member States that any f<strong>in</strong>ancialimplicati<strong>on</strong>s l<strong>in</strong>ked to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> accessibility pr<strong>in</strong>ciple should be seenas an <strong>in</strong>vestment <strong>in</strong> <strong>the</strong> <strong>in</strong>ternal market. For example, awareness rais<strong>in</strong>g am<strong>on</strong>grelevant stakeholders, for <strong>in</strong>stance architects or employers, <strong>and</strong> <strong>the</strong> use <strong>of</strong> universaldesign (as def<strong>in</strong>ed <strong>in</strong> Article 2 UN CRPD) could reduce or avoid <strong>the</strong> costs <strong>of</strong> <strong>the</strong>210 INCOM is a subgroup <strong>of</strong> <strong>the</strong> Communicati<strong>on</strong>s Committee (COCOM) that was established to assist<strong>the</strong> Commissi<strong>on</strong> <strong>in</strong> carry<strong>in</strong>g out its executive powers under <strong>the</strong> regulatory framework govern<strong>in</strong>g telecoms<strong>in</strong> <strong>the</strong> EU. For fur<strong>the</strong>r <strong>in</strong>formati<strong>on</strong>, see at:http://ec.europa.eu/<strong>in</strong>formati<strong>on</strong>_society/policy/ecomm/implementati<strong>on</strong>_enforcement/comm_committee/<strong>in</strong>dex_en.htm211 See INCOM06-02 F<strong>in</strong>al, Electr<strong>on</strong>ic Communicati<strong>on</strong>s Package: implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> provisi<strong>on</strong>srelated to disabled users <strong>in</strong> <strong>the</strong> Member States, available at:http://ec.europa.eu/<strong>in</strong>formati<strong>on</strong>_society/activities/e<strong>in</strong>clusi<strong>on</strong>/docs/access/<strong>in</strong>com%20reports/2006_cocom_<strong>in</strong>com.doc212 See supra note 214Page | 79
subsequent dismantl<strong>in</strong>g <strong>of</strong> physical barriers, as accessibility issues will be c<strong>on</strong>sideredfrom <strong>the</strong> outset. 213F<strong>in</strong>ally, it should be noted that <strong>the</strong> Uni<strong>on</strong> uses also f<strong>in</strong>ancial <strong>in</strong>struments, with <strong>the</strong> aimto promote accessibility to, <strong>and</strong> <strong>in</strong>clusi<strong>on</strong> <strong>of</strong>, pers<strong>on</strong>s with disabilities. Such measurecan, be found <strong>in</strong> Council Regulati<strong>on</strong> 1083/2006/EC, lay<strong>in</strong>g down general provisi<strong>on</strong>s<strong>on</strong> <strong>the</strong> European Regi<strong>on</strong>al Development Fund, <strong>the</strong> European Social Fund <strong>and</strong> <strong>the</strong>Cohesi<strong>on</strong> Fund. 214 Of particular relevance to <strong>the</strong> UN CRPD is Article 16 <strong>of</strong> <strong>the</strong>Regulati<strong>on</strong>. The Article clearly states that both <strong>the</strong> Member States <strong>and</strong> <strong>the</strong> Commissi<strong>on</strong>should take all appropriate measures to prevent any discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong>,<strong>in</strong>ter alia, disability dur<strong>in</strong>g <strong>the</strong> various stages <strong>of</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> Funds. TheArticle refers <strong>in</strong> particular to pers<strong>on</strong>s with disabilities stat<strong>in</strong>g that accessibility forpers<strong>on</strong>s with disabilities should be <strong>on</strong>e <strong>of</strong> <strong>the</strong> criteria to be observed <strong>in</strong> def<strong>in</strong><strong>in</strong>goperati<strong>on</strong>s co-f<strong>in</strong>anced by <strong>the</strong> Funds <strong>and</strong> should be taken <strong>in</strong>to account dur<strong>in</strong>g <strong>the</strong>various stages <strong>of</strong> implementati<strong>on</strong>. It should be noted that <strong>in</strong> Council Decisi<strong>on</strong>2010/48/EC <strong>on</strong> <strong>the</strong> c<strong>on</strong>clusi<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD by <strong>the</strong> EU, Regulati<strong>on</strong> 1083/2006/ECwas listed as an <strong>in</strong>strument that illustrates EU competence for matters related toaccessibility. However, accessibility is a general pr<strong>in</strong>ciple <strong>of</strong> <strong>the</strong> UN CRPD that appliesto all substantive rights recognised by <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. Therefore, Regulati<strong>on</strong>1083/2006/EC should be <strong>in</strong>terpreted as be<strong>in</strong>g relevant for all fields covered by <strong>the</strong>C<strong>on</strong>venti<strong>on</strong>. C<strong>on</strong>sequently, any fund<strong>in</strong>g to be awarded by <strong>the</strong> Funds covered byRegulati<strong>on</strong> 1083/2006/EC should respect <strong>and</strong> promote <strong>the</strong> general pr<strong>in</strong>ciples <strong>of</strong> <strong>the</strong>C<strong>on</strong>venti<strong>on</strong>, which <strong>in</strong>ter alia <strong>in</strong>clude <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> accessibility. Fur<strong>the</strong>rmore, anyfund<strong>in</strong>g to be awarded should ma<strong>in</strong>stream all pr<strong>in</strong>ciples <strong>of</strong> general <strong>and</strong> cross-cutt<strong>in</strong>gapplicati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD <strong>in</strong> all fields covered by it. F<strong>in</strong>ally, any fund<strong>in</strong>g by <strong>the</strong>European Regi<strong>on</strong>al Development Fund, <strong>the</strong> European Social Fund <strong>and</strong> <strong>the</strong> Cohesi<strong>on</strong>Fund should be subject to <strong>the</strong> c<strong>on</strong>diti<strong>on</strong> that all supported projects will enable pers<strong>on</strong>swith disabilities to live <strong>in</strong>dependently <strong>and</strong> participate fully <strong>in</strong> all aspects <strong>of</strong> life, <strong>and</strong> be<strong>in</strong>clusive <strong>of</strong>, <strong>and</strong> accessible to, pers<strong>on</strong>s with disabilities. In c<strong>on</strong>clusi<strong>on</strong>, this EU s<strong>of</strong>t lawmeasure can play a key role <strong>in</strong> <strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD.3.5.2 General Recommendati<strong>on</strong>s for States Parties to <strong>the</strong> UN CRPDStates Parties should carry out a screen<strong>in</strong>g exercise to ensure that:213See OHCHR, Open-ended C<strong>on</strong>sultati<strong>on</strong> <strong>on</strong> key legal measures for <strong>the</strong> ratificati<strong>on</strong> <strong>and</strong>implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD, Geneva, 24 October 2008, Informal Summary Discussi<strong>on</strong>s, p. 14214 Council Regulati<strong>on</strong> (EC) No 1083/2006 <strong>of</strong> 11 July 2006 lay<strong>in</strong>g down general provisi<strong>on</strong>s <strong>on</strong> <strong>the</strong>European Regi<strong>on</strong>al Development Fund, <strong>the</strong> European Social Fund <strong>and</strong> <strong>the</strong> Cohesi<strong>on</strong> Fund <strong>and</strong>repeal<strong>in</strong>g Regulati<strong>on</strong> (EC) No 1260/1999, OJ L 210/25, 31.7.2006Page | 80
• exist<strong>in</strong>g legislati<strong>on</strong> enables pers<strong>on</strong>s with disabilities to live <strong>in</strong>dependently <strong>and</strong>participate fully <strong>in</strong> all aspects <strong>of</strong> life; <strong>and</strong>• accessibility st<strong>and</strong>ards <strong>and</strong> guidel<strong>in</strong>es are <strong>in</strong> place to support <strong>the</strong> accessibility<strong>of</strong> services <strong>and</strong> facilities open to <strong>the</strong> public.Ensur<strong>in</strong>g accessibility <strong>in</strong>volves provid<strong>in</strong>g for an enforcement mechanism toguarantee compliance with <strong>the</strong> set st<strong>and</strong>ards. Accessibility st<strong>and</strong>ards <strong>and</strong> guidel<strong>in</strong>esshould apply to both government <strong>and</strong> private entities, which provide public services<strong>and</strong> facilities.States Parties should provide tra<strong>in</strong><strong>in</strong>g <strong>on</strong> accessibility to all relevant stakeholders,tailored as appropriate, for architects, planners, eng<strong>in</strong>eers, <strong>and</strong> implementers <strong>of</strong><strong>in</strong>ternati<strong>on</strong>al development programmes, <strong>in</strong>clud<strong>in</strong>g <strong>in</strong>frastructure projects.Accessibility audits are recommended, am<strong>on</strong>g o<strong>the</strong>r th<strong>in</strong>gs, to assess whe<strong>the</strong>rsignage <strong>in</strong> public build<strong>in</strong>gs is available <strong>in</strong> Braille, <strong>in</strong> audio, easy to read <strong>and</strong>comprehendible formats, whe<strong>the</strong>r live assistance <strong>and</strong> <strong>in</strong>termediaries are available t<strong>of</strong>acilitate access to public build<strong>in</strong>gs <strong>and</strong> facilities, <strong>and</strong> o<strong>the</strong>r necessary assistance isavailable to pers<strong>on</strong>s with disability to ensure <strong>the</strong>ir access to <strong>in</strong>formati<strong>on</strong>.States Parties should take measures to ensure that pers<strong>on</strong>s with disabilities haveaccess to <strong>the</strong> physical envir<strong>on</strong>ment, transportati<strong>on</strong>, to <strong>in</strong>formati<strong>on</strong> <strong>and</strong>communicati<strong>on</strong>s, <strong>in</strong>clud<strong>in</strong>g new <strong>in</strong>formati<strong>on</strong> <strong>and</strong> communicati<strong>on</strong>s technologies(ICT) <strong>and</strong> systems, such as <strong>the</strong> Internet, nati<strong>on</strong>al emergency services, teleph<strong>on</strong>eservices, mobile ph<strong>on</strong>e systems, <strong>and</strong> directory services. Fur<strong>the</strong>rmore, mechanismsshould be <strong>in</strong>troduced to ensure that <strong>in</strong>formati<strong>on</strong> <strong>and</strong> communicati<strong>on</strong> technologies <strong>and</strong>systems are, from <strong>the</strong> outset designed, developed, produced, <strong>and</strong> distributed so as to<strong>in</strong>corporate accessibility features. To this end, <strong>in</strong>centives could be <strong>of</strong>fered to ICTdevelopers to make such technologies <strong>and</strong> systems accessible to pers<strong>on</strong>s withdisabilities at m<strong>in</strong>imum cost. For example, <strong>in</strong> <strong>the</strong> United States <strong>the</strong> provisi<strong>on</strong> <strong>of</strong><strong>in</strong>centives to ICT developers <strong>in</strong> <strong>the</strong> fields <strong>of</strong> public procurement was <strong>of</strong> added value<strong>and</strong> has motivated manufacturers to develop ICT accessible to all. 215Accessibility should be viewed as an <strong>in</strong>vestment that will positively c<strong>on</strong>tribute to <strong>the</strong><strong>in</strong>clusi<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> all aspects <strong>of</strong> society. Any measure thatencourages <strong>the</strong> development <strong>of</strong> universally designed <strong>good</strong>s, services, equipment<strong>and</strong> facilities will (for example) reduce, or avoid, <strong>the</strong> costs <strong>of</strong> <strong>the</strong> subsequent215 See for example <strong>the</strong> Rehabilitati<strong>on</strong> Act <strong>of</strong> 1973 (29 U.S.C. 794d) as amended by <strong>the</strong> WorkforceInvestment Act <strong>of</strong> 1998 (P.L. 105 - 220), August 7, 1998 as well as <strong>the</strong> Electr<strong>on</strong>ic <strong>and</strong> Informati<strong>on</strong>Technology Accessibility St<strong>and</strong>ards, F<strong>in</strong>al Rule, found at 36 CFR Part 1194 published by <strong>the</strong> USArchitectural <strong>and</strong> Transportati<strong>on</strong> Barriers Compliance Board <strong>on</strong> December 2000.Page | 81
dismantl<strong>in</strong>g <strong>of</strong> physical barriers, as accessibility issues will be c<strong>on</strong>sidered from <strong>the</strong>outset.Page | 82
4.0 Substantive Provisi<strong>on</strong>sArticles 10 to 30 UN CRPD enumerate <strong>the</strong> specific substantive rights <strong>and</strong> obligati<strong>on</strong>s <strong>of</strong><strong>the</strong> UN C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities. These Articles applyexist<strong>in</strong>g civil, political, ec<strong>on</strong>omic, social <strong>and</strong> cultural rights with<strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong>disability.Some <strong>of</strong> <strong>the</strong> substantive rights recognised <strong>in</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> may be subject toprogressive realisati<strong>on</strong>. As argued by <strong>the</strong> OHCHR, progressive realisati<strong>on</strong>acknowledges that it <strong>of</strong>ten takes time to realise some rights fully, <strong>and</strong> <strong>the</strong>refore givessome flexibility <strong>in</strong> achiev<strong>in</strong>g <strong>the</strong> objectives <strong>of</strong> <strong>the</strong> UN CRPD. However, progressiverealisati<strong>on</strong> does not absolve Parties to <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>of</strong> <strong>the</strong> resp<strong>on</strong>sibility to protectthose rights. 216 Fur<strong>the</strong>rmore, while some ec<strong>on</strong>omic, social <strong>and</strong> cultural rights may besubject to progressive realisati<strong>on</strong>, civil <strong>and</strong> political rights are not. In o<strong>the</strong>r words,Parties to <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> should first <strong>and</strong> foremost promote <strong>the</strong>se rights. 217Secti<strong>on</strong> 4 c<strong>on</strong>ta<strong>in</strong>s an overview <strong>of</strong> <strong>the</strong> UN CRPD substantive provisi<strong>on</strong>s, analyses coreobligati<strong>on</strong>s for States Parties, <strong>and</strong> provides an overview <strong>of</strong> exist<strong>in</strong>g nati<strong>on</strong>al <strong>and</strong> EU<strong>practices</strong> <strong>in</strong> <strong>the</strong> fields covered. The secti<strong>on</strong> aims to give general guidance for <strong>the</strong> futureimplementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD by both <strong>the</strong> EU <strong>and</strong> its Member States.It should be noted that not all specific substantive provisi<strong>on</strong>s, i.e. Articles 10 to 30 UNCRPD, will be analysed. As previously noted, 218 for <strong>the</strong> purposes <strong>of</strong> this study, priorityareas were selected. C<strong>on</strong>sequently, this secti<strong>on</strong> <strong>in</strong>cludes summary analyses <strong>and</strong>general recommendati<strong>on</strong>s relat<strong>in</strong>g to dignity rights (Articles 16 – 17), aut<strong>on</strong>omy rights(Articles 12 <strong>and</strong> 19), specific accessibility rights (Articles 13 <strong>and</strong> 29) <strong>and</strong> solidarityrights (Articles 24 <strong>and</strong> 27). Detailed checklists c<strong>on</strong>ta<strong>in</strong>ed <strong>in</strong> Annex I <strong>of</strong> this reportaccompany <strong>the</strong> analysis.4.1 Dignity RightsArticles 16 (freedom from exploitati<strong>on</strong>, violence <strong>and</strong> abuse) <strong>and</strong> 17 (protect<strong>in</strong>g <strong>the</strong><strong>in</strong>tegrity <strong>of</strong> <strong>the</strong> pers<strong>on</strong>) assert protecti<strong>on</strong>s that underscore <strong>the</strong> humanity <strong>of</strong> all pers<strong>on</strong>swith disabilities <strong>and</strong> <strong>the</strong> human dignity to which all people are entitled, but which is too<strong>of</strong>ten denied to disabled people. Articles 16 <strong>and</strong> 17 relate to Article 14 (Liberty <strong>and</strong>security <strong>of</strong> <strong>the</strong> pers<strong>on</strong>), Article 15 (Prohibiti<strong>on</strong> <strong>of</strong> torture), as well as to Article 10 (Right216 See OHCHR “From Exclusi<strong>on</strong> to Equality. Realis<strong>in</strong>g <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities. AH<strong>and</strong>book for parliamentarians <strong>on</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities <strong>and</strong>Opti<strong>on</strong>al Protocol”, UN publicati<strong>on</strong> No 14-2007, pp 19-20217 Ibid218 See Secti<strong>on</strong> 1.4 <strong>of</strong> this reportPage | 83
to life). Accord<strong>in</strong>gly, <strong>the</strong>y should be read with<strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong> this fuller framework, aswell as filtered through <strong>the</strong> articles <strong>of</strong> general applicati<strong>on</strong> (Articles 1 to 9 UN CRPD).While <strong>the</strong>re are extensive <strong>in</strong>ternati<strong>on</strong>al st<strong>and</strong>ards perta<strong>in</strong><strong>in</strong>g to <strong>the</strong> prohibiti<strong>on</strong> <strong>of</strong> tortureor cruel, <strong>in</strong>human or degrad<strong>in</strong>g treatment or punishment, specialised <strong>in</strong>ternati<strong>on</strong>alhuman rights c<strong>on</strong>venti<strong>on</strong>s have also sought to address forms <strong>of</strong> violence bey<strong>on</strong>dtorture <strong>and</strong> cruel, <strong>in</strong>human <strong>and</strong> degrad<strong>in</strong>g treatment or punishment. For example, <strong>the</strong>C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> <strong>the</strong> Child (CRC), from which <strong>the</strong> drafters <strong>of</strong> <strong>the</strong> UN CRPDsought <strong>in</strong>spirati<strong>on</strong> for Article 16, protects <strong>the</strong> right <strong>of</strong> <strong>the</strong> child to be free from torture<strong>and</strong> also specifically protects <strong>the</strong> right <strong>of</strong> <strong>the</strong> child to be free from all forms <strong>of</strong> violence,abuse, exploitati<strong>on</strong> or maltreatment, recognis<strong>in</strong>g States Parties‟ obligati<strong>on</strong>s regard<strong>in</strong>gprotecti<strong>on</strong> from sexual exploitati<strong>on</strong> <strong>and</strong> abuse, ec<strong>on</strong>omic exploitati<strong>on</strong>, <strong>and</strong> to promote<strong>the</strong> recovery <strong>of</strong> child victims <strong>of</strong> such treatment. Article 16 thus closely reflects <strong>the</strong>provisi<strong>on</strong> set forth <strong>in</strong> CRC, which formed an important precedent for <strong>the</strong> drafters <strong>of</strong> <strong>the</strong>UN CRPD.4.1.1 Article 16 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong>Article 16 UN CRPD requires States Parties to enact law, establish or enhanceprotecti<strong>on</strong> services, develop policies <strong>and</strong> programmes <strong>and</strong> pursue educati<strong>on</strong> strategiesto protect pers<strong>on</strong>s with disabilities from exploitati<strong>on</strong>, violence <strong>and</strong> abuse. 219 Inadditi<strong>on</strong>, States Parties are required to ensure <strong>the</strong> identificati<strong>on</strong>, <strong>in</strong>vestigati<strong>on</strong> <strong>and</strong>prosecuti<strong>on</strong> <strong>of</strong> <strong>the</strong>se harms when, <strong>and</strong> if, <strong>the</strong>y occur. 220 Article 16 covers harmscommitted <strong>in</strong> both <strong>the</strong> private <strong>and</strong> public spheres, <strong>in</strong> recogniti<strong>on</strong> <strong>of</strong> <strong>the</strong> fact that muchviolence aga<strong>in</strong>st pers<strong>on</strong>s with disabilities occurs <strong>in</strong> <strong>the</strong> private sphere, away frompublic scrut<strong>in</strong>y.Article 16(2) UN CRPD recognises that protecti<strong>on</strong> <strong>of</strong>, assistance <strong>and</strong> support forpers<strong>on</strong>s with disabilities from violence <strong>and</strong> abuse <strong>of</strong>ten has a gender <strong>and</strong> age-relateddimensi<strong>on</strong> <strong>and</strong> thus obliges States Parties to ensure that all laws, policies,programmes <strong>and</strong> services relat<strong>in</strong>g to <strong>the</strong> detecti<strong>on</strong>, <strong>in</strong>vestigati<strong>on</strong> <strong>and</strong> prosecuti<strong>on</strong> <strong>of</strong><strong>the</strong>se harms are age, gender <strong>and</strong> disability sensitive. States Parties are alsorequired to provide <strong>in</strong>formati<strong>on</strong> <strong>and</strong> to educate pers<strong>on</strong>s with disabilities, <strong>the</strong>ir families<strong>and</strong> caregivers about <strong>the</strong> avoidance, recogniti<strong>on</strong> <strong>and</strong> report<strong>in</strong>g <strong>of</strong> cases <strong>of</strong> violence,exploitati<strong>on</strong> <strong>and</strong> abuse.Additi<strong>on</strong>ally, Article 16(3) UN CRPD <strong>in</strong>troduces a fur<strong>the</strong>r specified m<strong>on</strong>itor<strong>in</strong>gcomp<strong>on</strong>ent, bey<strong>on</strong>d <strong>the</strong> m<strong>on</strong>itor<strong>in</strong>g mechanisms required by virtue <strong>of</strong> Article 33 UNCRPD, or <strong>the</strong> <strong>in</strong>ternati<strong>on</strong>al m<strong>on</strong>itor<strong>in</strong>g framework set forth <strong>in</strong> Articles 34 to 39 UNCRPD. It thus obliges States Parties to establish an effective <strong>in</strong>dependent m<strong>on</strong>itor<strong>in</strong>g219 See UN CRPD at Article 16(1), (2) <strong>and</strong> (3).220 See UN CRPD at Article 16(5)Page | 84
authority to supervise all services <strong>and</strong> programmes designed to serve pers<strong>on</strong>s withdisabilities (e.g. <strong>in</strong>stituti<strong>on</strong>al accommodati<strong>on</strong> services).Lastly, Article 16(4) UN CRPD requires <strong>the</strong> enactment <strong>of</strong> appropriate measures toensure <strong>the</strong> physical, cognitive <strong>and</strong> psychological recovery, rehabilitati<strong>on</strong> <strong>and</strong> socialre<strong>in</strong>tegrati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities who have been victims <strong>of</strong> harm. States Partiesare required to ensure that <strong>the</strong>se types <strong>of</strong> services are delivered <strong>in</strong> an envir<strong>on</strong>ment thatfosters <strong>the</strong> health, welfare, self-respect, dignity <strong>and</strong> aut<strong>on</strong>omy <strong>of</strong> <strong>the</strong> pers<strong>on</strong>.Research for this study <strong>in</strong> <strong>the</strong> EU Member States has revealed that <strong>the</strong> majority <strong>of</strong> <strong>the</strong>Member States have not enacted specific laws to ensure freedom from exploitati<strong>on</strong>,violence <strong>and</strong> abuse for pers<strong>on</strong>s with disabilities, as <strong>the</strong>y are generally protected bygeneral law. However, a few Member States 221 have adopted specific legislativemeasures. Regard<strong>in</strong>g m<strong>on</strong>itor<strong>in</strong>g <strong>of</strong> facilities <strong>and</strong> programmes designed to servepers<strong>on</strong>s with disabilities, some Member States have established m<strong>on</strong>itor<strong>in</strong>g bodies, 222but, as identified by civil society organisati<strong>on</strong>s, <strong>in</strong> some cases m<strong>on</strong>itor<strong>in</strong>g appears notto be carried out <strong>in</strong> an effective way. Infrequent m<strong>on</strong>itor<strong>in</strong>g visits to <strong>the</strong> relevantfacilities <strong>and</strong> poor allocati<strong>on</strong> <strong>of</strong> resources to <strong>the</strong> bodies carry<strong>in</strong>g out this m<strong>on</strong>itor<strong>in</strong>g aremajor challenges to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD.For example, <strong>in</strong> <strong>the</strong> Czech Republic, <strong>the</strong> 1999 Act <strong>on</strong> <strong>the</strong> Public Defender <strong>of</strong> Rights, 223as amended <strong>in</strong> 2005, legally authorises <strong>the</strong> Public Defender <strong>of</strong> Rights (PDR) tosystematically visit places where <strong>the</strong>re are or may be located pers<strong>on</strong>s whose liberty isrestricted by a public authority, or as a result <strong>of</strong> <strong>the</strong>ir dependence <strong>on</strong> care provided,<strong>and</strong> streng<strong>the</strong>ns protecti<strong>on</strong> <strong>of</strong> such pers<strong>on</strong>s aga<strong>in</strong>st torture, or cruel, <strong>in</strong>humane <strong>and</strong>degrad<strong>in</strong>g treatment, or punishment or o<strong>the</strong>r mistreatment. The establishment by law<strong>of</strong> a m<strong>on</strong>itor<strong>in</strong>g system is a measure that can enhance protecti<strong>on</strong> <strong>in</strong> <strong>the</strong> CzechRepublic for people whose liberty is restricted. However, it appears that <strong>the</strong> enactment<strong>of</strong> law is not enough to guarantee protecti<strong>on</strong> as envisaged by <strong>the</strong> UN CRPD. As notedby <strong>the</strong> Mental Disability Advocacy Centre, 224 <strong>in</strong> <strong>the</strong> first half <strong>of</strong> 2006, <strong>on</strong>ly five socialcare <strong>in</strong>stituti<strong>on</strong>s for adults with physical disabilities, <strong>and</strong> five <strong>in</strong>stituti<strong>on</strong>s for people with221 For example: Denmark, F<strong>in</strong>l<strong>and</strong> <strong>and</strong> Germany222 For example: Czech Republic, F<strong>in</strong>l<strong>and</strong> <strong>and</strong> Spa<strong>in</strong>223 Act No 349/1999 <strong>on</strong> <strong>the</strong> Public Defender <strong>of</strong> Rights established <strong>the</strong> Czech Public Defender <strong>of</strong> Rights.The Act was approved by <strong>the</strong> Chamber <strong>of</strong> Deputies <strong>of</strong> <strong>the</strong> Parliament <strong>of</strong> <strong>the</strong> Czech Republic by a tightmajority vote <strong>on</strong> 4 th November 1999, <strong>and</strong> approved by <strong>the</strong> Senate <strong>on</strong> 8 th November 1999. The Act isl<strong>in</strong>ked to <strong>the</strong> Committee <strong>of</strong> M<strong>in</strong>isters <strong>of</strong> <strong>the</strong> Council <strong>of</strong> Europe Recommendati<strong>on</strong> R/85/13 <strong>on</strong> <strong>the</strong>Instituti<strong>on</strong> <strong>of</strong> <strong>the</strong> Ombudsman as well as Recommendati<strong>on</strong> R/97/14 <strong>on</strong> establishment <strong>of</strong> <strong>in</strong>dependentnati<strong>on</strong>al <strong>in</strong>stituti<strong>on</strong>s for <strong>the</strong> promoti<strong>on</strong> <strong>and</strong> protecti<strong>on</strong> <strong>of</strong> human rights, urg<strong>in</strong>g <strong>the</strong> Member States toc<strong>on</strong>sider <strong>the</strong> establishment <strong>of</strong> <strong>the</strong> ombudsman <strong>in</strong>stituti<strong>on</strong> or an <strong>in</strong>stituti<strong>on</strong> <strong>of</strong> similar nature especially <strong>in</strong><strong>the</strong> countries effected by sudden social <strong>and</strong> political changes, by ec<strong>on</strong>omic transformati<strong>on</strong> or by violentevents <strong>of</strong> war like nature lead<strong>in</strong>g to threats to human, <strong>in</strong>dustrial, social <strong>and</strong> cultural rights. More<strong>in</strong>formati<strong>on</strong> is available at www.ochrance.cz/en/ombudsman/obecne.php224 See MDAC „Report <strong>on</strong> Inspectorates <strong>of</strong> Mental health <strong>and</strong> Social Care Instituti<strong>on</strong>s <strong>in</strong> <strong>the</strong> EuropeanUni<strong>on</strong>‟, 2007, available at http://www.mdac.<strong>in</strong>fo/documents/122_Inspect.pdfPage | 85
psychosocial disabilities were visited. Fur<strong>the</strong>rmore, <strong>the</strong> PDR does not have <strong>the</strong>necessary legal capacity to <strong>in</strong>vestigate or prosecute specific compla<strong>in</strong>ts about socialcare <strong>in</strong>stituti<strong>on</strong>s, as required by Article 16(5) UN CRPD. It should be noted though that<strong>in</strong> practice <strong>the</strong> PDR uses such compla<strong>in</strong>ts to plan <strong>in</strong>specti<strong>on</strong>s to <strong>in</strong>stituti<strong>on</strong>, 225 whilerepresentatives from civil society organisati<strong>on</strong>s have emphasised that visits by <strong>the</strong>PDR <strong>and</strong> <strong>the</strong> publicati<strong>on</strong> <strong>of</strong> its reports <strong>on</strong> <strong>the</strong> <strong>in</strong>ternet 226 have proven very useful <strong>in</strong>rais<strong>in</strong>g awareness <strong>of</strong> <strong>the</strong> situati<strong>on</strong> <strong>of</strong> people with disabilities <strong>in</strong> residential <strong>in</strong>stituti<strong>on</strong>s.Elements <strong>of</strong> possible <strong>good</strong> legislative practice can be identified <strong>in</strong> <strong>the</strong> F<strong>in</strong>nish PenalCode, 227 where if <strong>the</strong> victim <strong>of</strong> abuse is disabled, <strong>the</strong> crime will attract a more seriouspunishment. In this respect, Chapter 20 <strong>of</strong> <strong>the</strong> F<strong>in</strong>nish Penal Code, referr<strong>in</strong>g to sex<strong>of</strong>fenses, states that where an act <strong>of</strong> sexual violence is committed aga<strong>in</strong>st a pers<strong>on</strong>with a disability, this may c<strong>on</strong>stitute an aggravated form <strong>of</strong> <strong>the</strong> <strong>of</strong>fence result<strong>in</strong>g <strong>in</strong>harsher punishment (e.g. <strong>in</strong>creased years <strong>of</strong> impris<strong>on</strong>ment). More specifically, Chapter20 <strong>of</strong> <strong>the</strong> F<strong>in</strong>nish Penal Code foresees harsher punishments for acts (or attempts) totake advantage <strong>of</strong> a pers<strong>on</strong>,• who is younger than eighteen years <strong>of</strong> age;• who is <strong>in</strong> school or o<strong>the</strong>r <strong>in</strong>stituti<strong>on</strong> <strong>and</strong> is subject to <strong>the</strong> authority or supervisi<strong>on</strong><strong>of</strong> <strong>the</strong> <strong>of</strong>fender, or <strong>in</strong> a similar situati<strong>on</strong>;• who is hospitalised or <strong>in</strong>stituti<strong>on</strong>alised;• who cannot defend himself/herself due to a disability; <strong>and</strong>• who is especially dependent <strong>on</strong> <strong>the</strong> <strong>of</strong>fender, where <strong>the</strong> <strong>of</strong>fender blatantly takesadvantage <strong>of</strong> <strong>the</strong> dependence. 228In sum, <strong>the</strong> provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> F<strong>in</strong>nish Penal Code seem to embrace an approach that isage, gender <strong>and</strong> disability sensitive, <strong>and</strong> <strong>the</strong>refore may positively c<strong>on</strong>tribute to <strong>the</strong>effective protecti<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities.F<strong>in</strong>ally, with regards to <strong>the</strong> European Uni<strong>on</strong>, <strong>the</strong> Council Decisi<strong>on</strong> 2010/48/EC did notexplicitly refer to competence for matters related to Article 16 UN CRPD. As no<strong>in</strong>strument was listed <strong>in</strong> <strong>the</strong> Appendix <strong>of</strong> <strong>the</strong> Decisi<strong>on</strong>, EU <strong>practices</strong> will not bepresented <strong>in</strong> this report.225 Ibid p. 17226 PDR Reports are available at http://www.ochrance.cz/en/c<strong>in</strong>nost/ochrana.php227 A c<strong>on</strong>solidated versi<strong>on</strong> <strong>of</strong> <strong>the</strong> F<strong>in</strong>nish Penal Code is available <strong>in</strong> English at:http://www.f<strong>in</strong>lex.fi/pdf/saadkaan/E8890039.PDF228 See <strong>the</strong> Penal Code <strong>of</strong> F<strong>in</strong>l<strong>and</strong> 39/1889, Chapter 20, Sex <strong>of</strong>fences, as amended by Act 563/1998.See also Internati<strong>on</strong>al Disability Rights M<strong>on</strong>itor (IDRM), Regi<strong>on</strong>al Report <strong>of</strong> Europe, 2007 p.160Page | 86
4.1.2 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 16States Parties should ensure that legislati<strong>on</strong> <strong>in</strong> place protects all pers<strong>on</strong>s withdisabilities from all forms <strong>of</strong> exploitati<strong>on</strong>, violence <strong>and</strong> abuse (<strong>in</strong>clud<strong>in</strong>g <strong>in</strong> <strong>the</strong> home;school – both privately run <strong>and</strong> State run; adult <strong>and</strong> child care <strong>in</strong>stituti<strong>on</strong>s – bothprivately <strong>and</strong> State run; <strong>in</strong> <strong>the</strong> penal system; <strong>and</strong> <strong>in</strong> alternative forms <strong>of</strong> care).States Parties should ensure that no excepti<strong>on</strong>s or defences are available <strong>in</strong> relati<strong>on</strong>to all forms <strong>of</strong> exploitati<strong>on</strong>, violence <strong>and</strong> abuse aga<strong>in</strong>st pers<strong>on</strong>s with disabilities (e.g.,corporal punishment <strong>and</strong> abusive measures that c<strong>on</strong>stitute “<strong>the</strong>rapy” such aswithhold<strong>in</strong>g <strong>of</strong> food <strong>and</strong> dr<strong>in</strong>k). Legislati<strong>on</strong>, policy <strong>and</strong> practice should be directed atprotect<strong>in</strong>g pers<strong>on</strong>s with disabilities from assaults <strong>of</strong> all k<strong>in</strong>ds <strong>on</strong> <strong>the</strong>ir physical <strong>and</strong>/ormental <strong>in</strong>tegrity.States Parties are required to take specific measures to prevent all forms <strong>of</strong> violenceaga<strong>in</strong>st pers<strong>on</strong>s with disabilities, <strong>in</strong>clud<strong>in</strong>g <strong>in</strong> educati<strong>on</strong>, <strong>and</strong> to adopt o<strong>the</strong>r measuresto promote n<strong>on</strong>-violence <strong>in</strong> educati<strong>on</strong>, health care, <strong>and</strong> rehabilitati<strong>on</strong> services.States Parties should take measures to allow effective access to compla<strong>in</strong>tmechanisms <strong>in</strong> cases <strong>of</strong> alleged violati<strong>on</strong>s. Violati<strong>on</strong>s <strong>in</strong>clude abuses that occur whendisabled pers<strong>on</strong>s are <strong>in</strong> <strong>the</strong> care <strong>of</strong> parents, or o<strong>the</strong>rs, who are legally resp<strong>on</strong>sible;abuses <strong>in</strong> all forms <strong>of</strong> community based, or o<strong>the</strong>r, care; <strong>in</strong> all <strong>in</strong>stituti<strong>on</strong>s <strong>in</strong>clud<strong>in</strong>gschools, <strong>the</strong> penal system, <strong>and</strong> o<strong>the</strong>r custodial sett<strong>in</strong>gs. In cases where ill-treatmenthas occurred, <strong>the</strong> right to an effective remedy should be ensured, <strong>in</strong>clud<strong>in</strong>gcompensati<strong>on</strong>.Legislati<strong>on</strong> should require <strong>the</strong> report<strong>in</strong>g <strong>of</strong> all cases <strong>of</strong> violence <strong>and</strong> abuse toappropriate bodies, <strong>in</strong>clud<strong>in</strong>g by relevant pr<strong>of</strong>essi<strong>on</strong>al groups <strong>and</strong> by all citizens.F<strong>in</strong>ally, States Parties should establish effective systems for <strong>the</strong> identificati<strong>on</strong> <strong>of</strong> allforms <strong>of</strong> exploitati<strong>on</strong>, violence <strong>and</strong> abuse aga<strong>in</strong>st pers<strong>on</strong>s with disabilities (<strong>in</strong>clud<strong>in</strong>gwomen <strong>and</strong> girls with disabilities <strong>and</strong> elderly pers<strong>on</strong>s); report<strong>in</strong>g, referral, <strong>in</strong>vestigati<strong>on</strong>,treatment, <strong>and</strong> follow-up systems; <strong>and</strong> appropriate judicial <strong>in</strong>volvement.4.1.3 Article 17 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong>Article 17 UN CRPD refers to <strong>the</strong> <strong>in</strong>tegrity <strong>of</strong> <strong>the</strong> pers<strong>on</strong>, <strong>and</strong> is a general, asopposed to specific provisi<strong>on</strong>, which <strong>in</strong>cludes language that seems to essentiallyunderscore, but adds no detail to, <strong>the</strong> more specific obligati<strong>on</strong>s reflected <strong>in</strong> Articles 15<strong>and</strong> 16 UN CRPD. Article 17 should also be understood <strong>in</strong> <strong>the</strong> light <strong>of</strong> its draft<strong>in</strong>ghistory, 229 which is tied to specific types <strong>of</strong> human rights violati<strong>on</strong> experienced by229 Language orig<strong>in</strong>ally <strong>in</strong>serted <strong>in</strong>to draft provisi<strong>on</strong> <strong>on</strong> torture was extracted <strong>and</strong> eventually housedwith<strong>in</strong> a new article that <strong>in</strong> time became <strong>the</strong> current language <strong>of</strong> Article 17. However, <strong>the</strong> brevity <strong>of</strong> <strong>the</strong>provisi<strong>on</strong> that resulted reflects <strong>the</strong> drafters‟ lack <strong>of</strong> c<strong>on</strong>sensus <strong>on</strong> language which would have bannedPage | 87
pers<strong>on</strong>s with disabilities, particularly those <strong>of</strong>ten perpetuated aga<strong>in</strong>st pers<strong>on</strong>s with<strong>in</strong>tellectual or psycho-social disabilities.Article 17 corresp<strong>on</strong>ds to <strong>the</strong> language <strong>in</strong>cluded <strong>in</strong> <strong>the</strong> American C<strong>on</strong>venti<strong>on</strong> <strong>on</strong>Human Rights, 230 but left out <strong>of</strong> o<strong>the</strong>r human rights c<strong>on</strong>venti<strong>on</strong>s, such as <strong>the</strong>Internati<strong>on</strong>al Covenant <strong>on</strong> Civil <strong>and</strong> Political Rights. 231 However, <strong>in</strong> view <strong>of</strong> <strong>the</strong>negotiat<strong>in</strong>g history <strong>of</strong> <strong>the</strong> provisi<strong>on</strong> <strong>in</strong> <strong>the</strong> Ad Hoc Committee, it does have importantrelevance, as it aims to provide protecti<strong>on</strong> for pers<strong>on</strong>s with psycho-social disabilities, <strong>in</strong>particular, from <strong>in</strong>terventi<strong>on</strong>s affect<strong>in</strong>g <strong>the</strong>ir physical <strong>and</strong> mental well-be<strong>in</strong>g. While <strong>the</strong>Article provides little <strong>in</strong> <strong>the</strong> way <strong>of</strong> specific guidance for States Parties <strong>on</strong> exactly when,<strong>and</strong> under what circumstances, <strong>the</strong>y are obliged to refra<strong>in</strong> from <strong>in</strong>terference, it was<strong>in</strong>tended to place limits <strong>on</strong> <strong>in</strong>terventi<strong>on</strong>s <strong>and</strong> to proscribe disability-based <strong>in</strong>terference,<strong>and</strong> promote a st<strong>and</strong>ard <strong>of</strong> n<strong>on</strong>-<strong>in</strong>terference <strong>on</strong> <strong>the</strong> basis <strong>of</strong> equality with o<strong>the</strong>rs.Article 17 can also be seen as be<strong>in</strong>g <strong>in</strong>terrelated with o<strong>the</strong>r provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> UNCRPD, such as freedom from torture or cruel, <strong>in</strong>human or degrad<strong>in</strong>g treatment orpunishment (Article 15). For example, if a pers<strong>on</strong> with disabilities is forced to a medicaltreatment without his/her free <strong>and</strong> <strong>in</strong>formed c<strong>on</strong>sent, <strong>the</strong>n <strong>the</strong> pers<strong>on</strong> <strong>in</strong> questi<strong>on</strong> hasbeen deprived <strong>of</strong> his/her rights to health, to physical <strong>and</strong> mental <strong>in</strong>tegrity <strong>and</strong> to be freefrom torture. 232 For <strong>the</strong> purposes <strong>of</strong> this secti<strong>on</strong>, <strong>the</strong> <strong>in</strong>terrelati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPDarticles will be c<strong>on</strong>sidered when domestic <strong>practices</strong> are be<strong>in</strong>g reviewed.Research for this study <strong>in</strong> <strong>the</strong> EU Member States has revealed that a number <strong>of</strong>Member States still have <strong>in</strong> place legislati<strong>on</strong> permitt<strong>in</strong>g forced, or <strong>in</strong>voluntary,<strong>in</strong>stituti<strong>on</strong>alisati<strong>on</strong>, 233 <strong>in</strong> cases where a pers<strong>on</strong> is c<strong>on</strong>sidered a threat to him/herself orano<strong>the</strong>r. Such legislati<strong>on</strong> represents a significant challenge to <strong>the</strong> effectiveimplementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD, which <strong>in</strong>ter alia aims to combat <strong>in</strong>voluntary<strong>in</strong>stituti<strong>on</strong>alisati<strong>on</strong>.For example, Pol<strong>and</strong> established <strong>in</strong> 1994 <strong>the</strong> Mental Health Protecti<strong>on</strong> Act, <strong>on</strong> <strong>the</strong>basis <strong>of</strong> which a pers<strong>on</strong> with a mental health disorder can be <strong>in</strong>voluntarilycompulsory treatment. The sparse provisi<strong>on</strong> reads simply as a statement <strong>of</strong> broad pr<strong>in</strong>ciple, ty<strong>in</strong>gnecessarily to Articles 15 <strong>and</strong> 16, as well Article 14 (liberty <strong>and</strong> security) <strong>and</strong> Article 10 (Right to life).230 The American C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> Human Rights recognises with<strong>in</strong> a s<strong>in</strong>gle article (Art. 5) <strong>the</strong> right <strong>of</strong> <strong>the</strong><strong>in</strong>dividual “to have his physical, mental <strong>and</strong> moral <strong>in</strong>tegrity respected” al<strong>on</strong>g with <strong>the</strong> right to be free fromtorture <strong>and</strong> cruel, <strong>in</strong>human or degrad<strong>in</strong>g treatment or punishment”, which formed <strong>the</strong> basis <strong>of</strong> arguments<strong>in</strong> favour <strong>of</strong> a similar formulati<strong>on</strong> <strong>in</strong> <strong>the</strong> CRPD. See also Inter-American C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> Torture, at art. 2.231 The Internati<strong>on</strong>al Covenant <strong>on</strong> Civil <strong>and</strong> Political Rights (ICCPR) <strong>in</strong>cludes an article prohibit<strong>in</strong>g torture<strong>and</strong> o<strong>the</strong>r cruel, <strong>in</strong>human <strong>and</strong> degrad<strong>in</strong>g treatment or punishment but does not <strong>in</strong>clude provisi<strong>on</strong>sregard<strong>in</strong>g violence <strong>and</strong> abuse or deprivati<strong>on</strong>s <strong>of</strong> physical or mental <strong>in</strong>tegrity.232 See OHCHR, M<strong>on</strong>itor<strong>in</strong>g <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities, Guidance forhuman rights m<strong>on</strong>itors, Pr<strong>of</strong>essi<strong>on</strong>al tra<strong>in</strong><strong>in</strong>g series No. 17, p. 28, available at:http://www.ohchr.org/Documents/Publicati<strong>on</strong>s/Disabilities_tra<strong>in</strong><strong>in</strong>g_17EN.pdf233 For example: Bulgaria, F<strong>in</strong>l<strong>and</strong>, Pol<strong>and</strong>, Spa<strong>in</strong>, <strong>and</strong> o<strong>the</strong>rs.Page | 88
<strong>in</strong>stituti<strong>on</strong>alised <strong>in</strong> a psychiatric hospital where his/her previous behaviour <strong>in</strong>dicatesthat s/he may be a direct threat to his/her own life, or <strong>the</strong> life or health <strong>of</strong> o<strong>the</strong>rs. 234In additi<strong>on</strong>, research for this study has revealed that serious challenges to <strong>the</strong>implementati<strong>on</strong> <strong>of</strong> Article 17 UN CRPD exist <strong>in</strong> Member States where <strong>in</strong>voluntarysterilisati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>and</strong> <strong>the</strong> carry<strong>in</strong>g out <strong>of</strong> cl<strong>in</strong>ical experiments isauthorised by law for pers<strong>on</strong>s who are deprived by law <strong>the</strong>ir legal capacity.For example, <strong>in</strong> Spa<strong>in</strong>, Article 156.2 Crim<strong>in</strong>al Code permits <strong>the</strong> sterilisati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>swith disabilities under certa<strong>in</strong> circumstances. 235 This is <strong>the</strong> case for pers<strong>on</strong>s with gravepsyco-social disabilities who are also c<strong>on</strong>sidered under Spanish law (as it currentlyst<strong>and</strong>s) to be legally <strong>in</strong>capable. The sterilisati<strong>on</strong> should be authorised by a judge <strong>on</strong> <strong>the</strong>request <strong>of</strong> <strong>the</strong> pers<strong>on</strong>‟s legal guardian <strong>and</strong> should also be supported by <strong>the</strong> publicguardian. The Code states that <strong>the</strong> procedure should bear <strong>in</strong> m<strong>in</strong>d <strong>the</strong> „best <strong>in</strong>terest‟ <strong>of</strong><strong>the</strong> <strong>in</strong>capacitated pers<strong>on</strong> <strong>and</strong> that <strong>the</strong> judge „should explore‟ 236 <strong>the</strong> <strong>in</strong>capacitatedpers<strong>on</strong>. The Spanish Committee <strong>of</strong> People with Disabilities Representatives (CERMI)has highlighted <strong>the</strong> issue <strong>of</strong> forced sterilisati<strong>on</strong> as <strong>on</strong>e <strong>the</strong> most important areas, whichshould be addressed <strong>in</strong> order for Spa<strong>in</strong> to effectively implement <strong>the</strong> UN CRPD. 237Fur<strong>the</strong>rmore, Spanish Royal Decree 223/2004 <strong>on</strong> cl<strong>in</strong>ical experiments <strong>and</strong> <strong>the</strong> 2007Law <strong>on</strong> Biomedical Investigati<strong>on</strong> authorises <strong>the</strong> c<strong>on</strong>duct <strong>of</strong> cl<strong>in</strong>ical experiments <strong>on</strong>legally <strong>in</strong>capable adults under certa<strong>in</strong> circumstances. 238 More specifically, RoyalDecree 223/2004 239 states that cl<strong>in</strong>ical trials with drugs <strong>on</strong> adults who are unable toc<strong>on</strong>sent may be permitted, if a number <strong>of</strong> c<strong>on</strong>diti<strong>on</strong>s listed <strong>in</strong> <strong>the</strong> Decree are satisfied(for example, if trials are <strong>of</strong> specific <strong>in</strong>terest to <strong>the</strong> populati<strong>on</strong>s under research). Article20 <strong>of</strong> <strong>the</strong> 2007 Law <strong>on</strong> Biomedical Investigati<strong>on</strong> 240 permits experimentati<strong>on</strong> where apers<strong>on</strong> has no capacity to c<strong>on</strong>sent if, <strong>of</strong> course, a number <strong>of</strong> listed c<strong>on</strong>diti<strong>on</strong>s aresatisfied (for example, if <strong>the</strong> result may produce a real benefit to <strong>the</strong> pers<strong>on</strong>‟s health).In additi<strong>on</strong>, paragraph 2 <strong>of</strong> <strong>the</strong> Article 20 permits experimentati<strong>on</strong> <strong>on</strong> pers<strong>on</strong>s unable toc<strong>on</strong>sent even <strong>in</strong> cases where <strong>the</strong> experimentati<strong>on</strong> has no chance <strong>of</strong> improv<strong>in</strong>g <strong>the</strong>pers<strong>on</strong>‟s health, if, <strong>of</strong> course, a number <strong>of</strong> listed c<strong>on</strong>diti<strong>on</strong>s are satisfied (for example, if<strong>the</strong> experimentati<strong>on</strong> may c<strong>on</strong>tribute significantly to knowledge <strong>of</strong> <strong>the</strong> disease).F<strong>in</strong>ally, with regards to <strong>the</strong> European Uni<strong>on</strong>, <strong>the</strong> Council Decisi<strong>on</strong> 2010/48/EC did notexplicitly referred to competences for matters related to Article 17 UN CRPD. As no234 See Internati<strong>on</strong>al Disability Rights M<strong>on</strong>itor (IDRM), Regi<strong>on</strong>al Report <strong>of</strong> Europe, 2007, p.348235 Ibid, p. 464236 Literal translati<strong>on</strong> <strong>of</strong> Spanish term237 See CERMI report “Human Rights <strong>and</strong> Disability”, <strong>of</strong> 2008, p.30, available athttp://www.cermi.es/NR/rd<strong>on</strong>lyres/A6D627AE-6A58-4213-884D-6C4F9BE20C5A/28913/DerechosHumanos2.pdf238 See Internati<strong>on</strong>al Disability Rights M<strong>on</strong>itor (IDRM), Regi<strong>on</strong>al Report <strong>of</strong> Europe, 2007, p. 464239 See Article 5 <strong>of</strong> <strong>the</strong> Royal Decree 223/2004. Available (<strong>in</strong> Spanish) athttp://noticias.juridicas.com/base_datos/Adm<strong>in</strong>/rd223-2004.html240 Available (<strong>in</strong> Spanish) at http://noticias.juridicas.com/base_datos/Adm<strong>in</strong>/l14-2007.htmlPage | 89
<strong>in</strong>strument was listed <strong>in</strong> <strong>the</strong> Appendix <strong>of</strong> <strong>the</strong> Decisi<strong>on</strong>, EU <strong>practices</strong> will not bepresented <strong>in</strong> this report. However, due to different nati<strong>on</strong>al approaches, <strong>the</strong> Uni<strong>on</strong>could become <strong>the</strong> platform where EU Member States exchange experiences <strong>and</strong> <strong>good</strong><strong>practices</strong> <strong>in</strong> <strong>the</strong> area <strong>of</strong> protecti<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities from all forms <strong>of</strong><strong>in</strong>terference with <strong>the</strong>ir mental <strong>and</strong>/or physical <strong>in</strong>tegrity <strong>in</strong> all aspects <strong>of</strong> life.4.1.4 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 17States Parties should undertake a screen<strong>in</strong>g exercise to ensure that legislati<strong>on</strong>protects pers<strong>on</strong>s with disabilities from all forms <strong>of</strong> <strong>in</strong>terference with <strong>the</strong>ir physical <strong>and</strong>mental <strong>in</strong>tegrity, <strong>and</strong> that no excepti<strong>on</strong>s or defences are available <strong>in</strong> relati<strong>on</strong> to assaults<strong>on</strong> <strong>the</strong> physical <strong>and</strong>/or mental <strong>in</strong>tegrity <strong>of</strong> pers<strong>on</strong>s with disabilities. More specifically,domestic legislati<strong>on</strong> should protect all pers<strong>on</strong>s with disabilities from assaults <strong>on</strong> <strong>the</strong>irmental <strong>and</strong>/or physical <strong>in</strong>tegrity <strong>in</strong> all realms, <strong>in</strong>clud<strong>in</strong>g <strong>in</strong>:a. <strong>the</strong> home;b. schools – both privately run <strong>and</strong> State run;c. adult <strong>and</strong> child care <strong>in</strong>stituti<strong>on</strong>s – both privately <strong>and</strong> State run;d. <strong>the</strong> penal system; <strong>and</strong>e. alternative forms <strong>of</strong> care.States Parties should also take measures to ensure that policy <strong>and</strong> practice protectspers<strong>on</strong>s with disabilities from all forms <strong>of</strong> <strong>in</strong>terference with <strong>the</strong>ir physical <strong>and</strong>/or mental<strong>in</strong>tegrity, <strong>in</strong>clud<strong>in</strong>g, for example, traditi<strong>on</strong>al <strong>practices</strong> <strong>in</strong>volv<strong>in</strong>g physical or mentalviolence, or prejudicial to health.4.2 Aut<strong>on</strong>omy RightsAut<strong>on</strong>omy functi<strong>on</strong>s as a general pr<strong>in</strong>ciple <strong>of</strong> <strong>the</strong> UN CRPD (Article 3(a)) <strong>and</strong> may beregarded as giv<strong>in</strong>g rise to specific applicati<strong>on</strong>s <strong>in</strong> Article 12 (equal recogniti<strong>on</strong> before<strong>the</strong> law), <strong>and</strong> Article 19 (<strong>in</strong>dependent liv<strong>in</strong>g), both <strong>of</strong> which are rights primarily directedat ma<strong>in</strong>ta<strong>in</strong><strong>in</strong>g <strong>and</strong> safeguard<strong>in</strong>g <strong>the</strong> aut<strong>on</strong>omy <strong>and</strong> <strong>in</strong>dependence <strong>of</strong> pers<strong>on</strong>s withdisabilities.4.2.1 Article 12 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong>Article 12 <strong>of</strong> <strong>the</strong> UN CRPD addresses <strong>the</strong> issue <strong>of</strong> legal capacity, <strong>and</strong> c<strong>on</strong>firms thatpers<strong>on</strong>s with disabilities “enjoy legal capacity <strong>on</strong> an equal basis with o<strong>the</strong>rs <strong>in</strong> allaspects <strong>of</strong> life”. Historically, many pers<strong>on</strong>s with disabilities have been subjected to laws<strong>and</strong> <strong>practices</strong> that deprived <strong>the</strong>m <strong>of</strong> <strong>the</strong>ir legal capacity <strong>and</strong>, c<strong>on</strong>sequently, <strong>of</strong> <strong>the</strong>iraut<strong>on</strong>omy <strong>and</strong> freedom to choose how <strong>and</strong> where to live <strong>the</strong>ir lives. Failure to respectPage | 90
<strong>the</strong> <strong>in</strong>dependence, aut<strong>on</strong>omy <strong>and</strong> dignity <strong>of</strong> pers<strong>on</strong>s with disabilities with respect tomedical decisi<strong>on</strong> mak<strong>in</strong>g has led to some <strong>of</strong> <strong>the</strong> most egregious human rights abusesexperienced by pers<strong>on</strong>s with disabilities, <strong>in</strong>clud<strong>in</strong>g (as menti<strong>on</strong>ed above) forcedsterilisati<strong>on</strong>, cruel methods used to “cure” specific behaviours <strong>in</strong> pers<strong>on</strong>s with psychosocialdisabilities, psycho-surgery such as lobotomies, <strong>the</strong>rapeutic <strong>and</strong> n<strong>on</strong>-<strong>the</strong>rapeuticbiomedical research, <strong>and</strong> experimentati<strong>on</strong>.Article 12, as read <strong>in</strong>dependently from <strong>the</strong> rest <strong>of</strong> <strong>the</strong> UN CRPD, has a relativenormative force. This means that Article 12 UN CRPD becomes imperative when isc<strong>on</strong>nected with o<strong>the</strong>r provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> UN CRPD (i.e. Articles 5, 14, 15, 17 <strong>and</strong> 19), orwhen it is read <strong>in</strong> c<strong>on</strong>juncti<strong>on</strong> to preambular paragraph (e), Article 1, <strong>and</strong> <strong>the</strong> def<strong>in</strong>iti<strong>on</strong><strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> disability (Article 2 UN CRPD), from which a socialmodel <strong>of</strong> disability derives.Article 12(1) reaffirms that all pers<strong>on</strong>s, <strong>in</strong>clud<strong>in</strong>g all pers<strong>on</strong>s with disabilities, have <strong>the</strong>right to recogniti<strong>on</strong> before <strong>the</strong> law, <strong>and</strong> thus should be recognised as holders <strong>of</strong> rights<strong>and</strong> possessors <strong>of</strong> duties under <strong>the</strong> law. The right to equal recogniti<strong>on</strong> before <strong>the</strong> lawencompasses two comp<strong>on</strong>ents:a. recogniti<strong>on</strong> <strong>of</strong> legal pers<strong>on</strong>ality, <strong>in</strong> <strong>the</strong> sense that pers<strong>on</strong>s with disabilities areholders <strong>of</strong> rights; <strong>and</strong>b. recogniti<strong>on</strong> <strong>of</strong> <strong>the</strong> capacity to act, <strong>in</strong> <strong>the</strong> sense that <strong>on</strong>e can actually exerciselegal rights <strong>and</strong> duties under <strong>the</strong> law.Article 12(1) UN CRPD supports an <strong>in</strong>terpretati<strong>on</strong> c<strong>on</strong>trario sensu <strong>of</strong> <strong>the</strong> term legalcapacity (<strong>in</strong>cluded <strong>in</strong> paragraph 2), as compris<strong>in</strong>g capacity to act without displac<strong>in</strong>g <strong>the</strong>pers<strong>on</strong>‟s own decisi<strong>on</strong> mak<strong>in</strong>g. Fur<strong>the</strong>rmore, Article 12(1) re<strong>in</strong>forces Article 10 (right tolife) by accord<strong>in</strong>g all pers<strong>on</strong>s with disabilities <strong>the</strong> right to be recognised as a subject <strong>of</strong>law <strong>on</strong> an equal basis with o<strong>the</strong>rs. As a c<strong>on</strong>sequence, States Parties are obliged toc<strong>on</strong>duct a comprehensive <strong>and</strong> systematic revisi<strong>on</strong> <strong>of</strong> <strong>the</strong>ir legislati<strong>on</strong> <strong>in</strong> order to detect,<strong>and</strong> repeal, discrim<strong>in</strong>atory provisi<strong>on</strong>s establish<strong>in</strong>g any dist<strong>in</strong>cti<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong>disability <strong>in</strong> <strong>the</strong> field <strong>of</strong> legal pers<strong>on</strong>ality.Article 12(2) recognises <strong>the</strong> right to <strong>the</strong> equal enjoyment <strong>of</strong> legal capacity. 241 For <strong>the</strong>purposes <strong>of</strong> this provisi<strong>on</strong>, <strong>the</strong> paradigm shift <strong>and</strong> <strong>the</strong> def<strong>in</strong>iti<strong>on</strong> <strong>of</strong> disability <strong>in</strong> <strong>the</strong>241 Legal capacity arose as <strong>on</strong>e <strong>of</strong> <strong>the</strong> most c<strong>on</strong>troversial issues throughout <strong>the</strong> negotiati<strong>on</strong>s, while its<strong>in</strong>terpretati<strong>on</strong> rema<strong>in</strong>s c<strong>on</strong>troversial s<strong>in</strong>ce <strong>the</strong>re are some State reservati<strong>on</strong>s or <strong>in</strong>terpretati<strong>on</strong> <strong>on</strong> thisissue. However, as <strong>the</strong> Office <strong>of</strong> <strong>the</strong> High Commissi<strong>on</strong>er for Human Rights po<strong>in</strong>ted out, <strong>the</strong> two terms„recogniti<strong>on</strong> as a pers<strong>on</strong> before <strong>the</strong> law‟ <strong>and</strong> „legal capacity‟ are dist<strong>in</strong>ct. The c<strong>on</strong>cept <strong>of</strong> legal pers<strong>on</strong>ality(derived from art 12(1) CRPD) recognises <strong>the</strong> <strong>in</strong>dividual as a pers<strong>on</strong> before <strong>the</strong> law <strong>and</strong> is <strong>the</strong>refore aprerequisite for <strong>the</strong> enjoyment <strong>of</strong> any o<strong>the</strong>r right, while “legal capacity” is a broader term that <strong>in</strong>cludes<strong>the</strong> capacity <strong>of</strong> <strong>the</strong> <strong>in</strong>dividual to be subject <strong>of</strong> rights <strong>and</strong> obligati<strong>on</strong>s as well as <strong>the</strong> capacity to act. The„capacity to act‟ is <strong>in</strong>tended as <strong>the</strong> capacity <strong>and</strong> power to engage <strong>in</strong> a particular undertak<strong>in</strong>g orPage | 91
c<strong>on</strong>text <strong>of</strong> social barriers is crucial, s<strong>in</strong>ce most domestic legal restricti<strong>on</strong>s <strong>on</strong> <strong>the</strong>exercise <strong>of</strong> legal capacity by pers<strong>on</strong>s with disabilities still focus, <strong>and</strong> justify thisrestricti<strong>on</strong>, <strong>on</strong> <strong>the</strong> pers<strong>on</strong>´s impairment. 242 In light <strong>of</strong> Article 12 States Parties to <strong>the</strong> UNCRPD are obliged to refra<strong>in</strong> from <strong>the</strong>se types <strong>of</strong> restricti<strong>on</strong> <strong>on</strong> disabled pers<strong>on</strong>s‟ legalcapacity.Article 12(3) requires <strong>the</strong> adopti<strong>on</strong> <strong>of</strong> supported decisi<strong>on</strong> mak<strong>in</strong>g mechanisms(assist<strong>in</strong>g <strong>the</strong> pers<strong>on</strong> to make a decisi<strong>on</strong> pers<strong>on</strong>ally), <strong>in</strong>stead <strong>of</strong> substituted decisi<strong>on</strong>mak<strong>in</strong>g (some<strong>on</strong>e else mak<strong>in</strong>g a decisi<strong>on</strong> for <strong>the</strong> pers<strong>on</strong>). As suggested by Dr.Palacios, 243 key elements <strong>of</strong> a supported decisi<strong>on</strong> mak<strong>in</strong>g model <strong>in</strong>clude:a. Allow<strong>in</strong>g a pers<strong>on</strong> to c<strong>on</strong>t<strong>in</strong>ue to be entitled to exercise his/her legal capacity<strong>in</strong>dependently, <strong>on</strong> his/her own. 244 In o<strong>the</strong>r words, <strong>the</strong>re should be nodisplacement <strong>of</strong> <strong>the</strong> pers<strong>on</strong>‟s will <strong>on</strong>to a third party (mentor, guardian, curator,defendant etc).b. States Parties should adopt a comprehensive approach. The implementati<strong>on</strong> <strong>of</strong>supported decisi<strong>on</strong> mak<strong>in</strong>g model will not <strong>on</strong>ly require <strong>the</strong> revisi<strong>on</strong> <strong>of</strong> exist<strong>in</strong>glegislati<strong>on</strong>, but also an active governmental policy ensur<strong>in</strong>g, <strong>in</strong>ter alia, educati<strong>on</strong><strong>and</strong> adequate f<strong>in</strong>ancial resources. Therefore, <strong>the</strong> obligati<strong>on</strong> for States Parties isnot fulfilled merely by replac<strong>in</strong>g <strong>the</strong> term “guardianship” or “curatorship” found <strong>in</strong>exist<strong>in</strong>g statutes with a more politically correct term, such as “support pers<strong>on</strong>” or“legal mentor”. The UN CRPD calls for a more comprehensive approach <strong>and</strong> <strong>the</strong>full implementati<strong>on</strong> <strong>of</strong> a supported decisi<strong>on</strong> mak<strong>in</strong>g model that encompasseselements <strong>of</strong> accessibility <strong>and</strong> reas<strong>on</strong>able accommodati<strong>on</strong>.c. F<strong>in</strong>ally, a supported decisi<strong>on</strong> mak<strong>in</strong>g mechanism should be flexible <strong>and</strong>adaptable to a diverse range <strong>of</strong> circumstances, <strong>in</strong> order to be tailored to differentpers<strong>on</strong>al <strong>and</strong> social situati<strong>on</strong>s. For example, it may be necessary to dist<strong>in</strong>guishbetween <strong>the</strong> „type <strong>of</strong> support‟ needed for transacti<strong>on</strong>s which have vitalc<strong>on</strong>sequences for <strong>the</strong> pers<strong>on</strong>‟s life or patrim<strong>on</strong>y (e.g. marriage, adopti<strong>on</strong>,transacti<strong>on</strong>, to ma<strong>in</strong>ta<strong>in</strong> a particular status or relati<strong>on</strong>ship with ano<strong>the</strong>r <strong>in</strong>dividual, <strong>and</strong> more <strong>in</strong> general tocreate, modify or ext<strong>in</strong>guish legal relati<strong>on</strong>ships242 In c<strong>on</strong>sistency with <strong>the</strong> def<strong>in</strong>iti<strong>on</strong>, <strong>the</strong> base <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong> is <strong>on</strong> social barriers <strong>and</strong> not <strong>in</strong>dividualimpairment. Impairment (<strong>in</strong>clud<strong>in</strong>g physical, <strong>in</strong>tellectual or sensorial) is <strong>on</strong>ly <strong>on</strong>e c<strong>on</strong>stituent element <strong>of</strong>disability <strong>and</strong> <strong>the</strong>refore impairment can nei<strong>the</strong>r become <strong>the</strong> reas<strong>on</strong> nor <strong>the</strong> basis <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong>. Thislogical deducti<strong>on</strong> becomes <strong>of</strong> great importance when analyz<strong>in</strong>g domestic legislati<strong>on</strong> which restrict <strong>the</strong>exercise <strong>of</strong> legal capacity to pers<strong>on</strong>s with disability, as most <strong>of</strong> those pieces <strong>of</strong> law, focus <strong>on</strong> <strong>the</strong>pers<strong>on</strong>‟s impairment, which is a more rudimentary form <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong>. It could even be argued that<strong>the</strong>se approaches are a “legal direct discrim<strong>in</strong>ati<strong>on</strong>”. Dr. Agust<strong>in</strong>a Palacios, “Article 12 UN CRPD:Overview <strong>and</strong> Core obligati<strong>on</strong>s”, Brief<strong>in</strong>g paper for <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g> VC/2008/1214243 Ibid, pp 9-10244 This cornerst<strong>on</strong>e idea is also l<strong>in</strong>ked to <strong>the</strong> necessary safeguards set forth <strong>in</strong> paragraph 4 <strong>of</strong> art 12,which “shall ensure that measures relat<strong>in</strong>g to <strong>the</strong> exercise <strong>of</strong> legal capacity respect <strong>the</strong> rights, will <strong>and</strong>preferences <strong>of</strong> <strong>the</strong> pers<strong>on</strong>”.Page | 92
d<strong>on</strong>ati<strong>on</strong>, buy<strong>in</strong>g or sell<strong>in</strong>g property), <strong>and</strong> transacti<strong>on</strong>s <strong>in</strong>volved with daily needs(e.g. travel<strong>in</strong>g, apply<strong>in</strong>g for membership <strong>of</strong> a society or club etc). In certa<strong>in</strong>situati<strong>on</strong>s, <strong>the</strong> support may be given by means <strong>of</strong> a pers<strong>on</strong>al assistant, <strong>in</strong> o<strong>the</strong>rcases through peer support, <strong>in</strong> o<strong>the</strong>rs through assistance provided by anombudsman or public defendant, or <strong>in</strong> certa<strong>in</strong> situati<strong>on</strong>s through <strong>the</strong> use <strong>of</strong><strong>in</strong>formal networks. Never<strong>the</strong>less, <strong>in</strong> all occasi<strong>on</strong>s decisi<strong>on</strong>s should be taken „with‟<strong>the</strong> disabled pers<strong>on</strong>, <strong>and</strong> not „for‟ <strong>the</strong> pers<strong>on</strong>.The establishment <strong>of</strong> <strong>the</strong> support process envisaged by Article 12 is a complex taskthat will need a careful c<strong>on</strong>siderati<strong>on</strong> <strong>of</strong> different proposals, should be clearlydeterm<strong>in</strong>ed <strong>in</strong> c<strong>on</strong>sultati<strong>on</strong> with key actors, <strong>and</strong> should be gradually implemented.The freedom to make decisi<strong>on</strong>s through <strong>the</strong> supported decisi<strong>on</strong> mak<strong>in</strong>g modelenvisaged <strong>in</strong> Article 12(3) is re<strong>in</strong>forced by virtue <strong>of</strong> Article 25(d) requir<strong>in</strong>g healthpr<strong>of</strong>essi<strong>on</strong>als to “provide care <strong>of</strong> <strong>the</strong> same quality to pers<strong>on</strong>s with disabilities as too<strong>the</strong>rs, <strong>in</strong>clud<strong>in</strong>g <strong>on</strong> <strong>the</strong> basis <strong>of</strong> free <strong>and</strong> <strong>in</strong>formed c<strong>on</strong>sent”.Article 12(4) sets forth m<strong>in</strong>imum safeguards aga<strong>in</strong>st abuse that States Parties arerequired to implement with<strong>in</strong> <strong>the</strong> supported decisi<strong>on</strong> framework. Safeguards arenecessary to c<strong>on</strong>trol <strong>the</strong> effective applicati<strong>on</strong> <strong>of</strong> any supported decisi<strong>on</strong> mak<strong>in</strong>gmechanism. These safeguards should <strong>in</strong>clude an obligati<strong>on</strong> <strong>on</strong> <strong>the</strong> support provider toassist <strong>the</strong> disabled pers<strong>on</strong> to make decisi<strong>on</strong>s, <strong>and</strong> not substitute his/her will <strong>and</strong>preferences. Support providers should be obliged to respect <strong>the</strong> rights, will <strong>and</strong>preferences <strong>of</strong> <strong>the</strong> pers<strong>on</strong> be<strong>in</strong>g supported. The type <strong>of</strong> support to be provided shouldbe proporti<strong>on</strong>ate to <strong>the</strong> pers<strong>on</strong>‟s needs, <strong>in</strong>dividualised, <strong>and</strong> free from c<strong>on</strong>flict <strong>of</strong> <strong>in</strong>terest<strong>and</strong> undue <strong>in</strong>fluence. F<strong>in</strong>ally, support arrangements should also be subject to regularreview by an <strong>in</strong>dependent <strong>and</strong> impartial authority.Article 12(5) addresses <strong>the</strong> specific issue <strong>of</strong> <strong>the</strong> right <strong>of</strong> pers<strong>on</strong>s with disabilities to own<strong>and</strong> <strong>in</strong>herit property, <strong>and</strong> c<strong>on</strong>trol <strong>the</strong>ir own f<strong>in</strong>ancial affairs. The provisi<strong>on</strong> makesclear that pers<strong>on</strong>s with disabilities cannot be deprived <strong>of</strong> <strong>the</strong>ir property absent lawfulreas<strong>on</strong>. Article 12(5) is tied to <strong>the</strong> rest <strong>of</strong> Article 12; <strong>in</strong> o<strong>the</strong>r words, <strong>the</strong> thrust is forpers<strong>on</strong>s with disabilities to be provided with <strong>the</strong> necessary support <strong>in</strong> order to exercise<strong>the</strong>ir right to own <strong>and</strong> <strong>in</strong>herit property <strong>and</strong> to have access to f<strong>in</strong>ancial credit. It is thus<strong>in</strong>cumbent up<strong>on</strong> States Parties to provide <strong>the</strong> support needed to enable pers<strong>on</strong>s withdisabilities to manage <strong>the</strong>ir f<strong>in</strong>ancial affairs. Article 12(5) fur<strong>the</strong>r guards aga<strong>in</strong>starbitrary deprivati<strong>on</strong>s <strong>of</strong> property. States Parties should ensure that appropriatesafeguards exist aga<strong>in</strong>st abuse <strong>in</strong> <strong>the</strong> specific c<strong>on</strong>text <strong>of</strong> f<strong>in</strong>ancial affairs management.In sum, Article 12 explicitly recognises <strong>the</strong> legal capacity <strong>of</strong> pers<strong>on</strong>s with disabilities<strong>and</strong> provides measures to support <strong>the</strong>ir right to exercise <strong>the</strong>ir legal capacity. Itessentially requires a c<strong>on</strong>t<strong>in</strong>uum <strong>of</strong> support, <strong>the</strong>reby acknowledg<strong>in</strong>g that some disabledPage | 93
people require no support <strong>in</strong> mak<strong>in</strong>g decisi<strong>on</strong>s, while o<strong>the</strong>rs may need <strong>in</strong>tensivesupport. Whenever a pers<strong>on</strong> with disabilities needs support, s/he should be supportedby a pers<strong>on</strong> <strong>of</strong> his/her own choice, while <strong>the</strong> „support provider‟ should never, <strong>and</strong> underno circumstances, replace <strong>the</strong> legal capacity <strong>of</strong> <strong>the</strong> disabled pers<strong>on</strong> to act. 245 Article 12thus affirms <strong>the</strong> positi<strong>on</strong> that, irrespective <strong>of</strong> <strong>the</strong> level <strong>of</strong> support needed, States Partiesshould ensure that this support is not abusive <strong>and</strong> does not <strong>in</strong>fr<strong>in</strong>ge up<strong>on</strong> <strong>the</strong> humanrights <strong>of</strong> <strong>the</strong> support recipient. As <strong>the</strong> EDF President has said:“[...] Underst<strong>and</strong><strong>in</strong>g <strong>the</strong> impact <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> legal capacity <strong>in</strong>volves reevaluat<strong>in</strong>g<strong>the</strong> c<strong>on</strong>cepts <strong>of</strong> dignity, <strong>in</strong>tegrity <strong>and</strong> equality, thorough review <strong>of</strong> legislati<strong>on</strong> –both civil <strong>and</strong> crim<strong>in</strong>al - improv<strong>in</strong>g accessibility for people with disabilities <strong>in</strong>communicati<strong>on</strong> <strong>and</strong> procedures <strong>and</strong> educat<strong>in</strong>g all relevant actors about <strong>the</strong> paradigm shift[...]” 246C<strong>on</strong>sider<strong>in</strong>g legal capacity <strong>and</strong> <strong>the</strong> paradigm shift, research for this study <strong>in</strong> <strong>the</strong> EUMember States has revealed that several challenges to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UNCRPD exist <strong>and</strong> almost all exist<strong>in</strong>g legislati<strong>on</strong> might need some sort <strong>of</strong> review. While afew Member States have reformed relevant legislative measures, embrac<strong>in</strong>g supporteddecisi<strong>on</strong> mak<strong>in</strong>g models, 247 a large number <strong>of</strong> Member States c<strong>on</strong>t<strong>in</strong>ue to operaterestrictive guardianship laws <strong>and</strong> policies. <strong>Challenges</strong> also exist <strong>in</strong> Member States thatare attempt<strong>in</strong>g to move away from guardianship. While legislative reforms provide for<strong>the</strong> appo<strong>in</strong>tment <strong>of</strong> assistants to support pers<strong>on</strong>s with <strong>in</strong>tellectual disabilities <strong>in</strong> decisi<strong>on</strong>mak<strong>in</strong>g, <strong>the</strong> dist<strong>in</strong>cti<strong>on</strong> between such assistants <strong>and</strong> guardians is not clear enough. 248In many cases <strong>the</strong>re are <strong>in</strong>sufficient safeguards <strong>in</strong> place to ensure that such assistantsdo not exceed <strong>the</strong>ir duties <strong>and</strong> substitute <strong>the</strong> legal capacity <strong>of</strong> <strong>the</strong> pers<strong>on</strong> <strong>the</strong>y areassist<strong>in</strong>g. Ano<strong>the</strong>r challenge relates to <strong>in</strong>terpretative declarati<strong>on</strong>s or „explanatorymemor<strong>and</strong>ums‟ that some States 249 have submitted, or may c<strong>on</strong>sider submitt<strong>in</strong>g, <strong>in</strong>relati<strong>on</strong> to Article 12 UN CRPD. As nati<strong>on</strong>al approaches to legal capacity <strong>of</strong> pers<strong>on</strong>s245 See Mohammed Al-Tarawneh, Chairpers<strong>on</strong> <strong>of</strong> UN Committee <strong>on</strong> <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s withdisabilities, statement for <strong>the</strong> Internati<strong>on</strong>al Day <strong>of</strong> Pers<strong>on</strong>s with Disabilities, 3 December 2009, availableat http://www.ohchr.org/EN/HRBodies/CRPD/Pages/Internati<strong>on</strong>alDay122009.aspx246 Yannis Vardakastanis, EDF President, Sem<strong>in</strong>ar <strong>on</strong> <strong>the</strong> legal capacity <strong>of</strong> pers<strong>on</strong>s with disabilities(Article 12 UN CRPD), organised by EDF <strong>and</strong> <strong>the</strong> European C<strong>on</strong>sortium <strong>of</strong> Foundati<strong>on</strong>s <strong>on</strong> HumanRights <strong>and</strong> Disabilities, 4 June 2009,European Ec<strong>on</strong>omic <strong>and</strong> Social Committee. Available athttp://www.efc.be/Network<strong>in</strong>g/InterestGroupsAndFora/Disability/Pages/TheEuropeanC<strong>on</strong>sortium<strong>of</strong>Foundati<strong>on</strong>s<strong>on</strong>HumanRights<strong>and</strong>Disability.aspx247 For example: Hungary, Sweden248 For example, France that has recently amended its Civil Code by Law n o 2007/308 <strong>of</strong> March 5 th ,2007. Even if <strong>the</strong> new reform aligns towards <strong>the</strong> noti<strong>on</strong> <strong>of</strong> promoti<strong>on</strong> <strong>of</strong> aut<strong>on</strong>omy, <strong>and</strong> restrictsguardianship to excepti<strong>on</strong>al cases, it is still possible, by virtue <strong>of</strong> Article 433 <strong>and</strong> 440 <strong>of</strong> <strong>the</strong> Civil Code,for a pers<strong>on</strong> to be placed „under <strong>the</strong> protecti<strong>on</strong>‟ <strong>of</strong> a guardian, who (<strong>in</strong> certa<strong>in</strong> circumstances) maysubstitute <strong>the</strong> pers<strong>on</strong>‟s legal capacity. Brief<strong>in</strong>g paper by Pr<strong>of</strong>. A. Palacios, see supra note 248249 For example: UK which <strong>in</strong> its Explanatory Memor<strong>and</strong>um <strong>on</strong> <strong>the</strong> UN CRPD <strong>and</strong> article 12(4), notedthat this provisi<strong>on</strong> c<strong>on</strong>cerns safeguards for <strong>the</strong> exercise <strong>of</strong> substituted decisi<strong>on</strong>-mak<strong>in</strong>g <strong>and</strong> <strong>in</strong>cludes arequirement for regular review by a competent <strong>in</strong>dependent <strong>and</strong> impartial authority or judicial body.Page | 94
with disabilities are diverse, it is deemed necessary to present several nati<strong>on</strong>alexamples.Bulgaria‟s legal system provides for both plenary (full <strong>in</strong>capacity) <strong>and</strong> partial (limitedlegal capacity) guardianship under <strong>the</strong> Law for Individuals <strong>and</strong> Family. Bulgarian lawembraces a two-step process. The first step is <strong>the</strong> <strong>in</strong>capacitati<strong>on</strong> process, regulated by<strong>the</strong> Civil Code, 250 <strong>and</strong> <strong>the</strong> sec<strong>on</strong>d step <strong>in</strong>volves appo<strong>in</strong>tment <strong>of</strong> a guardian, which is anadm<strong>in</strong>istrative procedure c<strong>on</strong>ducted by <strong>the</strong> local guardianship authority. The lawequates diagnosis <strong>of</strong> a pers<strong>on</strong> with legal <strong>in</strong>capacity as it stipulates that <strong>on</strong>e‟s status asa pers<strong>on</strong> with a disability triggers <strong>the</strong> guardianship process. Depend<strong>in</strong>g <strong>on</strong> <strong>the</strong>disability, <strong>the</strong> Court decides about <strong>the</strong> extent <strong>and</strong> limits <strong>of</strong> <strong>the</strong> <strong>in</strong>capacitati<strong>on</strong> <strong>and</strong> <strong>the</strong>type <strong>of</strong> <strong>the</strong> representati<strong>on</strong> to be awarded to <strong>the</strong> <strong>in</strong>capacitated pers<strong>on</strong> (i.e. full or partialguardianship). Where adults are placed under partial guardianship, <strong>the</strong>y are deemed tohave similar rights <strong>and</strong> resp<strong>on</strong>sibilities as children aged 14 to 18. Adults placed underplenary guardianship are equated with children under <strong>the</strong> age <strong>of</strong> 14. 251 As is evident,Bulgarian disability policy c<strong>on</strong>t<strong>in</strong>ues to be deeply rooted <strong>in</strong> <strong>the</strong> old-fashi<strong>on</strong>edguardianship system that deprives pers<strong>on</strong>s with disabilities <strong>of</strong> <strong>the</strong>ir rights <strong>and</strong> duties toact <strong>and</strong> decide for <strong>the</strong>ir lives. The Mental Disability Advocacy Centre underl<strong>in</strong>es thatguardianship is Bulgaria‟s <strong>on</strong>ly legal resp<strong>on</strong>se to people who require assistance tomake decisi<strong>on</strong>s. There are no alternatives available such as supported <strong>and</strong> assisteddecisi<strong>on</strong>-mak<strong>in</strong>g, advance directives or powers <strong>of</strong> attorney. 252The Spanish Civil Code 253 also allows for full <strong>in</strong>capacitati<strong>on</strong>. Article 199 <strong>of</strong> <strong>the</strong> CivilCode states that <strong>in</strong>capacitati<strong>on</strong> must be declared by a judge, who is also required toestablish <strong>the</strong> extent <strong>and</strong> limits <strong>of</strong> <strong>the</strong> <strong>in</strong>capacitati<strong>on</strong> <strong>in</strong> <strong>the</strong> <strong>in</strong>capacitati<strong>on</strong> order, as wellas <strong>the</strong> type <strong>of</strong> legal representati<strong>on</strong> to be awarded to <strong>the</strong> <strong>in</strong>capacitated pers<strong>on</strong>. 254 It hasbeen suggested however that, <strong>in</strong> reality, pers<strong>on</strong>s with <strong>in</strong>tellectual disabilities aresystematically excluded from enter<strong>in</strong>g <strong>in</strong>to c<strong>on</strong>tracts without any prior legal declarati<strong>on</strong><strong>of</strong> <strong>in</strong>capacity. Spanish case law reveals that this exclusi<strong>on</strong> is allowed <strong>on</strong> <strong>the</strong> basis that<strong>the</strong> <strong>in</strong>tellectual disability <strong>of</strong> <strong>the</strong> c<strong>on</strong>tract<strong>in</strong>g party may mean that <strong>the</strong> c<strong>on</strong>sent s/he hasgiven is <strong>in</strong>complete or n<strong>on</strong>-existent. 255250 Secti<strong>on</strong> 27 (<strong>in</strong> Part 3 <strong>of</strong> <strong>the</strong> Code) rules that “a spouse, close relatives, <strong>the</strong> prosecutor or any<strong>on</strong>e elsewho has a legal <strong>in</strong>terest” may request by petiti<strong>on</strong> <strong>the</strong> full <strong>of</strong> partial <strong>in</strong>capacity <strong>of</strong> a given pers<strong>on</strong>. TheBulgarian civil code is available <strong>in</strong> EN at http://archive.bild.net/legislati<strong>on</strong>/docs/4/ccp.html251 Mental Disability Advocacy Centre, Guardianship <strong>and</strong> Human Rights <strong>in</strong> Bulgaria: Analysis, Policy <strong>and</strong>Practice, 2007, pp.19-20, available athttp://www.mdac.<strong>in</strong>fo/documents/Bulgaria%20report_comprehensive_English.pdf252 Ibid p. 5-6253 Available (<strong>in</strong> Spanish) at http://civil.udg.es/normacivil/estatal/CC/INDEXCC.htm254 See Article 760 <strong>of</strong> <strong>the</strong> Spanish Procedural Code255 Memo for <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g> VC/2008/1214 by Almudena Castro-Gir<strong>on</strong>a Mart<strong>in</strong>ez, Notary <strong>in</strong> Barcel<strong>on</strong>a <strong>and</strong>member <strong>of</strong> <strong>the</strong> C<strong>on</strong>férence des Notariats de l'Uni<strong>on</strong> Européenne (CNUE).Page | 95
Accord<strong>in</strong>g to Article 200 <strong>of</strong> <strong>the</strong> Spanish Civil Code, <strong>the</strong> criteria to declare a pers<strong>on</strong><strong>in</strong>capacitated are c<strong>on</strong>sist <strong>of</strong> two complementary elements: (a) <strong>the</strong> existence <strong>of</strong> a“physical or psychic illness or deficiencies with a permanent character”; <strong>and</strong> (b) <strong>the</strong>impossibility for <strong>the</strong> pers<strong>on</strong> to exercise self-determ<strong>in</strong>ati<strong>on</strong> 256 due to that illness orimpairment. The <strong>in</strong>capacitati<strong>on</strong> is generally followed with <strong>the</strong> appo<strong>in</strong>tment <strong>of</strong> aguardian who substitutes <strong>the</strong> pers<strong>on</strong>‟s decisi<strong>on</strong> mak<strong>in</strong>g. In certa<strong>in</strong> cases though <strong>the</strong>court, based <strong>on</strong> Article 267 <strong>of</strong> <strong>the</strong> Spanish Civil Code, may <strong>in</strong>dicate acti<strong>on</strong>s that <strong>the</strong><strong>in</strong>capacitated pers<strong>on</strong> is authorised to carry out <strong>on</strong> his/her own.Limited guardianship is also provided for <strong>in</strong> Spa<strong>in</strong> with <strong>the</strong> appo<strong>in</strong>tment <strong>of</strong> a curator toassist <strong>the</strong> <strong>in</strong>capacitated pers<strong>on</strong> <strong>in</strong> a series <strong>of</strong> acts expressly <strong>in</strong>dicated <strong>in</strong> <strong>the</strong> judicial<strong>in</strong>capacitati<strong>on</strong> order. In this case decisi<strong>on</strong> mak<strong>in</strong>g is usually <strong>on</strong> a co-decisi<strong>on</strong> basis. 257Curatorship is not <strong>in</strong>tended to substitute, but ra<strong>the</strong>r complement <strong>the</strong> will <strong>of</strong> <strong>the</strong> pers<strong>on</strong>subject to <strong>the</strong> curatorship, who should be <strong>in</strong>volved <strong>in</strong> <strong>the</strong> decisi<strong>on</strong> mak<strong>in</strong>g. Whilecuratorship is under Spanish Law a less restrictive measure <strong>in</strong> <strong>the</strong> decisi<strong>on</strong> mak<strong>in</strong>gprocess, it should be po<strong>in</strong>ted out that it is excepti<strong>on</strong>ally used by <strong>the</strong> court <strong>in</strong> situati<strong>on</strong>s<strong>of</strong> capacity assessment <strong>of</strong> pers<strong>on</strong>s with <strong>in</strong>tellectual or psycho-social disabilities.In c<strong>on</strong>clusi<strong>on</strong>, guardianship systems can deprive pers<strong>on</strong>s with disabilities <strong>of</strong> <strong>the</strong>ir rightto make decisi<strong>on</strong>s about <strong>the</strong>ir own life, <strong>and</strong> <strong>in</strong> exercis<strong>in</strong>g <strong>the</strong>ir legal capacity <strong>on</strong> anequal basis with o<strong>the</strong>rs. Problems aris<strong>in</strong>g out from guardianship systems illustrateimportant challenges to <strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong> Article 12 UN CRPD. Systemslike curatorship <strong>in</strong> Spa<strong>in</strong>, which is based <strong>on</strong> co-decisi<strong>on</strong>, seem to have positiveelements <strong>and</strong> allow for <strong>the</strong> establishment <strong>of</strong> a supportive decisi<strong>on</strong> mak<strong>in</strong>g system forpers<strong>on</strong>s with disabilities. However, <strong>the</strong> pre-c<strong>on</strong>diti<strong>on</strong> <strong>of</strong> <strong>in</strong>capacitati<strong>on</strong> makes <strong>the</strong>curatorship system <strong>in</strong>c<strong>on</strong>sistent with <strong>the</strong> UN CRPD requirement to recognise pers<strong>on</strong>swith disabilities as holders <strong>of</strong> rights.A positive effort <strong>of</strong> legislative reform to recognise legal capacity <strong>of</strong> pers<strong>on</strong>s withdisabilities has been taken <strong>in</strong> Hungary, which is <strong>in</strong> process <strong>of</strong> codificati<strong>on</strong> <strong>of</strong> its CivilCode. Reforms <strong>on</strong> <strong>the</strong> Civil Code aim to abolish plenary guardianship <strong>and</strong> <strong>in</strong>troducemeasures for supportive decisi<strong>on</strong> mak<strong>in</strong>g for pers<strong>on</strong>s with disabilities. 258256 The literal translati<strong>on</strong> <strong>of</strong> <strong>the</strong> word<strong>in</strong>g used <strong>in</strong> Article 200 (impidan a la pers<strong>on</strong>a gobernarse por símisma) would be „that prevents <strong>the</strong> pers<strong>on</strong> to govern<strong>in</strong>g him/herself‟257 See Articles 287-289 <strong>of</strong> <strong>the</strong> Spanish Civil Code, available (<strong>in</strong> Spanish) athttp://civil.udg.es/normacivil/estatal/CC/INDEXCC.htm258 An un<strong>of</strong>ficial English translati<strong>on</strong> <strong>of</strong> <strong>the</strong> articles <strong>of</strong> <strong>the</strong> Hungarian Civil Code relat<strong>in</strong>g to legal capacity<strong>and</strong> guardianship can be downloaded from <strong>the</strong> website <strong>of</strong> <strong>the</strong> Mental Disability Advocacy Centre,available at: http://www.mdac.<strong>in</strong>fo/en/webfm_send/18Page | 96
The follow<strong>in</strong>g elements <strong>of</strong> <strong>the</strong> future reforms, if entered <strong>in</strong>to force, 259 could bec<strong>on</strong>sidered as positive efforts to ensure legal capacity for pers<strong>on</strong>s with disabilities. Thereforms require that <strong>the</strong> pers<strong>on</strong>‟s legal capacity rema<strong>in</strong>s <strong>in</strong>tact <strong>and</strong> enables a network<strong>of</strong> supporters to assist <strong>the</strong> disabled pers<strong>on</strong> <strong>in</strong> mak<strong>in</strong>g his/her own decisi<strong>on</strong>s, <strong>the</strong>rebyenhanc<strong>in</strong>g his/her self-determ<strong>in</strong>ati<strong>on</strong>. Accord<strong>in</strong>g to <strong>the</strong> reforms, a pers<strong>on</strong> <strong>of</strong> legal agemay designate <strong>on</strong>e or more pers<strong>on</strong>s to support him/her when mak<strong>in</strong>g decisi<strong>on</strong> <strong>in</strong> agiven area (or areas). 260 The support to be given to a pers<strong>on</strong> will also be regulated by<strong>the</strong> new Civil Code <strong>and</strong> will <strong>in</strong>clude safeguards <strong>in</strong> order to ensure that support doesnot result <strong>in</strong> restricti<strong>on</strong>s. 261 These reforms could become <strong>the</strong> vehicle for effectiveimplementati<strong>on</strong> <strong>of</strong> Article 12 UN CRPD.Never<strong>the</strong>less, an issue still rema<strong>in</strong>s to be addressed if Hungary is to achieve full <strong>and</strong>effective implementati<strong>on</strong> <strong>of</strong> Article 12 UN CRPD. This is <strong>the</strong> rema<strong>in</strong><strong>in</strong>g form <strong>of</strong> partialguardianship, which should be applied by <strong>the</strong> court “if no o<strong>the</strong>r provisi<strong>on</strong> which doesnot limit legal capacity would result <strong>in</strong> protect<strong>in</strong>g <strong>the</strong> affected pers<strong>on</strong> from harm”. 262 Inthis case, <strong>the</strong> evaluati<strong>on</strong> <strong>of</strong> a pers<strong>on</strong>‟s „discreti<strong>on</strong>ary ability‟ serves <strong>the</strong> basis for <strong>the</strong>acknowledgment (or lack) <strong>of</strong> his/her legal capacity. The evaluati<strong>on</strong> <strong>of</strong> <strong>the</strong> discreti<strong>on</strong>aryability <strong>of</strong> a pers<strong>on</strong> should be „decisi<strong>on</strong>-specific‟ 263 <strong>and</strong> is a complex assessment. Thelatter <strong>in</strong>cludes, <strong>in</strong>ter alia, <strong>the</strong> assessment <strong>of</strong> <strong>the</strong> pers<strong>on</strong>‟s ability to make decisi<strong>on</strong>s <strong>in</strong> abroad range <strong>of</strong> matters, <strong>and</strong> an analysis <strong>of</strong> <strong>the</strong> human <strong>and</strong> f<strong>in</strong>ancial resourcesallocated <strong>in</strong> <strong>the</strong> social envir<strong>on</strong>ment <strong>of</strong> <strong>the</strong> pers<strong>on</strong>. In such an assessment pr<strong>of</strong>essi<strong>on</strong>alsfrom a diverse range <strong>of</strong> fields are <strong>in</strong>cluded, for example, psychiatrists, psychologists,special educators, social workers <strong>and</strong> o<strong>the</strong>rs. Follow<strong>in</strong>g <strong>the</strong> necessary assessment,restricti<strong>on</strong>s <strong>on</strong> a pers<strong>on</strong>‟s legal capacity will <strong>in</strong>volve specific areas (e.g. f<strong>in</strong>ancialmanagement) <strong>of</strong> decisi<strong>on</strong> mak<strong>in</strong>g. Even if <strong>in</strong> cases <strong>of</strong> partial guardianship decisi<strong>on</strong>s(aga<strong>in</strong>) need to be made jo<strong>in</strong>tly by <strong>the</strong> disabled adult <strong>and</strong> <strong>the</strong> guardian, it appears that259 It was anticipated that <strong>the</strong> new Hungarian Civil Code would enter <strong>in</strong>to force <strong>in</strong> <strong>the</strong> sec<strong>on</strong>d quarter <strong>of</strong>2010. However, <strong>on</strong> April 27 th , 2010 <strong>the</strong> Hungarian C<strong>on</strong>stituti<strong>on</strong>al Court declared as unc<strong>on</strong>stituti<strong>on</strong>al <strong>the</strong>parliamentary Act c<strong>on</strong>firm<strong>in</strong>g 1 May 2010 as <strong>the</strong> date <strong>on</strong> which Book 1 <strong>and</strong> 2 <strong>of</strong> <strong>the</strong> Civil Code wouldenter <strong>in</strong>to force. Book 2 c<strong>on</strong>ta<strong>in</strong>s a wealth <strong>of</strong> reforms relevant to pers<strong>on</strong>s with disabilities, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong>aboliti<strong>on</strong> <strong>of</strong> plenary guardianship <strong>and</strong> <strong>the</strong> <strong>in</strong>troducti<strong>on</strong> <strong>of</strong> supported decisi<strong>on</strong> mak<strong>in</strong>g <strong>and</strong> advancedirectives. More <strong>in</strong>formati<strong>on</strong> are available at: http://mdac.<strong>in</strong>fo/en/c<strong>on</strong>stituti<strong>on</strong>al-court-underm<strong>in</strong>es-legalstatus-hunga260 See Book 2, Chapter III, Article 2:16 <strong>of</strong> <strong>the</strong> Code referr<strong>in</strong>g to „<strong>the</strong> advanced directive‟.261 See Book 2, Chapter III, Articles 2:18 to 2:21 <strong>of</strong> <strong>the</strong> Code.262 See Book 2, Chapter III, Article 2:22 <strong>of</strong> <strong>the</strong> Civil Code.263 The „discreti<strong>on</strong>ary power‟ <strong>of</strong> a pers<strong>on</strong> to make a decisi<strong>on</strong> does not <strong>on</strong>ly depend <strong>on</strong> <strong>the</strong> ability <strong>of</strong> <strong>the</strong>pers<strong>on</strong> to decide, but also <strong>on</strong> <strong>the</strong> nature <strong>of</strong> <strong>the</strong> decisi<strong>on</strong>, <strong>and</strong> its future implicati<strong>on</strong>s to <strong>the</strong> pers<strong>on</strong>‟s life.Therefore, legal capacity depends <strong>on</strong> <strong>the</strong> relati<strong>on</strong> between <strong>the</strong> discreti<strong>on</strong>ary power <strong>of</strong> <strong>the</strong> pers<strong>on</strong> <strong>and</strong> <strong>the</strong>abilities “dem<strong>and</strong>ed” by a decisi<strong>on</strong> to be taken. For fur<strong>the</strong>r details see “The experiences <strong>of</strong> <strong>the</strong>implementati<strong>on</strong> <strong>of</strong> Article 12 UN CRPD <strong>in</strong> Hungary”, by <strong>the</strong> Hungarian Associati<strong>on</strong> <strong>of</strong> Pers<strong>on</strong>s withIntellectual disabilities (EFOESZ), at www.efoesz.huPage | 97
<strong>the</strong> law may lack sufficient safeguards to ensure that decisi<strong>on</strong> mak<strong>in</strong>g will not besubstituted. 264A <strong>good</strong> legislative reform for matters related to legal capacity <strong>of</strong> pers<strong>on</strong>s withdisabilities has been <strong>in</strong>troduced <strong>in</strong> Sweden, which has abolished <strong>the</strong> guardianshipsystem by replac<strong>in</strong>g it with a comprehensive range <strong>of</strong> support measures. As Dr.Palacios has written, “Sweden represents perhaps <strong>the</strong> most paradigmatic case <strong>of</strong> lawreform”. 265 In 1989, total <strong>in</strong>capacitati<strong>on</strong> was abolished from <strong>the</strong> Swedish legal system,<strong>and</strong> replaced by support measures known as godmanskap (curatorship) <strong>and</strong> <strong>the</strong> morerestrictive forvaltarskap (tutorship). The rules cover<strong>in</strong>g both types <strong>of</strong> measures arepr<strong>in</strong>cipally found <strong>in</strong> Sweden‟s Family Code. 266Curatorship is <strong>the</strong> least restrictive form <strong>of</strong> assistance that an <strong>in</strong>dividual can receive. Apers<strong>on</strong> can decide whe<strong>the</strong>r s/he is <strong>in</strong> need <strong>of</strong> assistance <strong>in</strong> exercis<strong>in</strong>g his/her rights, oradm<strong>in</strong>istrat<strong>in</strong>g his/her property, or tak<strong>in</strong>g care <strong>of</strong> him/herself. In such cases, <strong>the</strong> courtcan, if necessary, with <strong>the</strong> c<strong>on</strong>sent <strong>of</strong> <strong>the</strong> pers<strong>on</strong> <strong>in</strong> questi<strong>on</strong>, appo<strong>in</strong>t a curator. An<strong>in</strong>dividual assisted by a curator reta<strong>in</strong>s his/her legal capacity to act. In <strong>the</strong> excepti<strong>on</strong>alcase that <strong>the</strong> curator proceeds with an act without <strong>the</strong> c<strong>on</strong>sent <strong>of</strong> <strong>the</strong> supportedpers<strong>on</strong>, <strong>the</strong>n <strong>the</strong> latter is not bound by <strong>the</strong> act.However, where a pers<strong>on</strong> is placed under tutorship, s/he has limited legal capacity toact. Where a pers<strong>on</strong> is unable to appreciate her/his own needs, <strong>the</strong> court can, <strong>in</strong> caseswhere a curator will not suffice, appo<strong>in</strong>t a tutor with a specific m<strong>and</strong>ate to cover acerta<strong>in</strong> area <strong>of</strong> activities. With<strong>in</strong> <strong>the</strong> scope <strong>of</strong> <strong>the</strong> tutor‟s m<strong>and</strong>ate, <strong>the</strong> pers<strong>on</strong> undertutorship does not have capacity to act. The pers<strong>on</strong> reta<strong>in</strong>s <strong>the</strong> right to make decisi<strong>on</strong>sabout o<strong>the</strong>r f<strong>in</strong>ancial affairs outside <strong>of</strong> <strong>the</strong> tutor‟s m<strong>and</strong>ate <strong>and</strong> also reta<strong>in</strong>s <strong>the</strong> right tovote. Tutorship will <strong>on</strong>ly be applied where curatorship will not meet <strong>the</strong> needs <strong>of</strong> <strong>the</strong>pers<strong>on</strong> <strong>in</strong> questi<strong>on</strong>.Accord<strong>in</strong>gly, Sweden has, for many years now, recognised supportive legal capacity,<strong>and</strong> <strong>the</strong> curatorship system can be c<strong>on</strong>sidered as a <strong>good</strong> practice. However, <strong>the</strong>impositi<strong>on</strong> <strong>of</strong> tutorship though, <strong>and</strong> <strong>the</strong> c<strong>on</strong>sequent loss <strong>of</strong> capacity to act <strong>in</strong> certa<strong>in</strong>264 See OHCHR, Day <strong>of</strong> General Discussi<strong>on</strong> <strong>on</strong> <strong>the</strong> right to equal recogniti<strong>on</strong> before <strong>the</strong> Law, 21 October2009, written submissi<strong>on</strong> from <strong>the</strong> Mental Disability Advocacy Center <strong>and</strong> <strong>the</strong> Hungarian Associati<strong>on</strong> forPers<strong>on</strong>s with Intellectual Disability (7/09/09), available at:http://www2.ohchr.org/SPdocs/CRPD/DGD21102009/MDACHungary.doc265 Dr. Palacios Brief<strong>in</strong>g paper for <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g> VC/2008/1214, see supra note 248266 European Parliament, Directorate-General Internal Policies, Comparative <str<strong>on</strong>g>Study</str<strong>on</strong>g> <strong>on</strong> <strong>the</strong> LegalSystems <strong>of</strong> <strong>the</strong> Protecti<strong>on</strong> <strong>of</strong> Adults Lack<strong>in</strong>g Legal Capacity, Nati<strong>on</strong>al Rules <strong>of</strong> Private Law, <strong>of</strong> PrivateInternati<strong>on</strong>al Law <strong>and</strong> a Possible Legislative Initiative <strong>of</strong> <strong>the</strong> European Uni<strong>on</strong>, November 2008, p.98-119Page | 98
areas, may challenge <strong>the</strong> successful implementati<strong>on</strong> <strong>of</strong> Article 12 UN CRPD, <strong>and</strong> <strong>in</strong>particular <strong>the</strong> requirement not to substitute a pers<strong>on</strong>‟s will <strong>and</strong> preferences. 267F<strong>in</strong>ally, with regard to <strong>the</strong> European Uni<strong>on</strong>, <strong>the</strong> Council Decisi<strong>on</strong> 2010/48/EC did notexplicitly refer to competence for matters related to Article 12 UN CRPD. As no<strong>in</strong>strument was listed <strong>in</strong> <strong>the</strong> Appendix <strong>of</strong> <strong>the</strong> Decisi<strong>on</strong>, EU <strong>practices</strong> will not bepresented <strong>in</strong> this report. However, as is clear from <strong>the</strong> examples presented above, at<strong>the</strong> Member States level implementati<strong>on</strong> <strong>of</strong> Article 12 UN CRPD poses some criticalchallenges that <strong>the</strong> EU may assist Member States <strong>in</strong> address<strong>in</strong>g. This could beachieved by encourag<strong>in</strong>g cooperati<strong>on</strong> between EU Member States, <strong>and</strong> exchange <strong>of</strong>experiences <strong>and</strong> <strong>good</strong> <strong>practices</strong> that will c<strong>on</strong>tribute to <strong>the</strong> development <strong>of</strong> a comm<strong>on</strong>underst<strong>and</strong><strong>in</strong>g <strong>of</strong> <strong>the</strong> recogniti<strong>on</strong> <strong>of</strong> legal capacity. However, several critical issuesneed to be c<strong>on</strong>sidered <strong>in</strong> this respect. Firstly, <strong>the</strong> diverse nature <strong>of</strong> legal capacitysystems established <strong>in</strong> <strong>the</strong> Member States makes facilitati<strong>on</strong> to establish a comm<strong>on</strong>underst<strong>and</strong><strong>in</strong>g <strong>on</strong> <strong>the</strong> recogniti<strong>on</strong> <strong>of</strong> legal capacity difficult. Sec<strong>on</strong>dly, <strong>the</strong> establishment<strong>of</strong> effective supportive decisi<strong>on</strong> mak<strong>in</strong>g measures seems challeng<strong>in</strong>g <strong>in</strong> a c<strong>on</strong>textwhere most Member State legislati<strong>on</strong> is rooted <strong>in</strong> <strong>the</strong> substitute decisi<strong>on</strong>-mak<strong>in</strong>gmodel. When it comes to transpos<strong>in</strong>g <strong>the</strong> legal obligati<strong>on</strong>, deriv<strong>in</strong>g from Article 12 UNCRPD <strong>in</strong>to domestic legal systems, <strong>the</strong> first dilemma which clearly arises is whe<strong>the</strong>rParties to <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> shall abolish <strong>in</strong>capacitati<strong>on</strong> <strong>and</strong> guardianship remedies.Even if not explicitly stated <strong>in</strong> Article 12, hav<strong>in</strong>g regard to <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>‟s object <strong>and</strong>purpose, <strong>the</strong> paradigm shift, def<strong>in</strong>iti<strong>on</strong> <strong>of</strong> disability discrim<strong>in</strong>ati<strong>on</strong>, <strong>the</strong> general pr<strong>in</strong>ciples(Article 3 UN CRPD), <strong>and</strong> <strong>the</strong> systematic <strong>in</strong>terpretati<strong>on</strong> <strong>of</strong> Article 12, a review <strong>of</strong><strong>in</strong>capacitati<strong>on</strong> <strong>and</strong> guardianship remedies <strong>in</strong> exist<strong>in</strong>g domestic legislati<strong>on</strong>s is renderednecessary. As some domestic experiences have proven, it is possible to protectwithout restrict<strong>in</strong>g <strong>the</strong> <strong>in</strong>dividual‟s aut<strong>on</strong>omy.F<strong>in</strong>ally, dur<strong>in</strong>g <strong>the</strong> ratificati<strong>on</strong> process some Member States have issued <strong>in</strong>terpretativedeclarati<strong>on</strong>s <strong>in</strong> relati<strong>on</strong> to Article 12 UN CRPD. Therefore, it will be a real challenge for<strong>the</strong> EU to facilitate a comm<strong>on</strong> approach towards reservati<strong>on</strong>s <strong>on</strong> <strong>the</strong> UN CRPD <strong>in</strong> thisarea. When address<strong>in</strong>g <strong>the</strong> issue <strong>of</strong> reservati<strong>on</strong>s EU Member States should c<strong>on</strong>siderthat:“The limitati<strong>on</strong>s that pers<strong>on</strong>s with disabilities may face <strong>in</strong> relati<strong>on</strong> to <strong>the</strong>ir legal capacitywill impact directly <strong>in</strong> <strong>the</strong> exercise <strong>and</strong> enjoyment <strong>of</strong> all human rights enshr<strong>in</strong>ed <strong>in</strong> <strong>the</strong> UNCRPD. Fur<strong>the</strong>rmore, peremptory norms <strong>in</strong> a treaty shall not be subject <strong>of</strong> reservati<strong>on</strong>. In267 The published results <strong>of</strong> <strong>the</strong> Swedish nati<strong>on</strong>al screen<strong>in</strong>g exercise note that <strong>the</strong> Disability Movementstated that some <strong>of</strong> <strong>the</strong> provisi<strong>on</strong>s <strong>in</strong> Chapter 11 <strong>of</strong> <strong>the</strong> Parental Code may need to be revised so that itis clear that an order <strong>of</strong> tutorship is replaced by curatorship or o<strong>the</strong>r less restrictive <strong>in</strong>terventi<strong>on</strong>s when<strong>the</strong> <strong>in</strong>dividual no l<strong>on</strong>ger needs a tutor. The <strong>in</strong>vestigator c<strong>on</strong>cludes however that Swedish law meets <strong>the</strong>requirements <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>in</strong> this area. Available athttp://www.reger<strong>in</strong>gen.se/c<strong>on</strong>tent/1/c6/10/19/18/516a2b36.pdfPage | 99
elati<strong>on</strong> to article 16 <strong>of</strong> <strong>the</strong> ICCPR <strong>the</strong> Human Rights Committee has declared that„reservati<strong>on</strong>s that <strong>of</strong>fend peremptory norms would not be compatible with <strong>the</strong> object <strong>and</strong>purpose <strong>of</strong> <strong>the</strong> Covenant‟”. 2684.2.2 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 12States Parties should undertake a screen<strong>in</strong>g exercise to assess whe<strong>the</strong>r all pers<strong>on</strong>swith disabilities are recognised at all times <strong>and</strong> <strong>in</strong> all situati<strong>on</strong>s as pers<strong>on</strong>s with legalrights <strong>and</strong> duties, <strong>in</strong>clud<strong>in</strong>g recogniti<strong>on</strong> as a matter <strong>of</strong> law, as well as practice. For suchpurposes it will be necessary to adopt some measures such as:Review<strong>in</strong>g exist<strong>in</strong>g legislati<strong>on</strong>, repeal<strong>in</strong>g those discrim<strong>in</strong>atory provisi<strong>on</strong>sc<strong>on</strong>ta<strong>in</strong><strong>in</strong>g references to disabilities, or to impairments, as a prec<strong>on</strong>diti<strong>on</strong> for<strong>in</strong>capacitati<strong>on</strong> (e.g. pers<strong>on</strong>s with dementia, deaf-bl<strong>in</strong>d etc), <strong>and</strong> placementunder plenary (full) guardianship.Review<strong>in</strong>g exist<strong>in</strong>g legislati<strong>on</strong>, repeal<strong>in</strong>g those provisi<strong>on</strong>s which, while notmak<strong>in</strong>g a direct reference to a disability, or to impairments, have <strong>the</strong> <strong>in</strong>tenti<strong>on</strong>or <strong>the</strong> effect <strong>of</strong> apply<strong>in</strong>g to pers<strong>on</strong>s with disabilities (e.g. grounds <strong>of</strong><strong>in</strong>capacitati<strong>on</strong> due to disabilities, or impairments, that will deprive a pers<strong>on</strong> <strong>of</strong>his/her right to mak<strong>in</strong>g decisi<strong>on</strong>s).Review<strong>in</strong>g exist<strong>in</strong>g legislati<strong>on</strong> <strong>in</strong> order to abolish <strong>in</strong>capacitati<strong>on</strong> procedures.This may require <strong>the</strong> creati<strong>on</strong> <strong>of</strong> a new <strong>in</strong>stituti<strong>on</strong> which could be named“procedure for <strong>the</strong> support <strong>on</strong> <strong>the</strong> exercise <strong>of</strong> legal capacity”.In <strong>the</strong> review processes it will be necessary to take <strong>in</strong>to account:The development <strong>of</strong> proposals <strong>in</strong> order to abolish <strong>in</strong>capacitati<strong>on</strong> <strong>and</strong> establishsupportive decisi<strong>on</strong> mak<strong>in</strong>g models meet<strong>in</strong>g <strong>the</strong> requirements enshr<strong>in</strong>ed <strong>in</strong><strong>the</strong> UN CRPD. In this respect, <strong>the</strong> establishment <strong>of</strong> <strong>the</strong> support process asenvisaged by Article 12 is a complex task that: (i) will need a carefulc<strong>on</strong>siderati<strong>on</strong> <strong>of</strong> different proposals; (ii) should be clearly determ<strong>in</strong>ed, <strong>in</strong>c<strong>on</strong>sultati<strong>on</strong> with <strong>the</strong> relevant key actors; <strong>and</strong> (iii) will need to be graduallyimplemented.Proposals to develop new <strong>in</strong>stituti<strong>on</strong>s <strong>in</strong> order to replace <strong>in</strong>capacitati<strong>on</strong> <strong>and</strong>guardianship.268 General Comment No. 24: Issues relat<strong>in</strong>g to reservati<strong>on</strong>s made up<strong>on</strong> ratificati<strong>on</strong> or accessi<strong>on</strong> to <strong>the</strong>Covenant or <strong>the</strong> Opti<strong>on</strong>al Protocols <strong>the</strong>reto, or <strong>in</strong> relati<strong>on</strong> to declarati<strong>on</strong>s under article 41 <strong>of</strong> <strong>the</strong>Covenant, 04/11/94. CCPR/C/21/Rev.1/Add.6, General Comment No. 24. (General Comments).Paragraph 8Page | 100
C<strong>on</strong>sultati<strong>on</strong> with key actors, especially with civil society represent<strong>in</strong>g pers<strong>on</strong>swith disabilities.The need to arrange adequate f<strong>in</strong>ancial <strong>and</strong> human resources. Tra<strong>in</strong><strong>in</strong>g forjudicial authorities, civil servants, pers<strong>on</strong>s with disabilities, pers<strong>on</strong>s support<strong>in</strong>gpers<strong>on</strong>s with disabilities, <strong>and</strong> any o<strong>the</strong>r relevant actor should also bearranged.The implementati<strong>on</strong> <strong>of</strong> Article 12 UN CRPD requires <strong>the</strong> recogniti<strong>on</strong> <strong>of</strong> <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong>equality <strong>and</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> <strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong> legal capacity. Specifically, ensur<strong>in</strong>g<strong>the</strong> right to exercise legal capacity requires explicit legal recogniti<strong>on</strong> <strong>of</strong> <strong>the</strong>presumpti<strong>on</strong> <strong>of</strong> legal capacity <strong>on</strong> an equal basis with o<strong>the</strong>rs, <strong>and</strong> recogniti<strong>on</strong> <strong>of</strong> <strong>the</strong>presumpti<strong>on</strong> <strong>of</strong> legal capacity for children <strong>and</strong> young pers<strong>on</strong>s with disabilitiesequivalent to that accorded to o<strong>the</strong>r children <strong>and</strong> young pers<strong>on</strong>s.States Parties‟ legislati<strong>on</strong> should ensure that pers<strong>on</strong>s with disabilities (all types <strong>of</strong>disabilities) have <strong>the</strong> same right as o<strong>the</strong>rs <strong>in</strong> <strong>the</strong> exercise <strong>of</strong> <strong>the</strong>ir <strong>in</strong>dividual aut<strong>on</strong>omy,<strong>and</strong> <strong>the</strong>refore should be recognised as competent to perform legally significant acts.Supported decisi<strong>on</strong> mak<strong>in</strong>g, where required, should be understood as a supportivemeasure <strong>and</strong> should not give rise to a lesser degree <strong>of</strong> legal capacity. 269 Therefore,States Parties should ensure <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> appropriate support measures forpers<strong>on</strong>s with disabilities to exercise legal capacity <strong>on</strong> an equal basis with o<strong>the</strong>rs, <strong>and</strong>directed at pers<strong>on</strong>al decisi<strong>on</strong>-mak<strong>in</strong>g, as opposed to decisi<strong>on</strong>-mak<strong>in</strong>g by a third party.States Parties should also ensure <strong>the</strong> availability <strong>of</strong> effective safeguards aga<strong>in</strong>stabuse <strong>of</strong> supported decisi<strong>on</strong>-mak<strong>in</strong>g arrangements, <strong>in</strong>clud<strong>in</strong>g measures to ensure thatsuch arrangements:a. respect rights <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>and</strong> <strong>the</strong>ir will <strong>and</strong> preferences;b. are free from c<strong>on</strong>flict <strong>of</strong> <strong>in</strong>terest <strong>and</strong> undue <strong>in</strong>fluence;c. are proporti<strong>on</strong>ate to <strong>the</strong> pers<strong>on</strong>‟s need for assistance, <strong>and</strong> are <strong>the</strong> least restrictivenecessary, <strong>and</strong> tailored to <strong>the</strong> circumstances <strong>and</strong> needs <strong>of</strong> <strong>the</strong> specific <strong>in</strong>dividualto whom <strong>the</strong>y relate;d. are limited <strong>and</strong> last <strong>on</strong>ly for <strong>the</strong> period <strong>the</strong>y are required; <strong>and</strong>e. are subject to regular review by an <strong>in</strong>dependent <strong>and</strong> impartial authority.States Parties are required to ensure that pers<strong>on</strong>s with disabilities are able to own <strong>and</strong><strong>in</strong>herit property. Therefore, States Parties should adopt legal provisi<strong>on</strong>s to allow269 See Dr. William Rowl<strong>and</strong>, Chair <strong>of</strong> <strong>the</strong> Internati<strong>on</strong>al Disability Alliance, statement at <strong>the</strong> Open-endedc<strong>on</strong>sultati<strong>on</strong> <strong>on</strong> key legal measures for <strong>the</strong> ratificati<strong>on</strong> <strong>and</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong>Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities, Geneva, 24 October 2008.Page | 101
pers<strong>on</strong>s with disabilities to acquire, hold, dispose, <strong>and</strong> <strong>in</strong>herit property <strong>on</strong> an equalbasis with o<strong>the</strong>rs. For this purpose, States Parties should also ensure that <strong>the</strong>re are nosituati<strong>on</strong>s <strong>in</strong> which pers<strong>on</strong>s with disabilities are deprived <strong>of</strong> <strong>the</strong>ir property withoutproper lawful reas<strong>on</strong>.States Parties should adopt legal provisi<strong>on</strong>s <strong>and</strong> <strong>practices</strong> to protect <strong>the</strong> <strong>in</strong>heritancerights <strong>of</strong> pers<strong>on</strong>s with disabilities, <strong>and</strong> ensure access to credit <strong>on</strong> an equal basis witho<strong>the</strong>rs. Screen<strong>in</strong>g measures should determ<strong>in</strong>e whe<strong>the</strong>r any <strong>of</strong> <strong>the</strong> terms <strong>and</strong> c<strong>on</strong>diti<strong>on</strong>sup<strong>on</strong> which credit is provided c<strong>on</strong>stitutes discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> ground <strong>of</strong> disability.States Parties should ensure that pers<strong>on</strong>s with disabilities are able to c<strong>on</strong>trol <strong>the</strong>ir ownf<strong>in</strong>ancial affairs <strong>on</strong> an equal basis with o<strong>the</strong>rs, <strong>in</strong>clud<strong>in</strong>g recogniti<strong>on</strong> <strong>of</strong> <strong>the</strong>presumpti<strong>on</strong> <strong>of</strong> capacity to c<strong>on</strong>trol <strong>the</strong>ir f<strong>in</strong>ancial affairs <strong>on</strong> an equal basis with o<strong>the</strong>rs,<strong>and</strong> recogniti<strong>on</strong> <strong>of</strong> <strong>the</strong> presumpti<strong>on</strong> <strong>of</strong> capacity for children <strong>and</strong> young pers<strong>on</strong>s withdisabilities to c<strong>on</strong>trol <strong>the</strong>ir f<strong>in</strong>ancial affairs equivalent to that accorded to o<strong>the</strong>r children<strong>and</strong> young pers<strong>on</strong>s.States Parties should provide support to facilitate <strong>the</strong> exercise <strong>of</strong> capacity to c<strong>on</strong>trolf<strong>in</strong>ancial affairs <strong>on</strong> an equal basis with o<strong>the</strong>rs.F<strong>in</strong>ally, States Parties should ensure that <strong>the</strong>re are effective safeguards aga<strong>in</strong>stabuse <strong>of</strong> supported f<strong>in</strong>ancial management arrangements, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> types <strong>of</strong>measures referenced above <strong>in</strong> relati<strong>on</strong> to supported decisi<strong>on</strong>-mak<strong>in</strong>g.4.2.3 Article 19 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong>Article 19 UN CRPD recognises <strong>the</strong> right <strong>of</strong> pers<strong>on</strong>s with disabilities to live<strong>in</strong>dependently <strong>and</strong> be <strong>in</strong>cluded <strong>in</strong> <strong>the</strong> community. Article 19 can be seen as a logicalextensi<strong>on</strong> <strong>of</strong> Article 12 UN CRPD, <strong>in</strong> <strong>the</strong> sense that recogniti<strong>on</strong> <strong>of</strong> legal capacityrestores <strong>the</strong> „power‟ <strong>of</strong> pers<strong>on</strong>s with disabilities to decide about <strong>the</strong>ir own lives, while<strong>the</strong> right to <strong>in</strong>dependent liv<strong>in</strong>g paves <strong>the</strong> way for pers<strong>on</strong>s with disabilities to choosehow to live <strong>the</strong>ir lives. Article 19 also c<strong>on</strong>nects to <strong>the</strong> right to liberty <strong>and</strong> security <strong>of</strong>pers<strong>on</strong> (Article 14 UN CRPD).Article 19 c<strong>on</strong>textualizes that right for <strong>the</strong> specific situati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities<strong>and</strong> <strong>the</strong>ir liv<strong>in</strong>g arrangements. Of particular c<strong>on</strong>cern to <strong>the</strong> drafters dur<strong>in</strong>g <strong>the</strong>negotiati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD was <strong>the</strong> elim<strong>in</strong>ati<strong>on</strong> <strong>of</strong> liv<strong>in</strong>g arrangements thatsegregated <strong>and</strong> isolated pers<strong>on</strong>s with disabilities (e.g. <strong>in</strong>stituti<strong>on</strong>alisati<strong>on</strong>), <strong>and</strong> that alltoo <strong>of</strong>ten represented <strong>the</strong> choices <strong>of</strong> o<strong>the</strong>rs. Article 19 thus requires States Parties toensure that pers<strong>on</strong>s with disabilities are able to live <strong>in</strong> <strong>the</strong> community withaccommodati<strong>on</strong> opti<strong>on</strong>s equal to o<strong>the</strong>rs, <strong>and</strong> that <strong>the</strong>se opti<strong>on</strong>s support <strong>the</strong> <strong>in</strong>clusi<strong>on</strong><strong>and</strong> participati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> <strong>the</strong> life <strong>of</strong> <strong>the</strong> community. Article 19Page | 102
emphasises that pers<strong>on</strong>s with disabilities should be able to choose with whom <strong>the</strong>ylive <strong>on</strong> an equal basis with o<strong>the</strong>rs. In order to realize <strong>the</strong>se freedoms, States Partiesare obliged to ensure that pers<strong>on</strong>s with disabilities have access to <strong>the</strong> supportservices <strong>the</strong>y require <strong>in</strong> order to live freely <strong>in</strong> <strong>the</strong> community, <strong>and</strong> avoid isolati<strong>on</strong> <strong>and</strong>segregati<strong>on</strong> from <strong>the</strong> community. These support services <strong>in</strong>clude <strong>in</strong>-home support,residential <strong>and</strong> community support services, <strong>and</strong> pers<strong>on</strong>al care. F<strong>in</strong>ally, Article 19requires that ma<strong>in</strong>stream community services <strong>and</strong> facilities are available <strong>and</strong>resp<strong>on</strong>sive to <strong>the</strong> needs <strong>of</strong> pers<strong>on</strong>s with disabilities so as to facilitate <strong>the</strong>ir freedom tolive <strong>in</strong> <strong>and</strong> be a part <strong>of</strong> <strong>the</strong> community.Research for this study <strong>in</strong> <strong>the</strong> EU Member States has revealed that many challengesto <strong>the</strong> successful implementati<strong>on</strong> <strong>of</strong> Article 19 UN CRPD exist. First <strong>of</strong> all,<strong>in</strong>stituti<strong>on</strong>alisati<strong>on</strong> is a practice that still exists <strong>in</strong> many Member States <strong>and</strong> hampers<strong>the</strong> social <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities. Nati<strong>on</strong>al policies to improve <strong>in</strong>stituti<strong>on</strong>alcare, <strong>in</strong>stead <strong>of</strong> mov<strong>in</strong>g residents <strong>of</strong> such <strong>in</strong>stituti<strong>on</strong>s <strong>in</strong> <strong>the</strong> community, are<strong>in</strong>c<strong>on</strong>sistent with <strong>the</strong> UN CRPD requirements. 270 In cases where nati<strong>on</strong>al policiespromote disabled pers<strong>on</strong>s‟ <strong>in</strong>dependent liv<strong>in</strong>g, <strong>the</strong> frequent absence <strong>of</strong> directpayments, or <strong>in</strong>dividualised fund<strong>in</strong>g schemes, to allow pers<strong>on</strong>s with disabilities tomanage <strong>the</strong>ir own affairs is a significant challenge to effective implementati<strong>on</strong> <strong>of</strong> <strong>the</strong>right to <strong>in</strong>dependent liv<strong>in</strong>g. In cases where direct payment opti<strong>on</strong>s are provided by <strong>the</strong>State, pers<strong>on</strong>s with physical disabilities are more likely to avail <strong>of</strong> this opti<strong>on</strong> than thosewith <strong>in</strong>tellectual disabilities. Therefore, it appears that nati<strong>on</strong>al <strong>practices</strong> relevant toArticle 19 UN CRPD are not fully <strong>in</strong>clusive <strong>of</strong> all pers<strong>on</strong>s with disabilities, as requiredby <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. The lack <strong>of</strong> community-based services, due to <strong>in</strong>sufficient fund<strong>in</strong>g,is yet ano<strong>the</strong>r challenge to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> Article 19 UN CRPD. The <strong>in</strong>adequateallocati<strong>on</strong> <strong>of</strong> resources for <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> <strong>the</strong> required hours <strong>of</strong> pers<strong>on</strong>al assistance tosupport liv<strong>in</strong>g <strong>and</strong> <strong>in</strong>clusi<strong>on</strong> <strong>in</strong> <strong>the</strong> community, as envisaged by Article 19 UN CRPD, isa comm<strong>on</strong> problem. C<strong>on</strong>sider<strong>in</strong>g <strong>the</strong> requirements <strong>of</strong> Article 19 UN CRPD, illustrativecase studies from Slovenia <strong>and</strong> F<strong>in</strong>l<strong>and</strong> are provided below with <strong>the</strong> aim todem<strong>on</strong>strate some <strong>of</strong> <strong>the</strong> challenges identified by this study, <strong>and</strong> some <strong>good</strong> <strong>practices</strong>that may c<strong>on</strong>tribute to <strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong> Article 19 UN CRPD.In Slovenia, <strong>the</strong> <strong>in</strong>stituti<strong>on</strong>alisati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities is a significant problem.As <strong>the</strong> HLGD noted <strong>in</strong> its sec<strong>on</strong>d report <strong>on</strong> <strong>the</strong> UN CRPD, 2,375 adults with specialneeds <strong>in</strong> Slovenia (psycho-social disabilities, sensory disturbances <strong>and</strong> physically270 This is <strong>the</strong> case for Bulgaria, for example, where, as ANED comments, nati<strong>on</strong>al debate is focused <strong>on</strong>improv<strong>in</strong>g <strong>the</strong> quality <strong>of</strong> <strong>in</strong>stituti<strong>on</strong>al care, ra<strong>the</strong>r than creat<strong>in</strong>g c<strong>on</strong>diti<strong>on</strong>s for children <strong>and</strong> adults to live <strong>in</strong><strong>the</strong>ir own communities. It should be noted though that some small steps towards <strong>in</strong>dependent liv<strong>in</strong>g arecurrently taken. See ANED, Report <strong>on</strong> <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> policies support<strong>in</strong>g <strong>in</strong>dependent liv<strong>in</strong>g fordisabled people – Bulgaria. Available at http://www.disability-europe.net/c<strong>on</strong>tent/pdf/BG-6-Request-07%20ANED_2009_Task_5_template_Bulgaria_to%20publish_to%20EC.pdfPage | 103
impaired pers<strong>on</strong>s) live <strong>in</strong> <strong>in</strong>stituti<strong>on</strong>al care, while 505 children <strong>and</strong> young pers<strong>on</strong>s withpsycho-social disabilities <strong>and</strong> physical impairments are also <strong>in</strong>stituti<strong>on</strong>alised.Regard<strong>in</strong>g de-<strong>in</strong>stituti<strong>on</strong>alisati<strong>on</strong>, <strong>the</strong> High Level Group <strong>on</strong> Disability has noted that apilot project called “<strong>in</strong>dividualised f<strong>in</strong>anc<strong>in</strong>g” is currently <strong>in</strong> operati<strong>on</strong>. Under this project,beneficiaries receive m<strong>on</strong>ey <strong>and</strong> can pay for services directly. However, it is also notedthat currently <strong>on</strong>ly fifteen pers<strong>on</strong>s benefit from this project. 271 In 2009, <strong>the</strong> EuropeanCoaliti<strong>on</strong> for Community Liv<strong>in</strong>g published a Focus Report <strong>on</strong> Article 19 UN CRPD,<strong>in</strong>clud<strong>in</strong>g an <strong>in</strong>terview with Elena Pecaric, <strong>the</strong> Chair <strong>of</strong> <strong>the</strong> Associati<strong>on</strong> for <strong>the</strong> Theory<strong>and</strong> Culture <strong>of</strong> H<strong>and</strong>icap (YHD) <strong>in</strong> Slovenia. Ms. Pecaric emphasized that Slovenia‟smajor problem is that funds are tied <strong>in</strong>to <strong>in</strong>stituti<strong>on</strong>s, argu<strong>in</strong>g that:If a disabled pers<strong>on</strong> lives <strong>in</strong> a l<strong>on</strong>g stay residential <strong>in</strong>stituti<strong>on</strong>, liv<strong>in</strong>g expenses are coveredby <strong>the</strong> State, with funds given directly to <strong>the</strong> <strong>in</strong>stituti<strong>on</strong>. Disabled people who choose tolive al<strong>on</strong>e or by <strong>the</strong>mselves lose this f<strong>in</strong>ancial support. This means that disabled peoplewho want to live <strong>in</strong>dependently need to have a source <strong>of</strong> <strong>in</strong>come, or be f<strong>in</strong>anciallysupported by <strong>the</strong>ir families. 272As is evident, State fund<strong>in</strong>g for <strong>in</strong>stituti<strong>on</strong>al care <strong>and</strong> <strong>the</strong> lack <strong>of</strong> efficient <strong>in</strong>dividualisedfund<strong>in</strong>g schemes discourage <strong>in</strong>dependent liv<strong>in</strong>g <strong>and</strong> social <strong>in</strong>clusi<strong>on</strong> for pers<strong>on</strong>s withdisabilities.In F<strong>in</strong>l<strong>and</strong>, however, some <strong>good</strong> legislative measures have been established topromote <strong>in</strong>dependent liv<strong>in</strong>g; however practical implementati<strong>on</strong> seems to be <strong>in</strong>sufficient.In 1987 <strong>the</strong> F<strong>in</strong>nish government adopted <strong>the</strong> Services <strong>and</strong> Assistance for <strong>the</strong> DisabledAct, with <strong>the</strong> aim to promote <strong>in</strong>dependent liv<strong>in</strong>g <strong>and</strong> equal opportunities. The Act is,however, subsidiary, which means that municipalities, primarily <strong>on</strong> <strong>the</strong> basis <strong>of</strong> generallegislati<strong>on</strong>, should provide <strong>the</strong> necessary services <strong>and</strong> supportive measures. 273Specifically, <strong>the</strong> Act requires municipalities “to ensure that services <strong>and</strong> assistance forpeople with disabilities are provided <strong>in</strong> <strong>the</strong> form <strong>and</strong> <strong>on</strong> <strong>the</strong> scale needed <strong>in</strong> <strong>the</strong> localcommunity”. Therefore a municipality may reimburse <strong>in</strong> full or partially a disabledpers<strong>on</strong> for costs <strong>in</strong>curred by <strong>the</strong> employment <strong>of</strong> a pers<strong>on</strong>al assistant <strong>and</strong>/or <strong>the</strong>purchase <strong>of</strong> devices, mach<strong>in</strong>es <strong>and</strong> equipment needed. Amendments to thislegislati<strong>on</strong>, which entered <strong>in</strong>to force <strong>in</strong> September 2009, <strong>in</strong>troduced rights to assistance271 See Sec<strong>on</strong>d High Level Group Report <strong>on</strong> Disability, p. 192272 European Coaliti<strong>on</strong> for Community Liv<strong>in</strong>g, Focus <strong>on</strong> Article 19 <strong>of</strong> <strong>the</strong> UN C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong>Pers<strong>on</strong>s with Disabilities, “We Want Equal, Not Special Treatment!” p.34. Available athttp://www.community-liv<strong>in</strong>g.<strong>in</strong>fo/<strong>in</strong>dex.php?page=308&news=423273 Details <strong>on</strong> F<strong>in</strong>nish Disability Services can be found <strong>in</strong> English <strong>on</strong> <strong>the</strong> website <strong>of</strong> <strong>the</strong> M<strong>in</strong>istry <strong>of</strong> SocialAffairs <strong>and</strong> Health at http://pre20031103.stm.fi/english/pao/publicat/disabili/disabili.htmPage | 104
for domestic, social, educati<strong>on</strong>al <strong>and</strong> employment purposes, as well as a right to 30hours per m<strong>on</strong>th <strong>of</strong> pers<strong>on</strong>al assistance to support recreati<strong>on</strong> <strong>and</strong> social <strong>in</strong>teracti<strong>on</strong>. 274The aforementi<strong>on</strong>ed legislative measures seem to be <strong>in</strong> l<strong>in</strong>e with requirements set forth<strong>in</strong> <strong>the</strong> UN CRPD, as <strong>the</strong>y provide f<strong>in</strong>ancial support to pers<strong>on</strong>s with disabilities, <strong>and</strong> take<strong>in</strong>to account not <strong>on</strong>ly support for liv<strong>in</strong>g arrangements, but also for educati<strong>on</strong>al,employment <strong>and</strong> social <strong>in</strong>clusi<strong>on</strong> purposes, which are necessary for <strong>in</strong>dependent liv<strong>in</strong>g.N<strong>on</strong>e<strong>the</strong>less, <strong>the</strong> F<strong>in</strong>nish ANED report <strong>on</strong> <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> policies support<strong>in</strong>g<strong>in</strong>dependent liv<strong>in</strong>g for pers<strong>on</strong>s with disabilities identified some problems that illustratepossible challenges to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> Article 19 UN CRPD, such as <strong>the</strong>existence with<strong>in</strong> <strong>the</strong> current system <strong>of</strong> limitati<strong>on</strong>s, such as lack <strong>of</strong> resources, assistants,<strong>and</strong> tra<strong>in</strong><strong>in</strong>g to meet pers<strong>on</strong>al needs <strong>in</strong> some areas. 275 Fur<strong>the</strong>rmore, resistance fromsome municipalities to <strong>the</strong> move from traditi<strong>on</strong>al services to <strong>the</strong> use <strong>of</strong> communitysupport services is also noted as a problem. This reluctance arises from c<strong>on</strong>cernsam<strong>on</strong>g municipalities about <strong>the</strong> possible expansi<strong>on</strong> <strong>of</strong> dem<strong>and</strong> for pers<strong>on</strong>al assistants<strong>and</strong> <strong>the</strong> associated challenges <strong>of</strong> costs <strong>and</strong> recruitments. 276 The European Regi<strong>on</strong>alReport <strong>in</strong> <strong>the</strong> Internati<strong>on</strong>al Disability Rights M<strong>on</strong>itor <strong>of</strong> 2007 stated that <strong>the</strong>re are majordifferences <strong>in</strong> availability <strong>of</strong> services based <strong>on</strong> both regi<strong>on</strong> <strong>of</strong> <strong>the</strong> country <strong>and</strong> type <strong>of</strong>disability. 277 Shortages are noted regard<strong>in</strong>g available <strong>in</strong>terpretati<strong>on</strong>, transportati<strong>on</strong> <strong>and</strong>pers<strong>on</strong>al assistance services. It is fur<strong>the</strong>r noted that <strong>the</strong> m<strong>in</strong>imum amounts <strong>of</strong> servicesprovided for <strong>in</strong> <strong>the</strong> Decree (759/1987) <strong>on</strong> Services <strong>and</strong> Assistance for <strong>the</strong> Disabledhave <strong>in</strong> reality become <strong>the</strong> maximum amounts allocated. 278 C<strong>on</strong>sequently, even ifF<strong>in</strong>l<strong>and</strong> has <strong>in</strong>troduced support services that could c<strong>on</strong>tribute to <strong>the</strong> positiveimplementati<strong>on</strong> <strong>of</strong> <strong>the</strong> right <strong>of</strong> pers<strong>on</strong>s with disabilities to live <strong>in</strong>dependently <strong>in</strong> <strong>the</strong>community, practical implementati<strong>on</strong> should probably be m<strong>on</strong>itored <strong>and</strong> re<strong>in</strong>forced.Support services should be resp<strong>on</strong>sive to <strong>the</strong> needs <strong>of</strong> pers<strong>on</strong>s with disabilities, <strong>and</strong>should receive adequate fund<strong>in</strong>g. Fund<strong>in</strong>g management <strong>and</strong> distributi<strong>on</strong> may als<strong>on</strong>eed to be regulated, <strong>in</strong> order to ensure that f<strong>in</strong>ancial support will be provided to allpers<strong>on</strong>s with disabilities.With regards to <strong>the</strong> European Uni<strong>on</strong>, <strong>the</strong> Council Decisi<strong>on</strong> 2010/48/EC stated thatcompetence <strong>in</strong> <strong>the</strong> field <strong>of</strong> <strong>in</strong>dependent liv<strong>in</strong>g is shared with Member States. With <strong>the</strong>aim <strong>of</strong> illustrat<strong>in</strong>g <strong>the</strong> extent <strong>of</strong> such competence, <strong>the</strong> Council listed several <strong>in</strong>struments274 ANED Independent Liv<strong>in</strong>g Report: F<strong>in</strong>l<strong>and</strong>. Available at http://www.disability-europe.net/c<strong>on</strong>tent/pdf/FI-11-Request-07%20ANED%202009%20Task%205%20request%20template%20(2)_approved%20by%20author_to%20publish_reference%20check_to%20EC.pdf275 Ibid p. 7276 Ibid277 IDRM Report 2007, supra note 166, p. 139278 IbidPage | 105
elated to <strong>the</strong> functi<strong>on</strong><strong>in</strong>g <strong>of</strong> <strong>the</strong> <strong>in</strong>ternal market (<strong>in</strong> particular <strong>in</strong>direct taxati<strong>on</strong> <strong>and</strong> stateaid), which are relevant to Article 19 UN CRPD. Instruments <strong>of</strong> such nature couldelim<strong>in</strong>ate barriers to <strong>the</strong> right <strong>of</strong> pers<strong>on</strong>s with disabilities to <strong>in</strong>dependent liv<strong>in</strong>g (forexample, <strong>in</strong>accessible, or <strong>in</strong>sufficient, <strong>good</strong>s <strong>and</strong> services). For example, <strong>in</strong>strumentsrelated to <strong>the</strong> <strong>in</strong>ternal market could provide <strong>in</strong>centives (ma<strong>in</strong>ly ec<strong>on</strong>omic) to <strong>in</strong>crease<strong>the</strong> accessibility <strong>of</strong> accessible <strong>good</strong>s <strong>and</strong> services, which are <strong>of</strong> great importance forpers<strong>on</strong>s with disabilities; encourage <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> <strong>good</strong>s <strong>and</strong> services that areresp<strong>on</strong>sive to disabled pers<strong>on</strong>s needs; promote research <strong>on</strong> new <strong>and</strong> <strong>in</strong>novativetechnologies, <strong>and</strong> universal design; promote tra<strong>in</strong><strong>in</strong>g for pr<strong>of</strong>essi<strong>on</strong>als work<strong>in</strong>g with, orfor, pers<strong>on</strong>s with disabilities; <strong>and</strong> <strong>in</strong> o<strong>the</strong>r fields. More importantly, EU measures (<strong>of</strong>ei<strong>the</strong>r hard or s<strong>of</strong>t law nature) <strong>in</strong> this field could discourage <strong>the</strong> tendency <strong>of</strong> States t<strong>of</strong>und <strong>in</strong>stituti<strong>on</strong>al care that restricts <strong>the</strong> aut<strong>on</strong>omy <strong>and</strong> <strong>in</strong>dependence <strong>of</strong> pers<strong>on</strong>s withdisabilities. Therefore, c<strong>on</strong>sider<strong>in</strong>g EU competence <strong>in</strong> <strong>the</strong> field <strong>of</strong> <strong>in</strong>dependent liv<strong>in</strong>g, aselecti<strong>on</strong> <strong>of</strong> EU <strong>in</strong>struments <strong>in</strong>cluded <strong>in</strong> <strong>the</strong> Council Decisi<strong>on</strong> <strong>on</strong> <strong>the</strong> c<strong>on</strong>clusi<strong>on</strong> <strong>of</strong> <strong>the</strong>UN CRPD by <strong>the</strong> European Uni<strong>on</strong> are outl<strong>in</strong>ed below.Commissi<strong>on</strong> Regulati<strong>on</strong> No 800/2008/EC (General Block Exempti<strong>on</strong> Regulati<strong>on</strong>,here<strong>in</strong>after referred to as GBER) 279 simplified EU State aid c<strong>on</strong>trol rules. 280 To thispurpose, State support measures <strong>in</strong> areas listed <strong>in</strong> <strong>the</strong> GBER benefit from anexempti<strong>on</strong> from <strong>the</strong> „notificati<strong>on</strong> requirement‟. If <strong>the</strong> c<strong>on</strong>diti<strong>on</strong>s set forth <strong>in</strong> <strong>the</strong> GBERare met, such support does not c<strong>on</strong>stitute State aid, <strong>and</strong> <strong>the</strong>refore Member States arefree to award it to companies without enter<strong>in</strong>g <strong>in</strong>to any adm<strong>in</strong>istrative procedure, i.e.without hav<strong>in</strong>g to notify it to <strong>the</strong> Commissi<strong>on</strong>. 281The GBER has established a framework to allow Member States to grant aid targetedat job creati<strong>on</strong>, boost<strong>in</strong>g competitiveness <strong>and</strong> improv<strong>in</strong>g <strong>the</strong> envir<strong>on</strong>ment. Aid shouldbe aimed at a well-def<strong>in</strong>ed objective <strong>of</strong> a comm<strong>on</strong> <strong>in</strong>terest. In view <strong>of</strong> <strong>the</strong> UN CRPDimplementati<strong>on</strong>, such a comm<strong>on</strong> <strong>in</strong>terest should be, for example, <strong>the</strong> promoti<strong>on</strong> <strong>of</strong> <strong>the</strong>design <strong>of</strong> accessible <strong>good</strong>s, or enhanc<strong>in</strong>g employment <strong>of</strong> workers with disabilities, orencourag<strong>in</strong>g tra<strong>in</strong><strong>in</strong>g for pr<strong>of</strong>essi<strong>on</strong>als work<strong>in</strong>g with, or for, pers<strong>on</strong>s with disabilities, or279 Commissi<strong>on</strong> Regulati<strong>on</strong> (EC) No 800/2008 <strong>of</strong> 6 August 2008 declar<strong>in</strong>g certa<strong>in</strong> categories <strong>of</strong> aidcompatible with <strong>the</strong> comm<strong>on</strong> market <strong>in</strong> applicati<strong>on</strong> <strong>of</strong> Articles 87 <strong>and</strong> 88 <strong>of</strong> <strong>the</strong> Treaty - General blockexempti<strong>on</strong> Regulati<strong>on</strong>, [2008] OJ L 214.280 See Article 87(1) TEC. This article provides that State aid is, <strong>in</strong> pr<strong>in</strong>ciple, <strong>in</strong>compatible with <strong>the</strong>comm<strong>on</strong> market. Under Article 88 TEC, <strong>the</strong> Commissi<strong>on</strong> is given <strong>the</strong> task to c<strong>on</strong>trol State aid. Thisarticle also requires Member States to <strong>in</strong>form <strong>the</strong> Commissi<strong>on</strong> <strong>in</strong> advance <strong>of</strong> any plan to grant State aid(“notificati<strong>on</strong> requirement”). See also previous Regulati<strong>on</strong>s, such as Regulati<strong>on</strong> (EC) No 994/98 referr<strong>in</strong>gto certa<strong>in</strong> categories <strong>of</strong> horiz<strong>on</strong>tal State aid, Regulati<strong>on</strong> (EC) No 68/2001 address<strong>in</strong>g tra<strong>in</strong><strong>in</strong>g aid,Regulati<strong>on</strong> (EC) No 2204/2002 address<strong>in</strong>g employment aid, <strong>and</strong> o<strong>the</strong>rs.281 Member States are <strong>in</strong>stead required to submit to <strong>the</strong> Commissi<strong>on</strong> a summary descripti<strong>on</strong> <strong>of</strong> <strong>the</strong> aidmeasure with<strong>in</strong> 20 work<strong>in</strong>g days follow<strong>in</strong>g <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> measure. For measures exemptedfrom notificati<strong>on</strong> under <strong>the</strong> GBER, Member States also have an obligati<strong>on</strong> to publish <strong>on</strong> <strong>the</strong> <strong>in</strong>ternet <strong>the</strong>full text <strong>of</strong> <strong>the</strong> measure, <strong>and</strong> to keep it posted as l<strong>on</strong>g as it is <strong>in</strong> effect.Page | 106
support<strong>in</strong>g research for <strong>the</strong> development <strong>of</strong> <strong>in</strong>novative soluti<strong>on</strong>s that will enhance<strong>in</strong>dependent liv<strong>in</strong>g <strong>and</strong> social <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities. The Regulati<strong>on</strong>authorises aid <strong>in</strong> favour <strong>of</strong> small <strong>and</strong> medium enterprises (SMEs), research, <strong>in</strong>novati<strong>on</strong>,regi<strong>on</strong>al development, tra<strong>in</strong><strong>in</strong>g, employment, aid <strong>in</strong> <strong>the</strong> form risk capital, <strong>and</strong> aid tobenefit disadvantaged or disabled workers. The latter covers aid which is granted tocover additi<strong>on</strong>al costs <strong>in</strong>curred by a company for <strong>the</strong> recruitment <strong>and</strong> employment <strong>of</strong>pers<strong>on</strong>s with disabilities <strong>in</strong> <strong>the</strong> form <strong>of</strong> wage subsidies. 282 In 2009, <strong>the</strong> EuropeanCommissi<strong>on</strong> underl<strong>in</strong>ed <strong>the</strong> necessary positive effects <strong>of</strong> such aid, stat<strong>in</strong>g that:State aid for <strong>the</strong> employment <strong>of</strong> disabled workers must result <strong>in</strong> <strong>the</strong> aid beneficiarychang<strong>in</strong>g its behaviour so that <strong>the</strong> aid results <strong>in</strong> a net <strong>in</strong>crease <strong>in</strong> <strong>the</strong> number <strong>of</strong> disabledemployees <strong>in</strong> <strong>the</strong> undertak<strong>in</strong>g c<strong>on</strong>cerned. 283Besides employment, <strong>the</strong> GBER provides ec<strong>on</strong>omic <strong>in</strong>centives for SMEs to <strong>in</strong>vest <strong>in</strong><strong>in</strong>novati<strong>on</strong>, universally designed <strong>and</strong> accessible <strong>good</strong>s <strong>and</strong> services. Fur<strong>the</strong>rmore, <strong>the</strong>Regulati<strong>on</strong> provides for aid for research <strong>on</strong> development <strong>and</strong> <strong>in</strong>novative design (orimprovement) <strong>of</strong> products, services, processes, facilities <strong>and</strong> o<strong>the</strong>rs. Even if disability isnot explicitly menti<strong>on</strong>ed <strong>in</strong> <strong>the</strong> GBER <strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong> research, <strong>in</strong> view <strong>of</strong> <strong>the</strong> UNCRPD implementati<strong>on</strong> by <strong>the</strong> EU, aid <strong>in</strong> this field should encourage research <strong>on</strong>universal design <strong>and</strong> <strong>in</strong>novative technologies that would be resp<strong>on</strong>sive to disabledpers<strong>on</strong>s‟ needs, <strong>and</strong> enhance <strong>the</strong>ir accessibility <strong>and</strong> <strong>in</strong>dependent liv<strong>in</strong>g. F<strong>in</strong>ally,ano<strong>the</strong>r important element <strong>of</strong> <strong>the</strong> GBER is <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> aid related to employees‟tra<strong>in</strong><strong>in</strong>g. Aga<strong>in</strong>, disability is not explicitly menti<strong>on</strong> <strong>in</strong> this secti<strong>on</strong>, though <strong>in</strong> view <strong>of</strong> <strong>the</strong>UN CRPD, any support measure <strong>in</strong> relati<strong>on</strong> to tra<strong>in</strong><strong>in</strong>g should be <strong>in</strong>clusive <strong>of</strong>, <strong>and</strong>accessible to, pers<strong>on</strong>s with disabilities, <strong>and</strong> bear <strong>in</strong> m<strong>in</strong>d <strong>the</strong> general purpose <strong>and</strong>pr<strong>in</strong>ciples <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>.C<strong>on</strong>sequently, <strong>the</strong> GBER recognises <strong>the</strong> positive effects <strong>of</strong> aid, <strong>and</strong> allows MemberStates to promote (by means <strong>of</strong>, <strong>in</strong>ter alia, tax reliefs) <strong>in</strong>dependent liv<strong>in</strong>g for pers<strong>on</strong>swith disabilities, through <strong>the</strong>ir <strong>in</strong>clusi<strong>on</strong> <strong>in</strong> employment, <strong>and</strong> <strong>the</strong> development <strong>of</strong><strong>in</strong>novative technologies. The GBER appears to c<strong>on</strong>ta<strong>in</strong> several <strong>good</strong> elements <strong>and</strong>can c<strong>on</strong>tribute to <strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. However, as a partyto <strong>the</strong> UN CRPD, <strong>the</strong> Uni<strong>on</strong> should clarify that any type <strong>of</strong> aid to be given should notdefeat <strong>the</strong> purpose, <strong>and</strong> general pr<strong>in</strong>ciples <strong>of</strong> <strong>the</strong> UN CRPD. F<strong>in</strong>ally, State aid shouldfur<strong>the</strong>r enhance <strong>the</strong> right <strong>of</strong> pers<strong>on</strong>s with disabilities to <strong>in</strong>dependent liv<strong>in</strong>g, <strong>and</strong> be<strong>in</strong>clusive <strong>of</strong> pers<strong>on</strong>s with disabilities.282 See Articles 41 – 42 GBER283 Communicati<strong>on</strong> from <strong>the</strong> Commissi<strong>on</strong> - Criteria for <strong>the</strong> analysis <strong>of</strong> <strong>the</strong> compatibility <strong>of</strong> State aid for <strong>the</strong>employment <strong>of</strong> disadvantaged <strong>and</strong> disabled workers subject to <strong>in</strong>dividual notificati<strong>on</strong>, 2009/C 188/02, <strong>in</strong>OJ C/188 <strong>of</strong> 11.8.2009. Aim<strong>in</strong>g to avoid „abuse‟ <strong>of</strong> State aid, <strong>the</strong> Commissi<strong>on</strong> fur<strong>the</strong>r clarified <strong>in</strong> itsCommunicati<strong>on</strong>, that “aid cannot be used to replace workers <strong>in</strong> respect <strong>of</strong> whom <strong>the</strong> undertak<strong>in</strong>g nol<strong>on</strong>ger receives a subsidy <strong>and</strong> who have c<strong>on</strong>sequently been dismissed”.Page | 107
Ano<strong>the</strong>r <strong>in</strong>strument related to <strong>in</strong>dependent liv<strong>in</strong>g is Council Directive 83/181/EECwhich determ<strong>in</strong>es <strong>the</strong> scope <strong>of</strong> Article 14(1)(d) <strong>of</strong> Directive 77/388/EEC regard<strong>in</strong>gexempti<strong>on</strong> from value added tax (VAT) <strong>on</strong> <strong>the</strong> f<strong>in</strong>al importati<strong>on</strong> <strong>of</strong> certa<strong>in</strong> <strong>good</strong>s. 284Many providers <strong>of</strong> <strong>good</strong>s <strong>and</strong> services for pers<strong>on</strong>s with disabilities are benefitDirectives 83/181/EEC <strong>and</strong> 77/388/EEC. Specifically Article 13(A)(1) <strong>of</strong> Directive77/388/EEC requires Member States to exempt from VAT "certa<strong>in</strong> activities <strong>in</strong> <strong>the</strong>public <strong>in</strong>terest". These activities <strong>in</strong>clude, <strong>in</strong>ter alia, hospital <strong>and</strong> medical care, <strong>good</strong>s<strong>and</strong> services closely l<strong>in</strong>ked to welfare <strong>and</strong> social security, educati<strong>on</strong> <strong>and</strong> tra<strong>in</strong><strong>in</strong>g, <strong>and</strong>o<strong>the</strong>rs. To benefit from an exempti<strong>on</strong>, providers should obta<strong>in</strong> prior authorisati<strong>on</strong> from<strong>the</strong> Member State <strong>in</strong> which <strong>the</strong>y are established. This means that such providers <strong>of</strong><strong>good</strong>s <strong>and</strong> service are exempt from <strong>the</strong> need to file VAT returns or to charge VATtaxes to <strong>the</strong>ir clients. In additi<strong>on</strong> to exempti<strong>on</strong>s set forth <strong>in</strong> Directive 77/388/EEC,Chapter II <strong>of</strong> Directive 83/181/EEC clarifies that <strong>in</strong> some circumstances, <strong>the</strong>importati<strong>on</strong> <strong>of</strong> <strong>good</strong>s which are for <strong>the</strong> exclusive use <strong>of</strong> pers<strong>on</strong>s with disabilities arealso VAT exempt. Specifically, Article 46 <strong>of</strong> <strong>the</strong> Directive provides that:(1) Articles specially designed for <strong>the</strong> educati<strong>on</strong>, employment or social advancement <strong>of</strong>bl<strong>in</strong>d or o<strong>the</strong>r physically or mentally h<strong>and</strong>icapped pers<strong>on</strong>s shall be exempt <strong>on</strong> admissi<strong>on</strong>where: (a) <strong>the</strong>y are imported by <strong>in</strong>stituti<strong>on</strong>s or organisati<strong>on</strong>s that are pr<strong>in</strong>cipally engaged<strong>in</strong> <strong>the</strong> educati<strong>on</strong> <strong>of</strong> or <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> assistance to h<strong>and</strong>icapped pers<strong>on</strong>s <strong>and</strong> areauthorised by <strong>the</strong> competent Authorities <strong>of</strong> <strong>the</strong> Member States to receive such articlesexempt from VAT; <strong>and</strong> (b) <strong>the</strong>y are d<strong>on</strong>ated to such <strong>in</strong>stituti<strong>on</strong>s or organisati<strong>on</strong>s free <strong>of</strong>charge <strong>and</strong> with no commercial <strong>in</strong>tent <strong>on</strong> <strong>the</strong> part <strong>of</strong> <strong>the</strong> d<strong>on</strong>or.(2) Exempti<strong>on</strong> shall apply to specific spare parts, comp<strong>on</strong>ents or accessories specificallyfor <strong>the</strong> articles <strong>in</strong> questi<strong>on</strong> <strong>and</strong> to <strong>the</strong> tools to be used for <strong>the</strong> ma<strong>in</strong>tenance, check<strong>in</strong>g,calibrati<strong>on</strong> <strong>and</strong> repair <strong>of</strong> <strong>the</strong> said articles, provided that such spare parts, comp<strong>on</strong>ents,accessories or tools are imported at <strong>the</strong> same time as <strong>the</strong> said articles or, if importedsubsequently, that <strong>the</strong>y can be identified as be<strong>in</strong>g <strong>in</strong>tended for articles previously exempt<strong>on</strong> admissi<strong>on</strong> or which would be eligible to be so exempt at <strong>the</strong> time when such entry isrequested for <strong>the</strong> specific spare parts, comp<strong>on</strong>ents or accessories <strong>and</strong> tools <strong>in</strong> questi<strong>on</strong>.Articles exempt <strong>on</strong> admissi<strong>on</strong> may not be used for purposes o<strong>the</strong>r than <strong>the</strong> educati<strong>on</strong>,employment <strong>and</strong> social advancement <strong>of</strong> bl<strong>in</strong>d or o<strong>the</strong>r h<strong>and</strong>icapped pers<strong>on</strong>s284 Council Directive 83/181/EEC <strong>of</strong> 28 March 1983 determ<strong>in</strong><strong>in</strong>g <strong>the</strong> scope <strong>of</strong> Article 14(1)(d) <strong>of</strong> Directive77/388/EEC as regards exempti<strong>on</strong> from value added tax <strong>on</strong> <strong>the</strong> f<strong>in</strong>al importati<strong>on</strong> <strong>of</strong> certa<strong>in</strong> <strong>good</strong>s, OJ L105, 23/04/1983, pp 38-58. See also, Sixth Council Directive 77/388/EEC <strong>of</strong> 17 May 1977 <strong>on</strong> <strong>the</strong>harm<strong>on</strong>izati<strong>on</strong> <strong>of</strong> <strong>the</strong> laws <strong>of</strong> <strong>the</strong> Member States relat<strong>in</strong>g to turnover taxes - Comm<strong>on</strong> system <strong>of</strong> valueadded tax: uniform basis <strong>of</strong> assessment, O.J L 145, 13/06/1977, pp 0001 - 0040Page | 108
Similar VAT exempti<strong>on</strong>s are also <strong>in</strong>cluded <strong>in</strong> Council Directive 2006/112/ECestablish<strong>in</strong>g a comm<strong>on</strong> system <strong>of</strong> value added tax, 285 as amended by Council Directive2009/47/EC 286 <strong>on</strong> reduced rates <strong>of</strong> value added tax.Directive 2006/112/EC is listed <strong>in</strong> <strong>the</strong> Appendix <strong>of</strong> Decisi<strong>on</strong> 2010/48/EC as an<strong>in</strong>strument that illustrates EU competence <strong>in</strong> <strong>the</strong> fields <strong>of</strong> work, employment, social<strong>in</strong>clusi<strong>on</strong> <strong>and</strong> <strong>in</strong>dependent liv<strong>in</strong>g, <strong>and</strong> explicitly refers to disability <strong>in</strong> its Articles 98 <strong>and</strong>106. Article 98 establishes that Member States may apply ei<strong>the</strong>r <strong>on</strong>e or two reducedrates to supplies <strong>of</strong> <strong>good</strong>s or services <strong>in</strong> <strong>the</strong> categories set out <strong>in</strong> Annex III. The latter<strong>in</strong>cludes, <strong>in</strong>ter alia, medical equipment, aids <strong>and</strong> o<strong>the</strong>r appliances normally <strong>in</strong>tended to“alleviate or treat disability to <strong>the</strong> exclusive pers<strong>on</strong>al use <strong>of</strong> <strong>the</strong> disabled”, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong>repair <strong>of</strong> such <strong>good</strong>s, <strong>and</strong> (follow<strong>in</strong>g <strong>the</strong> 2009 amendment) domestic care services,such as home help <strong>and</strong> care. 287 In additi<strong>on</strong>, Article 106 <strong>of</strong> Directive 2006/112/ECprovides that:<strong>the</strong> Council may, act<strong>in</strong>g unanimously <strong>on</strong> a proposal from <strong>the</strong> Commissi<strong>on</strong>, allow MemberStates to apply until 31 December 2010, at <strong>the</strong> latest, reduced rates provided for <strong>in</strong> Article98.Fur<strong>the</strong>rmore, Annex X <strong>of</strong> <strong>the</strong> Directive establishes that transacti<strong>on</strong>s carried out by bl<strong>in</strong>dpers<strong>on</strong>s, or by workshops for <strong>the</strong> bl<strong>in</strong>d, can be VAT exempt, provided that thoseexempti<strong>on</strong>s do not cause significant distorti<strong>on</strong>s <strong>of</strong> competiti<strong>on</strong>. F<strong>in</strong>ally, with <strong>the</strong>amendment <strong>in</strong> 2009, <strong>the</strong> applicati<strong>on</strong> <strong>of</strong> a reduced rate <strong>in</strong> <strong>the</strong> field <strong>of</strong> care for <strong>the</strong>pers<strong>on</strong>s with disabilities was no l<strong>on</strong>ger a temporary provisi<strong>on</strong> (i.e. until 31 December2010, as menti<strong>on</strong>ed <strong>in</strong> Article 106 <strong>of</strong> Directive 2006/112/EC), but became permanent.Therefore, today reduced VAT rates <strong>on</strong> labour-<strong>in</strong>tensive local services, <strong>in</strong>clud<strong>in</strong>gdomestic care services (e.g. home help <strong>and</strong> care) can be applied <strong>on</strong> a permanentbasis.In c<strong>on</strong>clusi<strong>on</strong>, <strong>in</strong>direct tax reliefs for <strong>good</strong>s <strong>and</strong> services, which are covered by <strong>the</strong>aforementi<strong>on</strong>ed Directives, <strong>and</strong> are necessary for pers<strong>on</strong>s with disabilities, lowers <strong>the</strong>ircost, <strong>and</strong> thus make <strong>the</strong>m more affordable for pers<strong>on</strong>s with disabilities. In this respect,285 Council Directive 2006/112/EC <strong>of</strong> 28 November 2006 <strong>on</strong> <strong>the</strong> comm<strong>on</strong> system <strong>of</strong> value added tax, OJL 347, 11.12.2006, p. 1-118286 Council Directive 2009/47/EC <strong>of</strong> 5 May 2009 amend<strong>in</strong>g Directive 2006/112/EC as regards reducedrates <strong>of</strong> value added tax, OJ L 116, 9.5.2009, p. 18287 It should be noted that <strong>the</strong> Commissi<strong>on</strong> had also proposed <strong>the</strong> <strong>in</strong>clusi<strong>on</strong> <strong>in</strong> Annex III <strong>of</strong> a list <strong>of</strong> <strong>good</strong>s<strong>and</strong> services with reduced rates <strong>of</strong> “medical equipment, aids <strong>and</strong> o<strong>the</strong>r appliances normally <strong>in</strong>tended toalleviate or treat disability, for <strong>the</strong> exclusive pers<strong>on</strong>al benefit <strong>of</strong> <strong>the</strong> disabled, <strong>and</strong> apparatus <strong>and</strong>electrical, electr<strong>on</strong>ic or o<strong>the</strong>r equipment <strong>and</strong> means <strong>of</strong> transport, specially designed or adapted for <strong>the</strong>disabled as well as <strong>the</strong> leas<strong>in</strong>g or hir<strong>in</strong>g <strong>and</strong> <strong>the</strong> repair <strong>of</strong> such <strong>good</strong>s; supply <strong>of</strong> domestic care services,such as home help <strong>and</strong> care <strong>of</strong> <strong>the</strong> young, elderly, sick or disabled”. However, <strong>the</strong> proposal was notapproved by <strong>the</strong> Council. See COM(2009)21, Commissi<strong>on</strong> proposal for amend<strong>in</strong>g Directive2006/112/EC <strong>on</strong> <strong>the</strong> comm<strong>on</strong> system <strong>of</strong> value added tax as regards <strong>the</strong> rules <strong>on</strong> <strong>in</strong>voic<strong>in</strong>g.Page | 109
<strong>the</strong> Directives appear to encourage <strong>and</strong> promote <strong>in</strong>dependent liv<strong>in</strong>g for pers<strong>on</strong>s withdisabilities, <strong>and</strong> could positively affect <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD. However,<strong>the</strong> European Uni<strong>on</strong> as a signatory <strong>and</strong> future party to <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>, when review<strong>in</strong>gits legislati<strong>on</strong>, could reflect <strong>on</strong> possible adaptati<strong>on</strong> to certa<strong>in</strong> parts <strong>of</strong> <strong>the</strong>aforementi<strong>on</strong>ed Directives 83/181/EEC <strong>and</strong> 2006/112/EC, 288 <strong>and</strong> <strong>in</strong>clude a clarificati<strong>on</strong>that any VAT exempti<strong>on</strong> to be awarded by <strong>the</strong> Member States should not defeat <strong>the</strong>object <strong>and</strong> purpose <strong>of</strong> <strong>the</strong> UN CRPD. That is to say, for example, that <strong>in</strong>stituti<strong>on</strong>s (ororganisati<strong>on</strong>s) that would benefit from such exempti<strong>on</strong>s should not <strong>in</strong>clude residential,or medical care, or o<strong>the</strong>r <strong>in</strong>stituti<strong>on</strong>s that restrict <strong>the</strong> aut<strong>on</strong>omy <strong>of</strong> pers<strong>on</strong>s withdisabilities. Fur<strong>the</strong>rmore, terms used <strong>in</strong> <strong>the</strong> Directives to refer to pers<strong>on</strong>s withdisabilities (e.g. physically or mentally h<strong>and</strong>icapped, <strong>the</strong> disabled, or o<strong>the</strong>r), <strong>and</strong> termsreferr<strong>in</strong>g to specific types <strong>of</strong> disabilities (e.g. <strong>the</strong> bl<strong>in</strong>d) should also be reviewed. Anyterm<strong>in</strong>ology used to refer to pers<strong>on</strong>s with disabilities should be c<strong>on</strong>sistent with <strong>the</strong>social model <strong>of</strong> disability, <strong>and</strong> be <strong>in</strong>clusive <strong>of</strong> all pers<strong>on</strong>s with disabilities.4.2.4 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 19States Parties should take measures to ensure that pers<strong>on</strong>s with disabilities are able tolive <strong>in</strong> <strong>the</strong> community with choices equal to o<strong>the</strong>rs, <strong>in</strong> particular, by enabl<strong>in</strong>g a variety<strong>of</strong> liv<strong>in</strong>g arrangements to be available to pers<strong>on</strong>s with disabilities <strong>and</strong> provid<strong>in</strong>g <strong>the</strong>same choice <strong>of</strong> liv<strong>in</strong>g arrangements as are available to o<strong>the</strong>rs.A screen<strong>in</strong>g exercise should be undertaken to determ<strong>in</strong>e <strong>the</strong> most appropriatemeasures required to remove exist<strong>in</strong>g barriers to pers<strong>on</strong>s with disabilities liv<strong>in</strong>g <strong>in</strong> <strong>the</strong>community, <strong>and</strong> to provide a choice <strong>of</strong> accommodati<strong>on</strong>, <strong>in</strong>clud<strong>in</strong>g <strong>in</strong> public <strong>and</strong> privatehous<strong>in</strong>g.Hous<strong>in</strong>g access audits are recommended to support implementati<strong>on</strong> <strong>of</strong> Article 19 UNCRPD.Focus groups, am<strong>on</strong>g o<strong>the</strong>r measures, could be helpful <strong>in</strong> assess<strong>in</strong>g whe<strong>the</strong>r pers<strong>on</strong>swith disabilities are <strong>in</strong>cluded <strong>in</strong> community life, <strong>and</strong> what barriers <strong>in</strong>hibit <strong>the</strong>participati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> community life, <strong>in</strong>clud<strong>in</strong>g barriers related to<strong>the</strong> accessibility <strong>of</strong> generic community services <strong>and</strong> facilities.An assessment should be made to determ<strong>in</strong>e whe<strong>the</strong>r pers<strong>on</strong>s with disabilities arecompelled, or obliged, to live <strong>in</strong> any particular liv<strong>in</strong>g arrangement. A core part <strong>of</strong> thisassessment requires <strong>the</strong> exam<strong>in</strong>ati<strong>on</strong> <strong>of</strong>: (a) whe<strong>the</strong>r support services are availableto pers<strong>on</strong>s with disabilities to enable <strong>the</strong>m to exercise <strong>the</strong>ir freedom to live <strong>in</strong>, <strong>and</strong> be apart <strong>of</strong>, <strong>the</strong> community; <strong>and</strong> (b) whe<strong>the</strong>r <strong>the</strong>re is effective access to any <strong>in</strong>-home288 Based <strong>on</strong> Article 106 <strong>of</strong> Directive 2006/112/EC, <strong>the</strong> Council should review <strong>the</strong> Directives, up<strong>on</strong> aproposal by <strong>the</strong> Commissi<strong>on</strong>.Page | 110
support necessary for <strong>the</strong>m to live <strong>in</strong>, <strong>and</strong> be a part <strong>of</strong>, <strong>the</strong> community. Theassessment should also determ<strong>in</strong>e whe<strong>the</strong>r pers<strong>on</strong>s with disabilities have access toresidential support necessary for community liv<strong>in</strong>g <strong>and</strong> community services. F<strong>in</strong>ally, <strong>the</strong>assessment should evaluate whe<strong>the</strong>r measures to safeguard pers<strong>on</strong>s with disabilitiesfrom isolati<strong>on</strong> <strong>and</strong> segregati<strong>on</strong> from <strong>the</strong> community are effective.4.3 Specific Accessibility RightsAccessibility features as a general pr<strong>in</strong>ciple <strong>of</strong> <strong>the</strong> UN CRPD <strong>in</strong> Article 3, <strong>and</strong> iselaborated <strong>in</strong> Article 9 (an article <strong>of</strong> general applicati<strong>on</strong>). It is <strong>the</strong>refore applicableacross <strong>the</strong> text <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. However, accessibility requires specific applicati<strong>on</strong>s<strong>in</strong> certa<strong>in</strong> fields, <strong>in</strong>clud<strong>in</strong>g <strong>in</strong>ter alia access to justice (Article 13 UN CRPD) <strong>and</strong> politicalparticipati<strong>on</strong> (Article 29 UN CRPD). Accessibility rights <strong>in</strong> <strong>the</strong> UN CRPD serve <strong>the</strong>functi<strong>on</strong> <strong>of</strong> facilitat<strong>in</strong>g access <strong>in</strong> various c<strong>on</strong>texts, <strong>in</strong>clud<strong>in</strong>g generally <strong>in</strong> <strong>the</strong> public <strong>and</strong>private spheres, <strong>and</strong> <strong>in</strong> <strong>the</strong> case <strong>of</strong> Articles 13 <strong>and</strong> 29, <strong>in</strong> access to justice <strong>and</strong> politicaldecisi<strong>on</strong>-mak<strong>in</strong>g c<strong>on</strong>texts.4.3.1 Article 13 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong>Article 13 UN CRPD c<strong>on</strong>firms <strong>the</strong> right <strong>of</strong> pers<strong>on</strong>s with disabilities to access justice <strong>in</strong>order to v<strong>in</strong>dicate <strong>the</strong>ir rights. The right to access to justice is firmly established <strong>in</strong><strong>in</strong>ternati<strong>on</strong>al law, particularly with<strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong> equality <strong>of</strong> people before <strong>the</strong> law, <strong>the</strong>right to equal protecti<strong>on</strong> under <strong>the</strong> law, <strong>and</strong> <strong>the</strong> right to be treated fairly by a tribunal orcourt. However, <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> goes bey<strong>on</strong>d formal justice noti<strong>on</strong>s <strong>of</strong> equality, <strong>and</strong>requires States Parties to ensure that pers<strong>on</strong>s with disabilities enjoy effective access tojustice <strong>on</strong> an equal basis with o<strong>the</strong>rs, which means that States Parties should providereas<strong>on</strong>able accommodati<strong>on</strong> for pers<strong>on</strong>s with disabilities. The latter c<strong>on</strong>cept is def<strong>in</strong>ed<strong>in</strong> Article 2 UN CRPD as:“[Any] necessary <strong>and</strong> appropriate modificati<strong>on</strong> <strong>and</strong> adjustments not impos<strong>in</strong>g adisproporti<strong>on</strong>ate or undue burden, where needed <strong>in</strong> a particular case, to ensure topers<strong>on</strong>s with disabilities <strong>the</strong> enjoyment, or exercise, <strong>on</strong> an equal basis with o<strong>the</strong>rs <strong>of</strong> allhuman rights <strong>and</strong> fundamental freedoms”.Article 13(1) requires procedural <strong>and</strong> age-appropriate accommodati<strong>on</strong>s <strong>in</strong> <strong>the</strong>c<strong>on</strong>text <strong>of</strong> access to justice. It fur<strong>the</strong>r requires such accommodati<strong>on</strong>s to facilitateparticipati<strong>on</strong> <strong>in</strong> judicial proceed<strong>in</strong>gs, whe<strong>the</strong>r direct or <strong>in</strong>direct (<strong>in</strong>clud<strong>in</strong>g as witnesses).Such access should cover all legal proceed<strong>in</strong>gs, <strong>and</strong> should likewise <strong>in</strong>clude<strong>in</strong>vestigative or o<strong>the</strong>r prelim<strong>in</strong>ary stages <strong>of</strong> legal proceed<strong>in</strong>gs. For example,accommodati<strong>on</strong>s may <strong>in</strong>clude adaptati<strong>on</strong>s to <strong>in</strong>vestigati<strong>on</strong> methods or <strong>in</strong>terviewPage | 111
techniques, adaptati<strong>on</strong>s to <strong>the</strong> physical envir<strong>on</strong>ment (e.g. accessible police stati<strong>on</strong>s),provisi<strong>on</strong> <strong>of</strong> documentati<strong>on</strong> <strong>in</strong> accessible formats, <strong>and</strong> o<strong>the</strong>rs.Article 13(2) requires States Parties to provide tra<strong>in</strong><strong>in</strong>g to those work<strong>in</strong>g <strong>in</strong> <strong>the</strong>adm<strong>in</strong>istrati<strong>on</strong> <strong>of</strong> justice (<strong>in</strong>clud<strong>in</strong>g pris<strong>on</strong> <strong>and</strong> police staff) <strong>in</strong> order to ensure effectiveaccess to justice by pers<strong>on</strong>s with disabilities. It should be noted that <strong>the</strong> provisi<strong>on</strong> <strong>of</strong>disability-related tra<strong>in</strong><strong>in</strong>g is <strong>on</strong>ly <strong>on</strong>e example <strong>of</strong> <strong>the</strong> type <strong>of</strong> acti<strong>on</strong> required <strong>of</strong> StatesParties by Article 13 to “fulfil” <strong>the</strong> right to access to justice. When read <strong>in</strong> c<strong>on</strong>juncti<strong>on</strong>with Article 9 UN CRPD, measures implement<strong>in</strong>g Article 13 should <strong>in</strong>clude disabilityspecificst<strong>and</strong>ards to be met by judicial authorities. In this respect, c<strong>on</strong>sultati<strong>on</strong> withpers<strong>on</strong>s with disabilities, <strong>and</strong> <strong>the</strong>ir representative organisati<strong>on</strong>s, <strong>on</strong> <strong>the</strong> elim<strong>in</strong>ati<strong>on</strong> <strong>of</strong>barriers posed by exist<strong>in</strong>g <strong>practices</strong> <strong>in</strong> relati<strong>on</strong> to access to justice is deemednecessary.Research for this study <strong>in</strong> <strong>the</strong> EU Member States has revealed that legislati<strong>on</strong> withaims to ensure effective access to justice generally exists, but ma<strong>in</strong>ly targets accessfor deaf people, through <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> sign language <strong>in</strong>terpretati<strong>on</strong>. However, signlanguage is <strong>on</strong>ly <strong>on</strong>e mode <strong>of</strong> alternative communicati<strong>on</strong>, <strong>and</strong> <strong>the</strong>refore significantchallenges rema<strong>in</strong> for pers<strong>on</strong>s with o<strong>the</strong>r disabilities, such as bl<strong>in</strong>d or visually impairedpers<strong>on</strong>s, <strong>and</strong> <strong>in</strong> particular pers<strong>on</strong>s with <strong>in</strong>tellectual disabilities, who will require o<strong>the</strong>rtypes <strong>of</strong> accommodati<strong>on</strong>. N<strong>on</strong>e<strong>the</strong>less, it should be noted that while legislati<strong>on</strong>address<strong>in</strong>g accessibility for pers<strong>on</strong>s with disabilities to justice, <strong>on</strong> an equal basis witho<strong>the</strong>rs, was identified <strong>in</strong> a number <strong>of</strong> Member States, <strong>the</strong>re is little <strong>in</strong>formati<strong>on</strong> available<strong>on</strong> how this legislati<strong>on</strong> is implemented <strong>in</strong> practice. This is <strong>the</strong> case for <strong>the</strong> <strong>in</strong>dicativeexamples <strong>of</strong> Latvia <strong>and</strong> Italy, which are presented below. N<strong>on</strong>e<strong>the</strong>less, as <strong>in</strong>dicated by<strong>the</strong> study <strong>on</strong> <strong>the</strong> situati<strong>on</strong> <strong>of</strong> women with disabilities <strong>in</strong> light <strong>of</strong> <strong>the</strong> UN CRPD, a few<strong>good</strong> examples exist <strong>in</strong> Austria, Croatia, <strong>and</strong> France. 289 In this respect <strong>the</strong> Frenchexample will be outl<strong>in</strong>ed.In Latvia, Article 11, Paragraph 2 <strong>of</strong> <strong>the</strong> Crim<strong>in</strong>al Procedure Law provides that:If a pers<strong>on</strong> who has a right to a defense, a victim <strong>and</strong> his or her representative, a witness,specialist, expert, auditor, as well as o<strong>the</strong>r pers<strong>on</strong>s who a pers<strong>on</strong> direct<strong>in</strong>g <strong>the</strong>proceed<strong>in</strong>gs has <strong>in</strong>volved <strong>in</strong> crim<strong>in</strong>al proceed<strong>in</strong>gs does not speak <strong>the</strong> <strong>of</strong>ficial language,such pers<strong>on</strong>s have <strong>the</strong> right to use <strong>the</strong> language that such pers<strong>on</strong>s underst<strong>and</strong> dur<strong>in</strong>g <strong>the</strong>performance <strong>of</strong> procedural acti<strong>on</strong>s, <strong>and</strong> to utilize <strong>the</strong> assistance <strong>of</strong> an <strong>in</strong>terpreter free <strong>of</strong>charge, whose participati<strong>on</strong> shall be ensured by <strong>the</strong> pers<strong>on</strong> direct<strong>in</strong>g <strong>the</strong> proceed<strong>in</strong>gs. Inpre-trial proceed<strong>in</strong>gs, <strong>the</strong> <strong>in</strong>vestigat<strong>in</strong>g judge or court shall provide for <strong>the</strong> participati<strong>on</strong> <strong>of</strong>289 See <str<strong>on</strong>g>Study</str<strong>on</strong>g> <strong>on</strong> <strong>the</strong> situati<strong>on</strong> <strong>of</strong> women with disabilities <strong>in</strong> light <strong>of</strong> <strong>the</strong> UN CRPD, VC/2007/0317 F<strong>in</strong>alReport for <strong>the</strong> European Commissi<strong>on</strong>, pp 86-87Page | 112
an <strong>in</strong>terpreter <strong>in</strong> <strong>the</strong> hear<strong>in</strong>g <strong>of</strong> issues that fall with<strong>in</strong> <strong>the</strong> jurisdicti<strong>on</strong> <strong>of</strong> <strong>the</strong> <strong>in</strong>vestigat<strong>in</strong>gjudge or court. 290Even though translati<strong>on</strong> <strong>in</strong>to sign language is not explicitly quoted <strong>in</strong> <strong>the</strong> Law, <strong>the</strong>HLGD <strong>in</strong>dicated that sign language is covered by it. Sign language was used for <strong>the</strong>first time <strong>in</strong> legal proceed<strong>in</strong>g <strong>in</strong> 2005, <strong>and</strong> s<strong>in</strong>ce <strong>the</strong>n its use has been <strong>in</strong>creased.Never<strong>the</strong>less, <strong>in</strong> view <strong>of</strong> <strong>the</strong> UN CRPD full <strong>and</strong> effective implementati<strong>on</strong>, access shouldbe provided for all pers<strong>on</strong>s with disabilities <strong>and</strong> not <strong>on</strong>ly for specific groups <strong>of</strong> pers<strong>on</strong>s.In Italy, <strong>the</strong> Civil <strong>and</strong> Penal Code provides for sign language <strong>in</strong>terpretati<strong>on</strong>, whenpers<strong>on</strong>s with hear<strong>in</strong>g impairments participate <strong>in</strong> a trial. Additi<strong>on</strong>ally, Law n o 67/2006provides for special measures <strong>of</strong> legal assistance <strong>in</strong> court cases <strong>in</strong>volv<strong>in</strong>g allegeddiscrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> grounds <strong>of</strong> disability, through <strong>the</strong> <strong>in</strong>terventi<strong>on</strong> <strong>of</strong> organisati<strong>on</strong>srepresentative <strong>of</strong> pers<strong>on</strong>s with disabilities. 291 Article 1 <strong>of</strong> <strong>the</strong> Law declares that <strong>the</strong> aim<strong>of</strong> <strong>the</strong> law is to promote full implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> equal treatment <strong>and</strong>equal opportunities for pers<strong>on</strong>s with disabilities <strong>in</strong> order to ensure <strong>the</strong>ir full enjoyment<strong>of</strong> civil, political, ec<strong>on</strong>omic <strong>and</strong> social rights. In additi<strong>on</strong>, Article 4 <strong>of</strong> <strong>the</strong> Law ensureslegitimati<strong>on</strong> ad causam <strong>and</strong> locus st<strong>and</strong>i are available to pers<strong>on</strong>s with disabilities, aswell as to <strong>the</strong>ir respective organisati<strong>on</strong>s, or associati<strong>on</strong>s, which are identified byM<strong>in</strong>isterial Decrees. Regard<strong>in</strong>g applicati<strong>on</strong>, Law n o 67/2006 applies to pers<strong>on</strong>s withdisabilities as def<strong>in</strong>ed <strong>in</strong> Article 3 <strong>of</strong> Law 104/2003. The latter states that pers<strong>on</strong> withdisabilities <strong>in</strong>clude those with a physical, mental or sensory impairment (permanent orprogressive), which may h<strong>in</strong>der <strong>the</strong> pers<strong>on</strong>‟s participati<strong>on</strong> <strong>in</strong> educati<strong>on</strong>, relati<strong>on</strong>ships, or<strong>in</strong> a pr<strong>of</strong>essi<strong>on</strong>al envir<strong>on</strong>ment, <strong>and</strong> which implies social disadvantages or socialexclusi<strong>on</strong> <strong>of</strong> <strong>the</strong> pers<strong>on</strong>.C<strong>on</strong>sequently, <strong>the</strong> Italian Law n o 67/2006 appears to have positive elements for <strong>the</strong>implementati<strong>on</strong> <strong>of</strong> Article 13 UN CRPD. These positive elements <strong>in</strong>clude (to someextent) <strong>the</strong> def<strong>in</strong>iti<strong>on</strong> <strong>of</strong> disability <strong>and</strong> <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> support measures through <strong>the</strong><strong>in</strong>terventi<strong>on</strong> <strong>of</strong> organisati<strong>on</strong>s representative <strong>of</strong> pers<strong>on</strong>s with disabilities. However, <strong>the</strong>explicit reference <strong>in</strong> <strong>the</strong> def<strong>in</strong>iti<strong>on</strong> <strong>of</strong> disability (even if with<strong>in</strong> a social c<strong>on</strong>text) torelati<strong>on</strong>ships <strong>and</strong> educati<strong>on</strong>al or pr<strong>of</strong>essi<strong>on</strong>al envir<strong>on</strong>ment may (if strictly <strong>in</strong>terpreted)result <strong>in</strong> exclud<strong>in</strong>g pers<strong>on</strong>s with disabilities from some sectors <strong>of</strong> <strong>the</strong> society.Additi<strong>on</strong>ally, <strong>the</strong> requirement that <strong>the</strong> civil society organisati<strong>on</strong>s have to be recognisedby M<strong>in</strong>isterial Decrees before <strong>the</strong>y assist <strong>in</strong>dividual disabled people <strong>in</strong> court cases maychallenge <strong>the</strong> practical implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> Law. F<strong>in</strong>ally, <strong>the</strong> lack <strong>of</strong> specificst<strong>and</strong>ards to be met by judicial authorities, may also prove challeng<strong>in</strong>g for <strong>the</strong> practicalimplementati<strong>on</strong> <strong>of</strong> <strong>the</strong> Law.290 Sec<strong>on</strong>d High Level Group <strong>on</strong> Disability Report, p. 121291 Sec<strong>on</strong>d High Level Group <strong>on</strong> Disability Report, p.109Page | 113
It should fur<strong>the</strong>r be noted that <strong>in</strong> Italy, <strong>in</strong> terms <strong>of</strong> legislative measures to removephysical barriers for pers<strong>on</strong>s with disabilities <strong>and</strong> accessibility laws derive also from <strong>the</strong>regi<strong>on</strong>al level (i.e. Italian Regi<strong>on</strong>s). For example, Veneto Law 16/2007 promotes<strong>in</strong>itiatives <strong>and</strong> acti<strong>on</strong>s to ensure <strong>the</strong> accessibility <strong>of</strong> public <strong>and</strong> private build<strong>in</strong>gs <strong>and</strong>spaces open to <strong>the</strong> public. The law aims to ensure that pers<strong>on</strong>s with disabilities canparticipate <strong>in</strong> social <strong>and</strong> productive activities. This regi<strong>on</strong>al law, however, has a limitedterritorial applicati<strong>on</strong>; it <strong>on</strong>ly applies with<strong>in</strong> <strong>the</strong> Veneto regi<strong>on</strong>, <strong>and</strong> c<strong>on</strong>cerns <strong>on</strong>lybuild<strong>in</strong>gs with<strong>in</strong> <strong>the</strong> territory <strong>of</strong> <strong>the</strong> regi<strong>on</strong>.In France, <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> generalised accessibility to all spheres <strong>of</strong> social life 292(employment, transport, justice etc) has been established by <strong>the</strong> Law <strong>on</strong> <strong>the</strong> Equality <strong>of</strong>Rights <strong>and</strong> Opportunities, Participati<strong>on</strong>s <strong>and</strong> Citizenship <strong>of</strong> Pers<strong>on</strong>s with Disabilities(here<strong>in</strong>after referred to as Law <strong>on</strong> Disability). 293 The Law <strong>on</strong> Disability articulates <strong>the</strong>rights <strong>of</strong> pers<strong>on</strong>s with disabilities based <strong>on</strong> <strong>the</strong> pr<strong>in</strong>ciples <strong>of</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>, accessto <strong>the</strong> built <strong>and</strong> urban envir<strong>on</strong>ment <strong>and</strong> <strong>in</strong>tegrati<strong>on</strong> <strong>in</strong> society. More importantly, it sets aclear timeframe for <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> accessibility requirements to, <strong>in</strong>ter alia, publicbuild<strong>in</strong>gs (such as courts), transport, <strong>the</strong> work envir<strong>on</strong>ment <strong>and</strong> o<strong>the</strong>rs. Fur<strong>the</strong>rmore,<strong>the</strong> law requires provisi<strong>on</strong> <strong>of</strong> sign language <strong>in</strong>terpretati<strong>on</strong>, <strong>and</strong> <strong>in</strong>formati<strong>on</strong> <strong>in</strong> Braille, forpers<strong>on</strong>s with disabilities before <strong>the</strong> civil <strong>and</strong> penal courts. 294 C<strong>on</strong>sequently, it appearsthat <strong>the</strong> French Law <strong>on</strong> Disability may c<strong>on</strong>tribute to <strong>the</strong> positive implementati<strong>on</strong> <strong>of</strong> <strong>the</strong>general pr<strong>in</strong>ciple <strong>of</strong> accessibility <strong>and</strong> <strong>the</strong> specific accessibility provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> UNCRPD. It can thus be seen as a <strong>good</strong> practice <strong>in</strong> this field. The <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> a cleartimeframe for compliance is <strong>of</strong> great importance for <strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong>Articles 9 <strong>and</strong> 13 UN CRPD. Timeframes with<strong>in</strong> legislati<strong>on</strong> should oblige actors (towhom legislati<strong>on</strong> applies) to ensure that necessary adjustments to <strong>the</strong> envir<strong>on</strong>ment areactually made. In this respect, accessibility audits, <strong>and</strong> legal acti<strong>on</strong>s <strong>in</strong> case <strong>of</strong> n<strong>on</strong>compliance,would also be <strong>of</strong> added value to <strong>the</strong> practical implementati<strong>on</strong> <strong>of</strong> <strong>the</strong>accessibility pr<strong>in</strong>ciple. It should also be noted that, for <strong>the</strong> full implementati<strong>on</strong> <strong>of</strong> <strong>the</strong>accessibility pr<strong>in</strong>ciple, <strong>the</strong> French Law <strong>on</strong> Disability should ensure that appropriateaccommodati<strong>on</strong>s are provided for all pers<strong>on</strong>s with disabilities, <strong>and</strong> <strong>in</strong> particular pers<strong>on</strong>swith <strong>in</strong>tellectual disabilities.F<strong>in</strong>ally, with regard to <strong>the</strong> European Uni<strong>on</strong>, Council Decisi<strong>on</strong> 2010/48/EC did notexplicitly refer to competence for matters related to Article 13 UN CRPD. As no292 Detailed <strong>in</strong>formati<strong>on</strong> <strong>on</strong> French <strong>practices</strong> related to disability is available <strong>in</strong> <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g> VC/2007/0317,available at:http://ec.europa.eu/social/ma<strong>in</strong>.jsp?catId=429&langId=en&moreDocuments=yes293 Loi No. 2005-102 du 11 février 2005 pour l‟égalité des droits et des chances, la participati<strong>on</strong> et lacitoyenneté des pers<strong>on</strong>nes h<strong>and</strong>icapées, JORF no. 36 du 12 février 2005, pp. 2353, texte no.1294 For fur<strong>the</strong>r <strong>in</strong>formati<strong>on</strong> see <str<strong>on</strong>g>Study</str<strong>on</strong>g> VC/2007/0317 F<strong>in</strong>al Report for <strong>the</strong> European Commissi<strong>on</strong>, p. 87<strong>and</strong> Annex IV, pp 199-202Page | 114
<strong>in</strong>strument was listed <strong>in</strong> <strong>the</strong> Appendix <strong>of</strong> <strong>the</strong> Decisi<strong>on</strong>, EU <strong>practices</strong> will not bepresented <strong>in</strong> this report. However, as menti<strong>on</strong>ed <strong>in</strong> secti<strong>on</strong> 3.5 <strong>of</strong> this report, <strong>the</strong> EUhas expertise <strong>in</strong> <strong>the</strong> fields <strong>of</strong> accessibility. Therefore, <strong>the</strong> EU could become <strong>the</strong>platform for <strong>the</strong> exchange <strong>of</strong> experiences by <strong>the</strong> Member States, <strong>and</strong> facilitate <strong>the</strong>adopti<strong>on</strong> <strong>of</strong> effective approaches. Fur<strong>the</strong>rmore, experts <strong>on</strong> accessibility from <strong>the</strong> EUcould (at <strong>the</strong> request <strong>of</strong> <strong>the</strong> EU Member States) participate (<strong>in</strong> an advisory capacity) <strong>in</strong>Member States meet<strong>in</strong>gs related to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> Article 13 UN CRPD. Moreimportantly, <strong>the</strong> Uni<strong>on</strong> through <strong>the</strong> use <strong>of</strong>, for example, fund<strong>in</strong>g <strong>in</strong>struments could (<strong>and</strong>as a party to <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> is obliged to do so by Article 4(1)(i) UN CRPD) encourage<strong>the</strong> c<strong>on</strong>duct <strong>of</strong> tra<strong>in</strong><strong>in</strong>g related to <strong>the</strong> UN CRPD, <strong>in</strong>clud<strong>in</strong>g tra<strong>in</strong><strong>in</strong>g for pers<strong>on</strong>nelwork<strong>in</strong>g <strong>in</strong> <strong>the</strong> EU <strong>and</strong> nati<strong>on</strong>al judicial authorities. 2954.3.2 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 13States Parties should take measures to ensure that pers<strong>on</strong>s with disabilities enjoyeffective access to justice at all stages <strong>of</strong> <strong>the</strong> legal process, <strong>and</strong> whatever <strong>the</strong>ir rolemay be (as victims, suspects, defendants, c<strong>on</strong>victed <strong>of</strong>fenders, claimants orresp<strong>on</strong>dents).Accessibility audits with<strong>in</strong> <strong>the</strong> justice system should <strong>in</strong>clude an <strong>in</strong>quiry <strong>in</strong>to (a) whe<strong>the</strong>r<strong>the</strong> <strong>in</strong>-court legal process, <strong>and</strong> all adm<strong>in</strong>istrative processes associated with <strong>the</strong> justicesystem (<strong>in</strong>clud<strong>in</strong>g court forms, out-<strong>of</strong> court communicati<strong>on</strong> etc.), are accessible topers<strong>on</strong>s with disabilities; (b) whe<strong>the</strong>r age-related accommodati<strong>on</strong>s to <strong>the</strong> legal processare made to facilitate <strong>the</strong> effective participati<strong>on</strong> <strong>of</strong> children <strong>and</strong> young pers<strong>on</strong>s withdisabilities, <strong>in</strong>clud<strong>in</strong>g adaptati<strong>on</strong>s to ensure that laws <strong>of</strong> evidence are flexible <strong>and</strong>adapted to <strong>the</strong>ir needs.Measures that should be taken to facilitate <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> Article 13 <strong>in</strong>clude, butare not limited to:a. <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> accommodati<strong>on</strong>s <strong>and</strong> o<strong>the</strong>r measures to ensure accessibility to<strong>the</strong> justice system (<strong>in</strong>clud<strong>in</strong>g communicati<strong>on</strong>s with justice system <strong>of</strong>ficers <strong>and</strong>adm<strong>in</strong>istrative pers<strong>on</strong>nel);b. ensur<strong>in</strong>g procedural accommodati<strong>on</strong>s, such as <strong>in</strong>vestigati<strong>on</strong> methods <strong>and</strong><strong>in</strong>terview techniques;c. provisi<strong>on</strong> to make <strong>the</strong> laws <strong>of</strong> evidence sufficiently flexible <strong>and</strong> adapted to <strong>the</strong>needs <strong>of</strong> pers<strong>on</strong>s with disabilities; <strong>and</strong>d. measures to ensure that <strong>the</strong> premises <strong>of</strong> justice agencies (<strong>in</strong>clud<strong>in</strong>g policestati<strong>on</strong>s, courts <strong>and</strong> adm<strong>in</strong>istrative tribunals) are physically accessible (<strong>in</strong>clud<strong>in</strong>g295 See supra note 4Page | 115
access measures for pers<strong>on</strong>s who use mobility devices, way-f<strong>in</strong>d<strong>in</strong>g for pers<strong>on</strong>swho are bl<strong>in</strong>d or have cognitive impairment, hear<strong>in</strong>g augmentati<strong>on</strong> for pers<strong>on</strong>swho are hear<strong>in</strong>g impaired).Tra<strong>in</strong><strong>in</strong>g is an essential comp<strong>on</strong>ent <strong>of</strong> Article 13, <strong>and</strong> should be provided to all justiceagency pers<strong>on</strong>nel so as to facilitate access to justice for pers<strong>on</strong>s with disabilities.Therefore, tra<strong>in</strong><strong>in</strong>g should be provided to <strong>the</strong> police, court adm<strong>in</strong>istrators, pris<strong>on</strong><strong>of</strong>ficers, legal practiti<strong>on</strong>ers, magistrates <strong>and</strong> judges, <strong>and</strong> should cover human rights<strong>and</strong> access to justice for pers<strong>on</strong>s with disabilities. Additi<strong>on</strong>ally, tra<strong>in</strong><strong>in</strong>g for justiceagency pers<strong>on</strong>nel should <strong>in</strong>clude <strong>the</strong> identificati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong>volved<strong>in</strong> <strong>the</strong> legal process, adjustments required to ensure access, <strong>and</strong> tra<strong>in</strong><strong>in</strong>g <strong>in</strong>communicati<strong>on</strong> skills for work with pers<strong>on</strong>s with disabilities. F<strong>in</strong>ally, Article 13 alsorequires police tra<strong>in</strong><strong>in</strong>g <strong>in</strong> <strong>in</strong>vestigati<strong>on</strong> methods <strong>and</strong> <strong>in</strong>terview techniques appropriatefor work with pers<strong>on</strong>s with disabilities, <strong>in</strong>clud<strong>in</strong>g work with children <strong>and</strong> young pers<strong>on</strong>swith disabilities.4.3.3 Article 29 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong>Article 29 UN CRPD c<strong>on</strong>firms <strong>the</strong> right <strong>of</strong> pers<strong>on</strong>s with disabilities to participate <strong>in</strong>political <strong>and</strong> public life. It requires States Parties to guarantee political rights forpers<strong>on</strong>s with disabilities <strong>on</strong> an equal basis with o<strong>the</strong>rs, <strong>and</strong> provides specific guidancefor implementati<strong>on</strong>.Political participati<strong>on</strong> is addressed <strong>in</strong> Article 29(a), <strong>and</strong> extends bey<strong>on</strong>d vot<strong>in</strong>g. Itencompasses <strong>the</strong> right <strong>of</strong> pers<strong>on</strong>s with disabilities to participate <strong>in</strong> all aspects <strong>of</strong> <strong>the</strong>political decisi<strong>on</strong>-mak<strong>in</strong>g process. More c<strong>on</strong>cretely, Article 29 guarantees <strong>the</strong> right <strong>of</strong>people with disabilities to:vote <strong>in</strong> electi<strong>on</strong>s <strong>on</strong> a n<strong>on</strong>-discrim<strong>in</strong>atory basis;st<strong>and</strong> for electi<strong>on</strong> as a c<strong>and</strong>idate for public <strong>of</strong>fice;access an effective impartial <strong>and</strong> n<strong>on</strong>-discrim<strong>in</strong>atory procedure for <strong>the</strong>registrati<strong>on</strong> <strong>of</strong> voters;have equal <strong>and</strong> effective access to vot<strong>in</strong>g procedures <strong>and</strong> facilities;cast <strong>the</strong>ir ballot <strong>in</strong> secret;have, if needed, assistance to vote; <strong>in</strong> this case, pers<strong>on</strong>s with disabilities shouldhave <strong>the</strong> right to be assisted by a pers<strong>on</strong> <strong>of</strong> <strong>the</strong>ir own choice;ensure that political parties, <strong>and</strong> public authorities, provide accessible <strong>in</strong>formati<strong>on</strong>to voters;Page | 116
participate <strong>in</strong> <strong>the</strong> c<strong>on</strong>duct <strong>of</strong> public adm<strong>in</strong>istrati<strong>on</strong>, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> adm<strong>in</strong>istrati<strong>on</strong> <strong>of</strong>political parties <strong>and</strong> civil society;participate <strong>in</strong> <strong>the</strong> work <strong>of</strong> <strong>in</strong>ternati<strong>on</strong>al organisati<strong>on</strong>s, <strong>in</strong>clud<strong>in</strong>g serv<strong>in</strong>g as arepresentative <strong>of</strong> government <strong>in</strong> <strong>in</strong>ternati<strong>on</strong>al organisati<strong>on</strong>s; <strong>and</strong>form <strong>and</strong> jo<strong>in</strong> disabled peoples‟ organisati<strong>on</strong>s (DPOs) at all levels.States Parties are required to ensure <strong>and</strong> provide, by means <strong>of</strong> positivegovernmental acti<strong>on</strong>, that citizens with disabilities actually have <strong>the</strong> opportunity toexercise <strong>the</strong>ir political rights. To this purpose, States Parties should do more thansimply proclaim equality <strong>in</strong> political participati<strong>on</strong>. Accord<strong>in</strong>gly, States Parties have aduty to provide reas<strong>on</strong>able accommodati<strong>on</strong> to voters with disabilities to enable <strong>the</strong>mto exercise <strong>the</strong>ir right to vote. For example, physical barriers to vot<strong>in</strong>g centres <strong>and</strong>booths should be removed; communicati<strong>on</strong> should be facilitated; <strong>and</strong> vot<strong>in</strong>g<strong>in</strong>formati<strong>on</strong> should be provided <strong>in</strong> accessible formats. Fur<strong>the</strong>rmore, States Partiesshould also ensure <strong>the</strong> full realisati<strong>on</strong> by pers<strong>on</strong>s with disabilities <strong>of</strong> o<strong>the</strong>r rights toparticipate <strong>in</strong> political <strong>and</strong> public life, such as to st<strong>and</strong> for electi<strong>on</strong> as c<strong>and</strong>idates for apublic <strong>of</strong>fice, or to be c<strong>on</strong>sulted <strong>on</strong> legislative or policy matters that may affect <strong>the</strong>irlives.F<strong>in</strong>ally, Article 29 is re<strong>in</strong>forced by <strong>the</strong> fundamental pr<strong>in</strong>ciple <strong>of</strong> “full <strong>and</strong> effectiveparticipati<strong>on</strong> <strong>and</strong> <strong>in</strong>clusi<strong>on</strong> <strong>in</strong> society”, provided for <strong>in</strong> Article 3(c) UN CRPD, <strong>and</strong> by <strong>the</strong>general obligati<strong>on</strong> “to closely c<strong>on</strong>sult with <strong>and</strong> actively <strong>in</strong>volve pers<strong>on</strong>s with disabilities”<strong>in</strong> all aspects <strong>of</strong> decisi<strong>on</strong>-mak<strong>in</strong>g, provided for <strong>in</strong> Article 4(3) UN CRPD. Read <strong>in</strong>c<strong>on</strong>juncti<strong>on</strong> with Articles 3 <strong>and</strong> 4, Article 29 provides <strong>on</strong>e <strong>of</strong> <strong>the</strong> clearest expressi<strong>on</strong>s <strong>in</strong><strong>in</strong>ternati<strong>on</strong>al human rights law <strong>of</strong> <strong>the</strong> right to participate <strong>in</strong> decisi<strong>on</strong>-mak<strong>in</strong>g.Research for this study <strong>in</strong> <strong>the</strong> EU Member States has revealed that <strong>the</strong> majority <strong>of</strong>States have adopted (or adapted) legislative provisi<strong>on</strong>s <strong>in</strong> order to ensure that pers<strong>on</strong>swith disabilities can effectively <strong>and</strong> fully participate <strong>in</strong> vot<strong>in</strong>g procedures. These types<strong>of</strong> legislative measures require that facilities <strong>and</strong> materials are accessible to pers<strong>on</strong>swith disabilities. However, particular challenges to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> Article 29 UNCRPD arise <strong>in</strong> relati<strong>on</strong> to ensur<strong>in</strong>g <strong>the</strong> right <strong>of</strong> pers<strong>on</strong>s with disabilities to vote by secretballot <strong>in</strong> electi<strong>on</strong>s <strong>and</strong> public referendums, <strong>and</strong> <strong>in</strong> some cases pers<strong>on</strong>s with disabilitiesare not sufficiently <strong>in</strong>formed <strong>of</strong> <strong>the</strong>ir vot<strong>in</strong>g entitlements. C<strong>on</strong>sider<strong>in</strong>g accessibility tovot<strong>in</strong>g procedures, <strong>in</strong>dicative examples <strong>of</strong> <strong>practices</strong> from Greece <strong>and</strong> F<strong>in</strong>l<strong>and</strong> will beoutl<strong>in</strong>ed.In Greece, Secti<strong>on</strong> 3 <strong>of</strong> <strong>the</strong> Hellenic C<strong>on</strong>stituti<strong>on</strong> <strong>in</strong>cludes, <strong>in</strong>ter alia, <strong>the</strong> ma<strong>in</strong>provisi<strong>on</strong>s related to vot<strong>in</strong>g procedures. Specifically, Article 55 establishes that everyPage | 117
Greek citizen, who has <strong>the</strong> right to vote, 296 <strong>and</strong> has reached, <strong>on</strong> <strong>the</strong> day <strong>of</strong> electi<strong>on</strong>s,twenty-five years <strong>of</strong> age, has <strong>the</strong> right to st<strong>and</strong> as a c<strong>and</strong>idate for a public <strong>of</strong>fice. Article55 <strong>of</strong> <strong>the</strong> Hellenic C<strong>on</strong>stituti<strong>on</strong> does not exempt any citizen, <strong>and</strong> <strong>the</strong>refore all Greekcitizens, <strong>in</strong>clud<strong>in</strong>g citizens with disabilities, have <strong>the</strong> right to st<strong>and</strong> for electi<strong>on</strong> <strong>and</strong>perform public functi<strong>on</strong>s at all levels <strong>of</strong> government.Article 51(3) <strong>of</strong> <strong>the</strong> Hellenic C<strong>on</strong>stituti<strong>on</strong> guarantees an equal vote to every adultcitizen. In additi<strong>on</strong>, Presidential Decree 351/2003 <strong>on</strong> <strong>the</strong> codificati<strong>on</strong> <strong>of</strong> <strong>the</strong> electi<strong>on</strong>procedures 297 sets forth <strong>in</strong> Article 83 <strong>the</strong> process <strong>of</strong> vot<strong>in</strong>g, <strong>and</strong> guarantees <strong>the</strong> right tovote by secret ballot. 298 As regards to disability, Article 83, paragraph 3, provides that:voters who due to physical disability are not able to follow <strong>the</strong> legal procedure <strong>of</strong>access<strong>in</strong>g <strong>the</strong> poll<strong>in</strong>g stati<strong>on</strong> <strong>and</strong> vot<strong>in</strong>g, have <strong>the</strong> right to request from <strong>the</strong> representative<strong>of</strong> <strong>the</strong> judicial authority, or a member <strong>of</strong> <strong>the</strong> poll<strong>in</strong>g stati<strong>on</strong> committee, or electi<strong>on</strong> <strong>of</strong>ficialsto help him/her to vote, <strong>and</strong> <strong>the</strong>se pers<strong>on</strong>s are obliged to help <strong>the</strong>m.This provisi<strong>on</strong>, even if it seeks to ensure accessibility for pers<strong>on</strong>s with disabilities, itstrictly applies to pers<strong>on</strong>s with physical disabilities, <strong>and</strong> does not take <strong>in</strong>to account thatpers<strong>on</strong>s with o<strong>the</strong>r disabilities (e.g. pers<strong>on</strong>s with <strong>in</strong>tellectual disabilities) may alsorequire some form <strong>of</strong> assistance. Fur<strong>the</strong>rmore, <strong>the</strong> choice <strong>of</strong> assistance between <strong>the</strong>representative <strong>of</strong> <strong>the</strong> judicial authority, or a member <strong>of</strong> <strong>the</strong> poll<strong>in</strong>g stati<strong>on</strong> committee, orelecti<strong>on</strong> <strong>of</strong>ficials may potentially challenge <strong>the</strong> right <strong>of</strong> pers<strong>on</strong>s with disabilities to cast<strong>the</strong>ir ballot <strong>in</strong> secret. Therefore, problems aris<strong>in</strong>g from Article 83 illustrate challenges to<strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong> Article 29 UN CRPD.F<strong>in</strong>l<strong>and</strong>, <strong>in</strong> its Electi<strong>on</strong> Act No. 714 <strong>of</strong> 1998, <strong>in</strong>cludes several provisi<strong>on</strong>s with regard toassistance for pers<strong>on</strong>s with disabilities. Specifically, Secti<strong>on</strong> 46 <strong>of</strong> <strong>the</strong> Act states, <strong>in</strong>teralia, that:A pers<strong>on</strong> who is <strong>in</strong> hospital, or <strong>in</strong> a facility with round-<strong>the</strong>-clock treatment care or <strong>in</strong> anyo<strong>the</strong>r operati<strong>on</strong>al unit <strong>of</strong> social services, designated by <strong>the</strong> municipal executive board asan advance poll<strong>in</strong>g stati<strong>on</strong> may vote <strong>in</strong> advance <strong>in</strong> <strong>the</strong> said <strong>in</strong>stituti<strong>on</strong>. […] Pers<strong>on</strong>s whoseability to move or functi<strong>on</strong> is limited to <strong>the</strong> degree that <strong>the</strong>y are unable to come to <strong>the</strong>poll<strong>in</strong>g or advance poll<strong>in</strong>g stati<strong>on</strong> without undue hardship, may vote <strong>in</strong> advance at home<strong>in</strong> <strong>the</strong> F<strong>in</strong>nish municipality which has been registered as <strong>the</strong>ir municipality <strong>of</strong> residence <strong>in</strong><strong>the</strong> vot<strong>in</strong>g register. 299296 With regard to <strong>the</strong> right to vote, Presidential Decree 351/2003 <strong>on</strong> <strong>the</strong> codificati<strong>on</strong> <strong>of</strong> <strong>the</strong> electi<strong>on</strong>procedures establishes that every Greek citizen who completed his/her eighteenth year <strong>of</strong> age has <strong>the</strong>right to vote <strong>in</strong> electi<strong>on</strong> procedures. See Article 4 <strong>of</strong> Decree 351/2003.297 Presidential Decree 351/2003 <strong>on</strong> <strong>the</strong> codificati<strong>on</strong> <strong>of</strong> <strong>the</strong> electi<strong>on</strong> procedures is available <strong>in</strong> Greek athttp://www.ypes.gr/UserFiles/f0ff9297-f516-40ff-a70e-eca84e2ec9b9/96_2007.DOC298 See Article 83 paragraph 2 <strong>of</strong> Presidential Decree 351/2003.299 Un<strong>of</strong>ficial translati<strong>on</strong>. Electi<strong>on</strong> Act No. 714 is available <strong>in</strong> F<strong>in</strong>nish at:www.f<strong>in</strong>lex.fi/pdf/saadkaan/E9980714.PDFPage | 118
Additi<strong>on</strong>ally, Secti<strong>on</strong> 190 <strong>of</strong> <strong>the</strong> Act provides for transportati<strong>on</strong> services to poll<strong>in</strong>g <strong>and</strong>advance poll<strong>in</strong>g stati<strong>on</strong>s for disabled people. 300The aforementi<strong>on</strong>ed provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> F<strong>in</strong>nish Act aim to guarantee that all citizens canexercise <strong>the</strong>ir right to vote <strong>on</strong> an equal basis. It can thus be c<strong>on</strong>sidered that <strong>the</strong> Act haspositive elements that can c<strong>on</strong>tribute to <strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong> Article 29 UNCRPD. Moreover, even though <strong>the</strong> Act does <strong>in</strong>clude many specificati<strong>on</strong>s <strong>on</strong> <strong>the</strong>removal <strong>of</strong> barriers, <strong>the</strong> IDRM Report <strong>of</strong> 2007 has noted that an estimate by <strong>the</strong>Director <strong>of</strong> Electi<strong>on</strong> Processes at <strong>the</strong> M<strong>in</strong>istry <strong>of</strong> <strong>the</strong> Interior revealed that 80 to 100 percent <strong>of</strong> poll<strong>in</strong>g places are physically accessible, but <strong>in</strong>formati<strong>on</strong> related to vot<strong>in</strong>g is notprovided <strong>in</strong> accessible formats, <strong>and</strong> this is a major barrier, especially for pers<strong>on</strong>s withlearn<strong>in</strong>g, visual or communicati<strong>on</strong> disabilities. 301For matters related to participati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> decisi<strong>on</strong> mak<strong>in</strong>g,research for this study has revealed that <strong>the</strong> majority <strong>of</strong> <strong>the</strong> EU Member States havecreated c<strong>on</strong>sultative disability forums to ensure <strong>the</strong> participati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s withdisabilities <strong>in</strong> public life. A number <strong>of</strong> challenges to <strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong>Article 29 UN CRPD though rema<strong>in</strong>. For example, while many Member States providefor disability councils, <strong>the</strong> extent <strong>of</strong> <strong>the</strong> State‟s obligati<strong>on</strong> to take <strong>the</strong> op<strong>in</strong>i<strong>on</strong> <strong>of</strong> <strong>the</strong>secouncils <strong>in</strong>to account is <strong>of</strong>ten unclear. In additi<strong>on</strong>, it is unclear whe<strong>the</strong>r such councilsare <strong>in</strong>dependent <strong>of</strong> <strong>the</strong> State. In this respect, research for this study could not identifyhow members <strong>of</strong> <strong>the</strong> identified disability councils are selected, <strong>and</strong> whe<strong>the</strong>r or notdisability councils are dependent <strong>on</strong> State fund<strong>in</strong>g. F<strong>in</strong>ally, it should be noted that little<strong>in</strong>formati<strong>on</strong> is available <strong>in</strong> relati<strong>on</strong> to <strong>the</strong> effectiveness <strong>of</strong> <strong>the</strong>se nati<strong>on</strong>al disabilitycouncils. C<strong>on</strong>sider<strong>in</strong>g <strong>the</strong> right to participate <strong>in</strong> <strong>the</strong> decisi<strong>on</strong> mak<strong>in</strong>g, <strong>in</strong>dicativeexamples <strong>of</strong> <strong>practices</strong> from Luxembourg <strong>and</strong> Romania will be outl<strong>in</strong>ed.In Luxembourg, <strong>the</strong> Gr<strong>and</strong> Ducal Regulati<strong>on</strong> <strong>of</strong> January 25 th , 2006 established <strong>the</strong>Supreme Council <strong>of</strong> Disabled Pers<strong>on</strong>s. Based <strong>on</strong> <strong>the</strong> Regulati<strong>on</strong>, <strong>the</strong> Supreme Councilis composed <strong>of</strong> pers<strong>on</strong>s with disabilities, pr<strong>of</strong>essi<strong>on</strong>als <strong>and</strong> members <strong>of</strong> <strong>the</strong>government, <strong>and</strong> has <strong>the</strong> follow<strong>in</strong>g tasks:a. To assist <strong>and</strong> advise <strong>the</strong> M<strong>in</strong>ister who is resp<strong>on</strong>sible for nati<strong>on</strong>al disabilitypolicies, <strong>and</strong> coord<strong>in</strong>ati<strong>on</strong> <strong>of</strong> such governmental acti<strong>on</strong>s.b. To advise <strong>on</strong> any draft governmental legislati<strong>on</strong> or regulati<strong>on</strong> related to disabilityissues.300 Secti<strong>on</strong> 190 refers to <strong>the</strong> Act <strong>on</strong> Services <strong>and</strong> Assistance for <strong>the</strong> Disabled, No.380/1987301 See Internati<strong>on</strong>al Disability Rights M<strong>on</strong>itor Report <strong>of</strong> 2007, p. 140Page | 119
c. To c<strong>on</strong>sider all matters addressed by <strong>the</strong> M<strong>in</strong>ister <strong>in</strong> charge <strong>of</strong> disability policies,<strong>and</strong> all subjects that <strong>the</strong> M<strong>in</strong>ister c<strong>on</strong>siders useful. 302Similarly, <strong>in</strong> Romania, Law No 448/2006 regard<strong>in</strong>g <strong>the</strong> Protecti<strong>on</strong> <strong>and</strong> Promoti<strong>on</strong> <strong>of</strong> <strong>the</strong>Rights <strong>of</strong> Disabled Pers<strong>on</strong>s has established <strong>the</strong> Nati<strong>on</strong>al Authority for DisabledPers<strong>on</strong>s. The Law obliges local <strong>and</strong> central public adm<strong>in</strong>istrati<strong>on</strong> authorities toestablish dialogue, collaborati<strong>on</strong> <strong>and</strong> partnership relati<strong>on</strong>ships with <strong>the</strong> disabledpeoples‟ organisati<strong>on</strong>s, or organisati<strong>on</strong>s that represent <strong>the</strong> <strong>in</strong>terests <strong>of</strong> pers<strong>on</strong>s withdisabilities. Moreover, Article 92 <strong>of</strong> <strong>the</strong> Law requires <strong>the</strong> government‟s c<strong>on</strong>sultati<strong>on</strong> with<strong>the</strong> Nati<strong>on</strong>al Authority for Disabled Pers<strong>on</strong>s before <strong>the</strong> adopti<strong>on</strong> <strong>of</strong> any legislativemeasure that aim to protect pers<strong>on</strong>s with disabilities. 303C<strong>on</strong>clud<strong>in</strong>g, it appears that <strong>the</strong> establishment by law an obligati<strong>on</strong> to c<strong>on</strong>sult with, <strong>and</strong>actively <strong>in</strong>clude <strong>of</strong>, pers<strong>on</strong>s with disabilities <strong>in</strong> decisi<strong>on</strong> mak<strong>in</strong>g processes maypositively c<strong>on</strong>tribute to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> right <strong>of</strong> pers<strong>on</strong>s with disabilities toparticipate <strong>in</strong> <strong>the</strong> c<strong>on</strong>duct <strong>of</strong> public affairs (Article 29(b) UN CRPD).F<strong>in</strong>ally, with regard to <strong>the</strong> European Uni<strong>on</strong>, Council Decisi<strong>on</strong> 2010/48/EC did notexplicitly refer to competences for matters related to Article 29 UN CRPD. As no<strong>in</strong>strument was listed <strong>in</strong> <strong>the</strong> Appendix <strong>of</strong> <strong>the</strong> Decisi<strong>on</strong>, EU <strong>practices</strong> will not bepresented <strong>in</strong> this report.4.3.4 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 29States Parties should take measures to remove barriers that may h<strong>in</strong>der <strong>the</strong> full <strong>and</strong>effective participati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> political <strong>and</strong> public life. Barriersmay <strong>in</strong>volve, but are not limited to:<strong>in</strong>accessible vot<strong>in</strong>g <strong>and</strong> registrati<strong>on</strong> venues;<strong>in</strong>accessible vot<strong>in</strong>g <strong>in</strong>formati<strong>on</strong>;lack <strong>of</strong> assistance for pers<strong>on</strong>s with disabilities (such as sign language<strong>in</strong>terpreters) at vot<strong>in</strong>g venues;lack <strong>of</strong> civic educati<strong>on</strong> programmes related to electi<strong>on</strong>s <strong>and</strong> vot<strong>in</strong>g;<strong>in</strong>sufficient legal measures to ensure <strong>the</strong> right to vote <strong>and</strong> st<strong>and</strong> to electi<strong>on</strong>s; <strong>and</strong>o<strong>the</strong>rs.States Parties should ensure that public authorities are <strong>in</strong>clusive <strong>of</strong>, <strong>and</strong> accessibleto, pers<strong>on</strong>s with disabilities.302 Luxembourg: resp<strong>on</strong>se to <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g>‟s questi<strong>on</strong>naire <strong>on</strong> Nati<strong>on</strong>al Instituti<strong>on</strong>al <strong>and</strong> Policy Apparatus(un<strong>of</strong>ficial translati<strong>on</strong> from French)303 Romania: resp<strong>on</strong>se to <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g>‟s questi<strong>on</strong>naire <strong>on</strong> Nati<strong>on</strong>al Instituti<strong>on</strong>al <strong>and</strong> Policy ApparatusPage | 120
States Parties should provide tra<strong>in</strong><strong>in</strong>g for all public servants <strong>in</strong>volved <strong>in</strong> <strong>the</strong> politicaldecisi<strong>on</strong> mak<strong>in</strong>g (<strong>in</strong>clud<strong>in</strong>g vot<strong>in</strong>g procedures), so as to ensure <strong>the</strong> full realisati<strong>on</strong> <strong>of</strong>pers<strong>on</strong>s with disabilities political rights, through <strong>the</strong> provisi<strong>on</strong> <strong>of</strong>, <strong>in</strong>ter alia, reas<strong>on</strong>ableaccommodati<strong>on</strong>.States Parties should ensure that vot<strong>in</strong>g procedures are accessible. To this purpose,all <strong>in</strong>formati<strong>on</strong> (e.g. programmes <strong>of</strong> political parties, ballots, etc) should be provided <strong>in</strong>accessible formats (e.g. Braille, Large Pr<strong>in</strong>t <strong>and</strong> Pla<strong>in</strong>-Language).States Parties should ensure that pers<strong>on</strong>s with disabilities, if necessary, haveassistance <strong>in</strong> vot<strong>in</strong>g. In this respect States Parties should ensure that disabledpeoples‟ right to cast <strong>the</strong>ir ballot <strong>in</strong> secret is respected.States Parties should ensure that pers<strong>on</strong>s with disabilities are <strong>in</strong>cluded <strong>in</strong> all aspects <strong>of</strong>decisi<strong>on</strong> mak<strong>in</strong>g. This means that States Parties should actively <strong>in</strong>volve, <strong>and</strong> c<strong>on</strong>sultwith, pers<strong>on</strong>s with disabilities <strong>and</strong> <strong>the</strong>ir representative organisati<strong>on</strong>s before adopt<strong>in</strong>g ormodify<strong>in</strong>g laws.States Parties should also ensure that pers<strong>on</strong>s with disabilities have <strong>the</strong> right to st<strong>and</strong>for electi<strong>on</strong> <strong>and</strong> perform public functi<strong>on</strong>s at all levels <strong>of</strong> government.States Parties should ensure <strong>the</strong> right <strong>of</strong> pers<strong>on</strong>s with disabilities to participate <strong>in</strong>NGOs, Uni<strong>on</strong>s, or any o<strong>the</strong>r associati<strong>on</strong> c<strong>on</strong>cerned with public <strong>and</strong> political life <strong>of</strong> <strong>the</strong>country.States Parties should ensure that pers<strong>on</strong>s with disabilities have <strong>the</strong> right to establish<strong>the</strong>ir own NGOs, or any o<strong>the</strong>r associati<strong>on</strong> c<strong>on</strong>cerned with public <strong>and</strong> political life.4.5 Solidarity RightsSolidarity rights cover those rights whose recogniti<strong>on</strong> <strong>and</strong> enjoyment is a trigger forsolidarity, social cohesi<strong>on</strong> <strong>and</strong> mean<strong>in</strong>gful <strong>in</strong>clusi<strong>on</strong> <strong>in</strong> <strong>the</strong> society. Solidarity rights arekey enablers to facilitate freedom <strong>and</strong> choice for pers<strong>on</strong>s with disabilities. They aretypically labelled as „ec<strong>on</strong>omic, social <strong>and</strong> cultural rights‟. The UN CRPD is unique <strong>in</strong>that it harnesses <strong>the</strong>se social rights to ensure real choice, to prime people for a life <strong>of</strong>participati<strong>on</strong> <strong>and</strong> to ensure a certa<strong>in</strong> m<strong>in</strong>imum material quality <strong>of</strong> life.It should be recalled that ec<strong>on</strong>omic, social <strong>and</strong> cultural rights may be subject toprogressive realisati<strong>on</strong>, which gives some flexibility to Parties to <strong>the</strong> UN CRPD <strong>in</strong>Page | 121
achiev<strong>in</strong>g its objectives. However, progressive realisati<strong>on</strong> does not absolve Parties to<strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>of</strong> <strong>the</strong> resp<strong>on</strong>sibility to protect those rights. 304Secti<strong>on</strong> 4.5 provides an overview <strong>and</strong> general recommendati<strong>on</strong>s <strong>on</strong> <strong>the</strong>implementati<strong>on</strong> <strong>of</strong> Articles 24 (Educati<strong>on</strong>) <strong>and</strong> 27 (Employment) <strong>of</strong> <strong>the</strong> UN CRPD.4.5.1 Article 24 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong>Article 24 UN CRPD c<strong>on</strong>firms <strong>the</strong> right <strong>of</strong> pers<strong>on</strong>s with disabilities to an <strong>in</strong>clusiveeducati<strong>on</strong> without discrim<strong>in</strong>ati<strong>on</strong> <strong>and</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> equal opportunity. To this end,Article 24 poses an obligati<strong>on</strong> to States Parties to ensure (by law) an <strong>in</strong>clusiveeducati<strong>on</strong> system at all levels, <strong>in</strong>clud<strong>in</strong>g lifel<strong>on</strong>g learn<strong>in</strong>g. Core elements <strong>of</strong> <strong>the</strong> articleare <strong>the</strong> establishment (by law) <strong>of</strong> <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>, <strong>and</strong> <strong>the</strong> emphasis<strong>on</strong> achiev<strong>in</strong>g a comm<strong>on</strong> learn<strong>in</strong>g envir<strong>on</strong>ment that guarantees <strong>the</strong> presence,participati<strong>on</strong> <strong>and</strong> development for pers<strong>on</strong>s with disabilities. 305Accord<strong>in</strong>gly, States Parties should move towards an <strong>in</strong>clusive educati<strong>on</strong> system <strong>in</strong> acomm<strong>on</strong> learn<strong>in</strong>g envir<strong>on</strong>ment. It should be noted that UNESCO def<strong>in</strong>es „<strong>in</strong>clusiveeducati<strong>on</strong>‟ as follows:A process <strong>of</strong> address<strong>in</strong>g <strong>and</strong> resp<strong>on</strong>d<strong>in</strong>g to <strong>the</strong> diversity <strong>of</strong> needs <strong>of</strong> all learners through<strong>in</strong>creas<strong>in</strong>g participati<strong>on</strong> <strong>in</strong> learn<strong>in</strong>g, cultures <strong>and</strong> communities, <strong>and</strong> reduc<strong>in</strong>g exclusi<strong>on</strong>with<strong>in</strong> <strong>and</strong> from educati<strong>on</strong>. It <strong>in</strong>volves changes <strong>and</strong> modificati<strong>on</strong>s <strong>in</strong> c<strong>on</strong>tent, approaches,structures <strong>and</strong> strategies, with a comm<strong>on</strong> visi<strong>on</strong> which covers all children <strong>of</strong> <strong>the</strong>appropriate age range <strong>and</strong> a c<strong>on</strong>victi<strong>on</strong> that it is <strong>the</strong> resp<strong>on</strong>sibility <strong>of</strong> <strong>the</strong> regular system toeducate all children. 306Key element <strong>of</strong> an <strong>in</strong>clusive educati<strong>on</strong> system is <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> reas<strong>on</strong>ableaccommodati<strong>on</strong> to learners with disabilities. Therefore, Parties to <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> arefur<strong>the</strong>r required to ensure that reas<strong>on</strong>able accommodati<strong>on</strong> to children <strong>and</strong> adultswith disabilities is provided at all levels (e.g. primary, sec<strong>on</strong>dary, tertiary, academic, aswell as lifel<strong>on</strong>g learn<strong>in</strong>g) <strong>and</strong> all spheres (public <strong>and</strong> private) <strong>of</strong> <strong>the</strong> educati<strong>on</strong>system. 307304 See OHCHR “From Exclusi<strong>on</strong> to Equality. Realis<strong>in</strong>g <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities. AH<strong>and</strong>book for parliamentarians <strong>on</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities <strong>and</strong>Opti<strong>on</strong>al Protocol”, UN publicati<strong>on</strong> No 14-2007, pp 19-20305 UN CRPD Article 24(1)306 UNESCO, Guidel<strong>in</strong>es for Inclusi<strong>on</strong>: Ensur<strong>in</strong>g Access to Educati<strong>on</strong> for All. Published <strong>in</strong> 2005 <strong>and</strong> areavailable at http://unesdoc.unesco.org/images/0014/001402/140224e.pdf307 UN CRPD Article 24(2)(c). This provisi<strong>on</strong> should be read <strong>in</strong> c<strong>on</strong>juncti<strong>on</strong> with Article 5 UN CRPDwhich poses a general obligati<strong>on</strong> to States Parties to elim<strong>in</strong>ate (by law) discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong>disability.Page | 122
Article 24 UN CRPD also requires States Parties to establish a number <strong>of</strong> st<strong>and</strong>ardsto ensure <strong>the</strong> full <strong>and</strong> effective realisati<strong>on</strong> <strong>of</strong> <strong>the</strong> right to an <strong>in</strong>clusive educati<strong>on</strong> bypers<strong>on</strong>s with disabilities. These st<strong>and</strong>ards should, <strong>in</strong>ter alia, cover:<strong>the</strong> development <strong>of</strong> human pers<strong>on</strong>ality <strong>and</strong> potential;a sense <strong>of</strong> dignity <strong>and</strong> self-worth <strong>of</strong> <strong>the</strong> human be<strong>in</strong>g;respect for human rights, fundamental freedom <strong>and</strong> human diversity;full <strong>and</strong> effective participati<strong>on</strong> <strong>in</strong> a free society;<strong>the</strong> development by pers<strong>on</strong>s with disabilities <strong>of</strong> <strong>the</strong>ir talents <strong>and</strong> creativity;<strong>the</strong> provisi<strong>on</strong> <strong>of</strong> peer support;<strong>the</strong> provisi<strong>on</strong> <strong>of</strong> reas<strong>on</strong>able accommodati<strong>on</strong> to meet <strong>in</strong>dividual‟s requirements,i.e. <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> <strong>in</strong>dividually-tailored services, such as <strong>in</strong>dividualisededucati<strong>on</strong>al plans, <strong>and</strong> supports necessary to facilitate <strong>in</strong>clusi<strong>on</strong>; <strong>and</strong> o<strong>the</strong>rs.Moreover, Article 24(3) UN CRPD addresses <strong>the</strong> learn<strong>in</strong>g <strong>and</strong> social developmentneeds <strong>of</strong> pers<strong>on</strong>s with disabilities. In this c<strong>on</strong>text, States Parties are required to teachalternative forms <strong>of</strong> communicati<strong>on</strong>s (e.g. Braille or alternative script mode, signlanguage or o<strong>the</strong>r modes <strong>of</strong> communicati<strong>on</strong>, support systems etc) <strong>in</strong> order to facilitatefull <strong>and</strong> effective <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> learners with disabilities <strong>in</strong> educati<strong>on</strong> <strong>and</strong> as members <strong>of</strong><strong>the</strong> society. Therefore, educati<strong>on</strong> should be delivered <strong>in</strong> <strong>the</strong> most appropriatelanguages, modes <strong>and</strong> means <strong>of</strong> communicati<strong>on</strong> for all pers<strong>on</strong>s with disabilities(children <strong>and</strong> youth <strong>in</strong> particular), <strong>and</strong> <strong>in</strong> envir<strong>on</strong>ments that maximize <strong>the</strong>ir academic<strong>and</strong> social development. To realise <strong>the</strong>se rights, Article 24(4) UN CRPD, requiresStates Parties to ensure that appropriately qualified teachers (e.g. qualified <strong>in</strong> <strong>the</strong> use<strong>of</strong> sign language <strong>and</strong>/or Braille) <strong>and</strong> teachers with disabilities are employed. It is fur<strong>the</strong>rrequired to provide disability specific tra<strong>in</strong><strong>in</strong>g to all staff work<strong>in</strong>g <strong>in</strong> <strong>the</strong> educati<strong>on</strong>system, so as to be sensitive to <strong>the</strong> needs <strong>of</strong> pers<strong>on</strong>s with disabilities, <strong>and</strong> ensure that<strong>the</strong>y are able to effectively use augmentative <strong>and</strong> alternative communicati<strong>on</strong>, or adapt<strong>and</strong> use educati<strong>on</strong>al techniques <strong>and</strong> materials appropriate for pers<strong>on</strong>s with disabilities.For matters related to <strong>in</strong>clusive educati<strong>on</strong> for pers<strong>on</strong>s with disabilities, research for thisstudy <strong>in</strong> <strong>the</strong> EU Member States has revealed that efforts to move towards <strong>the</strong>provisi<strong>on</strong> <strong>of</strong> <strong>in</strong>clusive educati<strong>on</strong> exist <strong>in</strong> few States. A number <strong>of</strong> challenges to <strong>the</strong>effective implementati<strong>on</strong> <strong>of</strong> Article 24 UN CRPD though rema<strong>in</strong>. In most MemberStates, while educati<strong>on</strong> for pers<strong>on</strong>s with special educati<strong>on</strong>al needs can take place <strong>in</strong>ord<strong>in</strong>ary establishments, <strong>the</strong> opti<strong>on</strong> <strong>of</strong> send<strong>in</strong>g children with disabilities to specialeducati<strong>on</strong>al facilities is permissible <strong>and</strong> <strong>in</strong> most cases favoured. 308 This is a challenge308 For example Bulgaria, Greece, Lithuania, Spa<strong>in</strong>, UKPage | 123
to <strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong> Article 24 UN CRPD, because as l<strong>on</strong>g as <strong>the</strong> opti<strong>on</strong><strong>of</strong> send<strong>in</strong>g children with disabilities to special educati<strong>on</strong>al facilities rema<strong>in</strong>s available,<strong>the</strong>ir full <strong>and</strong> effective <strong>in</strong>tegrati<strong>on</strong> <strong>in</strong> an <strong>in</strong>clusive educati<strong>on</strong> system may not berealised. 309 Fur<strong>the</strong>rmore, most Member States legislati<strong>on</strong> refers to <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> pers<strong>on</strong>swith disabilities <strong>in</strong> „ma<strong>in</strong>stream‟ schools. However, it is <strong>in</strong> most case unclear how a‟ma<strong>in</strong>stream school‟ is def<strong>in</strong>ed, <strong>and</strong> <strong>the</strong>refore it is not possible to identify whe<strong>the</strong>r (ornot) such a school fulfils <strong>the</strong> requirements set forth <strong>in</strong> Article 24 UN CRPD, <strong>and</strong> aims toachieve a comm<strong>on</strong> learn<strong>in</strong>g envir<strong>on</strong>ment for all learners with disabilities. In additi<strong>on</strong>,<strong>the</strong> frequent lack <strong>of</strong> resources for <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> <strong>in</strong>dividualised services <strong>and</strong> supportto learners with disabilities, 310 as well as <strong>the</strong> lack <strong>of</strong> specialised tra<strong>in</strong><strong>in</strong>g for teachers <strong>in</strong>support<strong>in</strong>g learners with disabilities, are also major challenges to <strong>the</strong> full <strong>and</strong> effective<strong>in</strong>clusi<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> <strong>the</strong> educati<strong>on</strong> system. Sometimes oppositi<strong>on</strong>from teachers <strong>and</strong> parents 311 to <strong>in</strong>clusive educati<strong>on</strong> is an issue that also needs to beaddressed by Member States. F<strong>in</strong>ally, disparities between access to schools <strong>in</strong> rural<strong>and</strong> urban areas is ano<strong>the</strong>r significant challenge to <strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong>Article 29 UN CRPD.C<strong>on</strong>sider<strong>in</strong>g <strong>the</strong> requirements <strong>of</strong> Article 24 UN CRPD, <strong>in</strong>dicative examples from <strong>the</strong>UK, Lithuania <strong>and</strong> Cyprus will be outl<strong>in</strong>ed, <strong>in</strong> order to illustrate some <strong>of</strong> <strong>the</strong>aforementi<strong>on</strong>ed challenges, but also positive steps towards <strong>in</strong>clusi<strong>on</strong> <strong>in</strong> educati<strong>on</strong> forpers<strong>on</strong>s with disabilities.The United K<strong>in</strong>gdom <strong>in</strong>troduced provisi<strong>on</strong>s for educati<strong>on</strong> for pers<strong>on</strong>s with disabilitieswith <strong>the</strong> Educati<strong>on</strong> Act <strong>of</strong> 1996, 312 as amended by <strong>the</strong> Special Educati<strong>on</strong>al Needs <strong>and</strong>Disability Act <strong>of</strong> 2001. 313 The latter has established an obligati<strong>on</strong> to educate childrenwith special educati<strong>on</strong>al needs <strong>in</strong> „ma<strong>in</strong>stream schools‟. For <strong>the</strong> purposes <strong>of</strong> <strong>the</strong> Act,„ma<strong>in</strong>stream school‟ is def<strong>in</strong>ed to mean „any school o<strong>the</strong>r than a special school or an<strong>in</strong>dependent school, which is not a city technology college, a city college for <strong>the</strong>technology <strong>of</strong> <strong>the</strong> arts, or a city academy‟. 314Chapter 1 <strong>of</strong> Part IV <strong>of</strong> <strong>the</strong> Educati<strong>on</strong> Act (dedicated to special educati<strong>on</strong>al needs) hasestablished that children with special educati<strong>on</strong>al needs should be educated <strong>in</strong>„ma<strong>in</strong>stream schools‟, unless that is <strong>in</strong>compatible with <strong>the</strong> wishes <strong>of</strong> <strong>the</strong> parent.Besides <strong>the</strong> need for parental c<strong>on</strong>sent, <strong>the</strong> Act fur<strong>the</strong>r <strong>in</strong>cludes several limitati<strong>on</strong>s to<strong>the</strong> right to receive educati<strong>on</strong> <strong>in</strong> a „ma<strong>in</strong>stream school‟. Specifically, <strong>the</strong> Act requires a309 This is <strong>the</strong> case, for example, <strong>in</strong> Bulgaria310 For example Czech Republic, Est<strong>on</strong>ia, Germany, Lithuania311 For example Lithuania, Bulgaria, Est<strong>on</strong>ia312 Available at: http://www.opsi.gov.uk/acts/acts1996/ukpga_19960056_en_1313 Available at: http://www.opsi.gov.uk/acts/acts2001/ukpga_20010010_en_1314 See Part 1, Secti<strong>on</strong> 1 <strong>of</strong> <strong>the</strong> Special Educati<strong>on</strong>al Needs <strong>and</strong> Disability Act (2001)Page | 124
statutory assessment <strong>and</strong> compatibility <strong>of</strong> a pers<strong>on</strong>‟s educati<strong>on</strong>al needs with <strong>the</strong>„provisi<strong>on</strong> <strong>of</strong> efficient educati<strong>on</strong> for o<strong>the</strong>r children‟. Fur<strong>the</strong>rmore, <strong>the</strong> Explanatory Noteaccompany<strong>in</strong>g <strong>the</strong> Special Educati<strong>on</strong>al Needs <strong>and</strong> Disability Act <strong>of</strong> 2001 clarified thatSpecial Needs Educati<strong>on</strong> <strong>on</strong>ly applies to pers<strong>on</strong>s under <strong>the</strong> age <strong>of</strong> n<strong>in</strong>eteen who areregistered as pupils at a school. The Note fur<strong>the</strong>r expla<strong>in</strong>ed that:[...] about 20% <strong>of</strong> children will have some form <strong>of</strong> Special Educati<strong>on</strong>al Needs at sometime. Most <strong>of</strong> <strong>the</strong>se children will have <strong>the</strong>ir needs met by <strong>the</strong>ir school, but around 3% <strong>of</strong>children which have severe or complex needs, will require <strong>the</strong> Local Educati<strong>on</strong> Authorityto determ<strong>in</strong>e <strong>and</strong> arrange for <strong>the</strong> special educati<strong>on</strong>al provisi<strong>on</strong> for <strong>the</strong> child by means <strong>of</strong> astatutory statement <strong>of</strong> special educati<strong>on</strong>al needs. 315Fur<strong>the</strong>rmore, <strong>the</strong> UK accompanied its UN CRPD ratificati<strong>on</strong> with a declarati<strong>on</strong>, stat<strong>in</strong>gthat <strong>the</strong> government is committed to c<strong>on</strong>t<strong>in</strong>u<strong>in</strong>g to develop an <strong>in</strong>clusive system, but<strong>the</strong> General Educati<strong>on</strong> System <strong>in</strong> <strong>the</strong> United K<strong>in</strong>gdom <strong>in</strong>cludes ma<strong>in</strong>stream <strong>and</strong> specialschools, which <strong>the</strong> UK Government underst<strong>and</strong>s is allowed under <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>.Fur<strong>the</strong>rmore, <strong>the</strong> government reserved <strong>the</strong> right for disabled children to be educatedoutside <strong>the</strong>ir local community where more appropriate educati<strong>on</strong> provisi<strong>on</strong> is availableelsewhere. Never<strong>the</strong>less, parents <strong>of</strong> disabled children have <strong>the</strong> same opportunity as o<strong>the</strong>rparents to state a preference for <strong>the</strong> school at which <strong>the</strong>y wish <strong>the</strong>ir child to beeducated. 316The example <strong>of</strong> <strong>the</strong> UK practice related to Article 24 UN CRPD reveals that even if <strong>the</strong>right <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> educati<strong>on</strong> is (by law) reaffirmed, challenges to <strong>the</strong>effective implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> right to receive educati<strong>on</strong> <strong>in</strong> an <strong>in</strong>clusive <strong>and</strong> comm<strong>on</strong>learn<strong>in</strong>g envir<strong>on</strong>ment may arise from limitati<strong>on</strong>s placed <strong>on</strong> that right, which maydim<strong>in</strong>ish <strong>the</strong> scope <strong>of</strong> <strong>in</strong>clusi<strong>on</strong> afforded. Therefore, EU Member States shouldcarefully c<strong>on</strong>sider any limitati<strong>on</strong> to, or <strong>in</strong>terpretati<strong>on</strong> <strong>of</strong>, <strong>the</strong> right <strong>of</strong> pers<strong>on</strong>s withdisabilities to receive educati<strong>on</strong> <strong>on</strong> an equal basis with o<strong>the</strong>rs, as envisaged by Article24 UN CRPD.Lithuania has established, by <strong>the</strong> Law <strong>on</strong> Special Educati<strong>on</strong> <strong>of</strong> 1998, that a pers<strong>on</strong>(child or adult) is def<strong>in</strong>ed as hav<strong>in</strong>g special educati<strong>on</strong>al needs, due to c<strong>on</strong>genital oracquired impairments, which may h<strong>in</strong>der his/her participati<strong>on</strong> <strong>in</strong> <strong>the</strong> educati<strong>on</strong>alprocess <strong>and</strong> social life. In additi<strong>on</strong>, <strong>in</strong> 2003, <strong>the</strong> Law <strong>on</strong> Educati<strong>on</strong> <strong>of</strong> <strong>the</strong> Republic <strong>of</strong>Lithuania has established that “a student with special educati<strong>on</strong>al needs is <strong>the</strong> studentwhose possibilities to participate <strong>in</strong> educati<strong>on</strong> <strong>and</strong> societal life are restricted because <strong>of</strong>315 See Explanatory Notes to Special Educati<strong>on</strong>al Needs And Disability Act 2001, po<strong>in</strong>t 19, available athttp://www.opsi.gov.uk/acts/acts2001/en/ukpgaen_20010010_en_1316 UK Declarati<strong>on</strong>s <strong>and</strong> Reservati<strong>on</strong>s are available athttp://www.un.org/disabilities/default.asp?id=475Page | 125
his/her c<strong>on</strong>genital or acquired impairment”. 317 Regard<strong>in</strong>g access to educati<strong>on</strong>, Article34 <strong>of</strong> <strong>the</strong> Law <strong>on</strong> Educati<strong>on</strong> <strong>of</strong> 2003, has established that a pers<strong>on</strong> with educati<strong>on</strong>alneeds, up<strong>on</strong> c<strong>on</strong>sent <strong>of</strong> his/her parents (or guardians), can be taught <strong>in</strong> a „ma<strong>in</strong>streamclass‟, or „special class‟, or attend a school that <strong>of</strong>fers a special educati<strong>on</strong>programme. 318 Article 34 fur<strong>the</strong>r foresees adaptati<strong>on</strong>s to <strong>the</strong> school's envir<strong>on</strong>ment,through <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> psychological, special-pedagogical assistance, assistiveeducati<strong>on</strong> technology, <strong>and</strong> special teach<strong>in</strong>g aids. The Law <strong>on</strong> Educati<strong>on</strong> <strong>of</strong> 2003 fur<strong>the</strong>rclarifies that <strong>the</strong> educati<strong>on</strong>al needs <strong>of</strong> a pers<strong>on</strong> should be assessed by specialists(special educati<strong>on</strong> teacher, speech <strong>the</strong>rapist, psychologist, or o<strong>the</strong>r). Theseassessments, toge<strong>the</strong>r with recommendati<strong>on</strong>s regard<strong>in</strong>g modificati<strong>on</strong> <strong>of</strong> a pers<strong>on</strong>‟seducati<strong>on</strong>al programme, are presented to <strong>the</strong> Special Educati<strong>on</strong> Commissi<strong>on</strong>s <strong>and</strong> <strong>the</strong>Pedagogical Psychological Services. These bodies are <strong>the</strong>n resp<strong>on</strong>sible forrecommend<strong>in</strong>g to parents <strong>of</strong> <strong>the</strong> pers<strong>on</strong> <strong>in</strong> questi<strong>on</strong> <strong>the</strong> type <strong>of</strong> supports, or assistancethat <strong>the</strong> pers<strong>on</strong> may require.Regard<strong>in</strong>g practical implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> Law, a report from <strong>the</strong> Open SocietyInstitute (OSI) <strong>in</strong> 2005, 319 acknowledged that <strong>the</strong> Law <strong>of</strong> 2003 has c<strong>on</strong>tributed to an<strong>in</strong>creased <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> children <strong>and</strong> young people with <strong>in</strong>tellectual disabilities <strong>in</strong>„ma<strong>in</strong>stream schools‟. However, <strong>the</strong> report highlighted that most parents <strong>of</strong> childrenwith <strong>in</strong>tellectual disabilities <strong>in</strong> Lithuania tend to perceive <strong>in</strong>tegrati<strong>on</strong> as a „favour‟ ra<strong>the</strong>rthan <strong>the</strong> right <strong>of</strong> <strong>the</strong>ir children. In additi<strong>on</strong>, <strong>the</strong> parent‟s choice <strong>of</strong> schools is <strong>of</strong>ten limiteddue to <strong>in</strong>sufficient social <strong>and</strong> educati<strong>on</strong> services, especially <strong>in</strong> small towns. F<strong>in</strong>ally, <strong>the</strong>OSI report stated that barriers to full <strong>in</strong>tegrati<strong>on</strong> <strong>of</strong> learners with disabilities are alsoposed by <strong>the</strong> lack <strong>of</strong> suitably qualified teachers. 320As is evident, <strong>the</strong> Lithuanian Law <strong>on</strong> Educati<strong>on</strong> <strong>of</strong> 2003 has some positive elementswhich have helped to <strong>in</strong>crease access for children with disabilities to educati<strong>on</strong>.However, it appears that <strong>the</strong> establishment <strong>of</strong> legislati<strong>on</strong> is not enough to guaranteepractical <strong>and</strong> full implementati<strong>on</strong> <strong>of</strong> Article 24 UN CRPD. Fur<strong>the</strong>rmore, <strong>the</strong> way a„ma<strong>in</strong>stream school‟ is def<strong>in</strong>ed <strong>and</strong> whe<strong>the</strong>r (or not) such school fulfils <strong>the</strong>requirements to achieve a comm<strong>on</strong> learn<strong>in</strong>g envir<strong>on</strong>ment for all learners withdisabilities seems to be unclear. Last but not least, <strong>the</strong> example <strong>of</strong> <strong>the</strong> Lithuanian317 See at European Agency for Development <strong>in</strong> Special needs Educati<strong>on</strong>, Country Informati<strong>on</strong> forLithuania, available from http://www.european-agency.org/country-<strong>in</strong>formati<strong>on</strong>/lithuania/nati<strong>on</strong>aloverview/complete-nati<strong>on</strong>al-overview318 The 2003 Law is available <strong>in</strong> EN at http://www3.lrs.lt/pls/<strong>in</strong>ter2/dokpaieska.showdoc_l?p_id=281043319 See Open Society Institute EU M<strong>on</strong>itor<strong>in</strong>g <strong>and</strong> Advocacy Program <strong>in</strong> cooperati<strong>on</strong> with <strong>the</strong> OpenSociety Mental Health Initiative, “Rights <strong>of</strong> People with Intellectual Disabilities: Access to Educati<strong>on</strong> <strong>and</strong>Employment – Lithuania”. Available athttp://www.soros.org/<strong>in</strong>itiatives/health/focus/mhi/articles_publicati<strong>on</strong>s/publicati<strong>on</strong>s/romania_20050902/lithuania_2006.pdf320 Ibid, pp 14 - 16Page | 126
practice reveals that <strong>the</strong> discreti<strong>on</strong> <strong>of</strong> <strong>the</strong> parent to choose whe<strong>the</strong>r or not a child willbe <strong>in</strong>cluded <strong>in</strong> an ord<strong>in</strong>ary school may pose challenges to <strong>the</strong> possibility <strong>of</strong> receiv<strong>in</strong>gan <strong>in</strong>clusive educati<strong>on</strong>.F<strong>in</strong>ally, progress <strong>on</strong> <strong>the</strong> <strong>in</strong>tegrati<strong>on</strong> <strong>of</strong> children with disabilities <strong>in</strong> a comm<strong>on</strong> learn<strong>in</strong>genvir<strong>on</strong>ment has been identified <strong>in</strong> Cyprus. The Law for <strong>the</strong> Tra<strong>in</strong><strong>in</strong>g <strong>and</strong> Educati<strong>on</strong> <strong>of</strong>Children with Special Needs 113(1)/1999 321 has established a legislative framework,which regulates <strong>the</strong> identificati<strong>on</strong> <strong>of</strong>, <strong>and</strong> support for, children with educati<strong>on</strong>al needs.Based <strong>on</strong> Law N o 113(1)/1999, <strong>the</strong> State is resp<strong>on</strong>sible for safeguard<strong>in</strong>g <strong>the</strong> right <strong>of</strong>children with disabilities to an <strong>in</strong>clusive educati<strong>on</strong> at all levels <strong>of</strong> <strong>the</strong> educati<strong>on</strong> system.The Law foresees an early identificati<strong>on</strong> <strong>of</strong> children with educati<strong>on</strong>al needs, stat<strong>in</strong>g thatit is <strong>the</strong> duty <strong>of</strong> <strong>the</strong> parent, <strong>the</strong> director, or any o<strong>the</strong>r member <strong>of</strong> <strong>the</strong> educati<strong>on</strong> staff(teacher, doctor, psychologist or o<strong>the</strong>r) <strong>of</strong> a school (nursery, k<strong>in</strong>dergarten, orelementary, or sec<strong>on</strong>dary or higher) to notify <strong>the</strong> District Committee for SpecialEducati<strong>on</strong> <strong>and</strong> Tra<strong>in</strong><strong>in</strong>g that it has come to his/her attenti<strong>on</strong> that a child may havespecial educati<strong>on</strong>al needs. Up<strong>on</strong> identificati<strong>on</strong>, <strong>the</strong> District Committee undertakes <strong>the</strong>resp<strong>on</strong>sibility to c<strong>on</strong>duct a full multidiscipl<strong>in</strong>ary team assessment, <strong>and</strong> to provide allnecessary measures <strong>in</strong> terms <strong>of</strong> curriculum adaptati<strong>on</strong>, technical <strong>and</strong> staff<strong>in</strong>g support,or o<strong>the</strong>r for <strong>the</strong> effective educati<strong>on</strong> <strong>of</strong> <strong>the</strong> child <strong>in</strong> an ord<strong>in</strong>ary school. 322 Based <strong>on</strong> <strong>the</strong>provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> Law, all children with educati<strong>on</strong>al needs should be accepted <strong>in</strong>to <strong>the</strong>regular school system, <strong>and</strong> if necessary receive extra afterschool educati<strong>on</strong> withspecially tra<strong>in</strong>ed teachers assigned to <strong>the</strong> school. 323 Specifically, Secti<strong>on</strong> 4(1) <strong>of</strong> <strong>the</strong>Law states that <strong>the</strong> attendance <strong>of</strong> a child with special educati<strong>on</strong>al needs to a specialunit <strong>of</strong> an ord<strong>in</strong>ary school, or a school for special educati<strong>on</strong> <strong>and</strong> tra<strong>in</strong><strong>in</strong>g, or anywhereelse, shall be prohibited, „except to <strong>the</strong> extent <strong>and</strong> for <strong>the</strong> period <strong>the</strong> tra<strong>in</strong><strong>in</strong>g <strong>in</strong> suchplaces is determ<strong>in</strong>ed under <strong>the</strong> Law‟. 324 F<strong>in</strong>ally, <strong>the</strong> Law requires for evaluati<strong>on</strong> <strong>of</strong> <strong>the</strong>child‟s progress at least <strong>on</strong>ce a year.C<strong>on</strong>sequently, <strong>the</strong> Cypriot practice reveals positive ways <strong>of</strong> implement<strong>in</strong>g Article 24 UNCRPD, <strong>and</strong> can thus be c<strong>on</strong>sidered as a <strong>good</strong> practice <strong>in</strong> this area.321 Law 113(1)/1999 is available <strong>in</strong> EN athttp://www.moec.gov.cy/eidiki/nomo<strong>the</strong>sia/Number_113(I)_1999.pdf322 Ibid, Part II, Secti<strong>on</strong> 3(1) <strong>of</strong> <strong>the</strong> Law 113(1)/1999.323 With regard to children with hear<strong>in</strong>g impairments <strong>and</strong> autistic children, <strong>the</strong> law also foresees preprimaryschools with special facilities where <strong>the</strong>y may attend <strong>on</strong> a part-time basis.324 It should be noted that <strong>the</strong>re are few „special schools‟ <strong>in</strong> Cyprus, such as a school for pers<strong>on</strong>s withhear<strong>in</strong>g impairments <strong>in</strong> Nicosia, a school for pers<strong>on</strong>s with visual impairments <strong>in</strong> Nicosia, <strong>and</strong> <strong>the</strong> „NewHope‟ schools (<strong>on</strong>e tutorial, <strong>on</strong>e special, <strong>and</strong> <strong>on</strong>e summer school), for children with learn<strong>in</strong>g difficultieswho may require an <strong>in</strong>dividualised <strong>and</strong> <strong>in</strong>tensive educati<strong>on</strong> programme. It should fur<strong>the</strong>r be noted that<strong>the</strong> functi<strong>on</strong>s <strong>of</strong> such „special schools‟ are also regulated by <strong>the</strong> State. See Part II, Secti<strong>on</strong> 4(5) <strong>of</strong> <strong>the</strong>Law 113(1)/1999.Page | 127
F<strong>in</strong>ally, with regard to <strong>the</strong> European Uni<strong>on</strong>, Council Decisi<strong>on</strong> 2010/48/EC states that<strong>the</strong> Uni<strong>on</strong> will c<strong>on</strong>tribute to <strong>the</strong> development <strong>of</strong> quality educati<strong>on</strong> by encourag<strong>in</strong>gcooperati<strong>on</strong> between <strong>the</strong> EU Member States <strong>and</strong>, if necessary, by support<strong>in</strong>g <strong>and</strong>supplement<strong>in</strong>g <strong>the</strong>ir acti<strong>on</strong>s. To dem<strong>on</strong>strate such competence, Regulati<strong>on</strong>918/83/EEC 325 was listed <strong>in</strong> <strong>the</strong> Appendix <strong>of</strong> <strong>the</strong> Decisi<strong>on</strong>. Articles 70 to 72 <strong>of</strong> <strong>the</strong>Regulati<strong>on</strong> have established that „articles‟ (i.e. any <strong>good</strong> or technology or o<strong>the</strong>r)specifically designed for <strong>the</strong> educati<strong>on</strong>al, scientific or cultural advancement <strong>of</strong> pers<strong>on</strong>swith disabilities shall be admitted free <strong>of</strong> „import duties‟ (i.e. customs tariffs <strong>and</strong> chargeshav<strong>in</strong>g equivalent effect).Fur<strong>the</strong>rmore, Council Decisi<strong>on</strong> 2010/48/EC listed Regulati<strong>on</strong> No 1083/2006/EC, lay<strong>in</strong>gdown general provisi<strong>on</strong>s <strong>on</strong> <strong>the</strong> European Regi<strong>on</strong>al Development Fund, <strong>the</strong> EuropeanSocial Fund <strong>and</strong> <strong>the</strong> Cohesi<strong>on</strong> Fund, am<strong>on</strong>g <strong>the</strong> <strong>in</strong>struments that illustrate <strong>the</strong>European Uni<strong>on</strong>‟s competence <strong>in</strong> <strong>the</strong> fields <strong>of</strong> accessibility. The Regulati<strong>on</strong> covers,<strong>in</strong>ter alia, <strong>the</strong> improvement <strong>of</strong> human capital through co-fund<strong>in</strong>g <strong>of</strong> nati<strong>on</strong>al acti<strong>on</strong>srelated to educati<strong>on</strong>, vocati<strong>on</strong>al tra<strong>in</strong><strong>in</strong>g, <strong>and</strong> lifel<strong>on</strong>g learn<strong>in</strong>g opportunities, with a viewto improv<strong>in</strong>g <strong>the</strong> labour market. Therefore, <strong>in</strong> view <strong>of</strong> <strong>the</strong> UN CRPD c<strong>on</strong>clusi<strong>on</strong> by <strong>the</strong>EU, any funds to be awarded by <strong>the</strong> European Regi<strong>on</strong>al Development Fund, <strong>the</strong>European Social Fund <strong>and</strong> <strong>the</strong> Cohesi<strong>on</strong> Fund should promote <strong>the</strong> full realisati<strong>on</strong> <strong>of</strong><strong>the</strong> C<strong>on</strong>venti<strong>on</strong> objectives, <strong>in</strong>clud<strong>in</strong>g objectives set forth <strong>in</strong> Article 24 UN CRPD.Educati<strong>on</strong> is am<strong>on</strong>g <strong>the</strong> fields where <strong>the</strong> European Uni<strong>on</strong> encourages cooperati<strong>on</strong>between <strong>the</strong> EU Member States <strong>and</strong>, if necessary, supports <strong>and</strong> supplements <strong>the</strong>iracti<strong>on</strong>s. Therefore, <strong>the</strong> EU could facilitate <strong>the</strong> achievement <strong>of</strong> <strong>the</strong> objectives set forth <strong>in</strong><strong>the</strong> C<strong>on</strong>venti<strong>on</strong>, <strong>and</strong> <strong>in</strong> Article 24 UN CRPD. Specifically, <strong>the</strong> Uni<strong>on</strong> could, <strong>in</strong>ter alia:• promote policy cooperati<strong>on</strong> <strong>and</strong> coord<strong>in</strong>ati<strong>on</strong> to foster <strong>the</strong> right <strong>of</strong> pers<strong>on</strong>s withdisabilities to receive educati<strong>on</strong> <strong>in</strong> an <strong>in</strong>clusive <strong>and</strong> comm<strong>on</strong> learn<strong>in</strong>genvir<strong>on</strong>ment;• encourage <strong>the</strong> development, by <strong>the</strong> Member States, <strong>of</strong> benchmarks with regardto achiev<strong>in</strong>g <strong>the</strong> objectives set forth <strong>in</strong> Article 24 UN CRPD;• assist <strong>the</strong> Member States <strong>in</strong> m<strong>on</strong>itor<strong>in</strong>g progress; <strong>and</strong>• support <strong>the</strong> Member States‟ capacity build<strong>in</strong>g through, for example, exchange<strong>and</strong> shar<strong>in</strong>g experiences <strong>and</strong> <strong>good</strong> <strong>practices</strong>, <strong>on</strong> issues related to educati<strong>on</strong>.325 Council Regulati<strong>on</strong> (EEC) No 918/83 <strong>of</strong> 28 March 1983 sett<strong>in</strong>g up a Community system <strong>of</strong> reliefsfrom customs duty, OJ L 105 , 23.04.1983 pp 1 - 37Page | 128
4.5.2 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 24States Parties should carry out a screen<strong>in</strong>g exercise to ensure that legislati<strong>on</strong> is <strong>in</strong>place to promote <strong>the</strong> right to educati<strong>on</strong> for pers<strong>on</strong>s with disabilities <strong>of</strong> all ages, <strong>and</strong> isdirected at provid<strong>in</strong>g equal educati<strong>on</strong>al opportunities at all levels <strong>of</strong> educati<strong>on</strong> (primary,sec<strong>on</strong>dary, general tertiary educati<strong>on</strong>, academic, vocati<strong>on</strong>al tra<strong>in</strong><strong>in</strong>g, adult educati<strong>on</strong>,lifel<strong>on</strong>g learn<strong>in</strong>g, or o<strong>the</strong>r).States Parties‟ legislati<strong>on</strong> should advance <strong>in</strong>clusive educati<strong>on</strong> systems that allow forchildren with disabilities to learn al<strong>on</strong>gside <strong>the</strong>ir peers <strong>in</strong> <strong>in</strong>clusive schools (at <strong>the</strong>primary <strong>and</strong> sec<strong>on</strong>dary school levels), for example through <strong>in</strong>dividual educati<strong>on</strong>alplans.States Parties should adopt specific measures to ensure pers<strong>on</strong>s with disabilities arenot excluded from <strong>the</strong> general educati<strong>on</strong> system. Specific measures may <strong>in</strong>clude, <strong>in</strong>teralia, <strong>the</strong> specific development or streng<strong>the</strong>n<strong>in</strong>g <strong>of</strong> laws <strong>and</strong> policies enabl<strong>in</strong>g pers<strong>on</strong>swith disabilities to reach <strong>the</strong>ir fullest potential <strong>in</strong> ma<strong>in</strong>stream educati<strong>on</strong>al sett<strong>in</strong>gs.States Parties‟ legislati<strong>on</strong> should provide that pers<strong>on</strong>s with disabilities should benefitfrom reas<strong>on</strong>able accommodati<strong>on</strong> to facilitate <strong>the</strong>ir ability to learn <strong>in</strong> general educati<strong>on</strong>sett<strong>in</strong>gs. Legislati<strong>on</strong> should also provide for provisi<strong>on</strong>s <strong>of</strong> <strong>in</strong>dividual support for pers<strong>on</strong>swith disabilities to reach <strong>the</strong>ir fullest potential <strong>in</strong> <strong>the</strong> classroom. Legislati<strong>on</strong> shouldfur<strong>the</strong>r require that pers<strong>on</strong>s with disabilities have <strong>the</strong> right to receive educati<strong>on</strong> <strong>in</strong> amanner that is accessible to <strong>the</strong>m (e.g., Braille, sign language, or o<strong>the</strong>r appropriatemeans).States Parties should employ teachers who are qualified to teach pers<strong>on</strong>s withdisabilities. To best promote <strong>in</strong>clusive educati<strong>on</strong>, States Parties should ensure that allteachers are well tra<strong>in</strong>ed <strong>in</strong> teach<strong>in</strong>g methods for pers<strong>on</strong>s with disabilities <strong>and</strong> thatteacher tra<strong>in</strong><strong>in</strong>g schools are encouraged, <strong>and</strong> provided <strong>in</strong>centives, to provide quality<strong>in</strong>clusive educati<strong>on</strong> tra<strong>in</strong><strong>in</strong>g. Fur<strong>the</strong>rmore, States Parties should provide disabilityspecific tra<strong>in</strong><strong>in</strong>g to all staff work<strong>in</strong>g <strong>in</strong> <strong>the</strong> educati<strong>on</strong> system.4.5.3 Article 27 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong>Article 27 UN CRPD c<strong>on</strong>firms <strong>the</strong> right <strong>of</strong> pers<strong>on</strong>s with disabilities to employment <strong>on</strong>an equal basis with o<strong>the</strong>rs. The article requires States Parties to recognise <strong>the</strong> equalright <strong>of</strong> pers<strong>on</strong>s with disabilities to <strong>the</strong> opportunity to ga<strong>in</strong> liv<strong>in</strong>g by work freely chosenor accepted <strong>in</strong> an open <strong>and</strong> <strong>in</strong>clusive labour market, <strong>and</strong> under just <strong>and</strong> fair c<strong>on</strong>diti<strong>on</strong>s.Article 27(1) UN CRPD enumerates a range <strong>of</strong> measures to be taken by States Parties<strong>in</strong> order to give effect to <strong>the</strong> right to work. First <strong>and</strong> foremost, Article 27(1)(a) reiterates<strong>the</strong> general prohibiti<strong>on</strong> <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> ground <strong>of</strong> disability <strong>in</strong> all forms,Page | 129
sectors <strong>and</strong> levels <strong>of</strong> employment. The provisi<strong>on</strong> should be read <strong>in</strong> c<strong>on</strong>juncti<strong>on</strong> withArticle 5, which explicitly addresses n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>, <strong>and</strong> sets forth <strong>the</strong> requirementsthat need to be fulfilled by States Parties to <strong>the</strong> UN CRPD. Article 27(1)(a) specificallyrefers, but is not limited to, <strong>the</strong> prohibiti<strong>on</strong> <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong> <strong>in</strong> c<strong>on</strong>diti<strong>on</strong>s <strong>of</strong> recruitment,hir<strong>in</strong>g, c<strong>on</strong>t<strong>in</strong>uity <strong>of</strong> employment, career advancement <strong>and</strong> occupati<strong>on</strong>al health <strong>and</strong>safety.In additi<strong>on</strong> to <strong>the</strong> prohibiti<strong>on</strong> <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong>, Article 27(1)(i) requires States Parties toestablish, by means <strong>of</strong> legislati<strong>on</strong>, <strong>the</strong> duty to provide reas<strong>on</strong>able accommodati<strong>on</strong> <strong>in</strong><strong>the</strong> workplace for pers<strong>on</strong>s with disabilities. In this respect, States Parties legislati<strong>on</strong>should clarify <strong>the</strong> elements <strong>of</strong> such c<strong>on</strong>duct, <strong>and</strong> <strong>the</strong> factors up<strong>on</strong> which to assess <strong>the</strong>reas<strong>on</strong>ableness <strong>of</strong> an accommodati<strong>on</strong>. 326 States Parties are also required to ensurethat pers<strong>on</strong>s with disabilities are protected from harassment <strong>in</strong> <strong>the</strong> workplace, <strong>and</strong>have effective avenues for <strong>the</strong> redress <strong>of</strong> work-related grievances. 327Article 27(1)(c) c<strong>on</strong>firms <strong>the</strong> right <strong>of</strong> pers<strong>on</strong>s with disabilities to exercise <strong>the</strong>ir labour<strong>and</strong> trade uni<strong>on</strong> rights <strong>on</strong> an equal basis with o<strong>the</strong>rs. Therefore, States Parties shouldensure that labour <strong>and</strong> trade uni<strong>on</strong>s, or associati<strong>on</strong>s, are accessible to, <strong>and</strong> <strong>in</strong>clusive<strong>of</strong>, employees with disabilities.Moreover, States Parties should ensure that pers<strong>on</strong>s with disabilities have access tocomprehensive employment-related support services (e.g. jobseeker <strong>and</strong> placementservices, placement support <strong>and</strong> job retenti<strong>on</strong> services, pr<strong>of</strong>essi<strong>on</strong>al rehabilitati<strong>on</strong>, <strong>and</strong>o<strong>the</strong>rs), educati<strong>on</strong> <strong>and</strong> tra<strong>in</strong><strong>in</strong>g (e.g. technical or vocati<strong>on</strong>al tra<strong>in</strong><strong>in</strong>g, vocati<strong>on</strong>alguidance programmes, <strong>and</strong> o<strong>the</strong>rs).O<strong>the</strong>r measures set forth <strong>in</strong> Article 27(1) UN CRPD, relate to <strong>the</strong> promoti<strong>on</strong> <strong>of</strong> selfemployment,entrepreneurship, <strong>and</strong> pers<strong>on</strong>al bus<strong>in</strong>ess opportunities for pers<strong>on</strong>s withdisabilities, <strong>and</strong> positive acti<strong>on</strong> programmes, or <strong>in</strong>centives that will encourage <strong>the</strong>employment <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> <strong>the</strong> private sector. Such positive measuresmay <strong>in</strong>clude, <strong>in</strong>ter alia, tax reliefs, provisi<strong>on</strong> <strong>of</strong> f<strong>in</strong>ancial subsidies to employers, or <strong>the</strong>establishment <strong>of</strong> employment quotas for <strong>the</strong> recruitment <strong>of</strong> pers<strong>on</strong>s with disabilities, oro<strong>the</strong>rs.F<strong>in</strong>ally, Article 27(2) UN CRPD requires States Parties to ensure that pers<strong>on</strong>s withdisabilities are effectively protected from slavery servitude, <strong>and</strong> forced <strong>and</strong> compulsorylabour.Research for this study <strong>in</strong> <strong>the</strong> EU Member States has revealed that nati<strong>on</strong>al legislati<strong>on</strong>related to employment has been highly <strong>in</strong>fluenced by European anti-discrim<strong>in</strong>ati<strong>on</strong>326 See UN Doc A/HRC/10/48, supra note 41, pp 17-18327 See UN CRPD at Article 27(1)(b)Page | 130
legislati<strong>on</strong> <strong>in</strong> this field, <strong>and</strong> <strong>in</strong> particular <strong>the</strong> Employment Equality Directive 2000/78.Therefore, it is deemed necessary to <strong>in</strong>itially provide an overview <strong>of</strong> <strong>the</strong> relevant EUlegislati<strong>on</strong>, <strong>and</strong> <strong>the</strong>n present <strong>in</strong>dicative examples <strong>of</strong> nati<strong>on</strong>al legislati<strong>on</strong>.The Employment Equality Directive 2000/78, 328 adopted <strong>in</strong> 2000, has established acomm<strong>on</strong> general framework for <strong>the</strong> applicati<strong>on</strong> <strong>of</strong> <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> equal treatment <strong>in</strong> <strong>the</strong>c<strong>on</strong>text <strong>of</strong> employment. Therefore, <strong>the</strong> aim <strong>of</strong> <strong>the</strong> Directive is to prohibit <strong>and</strong> combatdiscrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> grounds <strong>of</strong> religi<strong>on</strong> or belief, disability, age or sexual orientati<strong>on</strong>as regards employment, occupati<strong>on</strong> <strong>and</strong> vocati<strong>on</strong>al tra<strong>in</strong><strong>in</strong>g. Article 2 <strong>of</strong> <strong>the</strong> Directivesets out <strong>the</strong> c<strong>on</strong>cept <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong>, <strong>and</strong> states that, for <strong>the</strong> purposes <strong>of</strong> <strong>the</strong>Directive, <strong>the</strong> „pr<strong>in</strong>ciple <strong>of</strong> equal treatment‟ shall mean that <strong>the</strong>re shall be no direct or<strong>in</strong>direct discrim<strong>in</strong>ati<strong>on</strong> whatsoever <strong>on</strong> any <strong>of</strong> <strong>the</strong> grounds covered by <strong>the</strong> Directive,<strong>in</strong>clud<strong>in</strong>g disability. An important element <strong>of</strong> <strong>the</strong> Directive is Article 5, which obligesemployers to provide reas<strong>on</strong>able accommodati<strong>on</strong> for pers<strong>on</strong>s with disabilities. Article5 obliges Member States to ensure that employers take appropriate measures toenable pers<strong>on</strong>s with disabilities to have access to, <strong>and</strong> participate <strong>in</strong>, or advance <strong>in</strong>employment. The goal <strong>of</strong> Article 5 is to enable pers<strong>on</strong>s with disabilities, who arequalified to do a job, to access <strong>the</strong> labour market. The provisi<strong>on</strong> <strong>of</strong> reas<strong>on</strong>ableaccommodati<strong>on</strong>, set forth <strong>in</strong> Article 5 <strong>of</strong> <strong>the</strong> Directive, requires an <strong>in</strong>dividual analysisthat takes account <strong>of</strong> <strong>the</strong> situati<strong>on</strong> <strong>of</strong> <strong>the</strong> <strong>in</strong>dividual <strong>and</strong> <strong>the</strong> employment or tra<strong>in</strong><strong>in</strong>g atissue. 329 Therefore, an appropriate accommodati<strong>on</strong> should always be an <strong>in</strong>dividuallytailored soluti<strong>on</strong>.The aforementi<strong>on</strong>ed elements <strong>of</strong> <strong>the</strong> Directive seem to be <strong>in</strong> l<strong>in</strong>e with <strong>the</strong> UN CRPDobligati<strong>on</strong> to prohibit discrim<strong>in</strong>ati<strong>on</strong> <strong>and</strong> ensure that <strong>the</strong> duty to provide reas<strong>on</strong>ableaccommodati<strong>on</strong> is respected. 330 However, a challenge to <strong>the</strong> effective implementati<strong>on</strong><strong>of</strong> Article 27 UN CRPD may arise. The Directive does not explicitly provide that anunjustified failure to provide reas<strong>on</strong>able accommodati<strong>on</strong> c<strong>on</strong>stitutes discrim<strong>in</strong>ati<strong>on</strong>,while <strong>the</strong> UN CRPD does def<strong>in</strong>e an unjustified denial <strong>of</strong> reas<strong>on</strong>able accommodati<strong>on</strong> <strong>in</strong>this way (Article 2 UN CRPD). It should be menti<strong>on</strong>ed, however, that <strong>the</strong> Directive does328 Council Directive 2000/78/EC <strong>of</strong> 27 November 2000, establish<strong>in</strong>g a general framework for EqualTreatment <strong>in</strong> Employment <strong>and</strong> Occupati<strong>on</strong>, OJ L 303/16; available at:http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2000:303:0016:0022:EN:PDF329 See Pr<strong>of</strong>. Lisa Wadd<strong>in</strong>gt<strong>on</strong>, When it is Reas<strong>on</strong>able for Europeans to be C<strong>on</strong>fused: Underst<strong>and</strong><strong>in</strong>gwhen a Disability Accommodati<strong>on</strong> is “Reas<strong>on</strong>able” from a Comparative Perspective, 29 ComparativeLabor Law & Policy Journal 3, April 2008, pp. 101-124.330 It is also worth not<strong>in</strong>g that <strong>the</strong> Employment Equality Directive refer to <strong>in</strong>ternati<strong>on</strong>al treaties, such as<strong>the</strong> Universal Declarati<strong>on</strong> <strong>of</strong> Human Rights, <strong>the</strong> UN C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Elim<strong>in</strong>ati<strong>on</strong> <strong>of</strong> all forms <strong>of</strong>Discrim<strong>in</strong>ati<strong>on</strong> Aga<strong>in</strong>st Women, <strong>the</strong> Internati<strong>on</strong>al C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Elim<strong>in</strong>ati<strong>on</strong> <strong>of</strong> all forms <strong>of</strong> RacialDiscrim<strong>in</strong>ati<strong>on</strong> <strong>and</strong> <strong>the</strong> UN Covenants <strong>on</strong> Civil <strong>and</strong> Political Rights <strong>and</strong> <strong>on</strong> Ec<strong>on</strong>omic, Social <strong>and</strong> CulturalRights <strong>and</strong> by <strong>the</strong> European C<strong>on</strong>venti<strong>on</strong> for <strong>the</strong> Protecti<strong>on</strong> <strong>of</strong> Human Rights <strong>and</strong> FundamentalFreedoms, to which all Member States are signatories.Page | 131
ecognise that <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> reas<strong>on</strong>able accommodati<strong>on</strong> plays an important role <strong>in</strong>combat<strong>in</strong>g discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> grounds <strong>of</strong> disability. 331Fur<strong>the</strong>rmore, Article 7 <strong>of</strong> <strong>the</strong> Directive allows for Member States to establish or providefor positive acti<strong>on</strong> measures, 332 designed to promote equality for pers<strong>on</strong>s withdisabilities. In additi<strong>on</strong>, Article 19 <strong>of</strong> <strong>the</strong> Directive requires <strong>the</strong> Member States tocommunicate all <strong>the</strong> <strong>in</strong>formati<strong>on</strong> necessary to <strong>the</strong> Commissi<strong>on</strong> to enable it to report to<strong>the</strong> European Parliament <strong>and</strong> <strong>the</strong> Council <strong>on</strong> <strong>the</strong> applicati<strong>on</strong> <strong>of</strong> this Directive <strong>in</strong> <strong>the</strong>Member States <strong>of</strong> <strong>the</strong> EU. The article fur<strong>the</strong>r requires that <strong>in</strong>formati<strong>on</strong> <strong>on</strong> <strong>the</strong>Directive‟s applicati<strong>on</strong> from relevant n<strong>on</strong>-governmental organisati<strong>on</strong>s should be taken<strong>in</strong>to account <strong>in</strong> <strong>the</strong> Commissi<strong>on</strong>‟s report, which is <strong>in</strong> l<strong>in</strong>e with <strong>the</strong> UN CRPDrequirement to <strong>in</strong>clude pers<strong>on</strong>s with disabilities <strong>and</strong> <strong>the</strong>ir representative organisati<strong>on</strong>s<strong>in</strong> <strong>the</strong> m<strong>on</strong>itor<strong>in</strong>g process (Article 33(3) UN CRPD). However, it should be noted that<strong>the</strong> Member State report<strong>in</strong>g obligati<strong>on</strong>s, <strong>and</strong> <strong>the</strong> c<strong>on</strong>sequent Commissi<strong>on</strong> report, <strong>on</strong>lytake place every five years, <strong>and</strong> <strong>the</strong>refore may hamper <strong>the</strong> effectiveness <strong>of</strong> suchm<strong>on</strong>itor<strong>in</strong>g.All EU equal treatment directives, <strong>in</strong>clud<strong>in</strong>g Directive 2000/78, have a horiz<strong>on</strong>talcharacter <strong>in</strong> <strong>the</strong> sense that <strong>the</strong>y require Member States to apply <strong>the</strong>ir provisi<strong>on</strong>s both to<strong>the</strong> public <strong>and</strong> private sectors. Thus, <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> equal treatment is transposed <strong>in</strong>t<strong>on</strong>ati<strong>on</strong>al legislati<strong>on</strong> <strong>and</strong> becomes b<strong>in</strong>d<strong>in</strong>g <strong>on</strong> private entities. 333 However, it should berecalled that as Directives do not produce horiz<strong>on</strong>tal direct effect, <strong>the</strong>y do not c<strong>on</strong>ferrights <strong>on</strong> <strong>in</strong>dividuals directly, at least not <strong>in</strong> case <strong>of</strong> relati<strong>on</strong>ships between privateparties. Individuals may make claims aga<strong>in</strong>st o<strong>the</strong>r private pers<strong>on</strong>s or entities <strong>on</strong> <strong>the</strong>basis <strong>of</strong> norms <strong>of</strong> nati<strong>on</strong>al law, which transposes EU Directives. 334 F<strong>in</strong>ally, <strong>the</strong>Employment Equality Directive embraces a “m<strong>in</strong>imalist approach”, 335 mean<strong>in</strong>g that it<strong>on</strong>ly imposes m<strong>in</strong>imum requirements <strong>on</strong> Member States, <strong>and</strong> allow Member States toadopt <strong>and</strong> apply provisi<strong>on</strong>s which are more favourable to <strong>the</strong> protecti<strong>on</strong> <strong>of</strong> equaltreatment.331 See Preambular paragraph 16 <strong>of</strong> Directive 2000/78: “The provisi<strong>on</strong> <strong>of</strong> measures to accommodate <strong>the</strong>needs <strong>of</strong> disabled people at <strong>the</strong> workplace plays an important role <strong>in</strong> combat<strong>in</strong>g discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong>grounds <strong>of</strong> disability.”332 Directive 2000/78, Article 7 Positive Acti<strong>on</strong>: “(1) With a view to ensur<strong>in</strong>g full equality <strong>in</strong> practice, <strong>the</strong>pr<strong>in</strong>ciple <strong>of</strong> equal treatment shall not prevent any Member State from ma<strong>in</strong>ta<strong>in</strong><strong>in</strong>g or adopt<strong>in</strong>g specificmeasures to prevent or compensate for disadvantages l<strong>in</strong>ked to any <strong>of</strong> <strong>the</strong> grounds referred to <strong>in</strong> Article1. (2) With regard to disabled pers<strong>on</strong>s, <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> equal treatment shall be without prejudice to <strong>the</strong>right <strong>of</strong> Member States to ma<strong>in</strong>ta<strong>in</strong> or adopt provisi<strong>on</strong>s <strong>on</strong> <strong>the</strong> protecti<strong>on</strong> <strong>of</strong> health <strong>and</strong> safety at work orto measures aimed at creat<strong>in</strong>g or ma<strong>in</strong>ta<strong>in</strong><strong>in</strong>g provisi<strong>on</strong>s or facilities for safeguard<strong>in</strong>g or promot<strong>in</strong>g <strong>the</strong>ir<strong>in</strong>tegrati<strong>on</strong> <strong>in</strong>to <strong>the</strong> work<strong>in</strong>g envir<strong>on</strong>ment”.Available at: http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=CELEX:32000L0078:en:HTML333 T. Tridimas, The General Pr<strong>in</strong>ciples <strong>of</strong> EU Law, Oxford University Press, 2000, p. 69.334 ECJ, 14 July 1994, Paola Facc<strong>in</strong>i Dori v Recreb Srl, Case C-91/92, [1994] ECR I-3325.335 T. TRIDIMAS, The General Pr<strong>in</strong>ciples <strong>of</strong> EU Law, Oxford University Press, 2000, p. 69.Page | 132
Follow<strong>in</strong>g <strong>the</strong> adopti<strong>on</strong> <strong>of</strong> <strong>the</strong> Employment Equality Directive 2000/78, all MemberStates adopted nati<strong>on</strong>al legislati<strong>on</strong> with <strong>the</strong> aim to transpose Directive 2000/78.Accord<strong>in</strong>gly, all EU Member States have prohibited, by law, discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis<strong>of</strong> disability with<strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong> employment, <strong>and</strong> most Member States haveestablished provisi<strong>on</strong>s for reas<strong>on</strong>able accommodati<strong>on</strong>s for pers<strong>on</strong>s with disabilities.Many Member States have also established positive acti<strong>on</strong> measures to promote <strong>the</strong>employment <strong>of</strong> pers<strong>on</strong>s with disabilities, such as requir<strong>in</strong>g employers to employ acerta<strong>in</strong> number <strong>of</strong> pers<strong>on</strong>s with disabilities (quota). N<strong>on</strong>e<strong>the</strong>less, several challenges to<strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong> Article 27 UN CRPD rema<strong>in</strong>. Not all Member Stateswhich have transposed Directive 2000/78/EC <strong>in</strong>to nati<strong>on</strong>al law have adequately<strong>in</strong>corporated provisi<strong>on</strong>s <strong>on</strong> reas<strong>on</strong>able accommodati<strong>on</strong> for pers<strong>on</strong>s with disabilities <strong>in</strong><strong>the</strong> workplace. Ano<strong>the</strong>r challenge is <strong>the</strong> poor implementati<strong>on</strong> <strong>of</strong> employment quotas,while c<strong>on</strong>t<strong>in</strong>ually low participati<strong>on</strong> rates <strong>in</strong> <strong>the</strong> labour market for pers<strong>on</strong>s withdisabilities suggest that exist<strong>in</strong>g legislati<strong>on</strong> may not be effective <strong>in</strong> practice. Therefore,c<strong>on</strong>sider<strong>in</strong>g <strong>the</strong> requirements <strong>of</strong> Directive 2000/78 <strong>in</strong> c<strong>on</strong>juncti<strong>on</strong> with <strong>the</strong> UN CRPDrequirements set forth <strong>in</strong> Article 27, some <strong>in</strong>dicative examples <strong>of</strong> nati<strong>on</strong>al legislati<strong>on</strong>are outl<strong>in</strong>ed below.Greece adopted Law No 3304/2005 336 <strong>in</strong> 2005, with <strong>the</strong> aim to transpose <strong>in</strong>to nati<strong>on</strong>allaw <strong>the</strong> Employment Equality Directive 2000/78/EC, <strong>and</strong> <strong>the</strong> Racial Discrim<strong>in</strong>ati<strong>on</strong>Directive 2000/43/EC. The Law obliges employers to provide reas<strong>on</strong>ableaccommodati<strong>on</strong> for employees with disabilities, 337 <strong>and</strong> <strong>the</strong>refore <strong>in</strong>corporated <strong>the</strong> duty<strong>of</strong> reas<strong>on</strong>able accommodati<strong>on</strong> set forth by Article 5 <strong>of</strong> Directive 2000/78/EC.Specifically, Article 10 <strong>of</strong> Law 3304/2005 states that:In order to guarantee compliance with <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> equal treatment towards pers<strong>on</strong>swith disabilities, <strong>the</strong> employers shall take all appropriate measures, where needed <strong>in</strong> aparticular case, to enable a pers<strong>on</strong> with a disability to have access to, participate <strong>in</strong>, oradvance <strong>in</strong> employment, or to undergo tra<strong>in</strong><strong>in</strong>g, unless such measures would impose adisproporti<strong>on</strong>ate burden <strong>on</strong> <strong>the</strong> employer. This burden shall not be disproporti<strong>on</strong>ate whenit is sufficiently remedied by measures exist<strong>in</strong>g with<strong>in</strong> <strong>the</strong> framework <strong>of</strong> <strong>the</strong> disabilitypolicy. 338As is evident, <strong>the</strong> word<strong>in</strong>g used <strong>in</strong> Law 3304/2005 follows <strong>the</strong> exact word<strong>in</strong>g <strong>of</strong> Article 5<strong>of</strong> Directive 2000/78/EC. In additi<strong>on</strong>, <strong>the</strong> Law does not explicitly provide that anunjustified failure to provide reas<strong>on</strong>able accommodati<strong>on</strong> c<strong>on</strong>stitutes discrim<strong>in</strong>ati<strong>on</strong>.336 A summary <strong>of</strong> <strong>the</strong> Law is available <strong>in</strong> Greek at: http://www.ypakp.gr/uploads/files/3466.pdf337 ANED, Report <strong>on</strong> <strong>the</strong> employment <strong>of</strong> disabled people <strong>in</strong> European countries – Greece, available athttp://www.disability-europe.net/c<strong>on</strong>tent/pdf/EL%20Employment%20report.pdf338 See at European network <strong>of</strong> Legal Experts <strong>in</strong> <strong>the</strong> N<strong>on</strong> Discrim<strong>in</strong>ati<strong>on</strong> Field, Greek Country Report <strong>on</strong>measures to combat discrim<strong>in</strong>ati<strong>on</strong>. Available at http://www.n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>.net/c<strong>on</strong>tent/media/2007-EL-Summary%20F<strong>in</strong>al.pdfPage | 133
Fur<strong>the</strong>rmore, Article 16 <strong>of</strong> <strong>the</strong> Law have established that whoever discrim<strong>in</strong>ates aga<strong>in</strong>stpers<strong>on</strong>s <strong>on</strong> <strong>the</strong> basis <strong>of</strong>, <strong>in</strong>ter alia, disability will be sancti<strong>on</strong>ed with impris<strong>on</strong>ment from6-m<strong>on</strong>ths to 3-years, <strong>and</strong> a f<strong>in</strong>e from 1.000 to 5.000 Euros.Greece has also adopted positive measures <strong>in</strong> order to encourage <strong>the</strong> <strong>in</strong>clusi<strong>on</strong> <strong>of</strong>pers<strong>on</strong>s with disabilities <strong>in</strong> <strong>the</strong> workplace. An <strong>in</strong>dicative example <strong>of</strong> such measures isLaw 2643/98, which has established a quota scheme for <strong>the</strong> employment <strong>of</strong> pers<strong>on</strong>swith disabilities <strong>in</strong> <strong>the</strong> private <strong>and</strong> <strong>the</strong> public sector. Accord<strong>in</strong>g to Law 2643/68,enterprises, with<strong>in</strong> <strong>the</strong> Greek private sector, which have more than 50 employees, areobliged to ensure 8 percent <strong>of</strong> <strong>the</strong>ir workforce is made up <strong>of</strong> people with disabilities <strong>and</strong>o<strong>the</strong>r people from socially sensitive groups. In <strong>the</strong> public sector <strong>the</strong> corresp<strong>on</strong>d<strong>in</strong>gpercentage is 5 percent. 339The aforementi<strong>on</strong>ed elements <strong>of</strong> <strong>the</strong> Law seem to be <strong>in</strong> l<strong>in</strong>e with <strong>the</strong> requirements setforth <strong>in</strong> Directive 2000/78/EC. However, a Labour Force Survey carried out by <strong>the</strong>Nati<strong>on</strong>al Statistical Service <strong>of</strong> Greece <strong>in</strong> 2002, revealed that <strong>in</strong> practice 84% <strong>of</strong> <strong>the</strong>Greek populati<strong>on</strong> with a disability is ec<strong>on</strong>omically <strong>in</strong>active, compared to 58% <strong>of</strong> <strong>the</strong>n<strong>on</strong>-disabled populati<strong>on</strong>. 340 C<strong>on</strong>clud<strong>in</strong>g, <strong>the</strong> <strong>in</strong>dicative example <strong>of</strong> Greece shows that<strong>the</strong> adopti<strong>on</strong> <strong>of</strong> legislative measures may facilitate <strong>the</strong> <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> people withdisabilities <strong>in</strong> <strong>the</strong> labour market, but is not enough to guarantee practicalimplementati<strong>on</strong> <strong>of</strong> <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> equality <strong>of</strong> opportunity.Malta adopted <strong>the</strong> Equal Opportunities (Pers<strong>on</strong>s with a Disability) Act 341 <strong>in</strong> 2000, whichprohibits discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> disability <strong>in</strong> <strong>the</strong> field <strong>of</strong> employment. Secti<strong>on</strong>7(1) <strong>of</strong> <strong>the</strong> Act clearly prohibits employers to discrim<strong>in</strong>ate aga<strong>in</strong>st pers<strong>on</strong>s withdisabilities. The Act also obliges employers to provide reas<strong>on</strong>able accommodati<strong>on</strong> forpers<strong>on</strong>s with disabilities, <strong>and</strong> provides that an unjustified failure to provide reas<strong>on</strong>ableaccommodati<strong>on</strong> c<strong>on</strong>stitutes discrim<strong>in</strong>ati<strong>on</strong>. 342 However, it appears that <strong>the</strong> def<strong>in</strong>iti<strong>on</strong>s<strong>of</strong> „disability‟ <strong>and</strong> „accommodati<strong>on</strong>‟, limit significantly <strong>the</strong> scope <strong>of</strong> employers‟obligati<strong>on</strong>s. Specifically, <strong>the</strong> Act def<strong>in</strong>es disability as “a physical or mental impairmentthat substantially limits <strong>on</strong>e or more <strong>of</strong> <strong>the</strong> major life activities <strong>of</strong> a pers<strong>on</strong>”. 343 The latterdef<strong>in</strong>iti<strong>on</strong>, even if with<strong>in</strong> a social c<strong>on</strong>text, may potentially hamper <strong>the</strong> full <strong>and</strong> effective<strong>in</strong>clusi<strong>on</strong> <strong>of</strong> all people with disabilities <strong>in</strong> <strong>the</strong> labour market, <strong>and</strong> <strong>in</strong> particular pers<strong>on</strong>swith <strong>in</strong>tellectual or sensory impairments.339 ANED Employment Report - Greece340 ANED, Country Pr<strong>of</strong>ile – Greece. Available at http://www.disabilityeurope.net/c<strong>on</strong>tent/pdf/Greece%20-%20ANED%20country%20pr<strong>of</strong>ile.pdf341 Equal Opportunities (Pers<strong>on</strong>s with a Disability) Act <strong>of</strong> 2000, as amended by Legal Notice 426 <strong>of</strong>2007, available at http://docs.justice.gov.mt/lom/legislati<strong>on</strong>/english/leg/vol_13/chapt413.pdf342 Ibid, Secti<strong>on</strong> 7(2)(d) <strong>of</strong> <strong>the</strong> Equal Opportunities (Pers<strong>on</strong>s with a Disability) Act.343 Ibid, Secti<strong>on</strong> 2 <strong>of</strong> <strong>the</strong> Equal Opportunities (Pers<strong>on</strong>s with a Disability) Act.Page | 134
In additi<strong>on</strong>, <strong>the</strong> obligati<strong>on</strong> to accommodate refers to “residential or bus<strong>in</strong>essaccommodati<strong>on</strong>, <strong>and</strong> structural adaptati<strong>on</strong> or modificati<strong>on</strong>s to exist<strong>in</strong>g build<strong>in</strong>gs”, 344<strong>and</strong> does not take <strong>in</strong>to account that <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> reas<strong>on</strong>able accommodati<strong>on</strong>requires an <strong>in</strong>dividual analysis that takes account <strong>of</strong> <strong>the</strong> situati<strong>on</strong> <strong>of</strong> <strong>the</strong> <strong>in</strong>dividual <strong>and</strong><strong>the</strong> employment at issue, which is required by Article 5 <strong>of</strong> Directive 2000/78/EC.F<strong>in</strong>ally, a Census <strong>of</strong> Populati<strong>on</strong> carried out by <strong>the</strong> Nati<strong>on</strong>al Statistics Office <strong>in</strong> 2005,revealed that <strong>the</strong> rate <strong>of</strong> people with disabilities employed was c<strong>on</strong>siderably lower thanthat <strong>of</strong> n<strong>on</strong>-disabled people: 14.6% (3,295) <strong>of</strong> people with disabilities were employedcompared with 48% (150,188) <strong>of</strong> <strong>the</strong> n<strong>on</strong>-disabled populati<strong>on</strong>.In Pol<strong>and</strong>, amendments to <strong>the</strong> Labour Code <strong>in</strong> 2004 <strong>and</strong> 2008 attempted to br<strong>in</strong>gPol<strong>and</strong> <strong>in</strong> l<strong>in</strong>e with <strong>the</strong> Employment Equality Directive 2000/78/EC <strong>and</strong> <strong>the</strong> RacialDiscrim<strong>in</strong>ati<strong>on</strong> Directive 2000/43/EC. In this respect, Article 94(2)(b) <strong>of</strong> <strong>the</strong> LabourCode states that an employer should not discrim<strong>in</strong>ate aga<strong>in</strong>st employees (orc<strong>and</strong>idates for employees) <strong>in</strong> a number <strong>of</strong> grounds, <strong>in</strong>clud<strong>in</strong>g disability. However, <strong>the</strong>amendments that were <strong>in</strong>troduced did not clearly establish <strong>the</strong> duty for employers toprovide reas<strong>on</strong>able accommodati<strong>on</strong> for pers<strong>on</strong>s with disabilities, <strong>and</strong> <strong>the</strong>reforechallenges to <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> equal treatment may arise. 345In additi<strong>on</strong> to Directive 2000/78, Council Decisi<strong>on</strong> 2010/48/EC lists am<strong>on</strong>g <strong>the</strong><strong>in</strong>struments that illustrate competence <strong>of</strong> <strong>the</strong> Uni<strong>on</strong> <strong>in</strong> <strong>the</strong> fields <strong>of</strong> employment, <strong>the</strong>Recast Gender Directive 2006/54/EC, 346 which addresses discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis<strong>of</strong> gender <strong>in</strong> <strong>the</strong> fields <strong>of</strong> employment.The Recast Gender Directive 2006/54/EC implements <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> equalopportunities <strong>and</strong> equal treatment <strong>of</strong> men <strong>and</strong> women <strong>in</strong> matters <strong>of</strong> employment <strong>and</strong>occupati<strong>on</strong>. The Directive calls, <strong>in</strong>ter alia, for balanced participati<strong>on</strong> <strong>in</strong> employment,equal pay <strong>and</strong> benefits, access to vocati<strong>on</strong>al tra<strong>in</strong><strong>in</strong>g, equal occupati<strong>on</strong>al socialsecurity schemes, <strong>and</strong> uni<strong>on</strong> rights. Directive 2006/54/EC also recognises harassmentas a form <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong>, 347 <strong>and</strong> makes an explicit reference to disability <strong>in</strong> Article 6,which lays down <strong>the</strong> pers<strong>on</strong>al scope <strong>of</strong> <strong>the</strong> directive. Fur<strong>the</strong>rmore, Article 20 <strong>of</strong>Directive 2006/54/EC requires for Member States to designate equality bodies, whichwill m<strong>on</strong>itor implementati<strong>on</strong> <strong>and</strong> assist victims <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong> <strong>in</strong> pursuit <strong>of</strong> <strong>the</strong>ircompla<strong>in</strong>ts. However, Directive 2006/54/EC does not refer to <strong>the</strong> aggravated situati<strong>on</strong>344 Ibid345 See European network <strong>of</strong> Legal Experts <strong>in</strong> <strong>the</strong> N<strong>on</strong> Discrim<strong>in</strong>ati<strong>on</strong> Field, Polish Report <strong>on</strong> measuresto combat discrim<strong>in</strong>ati<strong>on</strong>. Available at:http://www.n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>.net/c<strong>on</strong>tent/media/2008-PL-Country%20Report%20f<strong>in</strong>al.pdf346 The Directive c<strong>on</strong>solidates previous Directives <strong>in</strong> this area, notably, <strong>the</strong> Directive 76/207/EEC, whichwas amended by Directive 2002/73/EC.347 Recital 6 <strong>of</strong> <strong>the</strong> Directive 2006/54/EC fur<strong>the</strong>r states that harassement should be prohibited <strong>and</strong>should be subject to effective, proporti<strong>on</strong>ate <strong>and</strong> dissuasive penalties.Page | 135
<strong>of</strong> women with disabilities, nor does it extend to any form <strong>of</strong> multiple-discrim<strong>in</strong>ati<strong>on</strong>.Therefore, <strong>the</strong> Recast Gender Directive, even if it applies <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> n<strong>on</strong>discrim<strong>in</strong>ati<strong>on</strong>,it does not combat multiple-discrim<strong>in</strong>ati<strong>on</strong>, as required by Article 6 <strong>and</strong><strong>the</strong> general pr<strong>in</strong>ciples <strong>of</strong> <strong>the</strong> UN CRPD. It is thus advisable for <strong>the</strong> EU to review <strong>the</strong>provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> Recast Gender Directive 2006/54/EC.In c<strong>on</strong>clusi<strong>on</strong>, <strong>in</strong>dicative examples <strong>of</strong> EU n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> directives appear to be <strong>in</strong>l<strong>in</strong>e with <strong>the</strong> some <strong>of</strong> <strong>the</strong> relevant requirements <strong>of</strong> <strong>the</strong> UN CRPD. However, <strong>the</strong> lack <strong>of</strong>address<strong>in</strong>g multiple-discrim<strong>in</strong>ati<strong>on</strong> <strong>and</strong> <strong>the</strong> lack <strong>of</strong> an explicit reference that anunjustified failure to provide reas<strong>on</strong>able accommodati<strong>on</strong> c<strong>on</strong>stitutes discrim<strong>in</strong>ati<strong>on</strong> maychallenge <strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong> Article 27 UN CRPD. As is evident from <strong>the</strong>above analysis, EU Directives address disability <strong>and</strong> gender issues separately, <strong>and</strong>never <strong>in</strong> comb<strong>in</strong>ati<strong>on</strong>. Multiple-discrim<strong>in</strong>ati<strong>on</strong> has <strong>on</strong>ly recently begun to be recognised<strong>in</strong> <strong>the</strong> preambles <strong>of</strong> some directives (e.g. Employment Equality Directive 2000/78/EC),but measures to prohibit <strong>and</strong> combat multiple-discrim<strong>in</strong>ati<strong>on</strong> have not been<strong>in</strong>troduced. 348 To this end, <strong>the</strong> EU should carefully review <strong>the</strong> directives <strong>in</strong> field <strong>of</strong> n<strong>on</strong>discrim<strong>in</strong>ati<strong>on</strong><strong>and</strong> c<strong>on</strong>sider <strong>the</strong> <strong>in</strong>troducti<strong>on</strong> <strong>of</strong> amendments, with <strong>the</strong> aim to addressmultiple-discrim<strong>in</strong>ati<strong>on</strong>, <strong>and</strong> to <strong>in</strong>clude an explicit reference that unjustified denial <strong>of</strong>reas<strong>on</strong>able accommodati<strong>on</strong> c<strong>on</strong>stitutes discrim<strong>in</strong>ati<strong>on</strong>.Importantly, as argued <strong>in</strong> Secti<strong>on</strong> 2.1 <strong>of</strong> this report, even though EU law does not<strong>in</strong>clude a clear def<strong>in</strong>iti<strong>on</strong> <strong>of</strong> disability, it appears that is implicitly based <strong>on</strong> a rightsbasedapproach <strong>of</strong> disability, as is also required by <strong>the</strong> UN CRPD. Therefore, MemberStates <strong>of</strong> <strong>the</strong> EU, when transpos<strong>in</strong>g EU law <strong>in</strong>to <strong>the</strong>ir nati<strong>on</strong>al systems, should ensurefulfilment <strong>of</strong> <strong>the</strong> obligati<strong>on</strong> to implement a rights-based approach to disability. However,<strong>the</strong> overview <strong>of</strong> <strong>in</strong>dicative examples <strong>of</strong> nati<strong>on</strong>al <strong>practices</strong>, presented <strong>in</strong> this secti<strong>on</strong>, hasshown that EU Member States are mak<strong>in</strong>g use <strong>of</strong> nati<strong>on</strong>ally developed def<strong>in</strong>iti<strong>on</strong>s <strong>of</strong>disability, which are usually closer to a medical approach <strong>of</strong> disability, which hampers<strong>the</strong> full <strong>and</strong> effective implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> paradigm shift. Therefore, it is advisable for<strong>the</strong> EU to c<strong>on</strong>sider <strong>the</strong> <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> def<strong>in</strong>iti<strong>on</strong>s for c<strong>on</strong>cepts such as „disability‟,„reas<strong>on</strong>able accommodati<strong>on</strong>‟ <strong>and</strong> „multiple-discrim<strong>in</strong>ati<strong>on</strong>‟ with <strong>the</strong> aim to ensure <strong>the</strong>irc<strong>on</strong>sistent <strong>in</strong>terpretati<strong>on</strong> by <strong>the</strong> Member States. Any def<strong>in</strong>iti<strong>on</strong> <strong>of</strong> such c<strong>on</strong>cepts shouldfollow <strong>the</strong> relevant def<strong>in</strong>iti<strong>on</strong>s found <strong>in</strong> <strong>the</strong> UN CRPD.Fur<strong>the</strong>rmore, as a party to <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>, <strong>the</strong> EU should ensure that all EU<strong>in</strong>stituti<strong>on</strong>s, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> ECJ, apply EU law <strong>in</strong> manner c<strong>on</strong>sistent with <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>.It is also advisable for <strong>the</strong> EU to adopt new s<strong>of</strong>t law <strong>in</strong>struments (<strong>in</strong> particular <strong>in</strong> <strong>the</strong>form <strong>of</strong> Recommendati<strong>on</strong>s or Communicati<strong>on</strong>s) that specifically address n<strong>on</strong>-348 For fur<strong>the</strong>r <strong>in</strong>formati<strong>on</strong> <strong>on</strong> UN CRPD obligati<strong>on</strong>s related to multiple-discrim<strong>in</strong>ati<strong>on</strong>, see Secti<strong>on</strong> 3.4 <strong>of</strong>this report.Page | 136
discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> ground <strong>of</strong> disability, <strong>and</strong> stress <strong>the</strong> necessity to foster acti<strong>on</strong> <strong>in</strong>l<strong>in</strong>e with <strong>the</strong> UN CRPD. Last but not least, <strong>the</strong> <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong>employment should be seen, <strong>and</strong> promoted by <strong>the</strong> EU, as a positive <strong>in</strong>vestment <strong>in</strong> <strong>the</strong>Uni<strong>on</strong>‟s <strong>in</strong>ternal market, as effective <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities may result <strong>in</strong>,<strong>in</strong>ter alia, <strong>in</strong>creas<strong>in</strong>g <strong>the</strong> number <strong>of</strong> tax payers <strong>and</strong> reducti<strong>on</strong> <strong>of</strong> benefit recipients. 349F<strong>in</strong>ally, as employment is a field <strong>of</strong> shared competence, <strong>the</strong> EU <strong>and</strong> <strong>the</strong> MemberStates are required to work <strong>in</strong> close cooperati<strong>on</strong>.4.5.4 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 27States Parties should undertake a screen<strong>in</strong>g exercise to ensure that legislati<strong>on</strong>prohibits discrim<strong>in</strong>ati<strong>on</strong> aga<strong>in</strong>st pers<strong>on</strong>s with disabilities <strong>in</strong> employment (e.g.,recruitment, hir<strong>in</strong>g <strong>and</strong> employment, c<strong>on</strong>t<strong>in</strong>uance <strong>of</strong> employment, career advancement<strong>and</strong> safe <strong>and</strong> healthy work<strong>in</strong>g c<strong>on</strong>diti<strong>on</strong>s) <strong>and</strong> provide for <strong>the</strong> duty to make reas<strong>on</strong>ableaccommodati<strong>on</strong>.States Parties‟ legislati<strong>on</strong> should promote <strong>the</strong> full <strong>and</strong> equal rights <strong>of</strong> pers<strong>on</strong>s withdisabilities to just employment c<strong>on</strong>diti<strong>on</strong>s (<strong>in</strong>clud<strong>in</strong>g equal pay for equal work, equalopportunities to advance, safe <strong>and</strong> healthy envir<strong>on</strong>ment, <strong>and</strong> a workplace free fromharassment).States Parties should ensure that pers<strong>on</strong>s with disabilities are able to assert <strong>the</strong>irlabour <strong>and</strong> trade uni<strong>on</strong> rights <strong>on</strong> an equal basis with o<strong>the</strong>rs.States Parties should ensure a free <strong>and</strong> open labour market that is <strong>in</strong>clusive <strong>of</strong>, <strong>and</strong>accessible to, pers<strong>on</strong>s with disabilities.States Parties should ensure <strong>the</strong> right to work for all pers<strong>on</strong>s with disabilities, <strong>in</strong>clud<strong>in</strong>gthose who become disabled whilst <strong>in</strong> employment.States Parties should promote employment opportunities for pers<strong>on</strong>s with disabilities.To this purpose, States Parties should provide pers<strong>on</strong>s with disabilities withassistance <strong>in</strong> f<strong>in</strong>d<strong>in</strong>g work, as well as ma<strong>in</strong>ta<strong>in</strong><strong>in</strong>g a job, <strong>and</strong> should promote selfemploymentopportunities for pers<strong>on</strong>s with disabilities who wish to run <strong>the</strong>ir ownbus<strong>in</strong>ess.States Parties should ensure that pers<strong>on</strong>s with disabilities are employed <strong>in</strong> both <strong>the</strong>public 350 <strong>and</strong> private sector <strong>on</strong> an equal basis with o<strong>the</strong>rs.349See OHCHR, Open-ended C<strong>on</strong>sultati<strong>on</strong> <strong>on</strong> key legal measures for <strong>the</strong> ratificati<strong>on</strong> <strong>and</strong>implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD, Geneva, 24 October 2008, Informal Summary Discussi<strong>on</strong>s, p. 14350 See UN CRPD at Article 27(1)(g)Page | 137
Employment strategies should be advanced to encourage <strong>the</strong> employment <strong>of</strong> pers<strong>on</strong>swith disabilities <strong>in</strong> <strong>the</strong> private sector (such as positive acti<strong>on</strong> programmes or<strong>in</strong>centives). In order to ensure that pers<strong>on</strong>s with disabilities are receiv<strong>in</strong>g appropriateaccommodati<strong>on</strong>s that will enable <strong>the</strong>m to work to <strong>the</strong> fullest extent possible, fund<strong>in</strong>gshould be made available to employers <strong>in</strong> order to cover costs <strong>of</strong> provid<strong>in</strong>g anaccommodati<strong>on</strong>. Moreover, mechanisms need to be <strong>in</strong> place to tra<strong>in</strong> pers<strong>on</strong>s withdisabilities for employment, such as vocati<strong>on</strong>al <strong>and</strong> pr<strong>of</strong>essi<strong>on</strong>al rehabilitati<strong>on</strong>programmes.F<strong>in</strong>ally, States Parties should also protect pers<strong>on</strong>s with disabilities from situati<strong>on</strong>s <strong>of</strong>forced slavery or compulsory labour <strong>and</strong> legislati<strong>on</strong> should provide that pers<strong>on</strong>s withdisabilities are protected <strong>on</strong> an equal basis with o<strong>the</strong>rs from such forced employment.Page | 138
5.0 The Dynamic <strong>of</strong> ReformUnlike o<strong>the</strong>r <strong>in</strong>ternati<strong>on</strong>al treaties, <strong>the</strong> UN C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s withDisabilities outl<strong>in</strong>es practical steps that are necessary to support reform. Specifically,Articles 31 to 33 UN CRPD outl<strong>in</strong>e <strong>the</strong>se steps, <strong>and</strong> require <strong>the</strong> collecti<strong>on</strong> <strong>of</strong> disabilityrelateddata, <strong>in</strong>ternati<strong>on</strong>al cooperati<strong>on</strong>, <strong>the</strong> designati<strong>on</strong> <strong>of</strong> a „focal po<strong>in</strong>t' with<strong>in</strong>governments, active c<strong>on</strong>sultati<strong>on</strong> with pers<strong>on</strong>s with disabilities through <strong>the</strong>ir respectiveorganisati<strong>on</strong>s, <strong>and</strong> <strong>on</strong>go<strong>in</strong>g domestic m<strong>on</strong>itor<strong>in</strong>g <strong>of</strong> implementati<strong>on</strong>.Secti<strong>on</strong> 5 c<strong>on</strong>ta<strong>in</strong>s an overview <strong>of</strong> Articles 31 (statistics <strong>and</strong> data collecti<strong>on</strong>), 32(<strong>in</strong>ternati<strong>on</strong>al cooperati<strong>on</strong>), <strong>and</strong> 33 (nati<strong>on</strong>al implementati<strong>on</strong> <strong>and</strong> m<strong>on</strong>itor<strong>in</strong>g), <strong>and</strong>analyses <strong>the</strong> core obligati<strong>on</strong>s for States Parties to <strong>the</strong> UN CRPD <strong>in</strong> <strong>the</strong>se fields. Thesecti<strong>on</strong> also provides an overview <strong>of</strong> exist<strong>in</strong>g nati<strong>on</strong>al <strong>and</strong> EU <strong>practices</strong> <strong>in</strong> <strong>the</strong>se fields,<strong>and</strong> gives general guidance for implementati<strong>on</strong> by both <strong>the</strong> EU <strong>and</strong> its Member States.Detailed checklists c<strong>on</strong>ta<strong>in</strong>ed <strong>in</strong> Annex I <strong>of</strong> this report accompany <strong>the</strong> analysis.5.1 Article 31 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong>Article 31 <strong>of</strong> <strong>the</strong> UN CRPD <strong>in</strong>troduces a new element to human rights treaties. Itrequires States Parties to specifically collect disability data <strong>and</strong> statistics to facilitateUN CRPD implementati<strong>on</strong>.Statistics are an <strong>in</strong>valuable policy tool, <strong>and</strong> can significantly c<strong>on</strong>tribute to <strong>the</strong> effectiveimplementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD. Collecti<strong>on</strong> <strong>of</strong> data <strong>and</strong> statistics, if d<strong>on</strong>e properly, canc<strong>on</strong>tribute to <strong>the</strong> design <strong>of</strong> policies <strong>and</strong> legislati<strong>on</strong> which promote <strong>and</strong> protect <strong>the</strong> rights<strong>of</strong> pers<strong>on</strong>s with disabilities. 351Article 31(1) UN CRPD identifies <strong>the</strong> purpose <strong>of</strong> data <strong>and</strong> statistics collecti<strong>on</strong> <strong>and</strong>outl<strong>in</strong>es <strong>the</strong> st<strong>and</strong>ards to be used for <strong>the</strong> collecti<strong>on</strong>, ma<strong>in</strong>tenance <strong>and</strong> use <strong>of</strong> this<strong>in</strong>formati<strong>on</strong>. More specifically, collecti<strong>on</strong> <strong>of</strong> disability statistics <strong>and</strong> data should enableStates Parties to formulate, implement, m<strong>on</strong>itor <strong>and</strong> evaluate policies <strong>and</strong> programmes<strong>in</strong> order to give effect to <strong>the</strong> UN CPRD. At <strong>the</strong> same time, collecti<strong>on</strong> <strong>of</strong> <strong>in</strong>formati<strong>on</strong>should comply with legally established safeguards <strong>and</strong> <strong>in</strong>ternati<strong>on</strong>ally accepted norms.Collecti<strong>on</strong> <strong>in</strong>struments should thus be suitable for <strong>the</strong> purpose <strong>of</strong> implement<strong>in</strong>g <strong>the</strong> UNCRPD.351 See <strong>in</strong>ter alia EDF statement dur<strong>in</strong>g <strong>the</strong> UN CRPD negotiati<strong>on</strong>s <strong>in</strong> 2003 at <strong>the</strong> Ad Hoc Committee <strong>on</strong>a Comprehensive <strong>and</strong> Integral Internati<strong>on</strong>al C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Protecti<strong>on</strong> <strong>and</strong> Promoti<strong>on</strong> <strong>of</strong> <strong>the</strong> Rights<strong>and</strong> Dignity <strong>of</strong> Pers<strong>on</strong>s with DisabilitiesPage | 139
Article 31(2) UN CRPD requires disability data to be disaggregated so that it can beused for m<strong>on</strong>itor<strong>in</strong>g purposes. To this purpose, States Parties should developdoma<strong>in</strong>-specific <strong>in</strong>dicators <strong>of</strong> progress. In o<strong>the</strong>r words, collected disability data shouldbe broken down <strong>in</strong> various ways (e.g. <strong>on</strong> <strong>the</strong> basis gender, age, geographical locati<strong>on</strong>;or <strong>on</strong> <strong>the</strong> basis <strong>of</strong> a policy sector, such as employment, health etc; or o<strong>the</strong>r) so as to beused to assess <strong>the</strong> effectiveness <strong>of</strong> implementati<strong>on</strong> efforts <strong>in</strong> any particular area, orwith respect to a particular factor (menti<strong>on</strong>ed earlier). F<strong>in</strong>ally, Article 31(3) UN CRPDrequires States Parties to ensure that all <strong>in</strong>formati<strong>on</strong> compiled, is dissem<strong>in</strong>ated topers<strong>on</strong>s with disabilities <strong>in</strong> accessible formats <strong>and</strong> to o<strong>the</strong>r <strong>in</strong>terested parties.C<strong>on</strong>sequently, <strong>the</strong> first step for States Parties towards <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> Article 31UN CRPD is to assess <strong>the</strong> adequacy <strong>of</strong> exist<strong>in</strong>g disability data collecti<strong>on</strong> techniques.Currently, data <strong>on</strong> <strong>the</strong> participati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> <strong>the</strong> labour market,educati<strong>on</strong>, family <strong>and</strong> life with<strong>in</strong> a community, is <strong>of</strong>ten unavailable because generalpopulati<strong>on</strong> surveys are not sufficiently disaggregated. Similarly, data sources for<strong>in</strong>dicators relat<strong>in</strong>g to <strong>the</strong> physical <strong>and</strong> social envir<strong>on</strong>ment are unavailable as <strong>the</strong>re is anabsence <strong>of</strong> relevant l<strong>on</strong>gitud<strong>in</strong>al studies.A <strong>good</strong> tool for future use <strong>in</strong> implement<strong>in</strong>g Article 31 UN CRPD is <strong>the</strong> Internati<strong>on</strong>alClassificati<strong>on</strong> <strong>of</strong> Functi<strong>on</strong><strong>in</strong>g, Disability <strong>and</strong> Health (ICF), endorsed <strong>in</strong> 2001 by <strong>the</strong>World Health Assembly. 352 The ICF c<strong>on</strong>ceptualises functi<strong>on</strong><strong>in</strong>g <strong>and</strong> disability <strong>in</strong> ac<strong>on</strong>text characterised by pers<strong>on</strong>al <strong>and</strong> envir<strong>on</strong>mental factors: physical, social <strong>and</strong>attitud<strong>in</strong>al. It classifies (<strong>and</strong> <strong>the</strong>reby codifies) as “envir<strong>on</strong>ment” not merely <strong>the</strong> physical<strong>and</strong> human-built envir<strong>on</strong>ment, but all products <strong>and</strong> resources, attitudes <strong>and</strong> beliefs,social, ec<strong>on</strong>omic <strong>and</strong> cultural <strong>in</strong>stituti<strong>on</strong>s <strong>and</strong> structures, <strong>in</strong>clud<strong>in</strong>g social policies <strong>and</strong>laws. The ICF facilitates <strong>the</strong> collecti<strong>on</strong> <strong>of</strong> c<strong>on</strong>sistent <strong>and</strong> comparable data <strong>on</strong> <strong>the</strong>positive, or negative impact <strong>of</strong> <strong>the</strong> physical, social <strong>and</strong> attitud<strong>in</strong>al envir<strong>on</strong>ment <strong>on</strong>disabled peoples‟ participati<strong>on</strong> <strong>in</strong> all aspects <strong>of</strong> life.C<strong>on</strong>sider<strong>in</strong>g <strong>the</strong> obligati<strong>on</strong>s set forth <strong>in</strong> Article 31 UN CRPD, this study identified <strong>in</strong> <strong>the</strong>EU Member States several nati<strong>on</strong>al statistical surveys that cover, am<strong>on</strong>g o<strong>the</strong>rs,disability, but no adequate <strong>in</strong>formati<strong>on</strong> was identified regard<strong>in</strong>g <strong>practices</strong> related tocollecti<strong>on</strong> <strong>of</strong> disability specific data based <strong>on</strong> <strong>the</strong> social model <strong>of</strong> disability. However, itwas established that Irel<strong>and</strong> recently carried out a survey to collect disability specificdata. This Irish survey builds <strong>on</strong> to <strong>the</strong> ICF, <strong>and</strong> appears to fulfil several <strong>of</strong> <strong>the</strong>requirements set forth <strong>in</strong> Article 31 UN CRPD. Therefore, <strong>the</strong> example <strong>of</strong> <strong>the</strong> Irishsurvey could be <strong>of</strong> added value for <strong>the</strong> rest <strong>of</strong> <strong>the</strong> Member States <strong>and</strong> <strong>the</strong> EU.352 More <strong>in</strong>formati<strong>on</strong> are available at: http://www.who.<strong>in</strong>t/classificati<strong>on</strong>s/icf/en/Page | 140
The Central Statistics Office (here<strong>in</strong>after referred to as CSO), 353 follow<strong>in</strong>g a request by<strong>the</strong> Irish Government, carried out <strong>in</strong> 2006 a Nati<strong>on</strong>al Disability Survey (NDS). TheNati<strong>on</strong>al Disability Authority (here<strong>in</strong>after referred to as NDA) 354 had begun <strong>the</strong> processa year before, by commissi<strong>on</strong><strong>in</strong>g research to develop <strong>and</strong> pilot a „prevalence <strong>and</strong>impact‟ <strong>in</strong>strument that was firmly grounded <strong>in</strong> <strong>the</strong> social model <strong>of</strong> disability. For <strong>the</strong>purpose <strong>of</strong> this acti<strong>on</strong>, disability was def<strong>in</strong>ed with<strong>in</strong> a social c<strong>on</strong>text. Specifically,disability was characterised as “an outcome <strong>of</strong> <strong>the</strong> <strong>in</strong>teracti<strong>on</strong> between pers<strong>on</strong>s withimpairment <strong>and</strong> <strong>the</strong> envir<strong>on</strong>mental <strong>and</strong> attitud<strong>in</strong>al barriers s/he face”.The result <strong>of</strong> <strong>the</strong> research c<strong>on</strong>ducted by <strong>the</strong> NDA steered <strong>the</strong> CSO towards <strong>the</strong> ICF,which was used both as a cod<strong>in</strong>g system for <strong>in</strong>ternati<strong>on</strong>al data comparability, <strong>and</strong> moresignificantly, as a c<strong>on</strong>ceptual model to guide <strong>the</strong> development <strong>of</strong> questi<strong>on</strong>s for <strong>the</strong>survey itself. The Survey was composed <strong>of</strong> two questi<strong>on</strong>naires. The first was based <strong>on</strong><strong>the</strong> ICF noti<strong>on</strong> <strong>of</strong> impairment which looks at issues <strong>of</strong> type <strong>of</strong> disability, severity, age <strong>of</strong><strong>on</strong>set, aids used or need, cause <strong>and</strong> frequency <strong>of</strong> occurrence. The sec<strong>on</strong>dquesti<strong>on</strong>naire used <strong>the</strong> Activity <strong>and</strong> Participati<strong>on</strong> comp<strong>on</strong>ent <strong>of</strong> ICF to ga<strong>the</strong>r<strong>in</strong>formati<strong>on</strong> about educati<strong>on</strong>, employment, transportati<strong>on</strong> <strong>and</strong> <strong>the</strong> impact <strong>of</strong> <strong>the</strong> builtenvir<strong>on</strong>ment <strong>on</strong> mobility <strong>and</strong> o<strong>the</strong>r problems. The Survey compiled <strong>in</strong>formati<strong>on</strong> from a370.500 <strong>in</strong>dividuals 355 with regard <strong>the</strong>ir lives overall, <strong>and</strong> <strong>in</strong> <strong>the</strong>ir usual residence <strong>of</strong>private household, or a communal establishment, such as a nurs<strong>in</strong>g home, hospital orchildren‟s home. The Survey has not yet been fully completed; however, <strong>the</strong> first set <strong>of</strong>results from NDS focused <strong>on</strong> <strong>the</strong> prevalence <strong>of</strong> <strong>the</strong> n<strong>in</strong>e disability types 356 exam<strong>in</strong>ed <strong>in</strong><strong>the</strong> Survey. The <strong>in</strong>itial report that was published, outl<strong>in</strong>ed <strong>the</strong> overall estimatedprevalence <strong>of</strong> disability, <strong>and</strong> pr<strong>of</strong>iled different people with disabilities by severity <strong>and</strong>demographic variables such as age, sex <strong>and</strong> regi<strong>on</strong>. 357 In <strong>the</strong> future, NDS reports willpresent participati<strong>on</strong> data <strong>on</strong> educati<strong>on</strong>, work, transport, <strong>the</strong> built envir<strong>on</strong>ment <strong>and</strong>social participati<strong>on</strong> <strong>of</strong> people with disabilities. C<strong>on</strong>sequently, <strong>in</strong> <strong>the</strong> assumpti<strong>on</strong> thatappropriate <strong>in</strong>dicators, <strong>and</strong> a support<strong>in</strong>g methodology, will be based <strong>on</strong> <strong>the</strong> NDS, any353 Website www.cso.ie354 Website www.nda.ie355 This sample size was believed to be rich enough to derive, not <strong>on</strong>ly basic prevalence data, but social<strong>in</strong>formati<strong>on</strong> about <strong>the</strong> actual lived experience <strong>of</strong> disability <strong>in</strong> Irel<strong>and</strong>.356 A range <strong>of</strong> impairments <strong>and</strong> health problems were covered by <strong>the</strong> survey: visual, hear<strong>in</strong>g <strong>and</strong> speechimpairments; mobility <strong>and</strong> dexterity; memory <strong>and</strong> c<strong>on</strong>centrati<strong>on</strong> loss; <strong>in</strong>tellectual <strong>and</strong> learn<strong>in</strong>g disabilities;emoti<strong>on</strong>al, psychological, <strong>and</strong> mental health; pa<strong>in</strong> <strong>and</strong> breath<strong>in</strong>g. The <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> pa<strong>in</strong> is <strong>of</strong> particularsignificance as it is a salient, etiologically neutral <strong>in</strong>dicator <strong>of</strong> a health problem with an obvious impact <strong>on</strong>a pers<strong>on</strong>‟s capacity to perform activities.357 Nati<strong>on</strong>al Disability Survey 2006, First Results (Full Report, PDF 2.96MB), available at:http://www.cso.ie/releasespublicati<strong>on</strong>s/documents/o<strong>the</strong>r_releases/nati<strong>on</strong>aldisability/Nati<strong>on</strong>al%20Disability%20Survey%202006%20First%20Results%20full%20report.pdfPage | 141
statistics <strong>and</strong> data to be compiled will significantly c<strong>on</strong>tribute to m<strong>on</strong>itor<strong>in</strong>g Irel<strong>and</strong>‟simplementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD. 358F<strong>in</strong>ally, with regard to <strong>the</strong> European Uni<strong>on</strong>, <strong>the</strong> Council Decisi<strong>on</strong> 2010/48/EC has listedseveral <strong>in</strong>struments that illustrate EU competence <strong>in</strong> this field.For example, Regulati<strong>on</strong> 1177/2003/EC 359 has established a comm<strong>on</strong> framework for<strong>the</strong> systematic producti<strong>on</strong> <strong>of</strong> EU statistics <strong>on</strong> <strong>in</strong>come <strong>and</strong> liv<strong>in</strong>g c<strong>on</strong>diti<strong>on</strong>s (EU-SILC).The Regulati<strong>on</strong> encompasses comparable <strong>and</strong> timely cross-secti<strong>on</strong>al <strong>and</strong> l<strong>on</strong>gitud<strong>in</strong>aldata <strong>on</strong> <strong>in</strong>come <strong>and</strong> <strong>on</strong> <strong>the</strong> level <strong>and</strong> compositi<strong>on</strong> <strong>of</strong> poverty <strong>and</strong> social exclusi<strong>on</strong> atnati<strong>on</strong>al <strong>and</strong> EU levels. Specifically, Article 3 <strong>of</strong> <strong>the</strong> Regulati<strong>on</strong>, <strong>the</strong> EU-SILC coverscross-secti<strong>on</strong>al data <strong>on</strong> <strong>in</strong>come, poverty, social exclusi<strong>on</strong> <strong>and</strong> o<strong>the</strong>r liv<strong>in</strong>g c<strong>on</strong>diti<strong>on</strong>s,as well as l<strong>on</strong>gitud<strong>in</strong>al data restricted to <strong>in</strong>come, labour <strong>and</strong> a limited number <strong>of</strong> n<strong>on</strong>m<strong>on</strong>etary<strong>in</strong>dicators <strong>of</strong> social exclusi<strong>on</strong>. EU-SILC is carried out <strong>on</strong> an annual basis <strong>and</strong><strong>in</strong>cludes three questi<strong>on</strong>s <strong>on</strong> people with disabilities <strong>and</strong> <strong>the</strong>ir liv<strong>in</strong>g c<strong>on</strong>diti<strong>on</strong>.Fur<strong>the</strong>rmore, <strong>the</strong> European Labour Force Survey (EU LFS), established by CouncilRegulati<strong>on</strong> No. 577/98/EC, 360 is <strong>the</strong> ma<strong>in</strong> source <strong>of</strong> data at <strong>the</strong> EU level for mattersrelated to employment <strong>and</strong> unemployment. The European Labour Force Survey is aquarterly sample survey that is c<strong>on</strong>ducted by <strong>the</strong> Member States <strong>and</strong> is cover<strong>in</strong>glabour participati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s aged from 15-years old as well as pers<strong>on</strong>s outside <strong>the</strong>labour force. Regulati<strong>on</strong> 577/98/EC has been implemented <strong>in</strong>ter alia by Commissi<strong>on</strong>Regulati<strong>on</strong> No 1566/2001/EC c<strong>on</strong>cern<strong>in</strong>g <strong>the</strong> collecti<strong>on</strong> <strong>of</strong> data <strong>on</strong> matters related toemployment <strong>of</strong> pers<strong>on</strong>s with disabilities. 361 The latter regulati<strong>on</strong> shows <strong>the</strong>Commissi<strong>on</strong>‟s commitment <strong>on</strong> compil<strong>in</strong>g comprehensive <strong>and</strong> comparable data <strong>on</strong> <strong>the</strong>labour situati<strong>on</strong> <strong>of</strong> people with disabilities.In additi<strong>on</strong>, Regulati<strong>on</strong> No 458/2007/EC 362 has established a system <strong>of</strong> <strong>in</strong>tegratedsocial protecti<strong>on</strong> statistics (ESSPROS). The ma<strong>in</strong> objective <strong>of</strong> <strong>the</strong> Regulati<strong>on</strong> is to setup a methodological framework based <strong>on</strong> comm<strong>on</strong> st<strong>and</strong>ards, def<strong>in</strong>iti<strong>on</strong>s,classificati<strong>on</strong>s, <strong>and</strong> account<strong>in</strong>g rules to be used for compil<strong>in</strong>g statistics <strong>on</strong> acomparable basis. Accord<strong>in</strong>g to Article 3(1) <strong>of</strong> <strong>the</strong> Regulati<strong>on</strong>, statistics relat<strong>in</strong>g to <strong>the</strong>358 See Jerome E. Bickenbach, Statistics <strong>and</strong> data collecti<strong>on</strong> (Article 31 UN CRPD) Disability DataIssues for Europe, Brief<strong>in</strong>g Paper for <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g> VC/2008/1214.359 Regulati<strong>on</strong> (EC) No. 1177/2003 <strong>of</strong> <strong>the</strong> European Parliament <strong>and</strong> <strong>of</strong> <strong>the</strong> Council <strong>of</strong> 16 June 2003c<strong>on</strong>cern<strong>in</strong>g Community statistics <strong>on</strong> <strong>in</strong>come <strong>and</strong> liv<strong>in</strong>g c<strong>on</strong>diti<strong>on</strong>s (EU-SILC)360 Council Regulati<strong>on</strong> (EC) No 577/98 <strong>of</strong> 9 March 1998 <strong>on</strong> <strong>the</strong> organisati<strong>on</strong> <strong>of</strong> <strong>the</strong> Labour Force SampleSurvey <strong>in</strong> <strong>the</strong> Community, OJ L 77, 14.3.1998, p. 3361 Commissi<strong>on</strong> Regulati<strong>on</strong> 1566/2001 <strong>of</strong> 12 July 2001 implement<strong>in</strong>g Council Regulati<strong>on</strong> (EC) No 577/98<strong>on</strong> <strong>the</strong> organisati<strong>on</strong> <strong>of</strong> a labour force sample survey <strong>in</strong> <strong>the</strong> Community c<strong>on</strong>cern<strong>in</strong>g <strong>the</strong> specificati<strong>on</strong> <strong>of</strong> <strong>the</strong>2002 ad hoc module <strong>on</strong> employment <strong>of</strong> disabled people, OJ No L 208/16362 Regulati<strong>on</strong> (EC) No. 458/2007 <strong>of</strong> <strong>the</strong> European Parliament <strong>and</strong> <strong>of</strong> <strong>the</strong> Council <strong>of</strong> 25 April 2007 <strong>on</strong> <strong>the</strong>European system <strong>of</strong> <strong>in</strong>tegrated social protecti<strong>on</strong> statistics (ESSPROS) (Text with European Ec<strong>on</strong>omicArea relevance), OJ L113, 30.04.2007, p. 3Page | 142
ESSPROS core system are required to cover <strong>the</strong> f<strong>in</strong>ancial flows <strong>on</strong> social protecti<strong>on</strong>expenditure <strong>and</strong> receipts. It should be noted that social protecti<strong>on</strong> referred to <strong>in</strong>ESSPROS covers all <strong>in</strong>terventi<strong>on</strong>s from public, or private, bodies <strong>in</strong>tended to relievehouseholds <strong>and</strong> <strong>in</strong>dividuals <strong>of</strong> <strong>the</strong> burden <strong>of</strong> a def<strong>in</strong>ed set <strong>of</strong> risks or needs, providedthat nei<strong>the</strong>r a simultaneous reciprocal arrangement, nor an <strong>in</strong>dividual arrangement, is<strong>in</strong>volved. The list <strong>of</strong> risks, or needs, that may give rise to social protecti<strong>on</strong> are,accord<strong>in</strong>g to <strong>the</strong> Regulati<strong>on</strong>, <strong>the</strong> follow<strong>in</strong>g: sickness <strong>and</strong>/or health care; disability; oldage; survivorship; family/children; unemployment; hous<strong>in</strong>g; <strong>and</strong> social exclusi<strong>on</strong> notelsewhere classified.In c<strong>on</strong>clusi<strong>on</strong>, <strong>the</strong> creati<strong>on</strong> <strong>of</strong> a system for establish<strong>in</strong>g reliable <strong>and</strong> comparable data<strong>on</strong> social protecti<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities, <strong>and</strong> <strong>on</strong> <strong>the</strong>ir <strong>in</strong>tegrati<strong>on</strong> <strong>in</strong>to social lifeis an essential element for <strong>the</strong> formulati<strong>on</strong> <strong>of</strong> disability law <strong>and</strong> policy. Informati<strong>on</strong> <strong>on</strong><strong>the</strong> liv<strong>in</strong>g, <strong>and</strong> work<strong>in</strong>g c<strong>on</strong>diti<strong>on</strong>s, <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> EU countries should becollected, creat<strong>in</strong>g <strong>the</strong> basis for new policy recommendati<strong>on</strong>s. Therefore, it issuggested for <strong>the</strong> EU to c<strong>on</strong>sider <strong>the</strong> establishment <strong>of</strong> an Expert Group <strong>on</strong> IndicatorDevelopment for <strong>the</strong> UN CRPD. Such a group could be m<strong>and</strong>ated to collect exist<strong>in</strong>g<strong>in</strong>dicator data <strong>on</strong> <strong>the</strong> UN CRPD, reach c<strong>on</strong>sensus <strong>on</strong> potential <strong>in</strong>dicators, pilot exist<strong>in</strong>gdata sources across <strong>the</strong> EU, <strong>and</strong> provide technical assistance to Member States <strong>on</strong><strong>in</strong>dicator issues.In additi<strong>on</strong>, it is advisable for <strong>the</strong> EU to launch a comprehensive review <strong>of</strong> exist<strong>in</strong>g<strong>in</strong>struments for <strong>the</strong> collecti<strong>on</strong> <strong>of</strong> disability data with<strong>in</strong> <strong>the</strong> EU, <strong>in</strong> order to evaluatewhe<strong>the</strong>r (or not) such <strong>in</strong>struments are relevant to <strong>the</strong> m<strong>on</strong>itor<strong>in</strong>g <strong>of</strong> <strong>the</strong> rightsrecognised by <strong>the</strong> UN CRPD. It would also be advisable for research supported by <strong>the</strong>EU to develop <strong>and</strong> use statistical techniques with <strong>the</strong> aim to ga<strong>in</strong> from exist<strong>in</strong>gdatabases <strong>the</strong> most relevant <strong>in</strong>formati<strong>on</strong> for UN CRPD m<strong>on</strong>itor<strong>in</strong>g purposes. F<strong>in</strong>ally,EU research <strong>and</strong> statistical capacity should be developed for <strong>the</strong> compilati<strong>on</strong>, test<strong>in</strong>g<strong>and</strong> use <strong>of</strong> <strong>in</strong>struments for <strong>the</strong> collecti<strong>on</strong> <strong>of</strong> disability data relevant to m<strong>on</strong>itor<strong>in</strong>g <strong>the</strong>implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD by <strong>the</strong> EU <strong>and</strong> its Member States.5.2 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 31States Parties should perform a screen<strong>in</strong>g exercise to assess whe<strong>the</strong>r appropriate<strong>in</strong>formati<strong>on</strong>, <strong>in</strong>clud<strong>in</strong>g statistical <strong>and</strong> research data, ga<strong>the</strong>red by census bureaus iscurrently be<strong>in</strong>g collected.Data collecti<strong>on</strong> should facilitate <strong>the</strong> formulati<strong>on</strong> <strong>and</strong> implementati<strong>on</strong> <strong>of</strong> policies to giveeffect to <strong>the</strong> UN CRPD. The process <strong>of</strong> collect<strong>in</strong>g <strong>and</strong> ma<strong>in</strong>ta<strong>in</strong><strong>in</strong>g disability statistics<strong>and</strong> data should:Page | 143
• comply with legally established safeguards, <strong>in</strong>clud<strong>in</strong>g legislati<strong>on</strong> <strong>on</strong> dataprotecti<strong>on</strong>;• ensure c<strong>on</strong>fidentiality, <strong>and</strong> respect <strong>the</strong> privacy <strong>of</strong> pers<strong>on</strong>s with disabilities; <strong>and</strong>• comply with <strong>in</strong>ternati<strong>on</strong>ally accepted norms to protect human rights, <strong>and</strong>fundamental freedoms, <strong>and</strong> ethical pr<strong>in</strong>ciples <strong>in</strong> <strong>the</strong> collecti<strong>on</strong> <strong>and</strong> use <strong>of</strong>statistics;States Parties should, also ensure that:• disability data is disaggregated appropriately;• utilised to assess <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> obligati<strong>on</strong>s set forth <strong>in</strong> <strong>the</strong> UN CRPD;<strong>and</strong>• identify, <strong>and</strong> address, barriers faced by pers<strong>on</strong>s with disabilities <strong>in</strong> exercis<strong>in</strong>g<strong>the</strong>ir rights.States Parties should also establish a process to ensure <strong>the</strong> appropriate dissem<strong>in</strong>ati<strong>on</strong><strong>of</strong> accessible data to pers<strong>on</strong>s with disabilities, organisati<strong>on</strong>s that represent <strong>the</strong>ir rights<strong>and</strong> decisi<strong>on</strong>-makers.5.3 Article 32 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong>The UN CRPD expressly recognises that <strong>in</strong>ternati<strong>on</strong>al cooperati<strong>on</strong> <strong>and</strong> disability<strong>in</strong>clusive development can play an important role <strong>in</strong> support <strong>of</strong> nati<strong>on</strong>al implementati<strong>on</strong>efforts. States Parties to <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> should, <strong>the</strong>refore, cooperate <strong>in</strong>ternati<strong>on</strong>allythrough partnerships with o<strong>the</strong>r States, with relevant <strong>in</strong>ternati<strong>on</strong>al <strong>and</strong> regi<strong>on</strong>alorganisati<strong>on</strong>s, <strong>and</strong> civil society (<strong>in</strong> particular organisati<strong>on</strong>s <strong>of</strong> pers<strong>on</strong>s with disabilities)<strong>in</strong> support <strong>of</strong> nati<strong>on</strong>al measures to give effect to <strong>the</strong> UN CRPD. Article 32 UN CRPDidentifies a range <strong>of</strong> measures that States Parties can undertake with<strong>in</strong> <strong>the</strong> framework<strong>of</strong> <strong>in</strong>ternati<strong>on</strong>al cooperati<strong>on</strong>. These measures <strong>in</strong>clude, but are not limited to:• capacity build<strong>in</strong>g, through, for example, <strong>the</strong> c<strong>on</strong>duct (or support) <strong>of</strong> tra<strong>in</strong><strong>in</strong>gprogrammes, exchange <strong>and</strong> shar<strong>in</strong>g <strong>of</strong> <strong>in</strong>formati<strong>on</strong>, experiences, <strong>and</strong> <strong>good</strong><strong>practices</strong>;• research programmes <strong>and</strong> <strong>the</strong> facilitati<strong>on</strong> <strong>of</strong> access to scientific knowledge; <strong>and</strong>• technical <strong>and</strong> ec<strong>on</strong>omic assistance, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> facilitati<strong>on</strong> <strong>of</strong> access toaccessible <strong>and</strong> assistive technologies.Importantly, Article 32 UN CRPD requires that all <strong>in</strong>ternati<strong>on</strong>al cooperati<strong>on</strong> efforts,<strong>in</strong>clud<strong>in</strong>g <strong>in</strong>ternati<strong>on</strong>al development programmes, should be fully accessible to, <strong>and</strong><strong>in</strong>clusive <strong>of</strong>, pers<strong>on</strong>s with disabilities.Page | 144
Disability <strong>in</strong>clusive development refers to a c<strong>on</strong>t<strong>in</strong>uum <strong>of</strong> approaches designed to<strong>in</strong>corporate a disability dimensi<strong>on</strong> <strong>in</strong>to development activities, rang<strong>in</strong>g from disabilityspecific<strong>in</strong>itiatives, <strong>the</strong> additi<strong>on</strong> <strong>of</strong> disability-specific comp<strong>on</strong>ents to developmentprogrammes <strong>and</strong> fully <strong>in</strong>clusive programm<strong>in</strong>g, designed to <strong>in</strong>clude disability c<strong>on</strong>cerns<strong>in</strong>to all development processes as a central element. 363Specifically, all States Parties are required to make every aspect <strong>of</strong> <strong>the</strong>ir aidprogrammes, from design to implementati<strong>on</strong> <strong>and</strong> evaluati<strong>on</strong>, completely accessible forpers<strong>on</strong>s with disabilities. This obligati<strong>on</strong> can be satisfied through legislati<strong>on</strong>, or throughspecific policy pr<strong>on</strong>ouncements, or both. Given <strong>the</strong> historic marg<strong>in</strong>alisati<strong>on</strong> <strong>of</strong> disabilityissues across development sectors, <strong>the</strong> <strong>in</strong>clusive development obligati<strong>on</strong> set forth <strong>in</strong><strong>the</strong> UN CPRD has <strong>the</strong> potential to open up development programm<strong>in</strong>g to pers<strong>on</strong>s withdisabilities <strong>and</strong> <strong>the</strong>ir representative organisati<strong>on</strong>s. The <strong>in</strong>clusive development m<strong>and</strong>ateestablished <strong>in</strong> Article 32 UN CRPD should be read through <strong>the</strong> lens <strong>of</strong> Article 3 UNCRPD (General pr<strong>in</strong>ciples). Accord<strong>in</strong>gly, it follows that <strong>in</strong> implement<strong>in</strong>g <strong>the</strong> obligati<strong>on</strong> tomake development programmes <strong>in</strong>clusive <strong>of</strong> pers<strong>on</strong>s with disabilities, States Partiesshould ensure that laws <strong>and</strong> policies applied <strong>in</strong> respect <strong>of</strong> Article 32 UN CRPD arec<strong>on</strong>sistent with <strong>the</strong> pr<strong>in</strong>ciples <strong>of</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>, participati<strong>on</strong>, accessibility, <strong>and</strong> all<strong>the</strong> o<strong>the</strong>r general pr<strong>in</strong>ciples <strong>of</strong> <strong>the</strong> UN CRPD. In additi<strong>on</strong>, disability preventi<strong>on</strong>programm<strong>in</strong>g (e.g. road safety measures or bl<strong>in</strong>dness preventi<strong>on</strong> measures), which isnot encompassed with<strong>in</strong> <strong>the</strong> UN CRPD, <strong>and</strong> which <strong>the</strong> drafters explicitly chose not toaddress, falls outside <strong>of</strong> disability <strong>in</strong>clusive development, but with<strong>in</strong> <strong>the</strong> public healthdevelopment sector.Despite some available <strong>in</strong>formati<strong>on</strong> <strong>on</strong> ma<strong>in</strong>stream<strong>in</strong>g disability <strong>in</strong> developmentcooperati<strong>on</strong>, 364 this study could not <strong>in</strong>dicate clear challenges to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong>Article 32 UN CRPD as relevant <strong>practices</strong> that have been identified <strong>in</strong> <strong>the</strong> MemberStates <strong>of</strong> <strong>the</strong> EU are fairly new. However, this secti<strong>on</strong> will present <strong>practices</strong> fromGermany <strong>and</strong> Italy, which are relevant to Article 32 UN CRPD <strong>and</strong> <strong>in</strong>clude elementsthat may lead to positive outcomes. These <strong>practices</strong> illustrate positive steps towards<strong>in</strong>clusive <strong>and</strong> accessible development <strong>of</strong> <strong>in</strong>ternati<strong>on</strong>al acti<strong>on</strong>s. It should though beentaken <strong>in</strong>to account that <strong>practices</strong> presented here<strong>in</strong>after are very recent, <strong>and</strong> <strong>the</strong>refore itis not possible to assess whe<strong>the</strong>r or not <strong>the</strong>ir practical implementati<strong>on</strong> is <strong>in</strong> l<strong>in</strong>e with <strong>the</strong>goals set forth <strong>in</strong> Article 32 UN CRPD.363 Janet E. Lord, Internati<strong>on</strong>al Cooperati<strong>on</strong> <strong>and</strong> <strong>the</strong> Inclusive Development Obligati<strong>on</strong> under <strong>the</strong> UNCRPD, Brief<strong>in</strong>g Paper for <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g> <strong>on</strong> <strong>Challenges</strong> <strong>and</strong> Good Practices <strong>in</strong> <strong>the</strong> Implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UNCRPD, VC/2008/1214364 See, for example, Project „Make development <strong>in</strong>clusive‟, which was c<strong>on</strong>ducted by <strong>the</strong> Internati<strong>on</strong>alDisability <strong>and</strong> Development C<strong>on</strong>sortium (IDDC) <strong>and</strong> f<strong>in</strong>anced by <strong>the</strong> European Commissi<strong>on</strong>. For fur<strong>the</strong>r<strong>in</strong>formati<strong>on</strong>, see at: http://www.make-development-<strong>in</strong>clusive.orgPage | 145
In Germany, <strong>the</strong> German Federal M<strong>in</strong>istry for Ec<strong>on</strong>omic Cooperati<strong>on</strong> <strong>and</strong>Development has recently launched <strong>the</strong> Development Policy Acti<strong>on</strong> Plan <strong>on</strong> HumanRights 2008-2010. The acti<strong>on</strong> plan aims to <strong>in</strong>tegrate a human-rights approach <strong>in</strong>to <strong>the</strong>German development policy. 365 To advance this purpose, it <strong>in</strong>cludes a list <strong>of</strong> measuresdesigned to support (with<strong>in</strong> <strong>the</strong> scope <strong>of</strong> German development policy) global, regi<strong>on</strong>al,<strong>and</strong> nati<strong>on</strong>al frame c<strong>on</strong>diti<strong>on</strong>s <strong>and</strong> processes that will c<strong>on</strong>tribute to <strong>the</strong> realisati<strong>on</strong> <strong>of</strong>human rights, <strong>and</strong> hence to susta<strong>in</strong>able development. Indicative examples <strong>of</strong> suchmeasures are:• Streng<strong>the</strong>n<strong>in</strong>g <strong>the</strong> rights <strong>of</strong> disadvantaged groups, such as people withdisabilities, children, <strong>in</strong>digenous <strong>and</strong> ethnic m<strong>in</strong>orities; <strong>and</strong>• Promoti<strong>on</strong> <strong>of</strong> <strong>the</strong> active participati<strong>on</strong> <strong>of</strong> disadvantaged groups <strong>in</strong> <strong>the</strong>communities.Similar to Germany, Italy has established with<strong>in</strong> <strong>the</strong> M<strong>in</strong>istry <strong>of</strong> Foreign Affairs, anentity named Development Cooperati<strong>on</strong>. This new entity is resp<strong>on</strong>sible for cooperati<strong>on</strong>with develop<strong>in</strong>g countries, <strong>and</strong> aid to be granted to such countries. 366 In 2009, <strong>the</strong>Italian Development Cooperati<strong>on</strong> published its Programm<strong>in</strong>g Guidel<strong>in</strong>es <strong>and</strong> Directi<strong>on</strong>sfor 2009-2011, 367 <strong>and</strong> declared its c<strong>on</strong>t<strong>in</strong>ued commitment to crosscutt<strong>in</strong>g issues, suchas assist<strong>in</strong>g vulnerable groups, <strong>in</strong>clud<strong>in</strong>g pers<strong>on</strong>s with disabilities. The Guidel<strong>in</strong>esestablished employment, health, envir<strong>on</strong>ment, health, educati<strong>on</strong>, <strong>and</strong> micro, small <strong>and</strong>medium sized enterprises as priority sectors for fund<strong>in</strong>g. Fur<strong>the</strong>rmore, <strong>the</strong> Guidel<strong>in</strong>esclarified that any fund<strong>in</strong>g to be awarded will aim to promote <strong>in</strong>itiatives which, <strong>in</strong> l<strong>in</strong>e with<strong>the</strong> UN CRPD, are based <strong>on</strong> <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> social <strong>in</strong>clusi<strong>on</strong>, embrace an approach <strong>of</strong>community based rehabilitati<strong>on</strong>, <strong>and</strong> promote social legislati<strong>on</strong> <strong>on</strong> disability.With regard to EU <strong>practices</strong> <strong>in</strong> <strong>the</strong> field <strong>of</strong> <strong>in</strong>ternati<strong>on</strong>al cooperati<strong>on</strong>, <strong>the</strong> CouncilDecisi<strong>on</strong> 2010/48/EC listed three <strong>in</strong>struments that illustrate <strong>the</strong> competence <strong>of</strong> <strong>the</strong> EU<strong>in</strong> this field. These <strong>in</strong>struments are: Regulati<strong>on</strong> 1905/2006 establish<strong>in</strong>g a f<strong>in</strong>anc<strong>in</strong>g<strong>in</strong>strument for development cooperati<strong>on</strong>; Regulati<strong>on</strong> 1889/2006 establish<strong>in</strong>g af<strong>in</strong>anc<strong>in</strong>g <strong>in</strong>strument for <strong>the</strong> promoti<strong>on</strong> <strong>of</strong> democracy; <strong>and</strong> Regulati<strong>on</strong> 718/2007,implement<strong>in</strong>g Council Regulati<strong>on</strong> 185/2006 establish<strong>in</strong>g an <strong>in</strong>strument for Pre-Accessi<strong>on</strong> Assistance. Therefore, for <strong>the</strong> purposes <strong>of</strong> this study, it is deemednecessary to outl<strong>in</strong>e <strong>the</strong> provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> aforementi<strong>on</strong>ed Regulati<strong>on</strong>s which arerelevant for matters related to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> Article 32 UN CRPD.365 Available at http://www.bmz.de/en/service/<strong>in</strong>fo<strong>the</strong>k/fach/k<strong>on</strong>zepte/k<strong>on</strong>zept167.pdf366 Website at http://www.cooperazi<strong>on</strong>eallosviluppo.esteri.it/pdgcs/367 The Programm<strong>in</strong>g Guidel<strong>in</strong>es <strong>and</strong> Directi<strong>on</strong>s for 2009-2011 are available athttp://www.cooperazi<strong>on</strong>eallosviluppo.esteri.it/pdgcs/italiano/L<strong>in</strong>eeGuida/pdf/L<strong>in</strong>ee_guida_Ingl.pdfPage | 146
European Commissi<strong>on</strong> Regulati<strong>on</strong> 718/2007/EC 368 has established an Instrumentfor Pre-Accessi<strong>on</strong> (IPA), <strong>of</strong>fer<strong>in</strong>g rati<strong>on</strong>alised assistance to countries aspir<strong>in</strong>g to jo<strong>in</strong><strong>the</strong> European Uni<strong>on</strong>. The Regulati<strong>on</strong> <strong>in</strong>cludes a reference to n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong>basis <strong>of</strong> disability, <strong>and</strong> an obligati<strong>on</strong> to beneficiary States to report <strong>on</strong> <strong>the</strong> Commissi<strong>on</strong>about acti<strong>on</strong>s taken, <strong>in</strong>clud<strong>in</strong>g <strong>in</strong>formati<strong>on</strong> <strong>on</strong> acti<strong>on</strong>s that streng<strong>the</strong>n <strong>the</strong> employment<strong>and</strong> social <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities. 369 Specifically, Article 3 <strong>of</strong> Regulati<strong>on</strong>718/2007/EC (Pr<strong>in</strong>ciples <strong>of</strong> assistance) states that:<strong>the</strong> Commissi<strong>on</strong> shall ensure that <strong>the</strong> follow<strong>in</strong>g pr<strong>in</strong>ciples apply <strong>in</strong> relati<strong>on</strong> to assistanceunder <strong>the</strong> IPA Regulati<strong>on</strong>: […] Any discrim<strong>in</strong>ati<strong>on</strong> based <strong>on</strong> sex, racial or ethnic orig<strong>in</strong>,religi<strong>on</strong> or belief, disability, age or sexual orientati<strong>on</strong> shall be prevented dur<strong>in</strong>g <strong>the</strong> variousstages <strong>of</strong> <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> assistance.Additi<strong>on</strong>ally, <strong>the</strong> Regulati<strong>on</strong> sets forth <strong>in</strong> Article 169 370 a specific reference to acti<strong>on</strong>saimed at streng<strong>the</strong>n<strong>in</strong>g social <strong>in</strong>clusi<strong>on</strong>, <strong>and</strong> <strong>in</strong>tegrati<strong>on</strong> <strong>in</strong> employment <strong>of</strong>disadvantaged groups, <strong>in</strong>clud<strong>in</strong>g people with disabilities.Based <strong>on</strong> <strong>the</strong> Regulati<strong>on</strong>, assistance is granted by <strong>the</strong> EU to support:• transiti<strong>on</strong>, <strong>and</strong> <strong>in</strong>stituti<strong>on</strong> <strong>and</strong> capacity build<strong>in</strong>g (Article 8 Regulati<strong>on</strong>718/2007/EC);• cross-border cooperati<strong>on</strong> with <strong>the</strong> aim to promote <strong>good</strong> neighbourly relati<strong>on</strong>s,foster<strong>in</strong>g stability, security <strong>and</strong> prosperity <strong>in</strong> <strong>the</strong> mutual <strong>in</strong>terest <strong>of</strong> all countriesc<strong>on</strong>cerned, <strong>and</strong> <strong>of</strong> encourag<strong>in</strong>g <strong>the</strong>ir harm<strong>on</strong>ious, balanced <strong>and</strong> susta<strong>in</strong>abledevelopment (Article 9 Regulati<strong>on</strong> 718/2007/EC);• regi<strong>on</strong>al development, aimed at support<strong>in</strong>g <strong>the</strong> countries' preparati<strong>on</strong>s for <strong>the</strong>implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> Uni<strong>on</strong>‟s cohesi<strong>on</strong> policy (Article 10 Regulati<strong>on</strong>718/2007/EC);• human resources development, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> support <strong>of</strong> educati<strong>on</strong> programmes<strong>and</strong> lifel<strong>on</strong>g learn<strong>in</strong>g opportunities (Article 11 Regulati<strong>on</strong> 718/2007/EC); <strong>and</strong>• rural development, which c<strong>on</strong>cerns preparati<strong>on</strong> for <strong>the</strong> comm<strong>on</strong> agriculturalpolicy <strong>and</strong> related policies <strong>and</strong> for <strong>the</strong> European Agricultural Fund for RuralDevelopment (Article 12 Regulati<strong>on</strong> 718/2007/EC).368European Commissi<strong>on</strong> Regulati<strong>on</strong> 718/2007/EC, implement<strong>in</strong>g Council Regulati<strong>on</strong> 185/2006establish<strong>in</strong>g an <strong>in</strong>strument for Pre-Accessi<strong>on</strong> Assistance, OJ L 210 , 31/07/2006, pp 82 – 93, availableat: http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2006:210:0082:01:EN:HTML369 Stefan Tromel, ANED Work<strong>in</strong>g Group <strong>on</strong> <strong>the</strong> Future <strong>of</strong> EC Disability Law/ Policy, Topic paper <strong>on</strong>:External relati<strong>on</strong>s (with a focus <strong>on</strong> poverty, educati<strong>on</strong> <strong>and</strong> lifel<strong>on</strong>g learn<strong>in</strong>g, support for <strong>in</strong>dependentliv<strong>in</strong>g, <strong>and</strong> social <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> specific groups).370 Art. 169 Regulati<strong>on</strong> 718/2007 refers to sectoral <strong>and</strong> f<strong>in</strong>al reports by beneficiary countries related toimplementati<strong>on</strong>.Page | 147
C<strong>and</strong>idate countries are <strong>the</strong>refore prepared for full implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> Uni<strong>on</strong> acquisat <strong>the</strong> time <strong>of</strong> accessi<strong>on</strong>.As is evident, Regulati<strong>on</strong> 718/2007/EC is <strong>of</strong> particular relevance to <strong>the</strong> implementati<strong>on</strong><strong>of</strong> Article 32 UN CRPD by <strong>the</strong> Uni<strong>on</strong>. The Regulati<strong>on</strong> has several positive elementsthat seem to be <strong>in</strong> l<strong>in</strong>e with <strong>the</strong> UN CRPD, <strong>and</strong> covers a broad range <strong>of</strong> fields that arerelevant to <strong>the</strong> <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities (e.g. employment, development,n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>, <strong>and</strong> o<strong>the</strong>rs). N<strong>on</strong>e<strong>the</strong>less, with <strong>the</strong> aim to achieve full <strong>and</strong> effectiveimplementati<strong>on</strong>, <strong>the</strong> EU should review <strong>the</strong> provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> Regulati<strong>on</strong>, <strong>and</strong> <strong>in</strong>clude aclarificati<strong>on</strong> that any fund<strong>in</strong>g to be awarded to c<strong>and</strong>idate States, should respect <strong>and</strong>promote <strong>the</strong> general pr<strong>in</strong>ciples <strong>of</strong> <strong>the</strong> UN CRPD to which <strong>the</strong> EU is a party. F<strong>in</strong>ally, anyfund<strong>in</strong>g to be awarded should be <strong>in</strong>clusive <strong>of</strong>, <strong>and</strong> accessible to, pers<strong>on</strong>s withdisabilities.Regulati<strong>on</strong> No 1905/2006/EC has established a f<strong>in</strong>anc<strong>in</strong>g <strong>in</strong>strument for DevelopmentCooperati<strong>on</strong> (DCI). 371 The primary objective <strong>of</strong> cooperati<strong>on</strong> under this Regulati<strong>on</strong> is <strong>the</strong>eradicati<strong>on</strong> <strong>of</strong> poverty <strong>in</strong> develop<strong>in</strong>g countries <strong>and</strong> regi<strong>on</strong>s, 372 susta<strong>in</strong>abledevelopment, <strong>and</strong> <strong>the</strong> achievement <strong>of</strong> <strong>the</strong> Millennium Development Goals (MDGs), <strong>in</strong>particular <strong>the</strong> MDGs related to promoti<strong>on</strong> <strong>of</strong> democracy, <strong>good</strong> governance, <strong>and</strong> respectfor human rights <strong>and</strong> <strong>the</strong> rule <strong>of</strong> law.Recital 11 <strong>of</strong> <strong>the</strong> Regulati<strong>on</strong> states that <strong>the</strong> EU, <strong>and</strong> its Members States, should payparticular attenti<strong>on</strong> to <strong>the</strong> right to decent work <strong>and</strong> <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities.However, no specificities are given later <strong>in</strong> <strong>the</strong> text.Article 3(3) <strong>of</strong> <strong>the</strong> Regulati<strong>on</strong> requires all programmes to be established under <strong>the</strong>Regulati<strong>on</strong> to ma<strong>in</strong>stream certa<strong>in</strong> „cross-cutt<strong>in</strong>g‟ issues. 373 Inclusi<strong>on</strong> <strong>of</strong>, <strong>and</strong>accessibility to, pers<strong>on</strong>s with disabilities are not part <strong>of</strong> <strong>the</strong> „cross-cutt<strong>in</strong>g‟ issues setforth <strong>in</strong> Regulati<strong>on</strong> 1905/2006. Additi<strong>on</strong>ally, Article 5 <strong>of</strong> <strong>the</strong> Regulati<strong>on</strong> <strong>in</strong>troducescerta<strong>in</strong> <strong>in</strong>terventi<strong>on</strong> areas 374 which <strong>the</strong> EU will focus <strong>on</strong>. In <strong>the</strong>se areas, <strong>the</strong> EU sets371 Regulati<strong>on</strong> (EC) No 1905/2006 <strong>of</strong> <strong>the</strong> European Parliament <strong>and</strong> <strong>of</strong> <strong>the</strong> Council <strong>of</strong> 18 December 2006has established a f<strong>in</strong>anc<strong>in</strong>g <strong>in</strong>strument for Development Cooperati<strong>on</strong>, OJ L 378/41 <strong>of</strong> 27/12/2006, pp41–71. The legal basis <strong>of</strong> <strong>the</strong> Regulati<strong>on</strong> is Article 179 TEC, act<strong>in</strong>g <strong>in</strong> accordance with <strong>the</strong> procedurelaid down <strong>in</strong> Article 251 TEC. The full text <strong>of</strong> <strong>the</strong> Regulati<strong>on</strong> is available at: http://eurlex.europa.eu/lex/LexUriServ/LexUriServ.do?uri=OJ:L:2006:378:0041:0071:EN:PDF372 For <strong>the</strong> purposes <strong>of</strong> Regulati<strong>on</strong> No 1905/2006, a regi<strong>on</strong> is def<strong>in</strong>ed as a geographical entitycompris<strong>in</strong>g more than <strong>on</strong>e develop<strong>in</strong>g country. It should fur<strong>the</strong>r be noted that countries <strong>and</strong> regi<strong>on</strong>sunder this Regulati<strong>on</strong> refer to n<strong>on</strong> EC Member States <strong>and</strong> States that are not eligible for Community aidunder Regulati<strong>on</strong> (EC) No 1085/2006 (provid<strong>in</strong>g for assistance to c<strong>and</strong>idate or potentially c<strong>and</strong>idatecountries) or Regulati<strong>on</strong> (EC) No 1638/2006 (provid<strong>in</strong>g for direct support for <strong>the</strong> EU's EuropeanNeighbor<strong>in</strong>g countries).373 These are: democracy, <strong>good</strong> governance, human rights, <strong>the</strong> rights <strong>of</strong> children <strong>and</strong> <strong>in</strong>digenouspeoples; gender equality; envir<strong>on</strong>mental susta<strong>in</strong>ability; <strong>and</strong> fight aga<strong>in</strong>st HIV/AIDS.374 These areas are Educati<strong>on</strong>; Health; Social Cohesi<strong>on</strong> <strong>and</strong> Employment; Trade <strong>and</strong> regi<strong>on</strong>al<strong>in</strong>tegrati<strong>on</strong>; Governance, democracy, human rights <strong>and</strong> support for <strong>in</strong>stituti<strong>on</strong>al reforms; Envir<strong>on</strong>mentPage | 148
some objectives that beneficiary countries should meet. Similar to Article 3, <strong>the</strong>objectives set forth <strong>in</strong> Article 5 do not take <strong>in</strong>to account <strong>the</strong> disability dimensi<strong>on</strong>, asrequired by Article 32 UN CRPD. It should be noted though that under <strong>the</strong> area <strong>of</strong>health, <strong>the</strong> Regulati<strong>on</strong> calls <strong>on</strong> beneficiary countries to provide access to, <strong>and</strong> provisi<strong>on</strong><strong>of</strong>, health services for, <strong>in</strong>ter alia, pers<strong>on</strong>s with disabilities.C<strong>on</strong>sequently, <strong>the</strong> EU, as a Party to <strong>the</strong> UN CRPD <strong>and</strong> with <strong>the</strong> aim to fully meet <strong>the</strong>requirements set forth <strong>in</strong> Articles 3 <strong>and</strong> 32 <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>, should review Articles3(3) <strong>and</strong> 5 <strong>of</strong> <strong>the</strong> Regulati<strong>on</strong>, so as to <strong>in</strong>clude accessibility <strong>and</strong> <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> people withdisabilities as a cross-cutt<strong>in</strong>g issue, <strong>and</strong> ensure that <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s withdisabilities are protected <strong>and</strong> ma<strong>in</strong>streamed <strong>in</strong> all projects or programmes f<strong>in</strong>ancedunder Regulati<strong>on</strong> No 1905/2006/EC.F<strong>in</strong>ally, Regulati<strong>on</strong> No 1889/2006/EC, has established a f<strong>in</strong>anc<strong>in</strong>g <strong>in</strong>strument for <strong>the</strong>promoti<strong>on</strong> <strong>of</strong> democracy <strong>and</strong> human rights worldwide (European Instrument forDemocracy <strong>and</strong> Human Rights). 375 The Regulati<strong>on</strong> <strong>in</strong>cludes an explicit reference todisability. EU assistance under this Regulati<strong>on</strong> is placed with<strong>in</strong> <strong>the</strong> framework <strong>of</strong> <strong>the</strong>EU‟s policy <strong>on</strong> development cooperati<strong>on</strong>, <strong>and</strong> ec<strong>on</strong>omic, f<strong>in</strong>ancial <strong>and</strong> technicalcooperati<strong>on</strong> with third countries. The primary EU objective <strong>of</strong> partnerships with thirdcountries is to c<strong>on</strong>tribute to <strong>the</strong> development <strong>and</strong> c<strong>on</strong>solidati<strong>on</strong> <strong>of</strong> democracy <strong>and</strong> <strong>the</strong>rule <strong>of</strong> law, <strong>and</strong> respect for all human rights <strong>and</strong> fundamental freedoms. To thispurpose, Article 2 <strong>of</strong> <strong>the</strong> Regulati<strong>on</strong> lists specific fields, which are <strong>the</strong> priorities <strong>of</strong> <strong>the</strong>EU for partnerships with third countries. Specifically, Article 2 states, <strong>in</strong>ter alia, that <strong>the</strong>promoti<strong>on</strong> <strong>and</strong> respect <strong>of</strong> <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>and</strong> <strong>the</strong> fight aga<strong>in</strong>stdiscrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> disability are priority areas for EU assistance under thisRegulati<strong>on</strong>. To date, <strong>the</strong>re are a number <strong>of</strong> projects focused <strong>on</strong> <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>swith disabilities which have been f<strong>in</strong>anced under this f<strong>in</strong>ancial <strong>in</strong>strument. 376C<strong>on</strong>sequently, Regulati<strong>on</strong> No 1889/2006/EC seems to be <strong>in</strong> l<strong>in</strong>e with severalrequirements set forth <strong>in</strong> <strong>the</strong> general pr<strong>in</strong>ciples, <strong>and</strong> Article 32 <strong>of</strong> <strong>the</strong> UN CRPD. It canthus be c<strong>on</strong>sidered as a <strong>good</strong> EU practice <strong>in</strong> <strong>the</strong> field <strong>of</strong> <strong>in</strong>ternati<strong>on</strong>al cooperati<strong>on</strong> <strong>and</strong>aid.C<strong>on</strong>clud<strong>in</strong>g, <strong>the</strong> EU, with<strong>in</strong> <strong>the</strong> framework <strong>of</strong> its m<strong>and</strong>ate, has managed over <strong>the</strong> yearsto establish partnerships <strong>and</strong> development programmes with many develop<strong>in</strong>gcountries around <strong>the</strong> world (for example, Caribbean <strong>and</strong> sub-Saharan Africancountries). EU development policies <strong>in</strong> <strong>the</strong> develop<strong>in</strong>g countries focus <strong>on</strong> areas, which<strong>and</strong> susta<strong>in</strong>able development <strong>of</strong> natural resources; Water <strong>and</strong> energy; Infrastructure, communicati<strong>on</strong><strong>and</strong> transport; <strong>and</strong> Post-crisis situati<strong>on</strong>s <strong>and</strong> fragile States.375 Council Regulati<strong>on</strong> (EC) No 1889/2006 <strong>of</strong> 20 December 2006 establish<strong>in</strong>g a f<strong>in</strong>anc<strong>in</strong>g <strong>in</strong>strument for<strong>the</strong> promoti<strong>on</strong> <strong>of</strong> democracy <strong>and</strong> human rights worldwide (EIDHR), OJ L 386, 29/12/2006, pp 1–11376 See supra note 377Page | 149
are <strong>of</strong> particular importance to <strong>the</strong> UN CRPD; for example <strong>the</strong> support to programmeswhich promote equitable access to social services, or l<strong>in</strong>k trade with development, orbuild <strong>in</strong>stituti<strong>on</strong>al capacity. In additi<strong>on</strong>, <strong>the</strong> Uni<strong>on</strong> can (<strong>and</strong> as a Party to <strong>the</strong> UN CRPDshould) <strong>in</strong>fluence <strong>and</strong> support third, or c<strong>and</strong>idate, countries to ensure <strong>the</strong> realisati<strong>on</strong> <strong>of</strong><strong>the</strong> UN CRPD objectives with<strong>in</strong> <strong>the</strong>ir territory. This goal can be achieved through, forexample, <strong>the</strong> use <strong>of</strong> <strong>the</strong> so called „human rights clauses‟.The human rights clauses <strong>in</strong> EU mixed agreements generally refer to “appropriatemeasures” be<strong>in</strong>g taken by <strong>the</strong> Uni<strong>on</strong> <strong>in</strong> <strong>the</strong> event <strong>of</strong> human rights abuses (abusesmade by <strong>the</strong> o<strong>the</strong>r c<strong>on</strong>tract<strong>in</strong>g party, or parties). This does not necessarily <strong>in</strong>volvesuspensi<strong>on</strong>, or term<strong>in</strong>ati<strong>on</strong>, <strong>of</strong> <strong>the</strong> whole agreement. It could <strong>in</strong>volve apply<strong>in</strong>gsancti<strong>on</strong>s, such as chang<strong>in</strong>g <strong>the</strong> terms <strong>of</strong> cooperati<strong>on</strong> programmes; or reduc<strong>in</strong>gcultural, scientific <strong>and</strong> technical cooperati<strong>on</strong>; or postp<strong>on</strong><strong>in</strong>g, or suspend<strong>in</strong>g, bilateralc<strong>on</strong>tacts, or new projects, or trade embargoes; or suspend<strong>in</strong>g <strong>the</strong> cooperati<strong>on</strong> as awhole. In view <strong>of</strong> <strong>the</strong> UN CRPD implementati<strong>on</strong> by <strong>the</strong> EU, exist<strong>in</strong>g human rightsclauses should be <strong>in</strong>terpreted as encompass<strong>in</strong>g <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities,<strong>in</strong> order to sancti<strong>on</strong> persistent <strong>and</strong> serious breaches <strong>of</strong> such rights. Fur<strong>the</strong>rmore, newhuman rights clauses should <strong>in</strong>clude a specific reference to <strong>the</strong> UN CRPD, or to <strong>the</strong>rights <strong>of</strong> pers<strong>on</strong>s with disabilities. Human rights clauses could thus be a useful meansto force “undiscipl<strong>in</strong>ed” third countries that have ratified <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> to comply with<strong>the</strong> UN CRPD st<strong>and</strong>ards. It should be noted though that a challenge to <strong>the</strong> effectiveimplementati<strong>on</strong> <strong>of</strong> <strong>the</strong> „human rights clauses‟ arises from <strong>the</strong> current lack <strong>of</strong> aneffective mechanism to make <strong>the</strong> clauses operati<strong>on</strong>al, <strong>and</strong> ensure that States complywith <strong>the</strong>ir human rights obligati<strong>on</strong>s.In additi<strong>on</strong> <strong>the</strong>re are o<strong>the</strong>r forms <strong>of</strong> <strong>on</strong>go<strong>in</strong>g cooperati<strong>on</strong> that could also c<strong>on</strong>tribute to<strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> at <strong>the</strong> EU level. For example, <strong>the</strong> EUhas established a form <strong>of</strong> Dialogue with <strong>the</strong> United States (US). This TransatlanticDialogue is tak<strong>in</strong>g place for <strong>the</strong> last decade or so, <strong>and</strong> a <strong>good</strong> work<strong>in</strong>g relati<strong>on</strong>ship hasalready been established between <strong>the</strong> participat<strong>in</strong>g parties; especially between <strong>the</strong>European Commissi<strong>on</strong>, which is also <strong>the</strong> focal po<strong>in</strong>t <strong>of</strong> <strong>the</strong> EU for all matters related to<strong>the</strong> UN CRPD, <strong>and</strong> <strong>the</strong> US authorities. 377 The Transatlantic Dialogue has covered s<strong>of</strong>ar areas related to trade; employment, social affairs, <strong>and</strong> equal opportunities;accessibility; promoti<strong>on</strong> <strong>of</strong> peace, stability, democracy <strong>and</strong> development around <strong>the</strong>world; <strong>and</strong> o<strong>the</strong>rs. In view <strong>of</strong> <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD by <strong>the</strong> EuropeanUni<strong>on</strong>, this channel <strong>of</strong> communicati<strong>on</strong> with <strong>the</strong> US could enhance <strong>the</strong> effectiveimplementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD by <strong>the</strong> European Uni<strong>on</strong>. Specifically, <strong>the</strong> <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> a377 For detailed <strong>in</strong>formati<strong>on</strong> <strong>on</strong> <strong>the</strong> Transatlantic Agenda, see Brief<strong>in</strong>g Paper “Tak<strong>in</strong>g <strong>the</strong> US/EUDialogue to a New Level”, written by researcher Aisl<strong>in</strong>g de Paor <strong>and</strong> Pr<strong>of</strong>. Gerard Qu<strong>in</strong>n <strong>of</strong> <strong>the</strong> Centrefor Disability Law <strong>and</strong> Policy, Nati<strong>on</strong>al University <strong>of</strong> Irel<strong>and</strong>, Galway, for <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g> VC/2008/1214.Page | 150
disability dimensi<strong>on</strong> <strong>in</strong> <strong>the</strong> fields covered by <strong>the</strong> Transatlantic Agenda <strong>and</strong> <strong>the</strong>C<strong>on</strong>venti<strong>on</strong> would facilitate <strong>the</strong> exchange <strong>of</strong> experiences, <strong>and</strong> possible <strong>good</strong> <strong>practices</strong>for matters related to <strong>the</strong> practical implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD. To date, suchdialogue has been beneficial <strong>in</strong> <strong>the</strong> field <strong>of</strong> <strong>in</strong>formati<strong>on</strong> <strong>and</strong> communicati<strong>on</strong>technologies, which is <strong>of</strong> great importance for <strong>the</strong> right <strong>of</strong> pers<strong>on</strong>s with disabilities to<strong>in</strong>dependent liv<strong>in</strong>g. Lastly, <strong>the</strong> Transatlantic Dialogue could serve as a role model for<strong>the</strong> establishment by <strong>the</strong> EU <strong>of</strong> similar communicati<strong>on</strong> forums with o<strong>the</strong>r parties to <strong>the</strong>UN CRPD, <strong>and</strong> with <strong>the</strong> aim to enhance learn<strong>in</strong>g <strong>on</strong> different approaches related to <strong>the</strong>implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>.5.4 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 32States Parties should perform a screen<strong>in</strong>g exercise to assess <strong>the</strong> <strong>in</strong>clusivity <strong>of</strong> <strong>the</strong>irdevelopment aid policies <strong>and</strong> programmes. To this purpose, screen<strong>in</strong>g exercisesshould, <strong>in</strong>ter alia, <strong>in</strong>clude an assessment <strong>of</strong> whe<strong>the</strong>r:any laws, policies or <strong>practices</strong> exclude pers<strong>on</strong>s with disabilities from <strong>in</strong>ternati<strong>on</strong>alcooperati<strong>on</strong> programmes, ei<strong>the</strong>r as beneficiaries or as implementers;domestic disability laws apply extraterritorially to development assistance;exist<strong>in</strong>g disability n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> laws apply to <strong>the</strong> recruitment <strong>and</strong> tra<strong>in</strong><strong>in</strong>g <strong>of</strong>people with disabilities for <strong>in</strong>ternati<strong>on</strong>al development or foreign assistanceassignments;<strong>in</strong>ternati<strong>on</strong>al cooperati<strong>on</strong> programmes are directed at <strong>in</strong>clusi<strong>on</strong> <strong>and</strong> aut<strong>on</strong>omy<strong>and</strong> applied without discrim<strong>in</strong>ati<strong>on</strong> <strong>and</strong> <strong>in</strong> relati<strong>on</strong> to all pers<strong>on</strong>s with disabilities,<strong>in</strong>clud<strong>in</strong>g women <strong>and</strong> children with disabilities; <strong>and</strong>pers<strong>on</strong>s with disabilities <strong>and</strong> <strong>the</strong>ir representative organisati<strong>on</strong> are <strong>in</strong>volved <strong>in</strong>development plann<strong>in</strong>g, implementati<strong>on</strong> <strong>and</strong> evaluati<strong>on</strong>.Follow<strong>in</strong>g <strong>the</strong> results <strong>of</strong> screen<strong>in</strong>g exercises, all <strong>the</strong> aforementi<strong>on</strong>ed issues should bema<strong>in</strong>streamed to all previously established, or upcom<strong>in</strong>g, <strong>in</strong>ternati<strong>on</strong>al cooperati<strong>on</strong>programmes.States Parties as d<strong>on</strong>or (or beneficiary) countries should take measures to guaranteethat <strong>in</strong>ternati<strong>on</strong>al cooperati<strong>on</strong> ma<strong>in</strong>streams <strong>the</strong> general pr<strong>in</strong>ciples <strong>of</strong> <strong>the</strong> UN CRPD, <strong>and</strong>is <strong>in</strong>clusive <strong>of</strong>, <strong>and</strong> accessible to, pers<strong>on</strong>s with disabilities. 378378 UN CRPD Committee, CRPD/C/2/3 <strong>of</strong> 18 November 2009, Guidel<strong>in</strong>es <strong>on</strong> treaty specific document tobe submitted by States Parties under Article 35(1) UN CRPDPage | 151
States Parties should, <strong>in</strong> <strong>the</strong>ir <strong>in</strong>ternati<strong>on</strong>al cooperati<strong>on</strong> programmes <strong>and</strong>/or projects,ensure participati<strong>on</strong> by pers<strong>on</strong>s with disabilities <strong>in</strong> <strong>the</strong> design, development, <strong>and</strong>evaluati<strong>on</strong> <strong>of</strong> <strong>the</strong> programme <strong>and</strong> project. 379States Parties should ensure that <strong>the</strong>ir <strong>in</strong>ternati<strong>on</strong>al cooperati<strong>on</strong> programmes <strong>and</strong>projects ma<strong>in</strong>stream acti<strong>on</strong>s towards pers<strong>on</strong>s with disabilities. 380States Parties as d<strong>on</strong>ors should, <strong>in</strong> <strong>the</strong>ir <strong>in</strong>ternati<strong>on</strong>al cooperati<strong>on</strong> programmes <strong>and</strong>projects, <strong>in</strong>clude acti<strong>on</strong>s that support <strong>the</strong> beneficiaries‟ capacity build<strong>in</strong>g <strong>on</strong> issuesrelated to <strong>the</strong> UN CRPD implementati<strong>on</strong>. These acti<strong>on</strong>s should <strong>in</strong>clude, but are notlimited to, tra<strong>in</strong><strong>in</strong>g, exchange <strong>and</strong> shar<strong>in</strong>g experiences <strong>and</strong> <strong>good</strong> <strong>practices</strong>.States Parties as d<strong>on</strong>or (or beneficiary) countries should ensure that programmes,<strong>and</strong>/or projects, target<strong>in</strong>g <strong>the</strong> achievement <strong>of</strong> Millennium Development Goals (MDGs),take <strong>in</strong>to account <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities. 3815.5 Article 33 obligati<strong>on</strong>s <strong>and</strong> overview <strong>of</strong> exist<strong>in</strong>g <strong>practices</strong>The UN C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities is <strong>the</strong> first human rightstreaty that c<strong>on</strong>ta<strong>in</strong>s detailed provisi<strong>on</strong>s <strong>on</strong> <strong>the</strong> establishment <strong>and</strong> functi<strong>on</strong><strong>in</strong>g <strong>of</strong>nati<strong>on</strong>al m<strong>on</strong>itor<strong>in</strong>g <strong>and</strong> implementati<strong>on</strong> frameworks.The <strong>in</strong>itial core obligati<strong>on</strong> deriv<strong>in</strong>g from Article 33(1) UN CRPD is <strong>the</strong> designati<strong>on</strong> <strong>of</strong><strong>on</strong>e, or more, focal po<strong>in</strong>ts with<strong>in</strong> States Parties governmental structures, for allmatters relat<strong>in</strong>g to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD. With <strong>the</strong> aim to ensure optimaleffectiveness, <strong>the</strong>se focal po<strong>in</strong>ts should be located at <strong>the</strong> government level, <strong>and</strong> ideallyat <strong>the</strong> highest level <strong>of</strong> government (i.e. executive authority, M<strong>in</strong>istry level). A focal po<strong>in</strong>tat <strong>the</strong> highest executive level will guarantee <strong>the</strong> ma<strong>in</strong>stream impact <strong>of</strong> <strong>the</strong> focal po<strong>in</strong>t‟swork, <strong>and</strong> <strong>the</strong> status <strong>of</strong> its recommendati<strong>on</strong>s, while also serv<strong>in</strong>g as a permanentrem<strong>in</strong>der that <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities need to be respected <strong>in</strong> all areas <strong>of</strong><strong>the</strong> executive power. 382 Fur<strong>the</strong>rmore, as <strong>the</strong> UN OHCHR has highlighted:[..] <strong>the</strong> establishment <strong>of</strong> a focal po<strong>in</strong>t <strong>and</strong> its m<strong>and</strong>ate should take place through legalmeasures. The m<strong>and</strong>ate should clearly address <strong>the</strong> need for coherent <strong>and</strong> coord<strong>in</strong>atedgovernment activity <strong>in</strong> <strong>the</strong> fields <strong>of</strong> disability, <strong>and</strong> adequate human <strong>and</strong> f<strong>in</strong>ancialresources shall be allocated to it. 383 Focal po<strong>in</strong>t(s) should be adequately resourced <strong>in</strong>379 Ibid, CRPD/C/2/3380 Ibid, CRPD/C/2/3381 Ibid, CRPD/C/2/3382 See OHCHR <str<strong>on</strong>g>Study</str<strong>on</strong>g> <strong>on</strong> Nati<strong>on</strong>al Frameworks for <strong>the</strong> Promoti<strong>on</strong> <strong>and</strong> Protecti<strong>on</strong> <strong>of</strong> <strong>the</strong> Human Rights <strong>of</strong>Pers<strong>on</strong>s with Disabilities, available at http://www2.ohchr.org/english/issues/disability/documents.htm383 In this regard <strong>the</strong> Cypriot focal po<strong>in</strong>t can be seen as an example <strong>of</strong> <strong>good</strong> practice. The Cypriot focalpo<strong>in</strong>t was established <strong>in</strong> 2008 with<strong>in</strong> <strong>the</strong> M<strong>in</strong>istry <strong>of</strong> Labour <strong>and</strong> Social Insurance, <strong>and</strong> is <strong>the</strong> Department<strong>of</strong> Social Inclusi<strong>on</strong> <strong>of</strong> Pers<strong>on</strong>s with Disabilities. The later <strong>in</strong>cludes <strong>in</strong> its m<strong>and</strong>ate <strong>the</strong> m<strong>on</strong>itor<strong>in</strong>g <strong>and</strong>Page | 152
order to positively c<strong>on</strong>tribute to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> nati<strong>on</strong>al strategies <strong>and</strong> plansadopted to give effect to <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. 384In additi<strong>on</strong>, Article 33(1) urges States Parties to c<strong>on</strong>sider creat<strong>in</strong>g or designat<strong>in</strong>g acoord<strong>in</strong>ati<strong>on</strong> mechanism (aga<strong>in</strong> with<strong>in</strong> government) to fur<strong>the</strong>r supportimplementati<strong>on</strong> <strong>of</strong> UN CRPD across all sectors <strong>of</strong> <strong>the</strong> government. This is an implicitacknowledgement that disability is an issue that cuts across numerous governmentalm<strong>in</strong>istries <strong>and</strong> agencies, <strong>and</strong> thus full <strong>and</strong> effective implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPDcannot occur absent coord<strong>in</strong>ati<strong>on</strong>. A coord<strong>in</strong>ati<strong>on</strong> mechanism may take, for example,<strong>the</strong> shape <strong>of</strong> an <strong>in</strong>ter-m<strong>in</strong>isterial group, tasked with coord<strong>in</strong>at<strong>in</strong>g implementati<strong>on</strong> <strong>of</strong> <strong>the</strong>C<strong>on</strong>venti<strong>on</strong> across respective departments/sectors, or levels <strong>of</strong> government, <strong>and</strong> couldprove particularly beneficial <strong>in</strong> systems <strong>of</strong> devolved adm<strong>in</strong>istrati<strong>on</strong>, such as <strong>the</strong>European Uni<strong>on</strong>, or federal States.The sec<strong>on</strong>d major obligati<strong>on</strong>, deriv<strong>in</strong>g from Article 33(2) UN CRPD, requires StatesParties to establish a nati<strong>on</strong>al m<strong>on</strong>itor<strong>in</strong>g framework separate from government,with <strong>the</strong> aim to “promote, protect <strong>and</strong> m<strong>on</strong>itor” <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD. Aspart <strong>of</strong> such a „framework‟, Article 33(2) requires States Parties to <strong>in</strong>clude <strong>on</strong>e or more<strong>in</strong>dependent mechanisms. The provisi<strong>on</strong> leaves States Parties <strong>the</strong> choice <strong>of</strong> whe<strong>the</strong>rto <strong>in</strong>stitute specific disability mechanisms, or assign <strong>the</strong> m<strong>on</strong>itor<strong>in</strong>g functi<strong>on</strong> to exist<strong>in</strong>gentities. However, whatever <strong>the</strong> preferred choice, <strong>the</strong>se m<strong>on</strong>itor<strong>in</strong>g mechanisms musttake <strong>in</strong>to account <strong>the</strong> Pr<strong>in</strong>ciples relat<strong>in</strong>g to <strong>the</strong> status <strong>and</strong> functi<strong>on</strong><strong>in</strong>g <strong>of</strong> nati<strong>on</strong>al<strong>in</strong>stituti<strong>on</strong>s for <strong>the</strong> promoti<strong>on</strong> <strong>and</strong> protecti<strong>on</strong> <strong>of</strong> human rights (also known as <strong>the</strong> ParisPr<strong>in</strong>ciples), 385 so as to ensure <strong>the</strong>ir <strong>in</strong>dependence. This does not mean that <strong>on</strong>lyentities comply<strong>in</strong>g with <strong>the</strong> Paris Pr<strong>in</strong>ciples should be <strong>in</strong>cluded <strong>in</strong> <strong>the</strong> framework, butthat at least <strong>on</strong>e mechanism that is established <strong>and</strong> functi<strong>on</strong>s <strong>on</strong> <strong>the</strong> basis <strong>of</strong> <strong>the</strong> ParisPr<strong>in</strong>ciples must be part <strong>of</strong> <strong>the</strong> framework. 386 It should be noted though that <strong>the</strong> ParisPr<strong>in</strong>ciples are not expressly referred to <strong>in</strong> Article 33 UN CRPD.The framework established or designated must be adequately m<strong>and</strong>ated to promote,protect <strong>and</strong> m<strong>on</strong>itor <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. This means that <strong>the</strong>coord<strong>in</strong>ati<strong>on</strong> <strong>of</strong> <strong>the</strong> nati<strong>on</strong>al UN CRPD implementati<strong>on</strong>. More <strong>in</strong>formati<strong>on</strong> is available at (<strong>in</strong> EL):http://www.mlsi.gov.cy/mlsi/dsid/dsid.nsf/dsid02_gr/dsid02_gr?OpenDocument384 Silvia Lavagnoli, Human Rights Officer, United Nati<strong>on</strong>s Office <strong>of</strong> <strong>the</strong> High Commissi<strong>on</strong>er forHuman Rights (OHCHR-UNOG). Keynote Speech <strong>in</strong> <strong>the</strong> Sem<strong>in</strong>ar <strong>on</strong> <strong>the</strong> Nati<strong>on</strong>al Implement<strong>in</strong>g <strong>and</strong>M<strong>on</strong>itor<strong>in</strong>g Bodies described <strong>in</strong> Article 33 UN CRPD, held <strong>in</strong> Brussels <strong>on</strong> October 29 th , 2009 <strong>and</strong> jo<strong>in</strong>tlyorganised by <strong>the</strong> European C<strong>on</strong>sortium <strong>of</strong> Foundati<strong>on</strong>s <strong>on</strong> Human Rights <strong>and</strong> Disability <strong>and</strong> <strong>the</strong>European Disability Forum. More <strong>in</strong>formati<strong>on</strong> is available at:http://www.edf-feph.org/Page_Generale.asp?DocID=13855&<strong>the</strong>bloc=22905385 United Nati<strong>on</strong>s General Assembly A/RES/48/134, 85 th plenary meet<strong>in</strong>g, held <strong>on</strong> 20 December 1993.386 See Thematic <str<strong>on</strong>g>Study</str<strong>on</strong>g> by <strong>the</strong> Office <strong>of</strong> <strong>the</strong> United Nati<strong>on</strong>s High Commissi<strong>on</strong>er for Human Rights <strong>on</strong> <strong>the</strong>structure <strong>and</strong> role <strong>of</strong> nati<strong>on</strong>al mechanisms for <strong>the</strong> implementati<strong>on</strong> <strong>and</strong> m<strong>on</strong>itor<strong>in</strong>g <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>on</strong><strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities, A/HRC/13/29, 22 December 2009, para 41Page | 153
framework needs to be given an adequate m<strong>and</strong>ate <strong>and</strong> <strong>the</strong> <strong>in</strong>stituti<strong>on</strong>al capacityrequired to effectively perform its functi<strong>on</strong>s. 387 The activities <strong>of</strong> <strong>the</strong> designatedframework may vary depend<strong>in</strong>g <strong>on</strong> nati<strong>on</strong>al systems <strong>and</strong> structures. Never<strong>the</strong>less,activities to “promote, protect <strong>and</strong> m<strong>on</strong>itor” <strong>in</strong>clude, but are not limited to, <strong>the</strong> follow<strong>in</strong>g:• c<strong>on</strong>duct<strong>in</strong>g <strong>of</strong> public <strong>in</strong>quiries;• provid<strong>in</strong>g compla<strong>in</strong>ts mechanisms;• awareness-rais<strong>in</strong>g <strong>and</strong> public educati<strong>on</strong> campaigns;• report<strong>in</strong>g to government, <strong>in</strong> an advisory functi<strong>on</strong>, <strong>on</strong> human rights <strong>and</strong> disabilitymatters;• c<strong>on</strong>tribut<strong>in</strong>g to reports which States Parties are required to submit to UN bodies<strong>and</strong> committees;• <strong>the</strong> preparati<strong>on</strong> <strong>of</strong> assessment reports identify<strong>in</strong>g <strong>the</strong> extent to which <strong>the</strong>re hasbeen compliance;• provid<strong>in</strong>g mediati<strong>on</strong>, undertak<strong>in</strong>g „strategic litigati<strong>on</strong>‟. 388F<strong>in</strong>ally, Article 33(3) UN CRPD requires civil society, 389 <strong>in</strong> particular pers<strong>on</strong>s withdisabilities <strong>and</strong> <strong>the</strong>ir respective organisati<strong>on</strong>s, to be fully <strong>in</strong>volved <strong>in</strong>, <strong>and</strong> enabled to,participate <strong>in</strong> <strong>the</strong> m<strong>on</strong>itor<strong>in</strong>g process. This requirement fur<strong>the</strong>r specifies <strong>the</strong> generalpr<strong>in</strong>ciple <strong>of</strong> participati<strong>on</strong> <strong>of</strong> people with disabilities (Article 3(c) UNCRPD) as well as <strong>the</strong>general obligati<strong>on</strong> to c<strong>on</strong>sult with <strong>and</strong> actively <strong>in</strong>volve pers<strong>on</strong>s with disabilities,<strong>in</strong>clud<strong>in</strong>g children with disabilities, through <strong>the</strong>ir representative organisati<strong>on</strong>s <strong>in</strong> <strong>the</strong>development <strong>and</strong> implementati<strong>on</strong> <strong>of</strong> legislati<strong>on</strong> <strong>and</strong> policies to implement <strong>the</strong>C<strong>on</strong>venti<strong>on</strong> <strong>and</strong> <strong>in</strong> all decisi<strong>on</strong>-mak<strong>in</strong>g processes c<strong>on</strong>cern<strong>in</strong>g issues relat<strong>in</strong>g to pers<strong>on</strong>swith disabilities (Article 4(3) UN CRPD). 390 „Involvement‟ applies to all parts <strong>of</strong> Article33 <strong>and</strong> <strong>the</strong>refore implies that civil society organisati<strong>on</strong>s may form part <strong>of</strong> <strong>the</strong> nati<strong>on</strong>alframework under Article 33(2) UN CRPD, or, ideally, be <strong>in</strong>cluded with<strong>in</strong> <strong>the</strong> focal po<strong>in</strong>tset up under Article 33(1) UN CRPD. 391 The language „participate fully‟ used <strong>in</strong> Article33(3), as regards to m<strong>on</strong>itor<strong>in</strong>g may also imply opportunities for pers<strong>on</strong>s withdisabilities <strong>and</strong> <strong>the</strong>ir representative organisati<strong>on</strong>s to have a role <strong>in</strong> <strong>the</strong> m<strong>on</strong>itor<strong>in</strong>g thatoccurs both at <strong>the</strong> government level, <strong>and</strong> at <strong>the</strong> level <strong>of</strong> <strong>in</strong>dependent m<strong>on</strong>itor<strong>in</strong>g,387 Ibid388 Ibid, para 62 – 68. See also A/HRC/10/48, supra note 41, para 66389 Civil society organisati<strong>on</strong>s <strong>in</strong>clude two types <strong>of</strong> organisati<strong>on</strong>s: (a) those „<strong>of</strong>‟ disabled pers<strong>on</strong>s, <strong>and</strong> (b)those „for‟ disabled pers<strong>on</strong>s. In some cases <strong>the</strong> <strong>in</strong>terests <strong>and</strong> expectati<strong>on</strong>s <strong>of</strong> <strong>the</strong>se two types <strong>of</strong>organizati<strong>on</strong>s is not necessarily <strong>the</strong> same. See F. Fleischmann, „The Role <strong>of</strong> Civil Society <strong>in</strong> <strong>the</strong>M<strong>on</strong>itor<strong>in</strong>g <strong>of</strong> <strong>the</strong> Human Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities‟, <strong>in</strong> Nati<strong>on</strong>al M<strong>on</strong>itor<strong>in</strong>g Mechanisms <strong>of</strong> <strong>the</strong>C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s With Disabilities, pp.141-152, p.141390 A/HRC/13/29, supra note 394, para 69391 Brief<strong>in</strong>g paper <strong>on</strong> obligati<strong>on</strong>s deriv<strong>in</strong>g from Article 33 UN CRPD, written by Academic Panel MemberPr<strong>of</strong>. Rachel Murray <strong>of</strong> <strong>the</strong> University <strong>of</strong> <strong>the</strong> Bristol University, for <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g> VC/2008/1214.Page | 154
pursuant to Article 33(2) UN CRPD. 392 In this sense, any c<strong>on</strong>sultati<strong>on</strong> <strong>on</strong> <strong>the</strong>establishment <strong>of</strong> <strong>the</strong> m<strong>on</strong>itor<strong>in</strong>g framework should <strong>in</strong>volve people with disabilities <strong>and</strong><strong>the</strong>ir representative organisati<strong>on</strong>s. 393 As menti<strong>on</strong>ed above, <strong>the</strong> participati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>swith disabilities <strong>and</strong> <strong>the</strong>ir representative organisati<strong>on</strong>s is fur<strong>the</strong>r re<strong>in</strong>forced by <strong>the</strong>general obligati<strong>on</strong>s <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> (Article 4(3) UN CRPD), <strong>and</strong> <strong>the</strong>refore StatesParties to <strong>the</strong> UN CRPD should outl<strong>in</strong>e a specific framework <strong>and</strong> modality for suchparticipati<strong>on</strong> <strong>in</strong> nati<strong>on</strong>al implementati<strong>on</strong> <strong>and</strong> m<strong>on</strong>itor<strong>in</strong>g <strong>in</strong> order to fully comply with <strong>the</strong>requirements set forth <strong>in</strong> Article 33 <strong>of</strong> <strong>the</strong> UN CRPD.C<strong>on</strong>sider<strong>in</strong>g implementati<strong>on</strong> <strong>of</strong> Article 33 <strong>of</strong> <strong>the</strong> UN CRPD by <strong>the</strong> EU Member States,research for this study has revealed that <strong>the</strong> majority <strong>of</strong> <strong>the</strong> designated focal po<strong>in</strong>tshave, as required, been established at a high level <strong>of</strong> government (i.e. M<strong>in</strong>istry level). Itshould be noted though that some States have not designated yet <strong>the</strong>ir focal po<strong>in</strong>ts. 394Nati<strong>on</strong>al <strong>in</strong>formati<strong>on</strong> regard<strong>in</strong>g <strong>the</strong> establishment, or designati<strong>on</strong>, <strong>of</strong> a coord<strong>in</strong>ati<strong>on</strong>mechanism is generally poor, which implies that EU Member States have yet todesignate a coord<strong>in</strong>ati<strong>on</strong> mechanism. 395 In some cases it is clear that <strong>the</strong> possibility <strong>of</strong>establish<strong>in</strong>g such a mechanism will be reviewed by <strong>the</strong> government <strong>of</strong> a Member Stateup<strong>on</strong> <strong>of</strong>ficial ratificati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD. Similarly, many States have yet to nom<strong>in</strong>atea framework as envisaged by Article 33(2) UN CRPD, <strong>and</strong> do not <strong>in</strong>tend to do so untilafter <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> is <strong>of</strong>ficially ratified. Some Member States have, however, carriedout <strong>the</strong> appo<strong>in</strong>tment <strong>of</strong> such a body. 396 This is for example <strong>the</strong> case <strong>in</strong> Austria, whichwill be outl<strong>in</strong>ed below as an <strong>in</strong>dicative example.It should be noted that with<strong>in</strong> this study, a separate research was c<strong>on</strong>ducted aim<strong>in</strong>g toidentify nati<strong>on</strong>al, as well as EU key actors, related to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UNCRPD. 397 As regards <strong>in</strong>formati<strong>on</strong> from Member States, f<strong>in</strong>d<strong>in</strong>gs <strong>of</strong> this research are392 As <strong>in</strong>dicated by <strong>the</strong> OHCHR <strong>in</strong> <strong>the</strong> Thematic <str<strong>on</strong>g>Study</str<strong>on</strong>g> <strong>on</strong> <strong>the</strong> structure <strong>and</strong> role <strong>of</strong> nati<strong>on</strong>al mechanismsfor <strong>the</strong> implementati<strong>on</strong> <strong>and</strong> m<strong>on</strong>itor<strong>in</strong>g <strong>of</strong> <strong>the</strong> UN CRPD, Article 33(3) seems to <strong>in</strong>clude both directparticipati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> <strong>the</strong> m<strong>on</strong>itor<strong>in</strong>g process, as well as <strong>in</strong>direct participati<strong>on</strong>,through representative organisati<strong>on</strong>s. Direct participati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> <strong>the</strong> m<strong>on</strong>itor<strong>in</strong>gprocess can take place for example by hav<strong>in</strong>g experts who are pers<strong>on</strong>s with disabilities to participate <strong>in</strong><strong>the</strong> work <strong>of</strong> <strong>the</strong> m<strong>on</strong>itor<strong>in</strong>g framework. At <strong>the</strong> same time, <strong>in</strong>direct participati<strong>on</strong> <strong>in</strong> <strong>the</strong> m<strong>on</strong>itor<strong>in</strong>g processcan take place for example by hav<strong>in</strong>g an open discussi<strong>on</strong> with organisati<strong>on</strong>s represent<strong>in</strong>g pers<strong>on</strong>s withdisabilities <strong>in</strong> order to identify <strong>the</strong> criteria <strong>on</strong> which organisati<strong>on</strong>s could be c<strong>on</strong>sidered to berepresentative <strong>of</strong> such c<strong>on</strong>stituencies (mean<strong>in</strong>g c<strong>on</strong>stituencies established to implement Article 33). SeeA/HRC/13/29, see supra note 394, para 71-73393 A/HRC/13/29, see supra note 394, para 70394 This is <strong>the</strong> case for F<strong>in</strong>l<strong>and</strong>, France, Greece, Lithuania <strong>and</strong> Portugal395 This is <strong>the</strong> case for Bulgaria, Czech Republic, F<strong>in</strong>l<strong>and</strong>, France, Greece, Hungary, Italy, Irel<strong>and</strong>,Lithuania, Malta, Pol<strong>and</strong>, Portugal, Romania, Slovakia, Slovenia, <strong>and</strong> Spa<strong>in</strong>.396 A „framework‟ has been established <strong>in</strong> Austria, Cyprus, Germany, Italy, Latvia, Sweden <strong>and</strong> <strong>the</strong> UK397 Research for this study <strong>on</strong> <strong>the</strong> identificati<strong>on</strong> <strong>of</strong> nati<strong>on</strong>al key actors was c<strong>on</strong>ducted by researcherKaren Walsh <strong>of</strong> <strong>the</strong> Centre for Disability Law <strong>and</strong> Policy, Nati<strong>on</strong>al University <strong>of</strong> Irel<strong>and</strong>, Galway; seeAnnex II <strong>of</strong> this report. Additi<strong>on</strong>ally, research for this study <strong>on</strong> <strong>the</strong> identificati<strong>on</strong> <strong>of</strong> European key actorsPage | 155
presented <strong>in</strong> Annex II <strong>of</strong> this report. Annex II, where possible, identifies <strong>the</strong> appo<strong>in</strong>tedby <strong>the</strong> government focal po<strong>in</strong>t(s) <strong>and</strong>/or coord<strong>in</strong>ati<strong>on</strong> or m<strong>on</strong>itor<strong>in</strong>g mechanisms.Austria ratified <strong>the</strong> UN CRPD <strong>on</strong> September 26 th , 2008. Follow<strong>in</strong>g ratificati<strong>on</strong>, <strong>the</strong>government <strong>in</strong>troduced an amendment to <strong>the</strong> Federal Disability Act (FDA), with <strong>the</strong> aimto align <strong>the</strong> Act with <strong>the</strong> requirements set forth <strong>in</strong> <strong>the</strong> UN CRPD.For <strong>the</strong> purposes <strong>of</strong> Article 33(1) UN CRPD, Austria designated <strong>the</strong> Federal DisabilityAdvisory Board, located with<strong>in</strong> <strong>the</strong> Federal M<strong>in</strong>istry <strong>of</strong> Labour, Social Affairs <strong>and</strong>C<strong>on</strong>sumer Protecti<strong>on</strong>, (here<strong>in</strong>after referred to as BMASK) as <strong>the</strong> nati<strong>on</strong>al focal po<strong>in</strong>t forall matters relat<strong>in</strong>g to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD. The appo<strong>in</strong>tment <strong>of</strong> <strong>the</strong>BMASK as <strong>the</strong> Austrian focal po<strong>in</strong>t seems to fulfil <strong>the</strong> ma<strong>in</strong> requirement <strong>of</strong> <strong>the</strong> Article33 UN CRPD to locate <strong>the</strong> focal po<strong>in</strong>t at a government level. However, <strong>on</strong>e could claimthat <strong>the</strong> BMASK does not fully reflect <strong>the</strong> paradigm shift <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>, as <strong>the</strong>scope <strong>of</strong> <strong>the</strong> BMASK activities do not cover all policy fields, but ma<strong>in</strong>ly addressesissues <strong>of</strong> employment <strong>and</strong> social affairs.The Austrian government has also established a coord<strong>in</strong>ati<strong>on</strong> mechanism, with<strong>in</strong>government, <strong>in</strong> order to facilitate acti<strong>on</strong>s <strong>and</strong> ensure c<strong>on</strong>sistency <strong>in</strong> acti<strong>on</strong>s related to<strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD. This is <strong>the</strong> Federal Disability Advisory Board,located at <strong>the</strong> BMASK, with representatives from <strong>the</strong> Federal Government, <strong>the</strong> regi<strong>on</strong>alstate authorities (Länder), <strong>the</strong> Social Insurance Instituti<strong>on</strong>s, o<strong>the</strong>r Stakeholders, SocialPartners <strong>and</strong> <strong>the</strong> Disability Ombudsman. Based <strong>on</strong> <strong>the</strong> amended FDA, <strong>the</strong> FederalM<strong>in</strong>ister <strong>of</strong> Labour, Social Affairs <strong>and</strong> C<strong>on</strong>sumer Protecti<strong>on</strong> should take <strong>in</strong>to accountop<strong>in</strong>i<strong>on</strong>s <strong>of</strong> <strong>the</strong> aforementi<strong>on</strong>ed bodies <strong>on</strong> when tak<strong>in</strong>g important decisi<strong>on</strong>s c<strong>on</strong>cern<strong>in</strong>g<strong>the</strong> affairs <strong>of</strong> people with disabilities.F<strong>in</strong>ally, <strong>the</strong> amended FDA has established <strong>the</strong> Independent M<strong>on</strong>itor<strong>in</strong>g Committeefor <strong>the</strong> purposes <strong>of</strong> Article 33(2) UN CRPD. 398 The Austrian Independent M<strong>on</strong>itor<strong>in</strong>gCommittee c<strong>on</strong>sists <strong>of</strong> seven members <strong>and</strong> <strong>the</strong>ir substitutes. All members arenom<strong>in</strong>ated by organisati<strong>on</strong>s represent<strong>in</strong>g <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities, <strong>and</strong>appo<strong>in</strong>ted by <strong>the</strong> Federal M<strong>in</strong>ister <strong>of</strong> Labour, Social Affairs <strong>and</strong> C<strong>on</strong>sumer Protecti<strong>on</strong>for four years. Four <strong>of</strong> <strong>the</strong> members represent disabled pers<strong>on</strong>s organisati<strong>on</strong>s, <strong>on</strong>erepresents human rights organisati<strong>on</strong>s, <strong>on</strong>e represents organisati<strong>on</strong>s related todevelopment cooperati<strong>on</strong>, <strong>and</strong> <strong>on</strong>e represents academic <strong>in</strong>stituti<strong>on</strong>s. Delegates fromwas c<strong>on</strong>ducted by researcher Dr. Delia Ferri; see Dr. Ferri‟s research paper <strong>on</strong> “The EuropeanCommunity competences to implement <strong>the</strong> UN CRPD”, written for <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g> VC/2008/1214.398 For detailed <strong>in</strong>formati<strong>on</strong> <strong>on</strong> <strong>the</strong> establishment <strong>and</strong> m<strong>and</strong>ate <strong>of</strong> <strong>the</strong> Austrian Independent M<strong>on</strong>itor<strong>in</strong>gmechanism, see Austrian c<strong>on</strong>tributi<strong>on</strong>, <strong>in</strong> resp<strong>on</strong>se to a Request by <strong>the</strong> Office <strong>of</strong> <strong>the</strong> HighCommissi<strong>on</strong>er, 10 July 2009, based <strong>on</strong> Human Rights Council Resoluti<strong>on</strong> 10/7, “Human Rights <strong>of</strong>Pers<strong>on</strong>s with Disabilities: Nati<strong>on</strong>al Frameworks for <strong>the</strong> Promoti<strong>on</strong> <strong>and</strong> Protecti<strong>on</strong> <strong>of</strong> <strong>the</strong> Human Rights <strong>of</strong>Pers<strong>on</strong>s with Disabilities”. The Austrian c<strong>on</strong>tributi<strong>on</strong> is available at:http://www2.ohchr.org/english/issues/disability/docs/AustrianM<strong>on</strong>itor<strong>in</strong>gBody.pdfPage | 156
<strong>the</strong> Federal M<strong>in</strong>istry <strong>of</strong> Labour, Social Affairs <strong>and</strong> C<strong>on</strong>sumer Protecti<strong>on</strong> Bureau aren<strong>on</strong>-vot<strong>in</strong>g members. In additi<strong>on</strong>, representatives from o<strong>the</strong>r m<strong>in</strong>istries may be <strong>in</strong>volved(as n<strong>on</strong>-vot<strong>in</strong>g members) for <strong>the</strong> m<strong>on</strong>itor<strong>in</strong>g <strong>of</strong> a specific area, which may be outside <strong>of</strong><strong>the</strong> scope <strong>of</strong> <strong>the</strong> activities <strong>of</strong> <strong>the</strong> Federal M<strong>in</strong>istry <strong>of</strong> Labour, Social Affairs <strong>and</strong>C<strong>on</strong>sumer Protecti<strong>on</strong>. With regard to <strong>the</strong> Committee‟s m<strong>and</strong>ate, as required by Article33(2) UN CRPD for <strong>the</strong> nati<strong>on</strong>al framework, <strong>the</strong> Committee has assumed <strong>the</strong> follow<strong>in</strong>gtasks:• Receive <strong>and</strong> follow-up <strong>on</strong> <strong>in</strong>dividual compla<strong>in</strong>ts;• Make recommendati<strong>on</strong>s to public authorities based <strong>on</strong> both <strong>in</strong>dividual compla<strong>in</strong>tsas well as general observati<strong>on</strong>s; <strong>and</strong>• Support awareness rais<strong>in</strong>g acti<strong>on</strong>s <strong>on</strong> <strong>the</strong> mean<strong>in</strong>gful <strong>in</strong>clusi<strong>on</strong> <strong>and</strong> participati<strong>on</strong><strong>of</strong> pers<strong>on</strong>s with disabilities, by <strong>of</strong>fer<strong>in</strong>g support (with<strong>in</strong> its available means) to<strong>in</strong>terested public bodies, implement<strong>in</strong>g <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>.F<strong>in</strong>ally, <strong>the</strong> Independent M<strong>on</strong>itor<strong>in</strong>g Committee <strong>in</strong>tends to launch a special website(www.m<strong>on</strong>itor<strong>in</strong>gausschuss.at) where all relevant <strong>in</strong>formati<strong>on</strong> will be published for <strong>the</strong>public. 399 As is evident, <strong>the</strong> designated Austrian framework appears to be <strong>in</strong> l<strong>in</strong>e withmany requirements set forth <strong>in</strong> Article 33(2) UN CRPD. It can thus be c<strong>on</strong>sidered as apossible <strong>good</strong> practice <strong>in</strong> this field.As regards to <strong>the</strong> establishment, or designati<strong>on</strong>, <strong>of</strong> bodies <strong>and</strong> mechanisms by <strong>the</strong>European Uni<strong>on</strong> for all matters related to <strong>the</strong> implementati<strong>on</strong> <strong>and</strong> m<strong>on</strong>itor<strong>in</strong>g <strong>of</strong> <strong>the</strong> UNCRPD, due to <strong>the</strong> complex structures <strong>of</strong> <strong>the</strong> Uni<strong>on</strong>, several issues need to bec<strong>on</strong>sidered. Therefore, <strong>the</strong> follow<strong>in</strong>g secti<strong>on</strong>s 5.5.1, 5.5.2 <strong>and</strong> 5.5.3 will aim to clarify<strong>the</strong> follow<strong>in</strong>g questi<strong>on</strong>s:a. Which specific body with<strong>in</strong> <strong>the</strong> Commissi<strong>on</strong>, which is designated as <strong>the</strong> overallfocal po<strong>in</strong>t for all matters related to <strong>the</strong> UN CRPD, should be tasked with <strong>the</strong>resp<strong>on</strong>sibilities <strong>of</strong> <strong>the</strong> focal po<strong>in</strong>t?b. Which body could perform <strong>the</strong> tasks <strong>of</strong> coord<strong>in</strong>ati<strong>on</strong> at <strong>the</strong> EU level, <strong>on</strong> <strong>the</strong> basis<strong>of</strong> Article 33(1) UN CRPD?c. Which body could act as <strong>the</strong> framework to promote, protect <strong>and</strong> m<strong>on</strong>itor <strong>the</strong>implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD, <strong>on</strong> <strong>the</strong> basis <strong>of</strong> Article 33(2) UN CRPD?d. Given that <strong>the</strong> „tasks‟ <strong>of</strong> Article 33(2) UN CRPD could be spread am<strong>on</strong>g a mix <strong>of</strong>EU bodies, <strong>the</strong>n which bodies could be <strong>in</strong>volved <strong>in</strong> „promot<strong>in</strong>g, protect<strong>in</strong>g <strong>and</strong>m<strong>on</strong>itor<strong>in</strong>g‟ <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>?399 Austria Resp<strong>on</strong>se to <str<strong>on</strong>g>Study</str<strong>on</strong>g>‟s questi<strong>on</strong>naire <strong>on</strong> “Nati<strong>on</strong>al Instituti<strong>on</strong>al <strong>and</strong> Policy Apparatus”Page | 157
e. How can Article 33(3) UN CRPD be implemented at <strong>the</strong> EU level; what is <strong>the</strong> rolethat civil society, <strong>and</strong> <strong>in</strong> particular pers<strong>on</strong>s with disabilities through <strong>the</strong>irrepresentative organisati<strong>on</strong>, can play?5.5.1 A focal po<strong>in</strong>t with<strong>in</strong> <strong>the</strong> European Uni<strong>on</strong>At <strong>the</strong> EU level, based <strong>on</strong> Article 3 <strong>of</strong> <strong>the</strong> Council Decisi<strong>on</strong> 2010/48/EC c<strong>on</strong>cern<strong>in</strong>g <strong>the</strong>UN CRPD c<strong>on</strong>clusi<strong>on</strong>, <strong>the</strong> European Commissi<strong>on</strong> (here<strong>in</strong>after referred to as <strong>the</strong>Commissi<strong>on</strong>) is <strong>the</strong> focal po<strong>in</strong>t for all matters related to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong>C<strong>on</strong>venti<strong>on</strong>. However, <strong>the</strong> Decisi<strong>on</strong> states that <strong>the</strong> details <strong>of</strong> <strong>the</strong> Commissi<strong>on</strong>‟sfuncti<strong>on</strong>s as <strong>the</strong> focal po<strong>in</strong>t will be clarified <strong>in</strong> a Code <strong>of</strong> C<strong>on</strong>duct, which will benegotiated <strong>and</strong> agreed up<strong>on</strong> between <strong>the</strong> EU <strong>and</strong> <strong>the</strong> Member States.The Commissi<strong>on</strong> is <strong>the</strong> executive body <strong>of</strong> <strong>the</strong> European Uni<strong>on</strong>. The missi<strong>on</strong> <strong>of</strong> <strong>the</strong>Commissi<strong>on</strong> is to promote <strong>the</strong> general <strong>in</strong>terest <strong>of</strong> <strong>the</strong> European Uni<strong>on</strong>. It does so byparticipat<strong>in</strong>g <strong>in</strong> <strong>the</strong> decisi<strong>on</strong>-mak<strong>in</strong>g process (<strong>in</strong> particular by present<strong>in</strong>g proposals forEU law), by oversee<strong>in</strong>g <strong>the</strong> correct implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> Treaties <strong>and</strong> EU law, <strong>and</strong> bycarry<strong>in</strong>g out comm<strong>on</strong> policies <strong>and</strong> manag<strong>in</strong>g EU funds. 400 The designati<strong>on</strong> <strong>of</strong> an overallEU focal po<strong>in</strong>t with<strong>in</strong> <strong>the</strong> Commissi<strong>on</strong> fulfils <strong>the</strong> ma<strong>in</strong> “structural” requirement set forth<strong>in</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. However, <strong>the</strong> Commissi<strong>on</strong> has a unique <strong>and</strong> quite complexstructure <strong>of</strong> governance, which results from <strong>the</strong> Treaty establish<strong>in</strong>g <strong>the</strong> EuropeanCommunity. In this respect, this secti<strong>on</strong> c<strong>on</strong>siders which body with<strong>in</strong> <strong>the</strong> Commissi<strong>on</strong>could perform <strong>the</strong> tasks <strong>of</strong> <strong>the</strong> focal po<strong>in</strong>t <strong>of</strong> <strong>the</strong> EU.The Commissi<strong>on</strong> works under <strong>the</strong> political guidance <strong>of</strong> its President, who decides <strong>on</strong> its<strong>in</strong>ternal organisati<strong>on</strong>, 401 with <strong>the</strong> aim to ensure that <strong>the</strong> Commissi<strong>on</strong> acts c<strong>on</strong>sistently,efficiently <strong>and</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> collegiality. 402 The President <strong>of</strong> <strong>the</strong> Commissi<strong>on</strong>(here<strong>in</strong>after referred to as <strong>the</strong> President) is appo<strong>in</strong>ted by <strong>the</strong> governments <strong>of</strong> <strong>the</strong> EUMember States, <strong>and</strong> <strong>the</strong>n approved by <strong>the</strong> European Parliament. This dual legitimacygives <strong>the</strong> President political authority, which s/he exercises <strong>in</strong> a variety <strong>of</strong> ways.As <strong>the</strong> highest member <strong>of</strong> <strong>the</strong> EU‟s executive body <strong>and</strong> with political authority, <strong>the</strong>President could (ideally) become <strong>the</strong> overall <strong>in</strong>ternal focal po<strong>in</strong>t <strong>of</strong> <strong>the</strong> European Uni<strong>on</strong>for all matters relat<strong>in</strong>g to <strong>the</strong> UN CRPD. In this case, <strong>the</strong> President would ensure that400 More <strong>in</strong>formati<strong>on</strong> about <strong>the</strong> European Commissi<strong>on</strong> <strong>and</strong> its work is available at: http://ec.europa.eu401 The President appo<strong>in</strong>ts <strong>the</strong> College <strong>of</strong> Commissi<strong>on</strong>ers <strong>in</strong> agreement with Member States‟governments. S/He entrusts each <strong>of</strong> <strong>the</strong> Commissi<strong>on</strong>ers with particular policy resp<strong>on</strong>sibilities. Members<strong>of</strong> <strong>the</strong> college are chosen <strong>on</strong> <strong>the</strong> grounds <strong>of</strong> <strong>the</strong>ir general competence. After a series <strong>of</strong> <strong>in</strong>dividualhear<strong>in</strong>gs before Parliamentary committees, <strong>the</strong> c<strong>and</strong>idate-Commissi<strong>on</strong>ers are subject as a body to avote <strong>of</strong> approval by <strong>the</strong> European Parliament. The President <strong>and</strong> <strong>the</strong> o<strong>the</strong>r Members <strong>of</strong> <strong>the</strong> Commissi<strong>on</strong>are <strong>the</strong>n appo<strong>in</strong>ted by <strong>the</strong> Council.402 The pr<strong>in</strong>ciple <strong>of</strong> collegiality, which governs all <strong>the</strong> Commissi<strong>on</strong>'s work, means that all Commissi<strong>on</strong>members are jo<strong>in</strong>tly resp<strong>on</strong>sible for decisi<strong>on</strong>s <strong>and</strong> acti<strong>on</strong>s taken.Page | 158
all Commissi<strong>on</strong>ers <strong>in</strong>clude disability <strong>in</strong> <strong>the</strong>ir portfolios. The President would also ensurehoriz<strong>on</strong>tal supervisi<strong>on</strong> <strong>of</strong> <strong>the</strong> work <strong>of</strong> all EU <strong>in</strong>stituti<strong>on</strong>s, EU legislati<strong>on</strong> <strong>and</strong> policies, <strong>and</strong>(when needed) provisi<strong>on</strong> <strong>of</strong> guidance <strong>on</strong> new EU policy <strong>and</strong>/or legislative <strong>in</strong>itiativesaimed at ensur<strong>in</strong>g full compliance with <strong>the</strong> UN CRPD. F<strong>in</strong>ally, as a political figure, <strong>the</strong>President could also <strong>in</strong>fluence nati<strong>on</strong>al (<strong>and</strong> EU) policy-makers, <strong>and</strong> achieve attitud<strong>in</strong>alchanges with regard to how Member State (<strong>and</strong> EU <strong>in</strong>stituti<strong>on</strong>s, such as DGs, <strong>the</strong>Parliament, etc) should, <strong>on</strong> <strong>the</strong> basis <strong>of</strong> <strong>the</strong> UN CRPD, address disability issues <strong>in</strong> <strong>the</strong>irlegislati<strong>on</strong>, policies <strong>and</strong> programmes.However, it should be taken <strong>in</strong>to account that <strong>the</strong> broad m<strong>and</strong>ate <strong>of</strong> <strong>the</strong> President maybecome a barrier that will potentially hamper his/her optimal effectiveness as <strong>the</strong> EU‟sfocal po<strong>in</strong>t for matters relat<strong>in</strong>g to <strong>the</strong> UN CRPD. To this purpose, <strong>the</strong> Uni<strong>on</strong> shouldc<strong>on</strong>sider <strong>the</strong> opti<strong>on</strong> <strong>of</strong> plac<strong>in</strong>g its focal po<strong>in</strong>t with<strong>in</strong> <strong>the</strong> Secretariat-General, which canbe c<strong>on</strong>sidered as <strong>the</strong> equivalent <strong>of</strong> a „M<strong>in</strong>istry‟. The Secretariat-General 403 is <strong>the</strong>President's department <strong>and</strong> <strong>on</strong>e <strong>of</strong> <strong>the</strong> central services <strong>of</strong> <strong>the</strong> European Commissi<strong>on</strong>.The Secretariat-General is at <strong>the</strong> service <strong>of</strong> <strong>the</strong> President, <strong>the</strong> College <strong>of</strong>Commissi<strong>on</strong>ers <strong>and</strong> <strong>the</strong> Commissi<strong>on</strong> Directorate-Generals (DGs). It reports directly to<strong>the</strong> President. With<strong>in</strong> an organisati<strong>on</strong> as diverse as <strong>the</strong> Commissi<strong>on</strong>, <strong>the</strong> Secretariat-General has a special role. It manages <strong>the</strong> collegial decisi<strong>on</strong> mak<strong>in</strong>g process <strong>and</strong>ensures <strong>the</strong> alignment <strong>of</strong> EU policies with <strong>the</strong> political priorities <strong>of</strong> <strong>the</strong> Commissi<strong>on</strong>.More specifically, <strong>the</strong> Secretariat-General, <strong>in</strong>ter alia:• Def<strong>in</strong>es <strong>and</strong> designs <strong>the</strong> Commissi<strong>on</strong>'s strategic objectives <strong>and</strong> priorities <strong>and</strong>shapes cross cutt<strong>in</strong>g policies;• Coord<strong>in</strong>ates, facilitates, advises <strong>and</strong> arbitrates legislati<strong>on</strong> <strong>and</strong> operati<strong>on</strong>s acrosspolicy areas <strong>and</strong> Commissi<strong>on</strong> departments, aim<strong>in</strong>g to ensure coherence; <strong>and</strong>• Acts as <strong>the</strong> Commissi<strong>on</strong>‟s <strong>in</strong>terface with o<strong>the</strong>r EU <strong>in</strong>stituti<strong>on</strong>s (e.g. Parliament),nati<strong>on</strong>al parliaments, <strong>and</strong> civil society organisati<strong>on</strong>s.C<strong>on</strong>sequently, <strong>the</strong> Secretariat-General, has <strong>the</strong> adequate <strong>in</strong>stituti<strong>on</strong>al m<strong>and</strong>ate whichis needed to serve as <strong>the</strong> EU‟s focal po<strong>in</strong>t. Based <strong>on</strong> its m<strong>and</strong>ate, <strong>the</strong> Secretariat-General could fulfil <strong>the</strong> follow<strong>in</strong>g EU obligati<strong>on</strong>s, deriv<strong>in</strong>g from Article 33 UN CRPD:• promote awareness <strong>of</strong> <strong>the</strong> UN CRPD objectives <strong>and</strong> obligati<strong>on</strong>s with<strong>in</strong> all EU‟s<strong>in</strong>stituti<strong>on</strong>al (e.g. Directorate-Generals, EP <strong>and</strong> o<strong>the</strong>rs) <strong>and</strong> political (e.g.President, College <strong>of</strong> Commissi<strong>on</strong>ers, nati<strong>on</strong>al policy-makers etc.) actors;• serve as a reference po<strong>in</strong>t for nati<strong>on</strong>al focal po<strong>in</strong>ts, <strong>and</strong> promote compliance with<strong>the</strong> UN CRPD by <strong>the</strong> EU Member States;403 For detailed <strong>in</strong>formati<strong>on</strong> <strong>on</strong> <strong>the</strong> Secretariat-General, see at:http://ec.europa.eu/dgs/secretariat_general/<strong>in</strong>dex_en.htmPage | 159
• as <strong>the</strong> Secretariat-General has <strong>the</strong> m<strong>and</strong>ate to act as <strong>the</strong> Commissi<strong>on</strong>‟s <strong>in</strong>terfacewith <strong>in</strong>ter alia civil society organisati<strong>on</strong>s, it can establish <strong>and</strong> ma<strong>in</strong>ta<strong>in</strong> c<strong>on</strong>tactwith representatives <strong>of</strong> organisati<strong>on</strong>s represent<strong>in</strong>g <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s withdisabilities, <strong>and</strong> proactively <strong>in</strong>volve <strong>the</strong>m <strong>in</strong> <strong>the</strong> UN CRPD implementati<strong>on</strong> by <strong>the</strong>EU;• develop a EU plan for <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD by <strong>the</strong> EU <strong>in</strong>stituti<strong>on</strong>s<strong>and</strong> EU decisi<strong>on</strong>-makers, sett<strong>in</strong>g clear goals <strong>and</strong> objectives to be met <strong>and</strong>(possibly) specific acti<strong>on</strong>s to be taken;• ensure (through a regular review) horiz<strong>on</strong>tal supervisi<strong>on</strong> <strong>of</strong> all EU legislati<strong>on</strong>,policies <strong>and</strong> programmes (<strong>in</strong>ternal m<strong>on</strong>itor<strong>in</strong>g); <strong>and</strong>• coord<strong>in</strong>ate disability-related report<strong>in</strong>g <strong>of</strong> all EU <strong>in</strong>stituti<strong>on</strong>s with <strong>the</strong> view <strong>of</strong>prepar<strong>in</strong>g <strong>the</strong> overall EU report to be submitted to <strong>the</strong> UN CRPD Committee(Article 36 UN CRPD).N<strong>on</strong>e<strong>the</strong>less, it should aga<strong>in</strong> be c<strong>on</strong>sidered that as <strong>the</strong> current m<strong>and</strong>ate <strong>of</strong> <strong>the</strong>Secretariat-General is already very wide, this could possibly hamper its effectivenessas <strong>the</strong> focal po<strong>in</strong>t <strong>of</strong> <strong>the</strong> EU. Therefore, ano<strong>the</strong>r opti<strong>on</strong> for <strong>the</strong> focal po<strong>in</strong>t <strong>of</strong> <strong>the</strong> EU is<strong>the</strong> Commissi<strong>on</strong>er for Justice, Fundamental Rights <strong>and</strong> Citizenship (vicepresident<strong>of</strong> <strong>the</strong> Commissi<strong>on</strong>). The Commissi<strong>on</strong>er may not be at <strong>the</strong> highest level <strong>of</strong><strong>the</strong> executive level, but is placed at a level similar to a M<strong>in</strong>istry. Fur<strong>the</strong>rmore, follow<strong>in</strong>g<strong>the</strong> entry <strong>in</strong>to force <strong>of</strong> <strong>the</strong> Lisb<strong>on</strong> Treaty, respect for fundamental rights (especiallyrights set forth <strong>in</strong> <strong>the</strong> EU Charter <strong>of</strong> Fundamental Rights) is <strong>on</strong>e <strong>of</strong> <strong>the</strong> core priorities <strong>of</strong><strong>the</strong> Commissi<strong>on</strong>er‟s work. Accord<strong>in</strong>gly, <strong>the</strong> Commissi<strong>on</strong>er could be tasked with <strong>the</strong>resp<strong>on</strong>sibilities <strong>of</strong> <strong>the</strong> focal po<strong>in</strong>t for all matters related to <strong>the</strong> UN CRPD. To thispurpose, <strong>and</strong> with <strong>the</strong> aim to ensure optimal effectiveness <strong>of</strong> horiz<strong>on</strong>tal m<strong>on</strong>itor<strong>in</strong>g <strong>of</strong>all EU legislati<strong>on</strong>, policies <strong>and</strong> programmes, <strong>the</strong> Commissi<strong>on</strong>er could benefit from <strong>the</strong>methodology for systematic <strong>and</strong> rigorous m<strong>on</strong>itor<strong>in</strong>g <strong>of</strong> <strong>the</strong> Charter <strong>of</strong> FundamentalRights, set forth by <strong>the</strong> Commissi<strong>on</strong> <strong>in</strong> Communicati<strong>on</strong>s COM(2005) 172 f<strong>in</strong>al, <strong>of</strong> April25 th , 2009, 404 <strong>and</strong> COM(2009) 205 f<strong>in</strong>al <strong>of</strong> April 29 th , 2009. 405 Positive comp<strong>on</strong>ents <strong>of</strong><strong>the</strong> methodology set forth by <strong>the</strong> Commissi<strong>on</strong> that could be <strong>of</strong> added value to <strong>the</strong>m<strong>on</strong>itor<strong>in</strong>g <strong>of</strong> <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD by <strong>the</strong> European Uni<strong>on</strong>, are <strong>the</strong>follow<strong>in</strong>g:404 See COM(2005) 172 f<strong>in</strong>al, <strong>of</strong> 27/04/2005, Communicati<strong>on</strong> from <strong>the</strong> Commissi<strong>on</strong>, Compliance with <strong>the</strong>Charter <strong>of</strong> Fundamental Rights <strong>in</strong> Commissi<strong>on</strong> legislative proposals - Methodology for systematic <strong>and</strong>rigorous m<strong>on</strong>itor<strong>in</strong>g, available at:http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2005:0172:FIN:EN:PDF405 See COM(2009) 205 f<strong>in</strong>al, <strong>of</strong> 29/04/2009, Report <strong>on</strong> <strong>the</strong> practical operati<strong>on</strong> <strong>of</strong> <strong>the</strong> methodology for asystematic <strong>and</strong> rigorous m<strong>on</strong>itor<strong>in</strong>g <strong>of</strong> compliance with <strong>the</strong> Charter <strong>of</strong> Fundamental Rights, available at:http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2009:0205:FIN:EN:PDFPage | 160
• Systematic departmental m<strong>on</strong>itor<strong>in</strong>g <strong>of</strong> legislative proposals, with <strong>the</strong> aim toensure respect for <strong>the</strong> general pr<strong>in</strong>ciples <strong>of</strong> <strong>the</strong> UN CRPD, <strong>and</strong> <strong>in</strong>clusi<strong>on</strong> <strong>of</strong> <strong>the</strong>rights <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> all legislative acts. In l<strong>in</strong>e with <strong>the</strong>methodology set out <strong>in</strong> COM(2005) 172, <strong>the</strong>se checks should be re<strong>in</strong>forced byan explanatory memor<strong>and</strong>um, <strong>and</strong> an impact assessment. The latter should<strong>in</strong>clude a full <strong>and</strong> precise overview <strong>of</strong> how <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilitieswill be affected by EU legislati<strong>on</strong>. These types <strong>of</strong> assessments should bec<strong>on</strong>ducted <strong>on</strong> <strong>the</strong> basis <strong>of</strong> a set <strong>of</strong> impact assessment guidel<strong>in</strong>es. In thisrespect, <strong>the</strong> “Guidel<strong>in</strong>es for UN CRPD implementati<strong>on</strong>: a tool to measureprogress”, produced by this study, <strong>and</strong> which are available <strong>in</strong> Annex I <strong>of</strong> thisreport, could be <strong>of</strong> assistance. The explanatory memor<strong>and</strong>um should outl<strong>in</strong>e<strong>the</strong> legal basis up<strong>on</strong> which any EU legislati<strong>on</strong> should be based, <strong>in</strong> order toaddress <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities.• Follow-up <strong>of</strong> <strong>the</strong> departmental m<strong>on</strong>itor<strong>in</strong>g by <strong>the</strong> College <strong>of</strong>Commissi<strong>on</strong>ers. As outl<strong>in</strong>ed <strong>in</strong> COM(2005) 172, it is very important that allMembers <strong>of</strong> <strong>the</strong> Commissi<strong>on</strong> are fully updated <strong>on</strong> <strong>the</strong> practical implementati<strong>on</strong><strong>of</strong> fundamental rights, <strong>and</strong> <strong>in</strong> particular <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> pr<strong>in</strong>ciples <strong>of</strong>equality <strong>and</strong> anti-discrim<strong>in</strong>ati<strong>on</strong>. Therefore, <strong>the</strong> Legal Service <strong>of</strong> <strong>the</strong>Commissi<strong>on</strong>, <strong>in</strong> cooperati<strong>on</strong> with DG Justice, Freedom <strong>and</strong> Security, <strong>and</strong> <strong>the</strong>Secretariat-General, should draft a general evaluati<strong>on</strong> <strong>of</strong> EU legislati<strong>on</strong> (based<strong>on</strong> <strong>the</strong> f<strong>in</strong>d<strong>in</strong>g <strong>of</strong> <strong>the</strong> departmental m<strong>on</strong>itor<strong>in</strong>g process) that would also identifychallenges posed by exist<strong>in</strong>g legislati<strong>on</strong> <strong>and</strong> may hamper <strong>the</strong> full <strong>and</strong> effectiveimplementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD. F<strong>in</strong>ally, <strong>the</strong> evaluati<strong>on</strong> should be accompaniedby c<strong>on</strong>crete proposals <strong>and</strong> recommendati<strong>on</strong>s with regard to possibleamendments, <strong>and</strong>/or supplementary acti<strong>on</strong>s that need to be taken by <strong>the</strong> EU, <strong>in</strong>order to ensure full <strong>and</strong> effective implementati<strong>on</strong> <strong>of</strong> EU legislati<strong>on</strong>, <strong>and</strong> aimed atachiev<strong>in</strong>g <strong>the</strong> objectives <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>.• F<strong>in</strong>ally, <strong>the</strong> results <strong>of</strong> <strong>the</strong> <strong>in</strong>ternal m<strong>on</strong>itor<strong>in</strong>g should be published <strong>in</strong> accessibleformats, with <strong>the</strong> aim to raise awareness about <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UNCRPD, <strong>and</strong> <strong>in</strong>form all stakeholders about <strong>the</strong> acti<strong>on</strong>s <strong>of</strong> <strong>the</strong> EU.Based <strong>on</strong> <strong>the</strong> OHCHR guidel<strong>in</strong>es c<strong>on</strong>cern<strong>in</strong>g <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> Article 33 UNCRPD, State Parties‟ focal po<strong>in</strong>t should also have technical knowledge <strong>on</strong>implement<strong>in</strong>g <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. At <strong>the</strong> current stage, nei<strong>the</strong>r <strong>the</strong> President nor <strong>the</strong>Secretariat-General (as a possible „focal po<strong>in</strong>t‟) fulfil this requirement. However, <strong>the</strong>Commissi<strong>on</strong> has established, with<strong>in</strong> <strong>the</strong> Directorate-General Employment, SocialAffairs <strong>and</strong> Equal Opportunities (DG EMPL), which is now under <strong>the</strong> supervisi<strong>on</strong> <strong>of</strong> <strong>the</strong>Commissi<strong>on</strong>er for Justice, Fundamental Rights <strong>and</strong> Citizenship, a Unit for <strong>the</strong>Integrati<strong>on</strong> <strong>of</strong> People with Disabilities (here<strong>in</strong>after referred to as <strong>the</strong> Unit). The UnitPage | 161
is resp<strong>on</strong>sible for <strong>the</strong> overall management <strong>and</strong> coord<strong>in</strong>ati<strong>on</strong> <strong>of</strong> EU disability policies,<strong>in</strong>clud<strong>in</strong>g <strong>the</strong> European Disability Acti<strong>on</strong> Plan (DAP) <strong>and</strong> issues related to <strong>the</strong> UNCRPD. The Unit‟s role is wide-rang<strong>in</strong>g <strong>and</strong> <strong>in</strong>cludes aspects relat<strong>in</strong>g to <strong>the</strong> overallmanagement <strong>and</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> DAP <strong>and</strong> m<strong>on</strong>itor<strong>in</strong>g activities <strong>and</strong> impact <strong>of</strong><strong>the</strong> Commissi<strong>on</strong>‟s policies related to disability. The Unit is also <strong>in</strong> charge <strong>of</strong> specificactivities menti<strong>on</strong>ed <strong>in</strong> <strong>the</strong> DAP, <strong>and</strong> works <strong>on</strong> a horiz<strong>on</strong>tal basis to ensure effectivecoord<strong>in</strong>ati<strong>on</strong> between DGs with regard to <strong>the</strong> <strong>in</strong>clusi<strong>on</strong>, or ma<strong>in</strong>stream<strong>in</strong>g, <strong>of</strong> <strong>the</strong>disability dimensi<strong>on</strong> <strong>in</strong> relevant EU policies <strong>and</strong> legislati<strong>on</strong>. Fur<strong>the</strong>rmore, <strong>the</strong> Unit hasestablished (at <strong>the</strong> end <strong>of</strong> 2007), <strong>and</strong> supports, <strong>the</strong> Academic Network <strong>of</strong> EuropeanDisability experts (ANED). 406 This Network was established with <strong>the</strong> aim to supportpolicy development <strong>in</strong> collaborati<strong>on</strong> with <strong>the</strong> Unit. As menti<strong>on</strong>ed <strong>in</strong> <strong>the</strong> Mid-termEvaluati<strong>on</strong> <strong>of</strong> <strong>the</strong> Disability Acti<strong>on</strong> Plan, 407 <strong>the</strong> Unit for <strong>the</strong> Integrati<strong>on</strong> <strong>of</strong> People withDisabilities has played a significant role <strong>in</strong> c<strong>on</strong>tribut<strong>in</strong>g to, <strong>and</strong> driv<strong>in</strong>g forward, disabilityma<strong>in</strong>stream<strong>in</strong>g activities.In sum, <strong>the</strong> Unit for <strong>the</strong> Integrati<strong>on</strong> <strong>of</strong> People with disabilities has <strong>the</strong> backgroundknowledge <strong>on</strong> <strong>the</strong> EU‟s overall disability legislati<strong>on</strong>/policies, <strong>and</strong> <strong>the</strong> means <strong>and</strong>expertise needed to support <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD. C<strong>on</strong>sequently, <strong>the</strong>Unit for <strong>the</strong> Integrati<strong>on</strong> <strong>of</strong> People with Disabilities should provide an overall support to<strong>the</strong> EU‟s focal po<strong>in</strong>t for all matters related to <strong>the</strong> UN CRPD. In this case, <strong>the</strong> Unit‟s<strong>in</strong>stituti<strong>on</strong>al m<strong>and</strong>ate should be reviewed. F<strong>in</strong>ally, to optimise effectiveness, it would beadvisable for <strong>the</strong> Unit to be re<strong>in</strong>forced <strong>in</strong> terms <strong>of</strong> human resources <strong>and</strong> fund<strong>in</strong>g.5.5.2 Coord<strong>in</strong>ati<strong>on</strong> Mechanisms at <strong>the</strong> EU levelTo date, <strong>the</strong> EU has established several „platforms‟ to facilitate coord<strong>in</strong>ati<strong>on</strong> <strong>of</strong>disability policies. Secti<strong>on</strong> 5.5.2 c<strong>on</strong>siders how <strong>the</strong>se exist<strong>in</strong>g „platforms‟ could be usedfor <strong>the</strong> coord<strong>in</strong>ati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD implementati<strong>on</strong> am<strong>on</strong>g <strong>the</strong> EU <strong>in</strong>stituti<strong>on</strong>s(<strong>in</strong>ternal coord<strong>in</strong>ati<strong>on</strong>), <strong>and</strong> between <strong>the</strong> EU <strong>in</strong>stituti<strong>on</strong>s <strong>and</strong> <strong>the</strong> Member States(external coord<strong>in</strong>ati<strong>on</strong>).The operati<strong>on</strong>al implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> Commissi<strong>on</strong>‟s work is delegated to Directorate-Generals (DGs). Additi<strong>on</strong>ally, <strong>the</strong> Commissi<strong>on</strong> may also delegate <strong>the</strong> implementati<strong>on</strong><strong>of</strong> specific programmes to Executive Agencies. C<strong>on</strong>sider<strong>in</strong>g <strong>the</strong> need for <strong>in</strong>ternalcoord<strong>in</strong>ati<strong>on</strong> (<strong>and</strong> m<strong>on</strong>itor<strong>in</strong>g), it is advisable for every DG <strong>and</strong> executive agency <strong>of</strong><strong>the</strong> Commissi<strong>on</strong> to establish an „<strong>in</strong>ternal focal po<strong>in</strong>t‟ for matters related to <strong>the</strong>implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD by <strong>the</strong> DG or Agency. This „<strong>in</strong>ternal focal po<strong>in</strong>t‟should, <strong>on</strong> <strong>the</strong> basis <strong>of</strong> <strong>the</strong> OHCHR guidel<strong>in</strong>es, be placed at <strong>the</strong> highest level <strong>of</strong> <strong>the</strong>406 The website <strong>of</strong> ANED is http://www.disability-europe.net407 See at http://ec.europa.eu/social/ma<strong>in</strong>.jsp?catId=429&langId=en&moreDocuments=yesPage | 162
DGs <strong>and</strong> Agency‟s organisati<strong>on</strong>al structure, <strong>and</strong> should be resp<strong>on</strong>sible forma<strong>in</strong>stream<strong>in</strong>g disability <strong>in</strong>to <strong>the</strong> work <strong>of</strong> <strong>the</strong> DGs or Agency. In terms <strong>of</strong> coord<strong>in</strong>ati<strong>on</strong>,<strong>the</strong> „<strong>in</strong>ternal focal po<strong>in</strong>t‟ should coord<strong>in</strong>ate acti<strong>on</strong>s with <strong>the</strong> Uni<strong>on</strong>‟s overall focal po<strong>in</strong>t.To this purpose, <strong>the</strong> Inter-service Group <strong>on</strong> Disability could be appo<strong>in</strong>ted as <strong>the</strong>„<strong>in</strong>ternal coord<strong>in</strong>ati<strong>on</strong> mechanism‟ <strong>of</strong> <strong>the</strong> European Commissi<strong>on</strong> Services.Currently, <strong>the</strong> Inter-service Group <strong>on</strong> Disability (chaired by <strong>the</strong> Unit for <strong>the</strong> Inclusi<strong>on</strong> <strong>of</strong>Pers<strong>on</strong>s with Disabilities) meets every two m<strong>on</strong>ths <strong>and</strong> provides a „forum‟ whererepresentatives from <strong>the</strong> various DGs <strong>and</strong> Commissi<strong>on</strong> Services exchange <strong>in</strong>formati<strong>on</strong>,<strong>and</strong> develop proposals for better cross-sector co-operati<strong>on</strong>. The purpose <strong>of</strong> <strong>the</strong> groupis to raise awareness <strong>of</strong> disability issues, <strong>and</strong> encourage <strong>in</strong>ter-sectoral co-operati<strong>on</strong>with<strong>in</strong> <strong>the</strong> Commissi<strong>on</strong> <strong>in</strong> this field. Today, 21 DGs <strong>and</strong> Commissi<strong>on</strong> Services arerepresented with<strong>in</strong> <strong>the</strong> Inter-Service Group. 408 Accord<strong>in</strong>g to <strong>the</strong> DAP Mid-termevaluati<strong>on</strong>, 409 <strong>the</strong> Inter-Service Group <strong>on</strong> Disability has played a valuable role <strong>in</strong>facilitat<strong>in</strong>g jo<strong>in</strong>t coord<strong>in</strong>ati<strong>on</strong> <strong>on</strong> disability issues between different DGs. However, <strong>the</strong>evaluati<strong>on</strong> report underl<strong>in</strong>es that <strong>the</strong> effectiveness <strong>of</strong> <strong>the</strong> Inter-service Group (<strong>in</strong>clud<strong>in</strong>gits oversight role <strong>in</strong> m<strong>on</strong>itor<strong>in</strong>g <strong>the</strong> EU DAP‟s implementati<strong>on</strong>) could be improved if<strong>the</strong>re was a str<strong>on</strong>ger high-level political commitment to disability with<strong>in</strong> <strong>the</strong>Commissi<strong>on</strong>.C<strong>on</strong>sequently, <strong>in</strong> view <strong>of</strong> <strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD by <strong>the</strong> EU, <strong>the</strong>Inter-Service Group <strong>on</strong> Disability (ISGD) should streng<strong>the</strong>n cooperati<strong>on</strong> between DGs<strong>of</strong> <strong>the</strong> European Commissi<strong>on</strong>, <strong>and</strong> be re-structured with <strong>the</strong> aim to ensure a str<strong>on</strong>gerhigh-level political commitment. Therefore, it would be advisable for <strong>the</strong> ISGD to bechaired by <strong>the</strong> overall focal po<strong>in</strong>t with<strong>in</strong> <strong>the</strong> Commissi<strong>on</strong>, <strong>and</strong> be composed <strong>of</strong> <strong>the</strong>„<strong>in</strong>ternal focal po<strong>in</strong>ts‟ <strong>of</strong> <strong>the</strong> different Commissi<strong>on</strong>s DGs. These „<strong>in</strong>ternal focal po<strong>in</strong>ts‟should be placed at <strong>the</strong> highest level <strong>of</strong> <strong>the</strong>ir <strong>in</strong>ternal structures (i.e. Heads orDirectors). Last but not least, <strong>the</strong> ISGD should meet <strong>on</strong> a regular basis <strong>in</strong> order todiscuss, develop <strong>and</strong> follow-up <strong>in</strong>ternal policy objectives; exchange <strong>in</strong>formati<strong>on</strong>,experiences <strong>and</strong> <strong>good</strong> practice; discuss possible <strong>in</strong>ternal challenges <strong>and</strong> developsoluti<strong>on</strong>s.C<strong>on</strong>sider<strong>in</strong>g coord<strong>in</strong>ati<strong>on</strong> with (<strong>and</strong> am<strong>on</strong>g) <strong>the</strong> EU Member States, <strong>the</strong> EU shouldensure <strong>the</strong> c<strong>on</strong>sistent implementati<strong>on</strong> <strong>of</strong> EU legislati<strong>on</strong>/policy to implement <strong>the</strong> UNCRPD. Assum<strong>in</strong>g that <strong>the</strong> EU Member States will designate <strong>the</strong>ir nati<strong>on</strong>al focal po<strong>in</strong>tsat <strong>the</strong> highest level <strong>of</strong> government, <strong>the</strong> High Level Group <strong>on</strong> Disability could become408 See at: http://ec.europa.eu/employment_social/soc-prot/disable/strategy_en.htm409 CSES, Mid-term Evaluati<strong>on</strong> <strong>of</strong> <strong>the</strong> European Acti<strong>on</strong> Plan 2003-2010 <strong>on</strong> Equal Opportunities forPeople with Disabilities, F<strong>in</strong>al Report, June 2009, published at:http://ec.europa.eu/social/ma<strong>in</strong>.jsp?catId=429&langId=en&moreDocuments=yesPage | 163
<strong>the</strong> „coord<strong>in</strong>ati<strong>on</strong> mechanism‟ between <strong>the</strong> EU <strong>and</strong> <strong>the</strong> Member States, <strong>and</strong> am<strong>on</strong>g <strong>the</strong>Member States.Currently, <strong>the</strong> High Level Group <strong>on</strong> Disability (HLGD) 410 provides a „forum‟ forrepresentatives from <strong>the</strong> EU Member States, work<strong>in</strong>g <strong>on</strong> disability (ma<strong>in</strong>ly atgovernmental level), <strong>and</strong> from civil society organisati<strong>on</strong>s, <strong>in</strong>clud<strong>in</strong>g organisati<strong>on</strong> thatrepresent <strong>the</strong> <strong>in</strong>terest <strong>of</strong> pers<strong>on</strong>s with disabilities. The work <strong>of</strong> <strong>the</strong> HLGD is overseenby <strong>the</strong> Unit for <strong>the</strong> Integrati<strong>on</strong> <strong>of</strong> People with Disabilities. Accord<strong>in</strong>g to <strong>the</strong> DAP Midtermevaluati<strong>on</strong>, <strong>the</strong> HLGD appears to have worked well, but “<strong>the</strong>re is scope forimproved partnership work<strong>in</strong>g <strong>in</strong> <strong>the</strong> future, given that nati<strong>on</strong>al authorities were not thatclosely <strong>in</strong>volved <strong>in</strong> <strong>the</strong> preparati<strong>on</strong> <strong>of</strong> <strong>the</strong> 2003 DAP <strong>and</strong> <strong>in</strong> determ<strong>in</strong><strong>in</strong>g its <strong>the</strong>maticpriorities”. 411 C<strong>on</strong>sequently, <strong>in</strong> view <strong>of</strong> <strong>the</strong> effective implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD,<strong>the</strong> HLGD should:• Streng<strong>the</strong>n cooperati<strong>on</strong> between <strong>the</strong> „focal po<strong>in</strong>t‟ <strong>of</strong> <strong>the</strong> EU <strong>and</strong> <strong>the</strong> „focal po<strong>in</strong>ts‟<strong>of</strong> <strong>the</strong> EU Member States, <strong>and</strong> am<strong>on</strong>g Member States‟ „focal po<strong>in</strong>ts‟.• Be re-structured <strong>and</strong> ensure str<strong>on</strong>ger <strong>and</strong> high-level political representati<strong>on</strong>. Tothis purpose, Members <strong>of</strong> <strong>the</strong> HLGD should be appo<strong>in</strong>ted from <strong>the</strong> „focal po<strong>in</strong>ts‟<strong>of</strong> <strong>the</strong> EU Member States <strong>on</strong> <strong>the</strong> <strong>on</strong>e h<strong>and</strong>, <strong>and</strong> <strong>on</strong> <strong>the</strong> o<strong>the</strong>r fromrepresentatives <strong>of</strong> organisati<strong>on</strong>s <strong>of</strong> pers<strong>on</strong>s with disabilities that operate at <strong>the</strong>EU level (e.g. EDF), human rights NGOs, social NGOs <strong>and</strong> o<strong>the</strong>r relevantstakeholders. 412 In additi<strong>on</strong>, <strong>in</strong>ternal focal po<strong>in</strong>ts from <strong>the</strong> DGs <strong>of</strong> <strong>the</strong>Commissi<strong>on</strong> could also be members, or be <strong>in</strong>vited to meet<strong>in</strong>gs, where a relevantissue is <strong>on</strong> <strong>the</strong> agenda.• Meet <strong>on</strong> a regular basis <strong>in</strong> order to exchange <strong>in</strong>formati<strong>on</strong>, experiences <strong>and</strong> <strong>good</strong>practice; discuss, develop <strong>and</strong> follow-up comm<strong>on</strong> policy objectives; discusspossible challenges <strong>and</strong> develop soluti<strong>on</strong>s.Besides <strong>the</strong> use <strong>of</strong> <strong>the</strong> HLGD, coord<strong>in</strong>ati<strong>on</strong> between <strong>the</strong> EU <strong>and</strong> its Member Statescould also be fostered through <strong>the</strong> use <strong>of</strong> o<strong>the</strong>r s<strong>of</strong>t coord<strong>in</strong>ati<strong>on</strong> tools, such <strong>the</strong> use <strong>of</strong><strong>the</strong> “open method <strong>of</strong> coord<strong>in</strong>ati<strong>on</strong>” (OMC). The OMC is a form <strong>of</strong> collective acti<strong>on</strong>which fosters compatibility, c<strong>on</strong>sistency or c<strong>on</strong>vergence between Member States‟410Informati<strong>on</strong> related to <strong>the</strong> HLGD is available at: http://ec.europa.eu/employment_social/socprot/disable/hlg_en.htm411 CSES, Mid-term Evaluati<strong>on</strong> <strong>of</strong> <strong>the</strong> European Acti<strong>on</strong> Plan 2003-2010 <strong>on</strong> Equal Opportunities forPeople with Disabilities, F<strong>in</strong>al Report, June 2009412 It should be noted that <strong>the</strong> DPA Mid-term Evaluati<strong>on</strong> report highlighted that <strong>the</strong> compositi<strong>on</strong> <strong>of</strong> <strong>the</strong>HLGD could be extended to <strong>in</strong>clude a small number <strong>of</strong> additi<strong>on</strong>al organisati<strong>on</strong>s, such as <strong>the</strong> EuropeanAgency for Special Needs Educati<strong>on</strong>, <strong>in</strong> order to ensure adequate technical expertise <strong>in</strong> specific<strong>the</strong>matic areas <strong>of</strong> <strong>the</strong> DAP not already well-represented.Page | 164
public policies. Cover<strong>in</strong>g a variety <strong>of</strong> arrangements, it st<strong>and</strong>s half way between purelegislative <strong>in</strong>tegrati<strong>on</strong> <strong>and</strong> straightforward cooperati<strong>on</strong>.In additi<strong>on</strong>, <strong>the</strong> European Disability Forum has suggested <strong>the</strong> development <strong>of</strong> aEuropean Pact <strong>on</strong> Equal Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities 413 with <strong>the</strong> aim toprovide “clear l<strong>on</strong>g term directi<strong>on</strong> to disability policy at EU level” <strong>and</strong> outl<strong>in</strong>e ways toachieve this general goal. Specifically, <strong>the</strong> Pact will aim at ma<strong>in</strong>stream<strong>in</strong>g <strong>of</strong> disability<strong>in</strong> EU policies <strong>and</strong> <strong>in</strong>stituti<strong>on</strong>s; ensur<strong>in</strong>g clear commitments from EU policy-makers <strong>and</strong>close <strong>in</strong>volvement <strong>of</strong> organisati<strong>on</strong>s <strong>of</strong> pers<strong>on</strong>s with disabilities. To achieve <strong>the</strong>se goals,<strong>the</strong> Pact foresees enhanced coord<strong>in</strong>ati<strong>on</strong> between EU <strong>and</strong> nati<strong>on</strong>al levels; <strong>the</strong>def<strong>in</strong>iti<strong>on</strong> <strong>of</strong> progress <strong>in</strong>dicators; <strong>and</strong> systematic follow-up.5.5.3 A framework to promote, protect <strong>and</strong> m<strong>on</strong>itorC<strong>on</strong>sider<strong>in</strong>g <strong>the</strong> establishment <strong>of</strong> a framework with<strong>in</strong> <strong>the</strong> EU, research for this studyhas revealed that, at <strong>the</strong> current stage, <strong>the</strong>re is no s<strong>in</strong>gle EU body with <strong>the</strong> adequatem<strong>and</strong>ate to effectively perform all <strong>the</strong> tasks set forth <strong>in</strong> Article 33(2) UN CRPD. Asmenti<strong>on</strong>ed above, <strong>the</strong> EU can delegate to Executive Agencies (hav<strong>in</strong>g <strong>the</strong>ir own legalpers<strong>on</strong>ality) specific functi<strong>on</strong>s or powers. To date, agencies have been created <strong>on</strong> acase-by-case basis <strong>and</strong> followed <strong>the</strong> evoluti<strong>on</strong> <strong>of</strong> <strong>the</strong> growth <strong>of</strong> EU policycompetencies. Additi<strong>on</strong>ally, delegati<strong>on</strong> <strong>of</strong> functi<strong>on</strong>s to Executive Agencies is limited to<strong>the</strong> operati<strong>on</strong>al implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> EU‟s policies or programmes, <strong>and</strong> clearly def<strong>in</strong>ed<strong>and</strong> closely supervised by <strong>the</strong> delegat<strong>in</strong>g <strong>in</strong>stituti<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> specific <strong>and</strong>objective criteria. 414 Moreover, such delegati<strong>on</strong> cannot c<strong>on</strong>cern discreti<strong>on</strong>ary powers<strong>in</strong>volv<strong>in</strong>g a marg<strong>in</strong> <strong>of</strong> political judgement, as this would jeopardise <strong>the</strong> balance <strong>of</strong>powers between <strong>the</strong> <strong>in</strong>stituti<strong>on</strong>s. Therefore, even if an Agency is appo<strong>in</strong>ted as <strong>the</strong>„framework‟, many requirement set forth <strong>in</strong> <strong>the</strong> UN CRPD, such as <strong>in</strong>dependence, willnot be met. However, <strong>the</strong>re are at <strong>the</strong> current stage certa<strong>in</strong> bodies that could performsome relevant tasks <strong>and</strong> <strong>the</strong>refore could become part <strong>of</strong> <strong>the</strong> framework. The EUFundamental Rights Agency, for example, may perform some <strong>of</strong> <strong>the</strong> „framework‟ tasks.It is thus necessary to outl<strong>in</strong>e <strong>the</strong> Agency‟s m<strong>and</strong>ate <strong>and</strong> identify which <strong>of</strong> <strong>the</strong> tasks <strong>the</strong>Agency could assume, with <strong>the</strong> aim to implement Article 33(2) UN CRPD.413 See European Disability Forum, Proposal for a European Pact <strong>on</strong> Disability, p.3. Available at:http://cms.horus.be/files/99909/MediaArchive/library/EDF_proposal_for_a_European_Disability_Pact.doc414 It is worth recall<strong>in</strong>g that <strong>the</strong> <strong>on</strong>ly provisi<strong>on</strong> c<strong>on</strong>cern<strong>in</strong>g with delegati<strong>on</strong> is current Art. 211 TEC. Thisprovisi<strong>on</strong> states that <strong>the</strong> Commissi<strong>on</strong> can “exercise <strong>the</strong> powers c<strong>on</strong>ferred <strong>on</strong> it by <strong>the</strong> Council for <strong>the</strong>implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> rules laid down by <strong>the</strong> latter”. The <strong>in</strong>terpretati<strong>on</strong> <strong>of</strong> this provisi<strong>on</strong> by <strong>the</strong> ECJ led toc<strong>on</strong>sider that wide discreti<strong>on</strong>ary powers can delegated to <strong>the</strong> Commissi<strong>on</strong> (see <strong>in</strong>ter alia ECJ, 15 July1970, ACF Chemiefarma NV v Commissi<strong>on</strong>, Case 41-69, [1970] ECR 00661. The lead<strong>in</strong>g case <strong>on</strong>delegati<strong>on</strong> <strong>of</strong> powers to bodies o<strong>the</strong>r than <strong>the</strong> community <strong>in</strong>stituti<strong>on</strong> is <strong>the</strong> Mer<strong>on</strong>i Case (ECJ, 13 June1958, Mer<strong>on</strong>i v. High Authority, Case 9/56, [1957/1958] ECR, 133).Page | 165
The EU Fundamental Rights Agency (FRA) was established <strong>in</strong> 2007, 415 with <strong>the</strong> aimto provide assistance <strong>and</strong> expertise <strong>on</strong> fundamental rights to <strong>the</strong> EU <strong>in</strong>stituti<strong>on</strong>s <strong>and</strong><strong>the</strong> Member States. To this purpose, FRA supports <strong>the</strong> EU <strong>in</strong>stituti<strong>on</strong>s <strong>and</strong> MemberStates when <strong>the</strong>y take measures, or formulate courses <strong>of</strong> acti<strong>on</strong> with<strong>in</strong> <strong>the</strong>ir respectivespheres <strong>of</strong> competence to fully respect fundamental rights. The FRA works with <strong>the</strong> EU<strong>in</strong>stituti<strong>on</strong>s advisory bodies, <strong>and</strong> o<strong>the</strong>r agencies cover<strong>in</strong>g areas which cut across <strong>the</strong>various fields <strong>of</strong> fundamental rights. It also works with EU Member States <strong>and</strong> <strong>the</strong>irnati<strong>on</strong>al <strong>and</strong> local governments, Nati<strong>on</strong>al Human Rights Instituti<strong>on</strong>s (NHRIs), equalitybodies, civil society <strong>and</strong> o<strong>the</strong>r relevant stakeholders, which <strong>in</strong>fluence <strong>the</strong> human rightsagenda with<strong>in</strong> countries <strong>and</strong> at <strong>the</strong> EU level.The tasks <strong>of</strong> <strong>the</strong> Agency are “c<strong>on</strong>stra<strong>in</strong>ed” by <strong>the</strong> Multi-Annual Framework (MAF); itsma<strong>in</strong> powers are primarily <strong>in</strong>formati<strong>on</strong>-based. 416 The areas <strong>of</strong> <strong>the</strong> Agency‟s activitiesare generally grouped around <strong>the</strong> fight aga<strong>in</strong>st racism, xenophobia <strong>and</strong> related<strong>in</strong>tolerance (Article 5 MAF). Discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> disability is <strong>in</strong>cluded am<strong>on</strong>g<strong>the</strong> Agency‟s <strong>the</strong>matic areas <strong>of</strong> activity. To this end, FRA could possibly assume <strong>the</strong>tasks <strong>of</strong> „promot<strong>in</strong>g <strong>and</strong> m<strong>on</strong>itor<strong>in</strong>g‟ <strong>of</strong> <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD. TheAgency does not have competence to „protect‟ (e.g. cannot receive compla<strong>in</strong>ts, orpetiti<strong>on</strong>s, c<strong>on</strong>cern<strong>in</strong>g <strong>in</strong>dividual situati<strong>on</strong>s, nor can it <strong>in</strong>tervene as a third party before<strong>the</strong> ECJ). However, <strong>the</strong> tasks <strong>of</strong> „promot<strong>in</strong>g <strong>and</strong> m<strong>on</strong>itor<strong>in</strong>g‟ will aga<strong>in</strong> be limited to <strong>the</strong>development <strong>of</strong> reports, <strong>in</strong>formati<strong>on</strong> support <strong>and</strong> possibly awareness-rais<strong>in</strong>gcampaigns. In additi<strong>on</strong>, <strong>the</strong> Agency cannot challenge <strong>the</strong> legality <strong>of</strong> EU, or nati<strong>on</strong>alacts, <strong>and</strong> cannot submit recommendati<strong>on</strong>s <strong>on</strong> any proposed EU <strong>in</strong>struments, nor can itpropose amendments to exist<strong>in</strong>g EU <strong>in</strong>struments.C<strong>on</strong>sequently, <strong>the</strong> Fundamental Rights Agency with its current m<strong>and</strong>ate is not apowerful body, <strong>and</strong> it does not fulfil <strong>the</strong> necessary requirements to become <strong>the</strong>„framework‟ as such. The Agency could possibly assume <strong>the</strong> tasks <strong>of</strong> „promot<strong>in</strong>g <strong>and</strong>m<strong>on</strong>itor<strong>in</strong>g‟ <strong>the</strong> UN CRPD. However, <strong>in</strong> order to ensure effectiveness <strong>in</strong> this respect,<strong>the</strong> Multi-Annual Framework (MAF) for <strong>the</strong> period 2007-2012, which was adopted <strong>in</strong>2008 <strong>and</strong> which is currently <strong>in</strong> force, should be amended. In this case, <strong>the</strong> Commissi<strong>on</strong>should prepare a proposal for a new Council decisi<strong>on</strong> amend<strong>in</strong>g <strong>the</strong> previous <strong>on</strong>e <strong>in</strong>order to <strong>in</strong>clude <strong>the</strong> „m<strong>on</strong>itor<strong>in</strong>g <strong>and</strong> promoti<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD implementati<strong>on</strong>‟am<strong>on</strong>g <strong>the</strong> Agency‟s tasks. To this purpose, a list <strong>of</strong> specific acti<strong>on</strong>s that <strong>the</strong> Agencyshould undertake (follow<strong>in</strong>g <strong>the</strong> UN CRPD requirements) should be <strong>in</strong>cluded <strong>in</strong> <strong>the</strong>MAF. C<strong>on</strong>sider<strong>in</strong>g <strong>the</strong> length <strong>of</strong> time necessary to adopt a new Council Decisi<strong>on</strong>, new415 FRA was established by Council Regulati<strong>on</strong> (EC) No 168/2007 <strong>of</strong> 15 February 2007 (based <strong>on</strong> Art.308 TEC). The website <strong>of</strong> FRA is available at: http://fra.europa.eu/fraWebsite/home/home_en.htm416 Article 2 <strong>of</strong> <strong>the</strong> Council Regulati<strong>on</strong> (EC) No 168/2007, states that <strong>the</strong> Agency should collect, record,analyse <strong>and</strong> dissem<strong>in</strong>ate relevant, objective, reliable <strong>and</strong> comparable <strong>in</strong>formati<strong>on</strong> <strong>and</strong> data, <strong>in</strong>clud<strong>in</strong>gresults from research <strong>and</strong> m<strong>on</strong>itor<strong>in</strong>g communicated to it by various European <strong>and</strong> nati<strong>on</strong>al actors.Page | 166
acti<strong>on</strong>s/activities to promote <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> could be set out <strong>in</strong><strong>the</strong> future Annual Work Programmes (2010 <strong>and</strong> subsequent years), adopted by <strong>the</strong>Management Board <strong>in</strong> accordance with <strong>the</strong> Multiannual Framework, <strong>on</strong> <strong>the</strong> basis <strong>of</strong> <strong>the</strong>draft submitted by <strong>the</strong> Agency‟s Director after <strong>the</strong> Commissi<strong>on</strong> <strong>and</strong> <strong>the</strong> ScientificCommittee have delivered an op<strong>in</strong>i<strong>on</strong>.C<strong>on</strong>sider<strong>in</strong>g <strong>the</strong> requirement <strong>of</strong> „protecti<strong>on</strong>‟ set forth <strong>in</strong> Article 33(2) UN CRPD,exist<strong>in</strong>g protecti<strong>on</strong> mechanisms (Ombudsman <strong>and</strong> courts) are also not adequate toeffectively „protect‟ pers<strong>on</strong>s with disabilities. The European Ombudsman 417 couldpossibly serve as a „compla<strong>in</strong>t mechanism‟, but it can <strong>on</strong>ly provide a means <strong>of</strong>recourse <strong>in</strong> relati<strong>on</strong> to adm<strong>in</strong>istrative fail<strong>in</strong>gs <strong>of</strong> <strong>the</strong> EU <strong>in</strong>stituti<strong>on</strong>s <strong>and</strong> bodies. With thislimitati<strong>on</strong>, <strong>the</strong> European Ombudsman could provide a „compla<strong>in</strong> mechanism‟ forpers<strong>on</strong>s with disabilities, for matters related to unfairness <strong>and</strong> discrim<strong>in</strong>ati<strong>on</strong> <strong>on</strong> <strong>the</strong>basis <strong>of</strong> disability by <strong>the</strong> EU <strong>in</strong>stituti<strong>on</strong>s <strong>and</strong> bodies. However, <strong>the</strong> Ombudsman cannotfully ensure protecti<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities, as envisaged by <strong>the</strong> UN CRPD forvarious reas<strong>on</strong>s. First <strong>of</strong> all, <strong>the</strong> Ombudsman cannot <strong>in</strong>vestigate compla<strong>in</strong>ts aga<strong>in</strong>stnati<strong>on</strong>al, regi<strong>on</strong>al or local authorities <strong>in</strong> <strong>the</strong> Member States, 418 even if <strong>the</strong> compla<strong>in</strong>tsc<strong>on</strong>cern EU matters (e.g. state agencies); or <strong>the</strong> activities <strong>of</strong> nati<strong>on</strong>al courts orombudsmen; 419 or compla<strong>in</strong>ts aga<strong>in</strong>st bus<strong>in</strong>esses or private <strong>in</strong>dividuals. In additi<strong>on</strong>, <strong>the</strong>Ombudsman cannot launch <strong>in</strong>quiries <strong>on</strong> its own <strong>in</strong>itiative; <strong>in</strong>quiries always need to bebased <strong>on</strong> an <strong>in</strong>dividual compla<strong>in</strong>t. The Ombudsman cannot represent compla<strong>in</strong>antsbefore courts <strong>and</strong> tribunals, nor can it undertake „strategic litigati<strong>on</strong>‟. C<strong>on</strong>sequently, <strong>the</strong>European Ombudsman could, under <strong>the</strong> UN CRPD, <strong>on</strong>ly provide limited protecti<strong>on</strong>.C<strong>on</strong>sider<strong>in</strong>g judicial protecti<strong>on</strong>, <strong>the</strong> European Court <strong>of</strong> Justice (ECJ), <strong>the</strong> GeneralCourt (formerly called European Court <strong>of</strong> First Instance - CFI) <strong>and</strong> <strong>the</strong> European CivilService Tribunal (ECST) could possibly enhance disability rights protecti<strong>on</strong> at <strong>the</strong> EUlevel; though several „structural‟ limitati<strong>on</strong>s may pose significant challenges to this. Thefirst challenge arises from <strong>the</strong> probable lack <strong>of</strong> direct effect <strong>of</strong> <strong>the</strong> UN CRPDprovisi<strong>on</strong>s. It is worth recall<strong>in</strong>g that n<strong>on</strong>e <strong>of</strong> <strong>the</strong> provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> UN CRPD seem to be„sufficiently clear, precise <strong>and</strong> unc<strong>on</strong>diti<strong>on</strong>al‟, as required by <strong>the</strong> ECJ for a provisi<strong>on</strong> tohave direct effect. In this respect, UN CRPD pr<strong>in</strong>ciples cannot be <strong>in</strong>voked <strong>in</strong> nati<strong>on</strong>al orEU Courts. However, a nati<strong>on</strong>al court could still request a prelim<strong>in</strong>ary rul<strong>in</strong>g from <strong>the</strong>ECJ under Article 234 TEC (now Article 267 TFEU) <strong>in</strong> order to obta<strong>in</strong> guidance as to417 Website: www.ombudsman.europa.eu418 If <strong>the</strong> Ombudsman is not able to <strong>in</strong>vestigate <strong>the</strong> compla<strong>in</strong>t, he can transfer <strong>the</strong> case to a member <strong>of</strong><strong>the</strong> European Network <strong>of</strong> Ombudsmen, or he can advise enquir<strong>in</strong>g pers<strong>on</strong>s to c<strong>on</strong>tact a member <strong>of</strong> <strong>the</strong>Network. Established <strong>in</strong> 1996, <strong>the</strong> Network comprises all nati<strong>on</strong>al <strong>and</strong> regi<strong>on</strong>al ombudsmen <strong>in</strong> <strong>the</strong> EUMember States, as well as those <strong>of</strong> <strong>the</strong> applicant countries for EU membership, Norway <strong>and</strong> Icel<strong>and</strong>,<strong>and</strong> committees <strong>on</strong> petiti<strong>on</strong>s <strong>in</strong> <strong>the</strong> EU.419 The European Ombudsman is not an appeal body for decisi<strong>on</strong>s taken by <strong>the</strong>se entities.Page | 167
whe<strong>the</strong>r a provisi<strong>on</strong> <strong>in</strong> <strong>the</strong> UN CRPD has direct effect, i.e. whe<strong>the</strong>r it c<strong>on</strong>fers rights <strong>on</strong><strong>in</strong>dividuals which nati<strong>on</strong>al courts are bound to protect.The sec<strong>on</strong>d challenge arises from <strong>the</strong> limitati<strong>on</strong>s <strong>in</strong>herent to <strong>in</strong>direct access to <strong>the</strong>Court <strong>of</strong> Justice, <strong>and</strong> from <strong>the</strong> expressly limited direct access <strong>of</strong> <strong>in</strong>dividuals to <strong>the</strong>General Court (formerly called European Court <strong>of</strong> First Instance). 420 However, with <strong>the</strong>Treaty <strong>of</strong> Lisb<strong>on</strong> <strong>in</strong> force, <strong>in</strong>dividuals <strong>and</strong> private parties, such as civil societyorganisati<strong>on</strong>s <strong>and</strong> organisati<strong>on</strong>s represent<strong>in</strong>g <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities,may potentially be able to rely <strong>on</strong> Article 263 TFEU 421 to challenge <strong>the</strong> validity <strong>of</strong> someEU legislati<strong>on</strong>, such as directives <strong>and</strong> regulati<strong>on</strong>s that are directly applicable, <strong>and</strong> br<strong>in</strong>gcases directly before <strong>the</strong> EU courts (<strong>and</strong> specifically <strong>the</strong> General Court). Based <strong>on</strong>Article 263 TFEU, <strong>in</strong>dividuals <strong>and</strong> private parties could be able to challenge EUlegislati<strong>on</strong> if <strong>the</strong>y can prove that it is <strong>of</strong> „direct c<strong>on</strong>cern‟ to <strong>the</strong>m. This means that<strong>in</strong>dividuals <strong>and</strong> private entities should prove that <strong>the</strong> measure <strong>the</strong>y wish to challengeproduces direct legal effects <strong>on</strong> <strong>the</strong>m. Under <strong>the</strong> Treaty establish<strong>in</strong>g <strong>the</strong> EuropeanCommunity a sec<strong>on</strong>d complicated requirement had to be met before a private partycould br<strong>in</strong>g a challenge, related to <strong>the</strong> need to show „<strong>in</strong>dividual c<strong>on</strong>cern‟. Thisrequirement was very difficult to satisfy <strong>and</strong> has now been dropped from <strong>the</strong> newArticle 263 TFEU. Never<strong>the</strong>less, Article 263 TFEU should still be <strong>in</strong>terpreted by <strong>the</strong> EUcourts, <strong>and</strong> it is not yet clear how easy it will be for <strong>in</strong>dividuals, <strong>and</strong> private parties, toga<strong>in</strong> direct access to <strong>the</strong> courts <strong>in</strong> practice.C<strong>on</strong>sequently, f<strong>in</strong>d<strong>in</strong>gs <strong>of</strong> this study suggest that <strong>the</strong> current bodies <strong>of</strong> <strong>the</strong> EuropeanUni<strong>on</strong> do not <strong>of</strong>fer <strong>the</strong> possibility to create an effective „mix‟ <strong>of</strong> <strong>in</strong>stituti<strong>on</strong>s to ensurethat all three core tasks <strong>of</strong> <strong>the</strong> „framework‟ („protect, promote <strong>and</strong> m<strong>on</strong>itor‟) will beeffectively implemented. A critical challenge arises from <strong>the</strong> fact n<strong>on</strong>e <strong>of</strong> <strong>the</strong> current EUbodies meet <strong>the</strong> requirement <strong>of</strong> „<strong>in</strong>dependence‟. Even if <strong>the</strong> m<strong>and</strong>ate <strong>of</strong> <strong>the</strong> FRAchanges, major gaps to <strong>the</strong> effective „protecti<strong>on</strong>‟ <strong>of</strong> pers<strong>on</strong>s with disabilities will rema<strong>in</strong>.The table below aims to illustrate <strong>the</strong> tasks that <strong>the</strong> FRA <strong>and</strong> <strong>the</strong> EU courts couldassume under Article 33(2) UN CRPD <strong>and</strong> <strong>the</strong> areas where challenges rema<strong>in</strong>.Figure 3A „framework‟ with<strong>in</strong> <strong>the</strong> European Uni<strong>on</strong>Obligati<strong>on</strong>s under Article 33(2)UN CRPDBody which could be resp<strong>on</strong>sibleat <strong>the</strong> EU level420 Dr. D. Ferri, Research paper <strong>on</strong> “Article 33 UN CRPD implementati<strong>on</strong> with<strong>in</strong> <strong>the</strong> EC” for <strong>the</strong> <str<strong>on</strong>g>Study</str<strong>on</strong>g>VC/2008/1214421 Article 263 TFEU amends Article 230 TEC. Article 263 TFEU reads as follows: “Any natural or legalpers<strong>on</strong> may <strong>in</strong>stitute proceed<strong>in</strong>gs [...] aga<strong>in</strong>st an act addressed to that pers<strong>on</strong> or which is <strong>of</strong> direct <strong>and</strong><strong>in</strong>dividual c<strong>on</strong>cern to him or her, <strong>and</strong> aga<strong>in</strong>st a regulatory act which is <strong>of</strong> direct c<strong>on</strong>cern to him or her <strong>and</strong>does not entail implement<strong>in</strong>g measures.‟ Acts that can be reviewed <strong>in</strong>clude acts <strong>of</strong> <strong>the</strong> European Council<strong>and</strong> <strong>of</strong> bodies, <strong>of</strong>fices or agencies <strong>of</strong> <strong>the</strong> Uni<strong>on</strong>. The Committee <strong>of</strong> <strong>the</strong> Regi<strong>on</strong>s is added to <strong>the</strong> list <strong>of</strong>semi-privileged applicants.”Page | 168
Promote <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPDM<strong>on</strong>itor <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPDProtect <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPDFRA with<strong>in</strong> <strong>the</strong> limit <strong>of</strong> „support<strong>in</strong>g‟ EU <strong>and</strong>nati<strong>on</strong>al acti<strong>on</strong>s by provid<strong>in</strong>g <strong>in</strong>formati<strong>on</strong> <strong>and</strong>expertise, when needed.The MAF should be amended <strong>in</strong> order to giveFRA a m<strong>and</strong>ate to „promote <strong>the</strong> UN CRPD‟<strong>and</strong> be able to develop <strong>and</strong> submitrecommendati<strong>on</strong>s <strong>on</strong> <strong>the</strong> adopti<strong>on</strong> oradapti<strong>on</strong> <strong>of</strong> EU / nati<strong>on</strong>al <strong>in</strong>strumentsFRA with<strong>in</strong> its limits (draft<strong>in</strong>g/publish report)The MAF should be amended <strong>in</strong> order to giveFRA a m<strong>and</strong>ate to „m<strong>on</strong>itor <strong>the</strong> UN CRPD‟<strong>and</strong> <strong>in</strong>clude a clear task list for this purposeOmbudsman with<strong>in</strong> <strong>the</strong> scope <strong>of</strong> its activity(EU maladm<strong>in</strong>istrati<strong>on</strong>)Nati<strong>on</strong>al courts (at Member States level)<strong>the</strong> Court <strong>of</strong> Justice, <strong>the</strong> General Court <strong>and</strong><strong>the</strong> Civil Service Tribunal (at EU level butwith<strong>in</strong> limits; no direct access <strong>of</strong> <strong>in</strong>dividuals)As is evident from <strong>the</strong> table above, even if available EU entities are adapted, <strong>and</strong> aredesignated as <strong>the</strong> EU‟s „framework‟ under Article 33(2) UN CRPD, <strong>the</strong> EU will notmanage to meet <strong>the</strong> requirement <strong>of</strong> hav<strong>in</strong>g at least <strong>on</strong>e <strong>in</strong>dependent mechanism aspart <strong>of</strong> its „framework‟. Therefore, at <strong>the</strong> current stage, <strong>the</strong> ideal soluti<strong>on</strong> for <strong>the</strong> EUwould be to create a new Ad hoc Body (but not an agency), to perform <strong>the</strong> tasks <strong>of</strong><strong>the</strong> „framework‟ to promote, m<strong>on</strong>itor, <strong>and</strong> protect (with<strong>in</strong> limits). 422 This new body couldbe named “EU disability rights m<strong>on</strong>itor<strong>in</strong>g body”.The Decisi<strong>on</strong> to create this body will need to be taken by <strong>the</strong> Council, follow<strong>in</strong>g aproposal from <strong>the</strong> European Commissi<strong>on</strong> <strong>and</strong> after c<strong>on</strong>sultati<strong>on</strong> with <strong>the</strong> EuropeanParliament. The Decisi<strong>on</strong> will need to reflect <strong>the</strong> m<strong>and</strong>ate, resp<strong>on</strong>sibilities, f<strong>in</strong>anc<strong>in</strong>g,compositi<strong>on</strong> <strong>and</strong> o<strong>the</strong>r ma<strong>in</strong> characteristics <strong>of</strong> this body.The m<strong>and</strong>ate <strong>of</strong> <strong>the</strong> Ad hoc EU Disability Rights M<strong>on</strong>itor<strong>in</strong>g Body should be topromote, protect (with<strong>in</strong> limits), <strong>and</strong> m<strong>on</strong>itor <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD <strong>in</strong> <strong>the</strong>European Uni<strong>on</strong>, <strong>and</strong> <strong>on</strong> <strong>the</strong> basis <strong>of</strong> <strong>the</strong> competences reflected <strong>in</strong> <strong>the</strong> Council decisi<strong>on</strong>for <strong>the</strong> c<strong>on</strong>clusi<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD, by <strong>the</strong> Uni<strong>on</strong>.The resp<strong>on</strong>sibilities <strong>of</strong> <strong>the</strong> Body will be those that will allow it to fulfil <strong>the</strong> givenm<strong>and</strong>ate, <strong>and</strong> should <strong>in</strong>clude (<strong>on</strong> <strong>the</strong> basis <strong>of</strong> <strong>the</strong> Article 33(2) UN CRPD <strong>and</strong> <strong>the</strong> ParisPr<strong>in</strong>ciples) <strong>the</strong> follow<strong>in</strong>g:• Provide recommendati<strong>on</strong>s <strong>on</strong> any proposed EU legislati<strong>on</strong>, s<strong>of</strong>t law,establishment <strong>of</strong> new EU agency or body, <strong>in</strong> order to ensure that it adequately422 Even if a new body is created, <strong>the</strong> task <strong>of</strong> „protecti<strong>on</strong>‟ should be shared with <strong>the</strong> courts <strong>of</strong> <strong>the</strong> EU.Page | 169
takes <strong>in</strong>to account <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities as foreseen <strong>in</strong> <strong>the</strong> UNCRPD• Advise <strong>on</strong> <strong>the</strong> need for amendments to exist<strong>in</strong>g EU legislati<strong>on</strong>, s<strong>of</strong>t law,m<strong>and</strong>ates <strong>of</strong> exist<strong>in</strong>g EU agencies <strong>and</strong> o<strong>the</strong>r bodies <strong>in</strong> order to align <strong>the</strong>m with<strong>the</strong> provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> UN CRPD.• Present an annual (bi-annual) report to <strong>the</strong> European Parliament <strong>on</strong> <strong>the</strong>implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD at <strong>the</strong> EU level• Meet regularly with <strong>the</strong> Council work<strong>in</strong>g group <strong>on</strong> human rights (COHOM) todiscuss <strong>the</strong> human rights <strong>of</strong> pers<strong>on</strong>s with disabilities• C<strong>on</strong>tribute to <strong>the</strong> annual EU report <strong>on</strong> human rights by ensur<strong>in</strong>g that <strong>the</strong> rights <strong>of</strong>pers<strong>on</strong>s with disabilities are adequately taken <strong>in</strong>to account• Participate <strong>in</strong> <strong>the</strong> report<strong>in</strong>g process <strong>of</strong> <strong>the</strong> UN CRPD by present<strong>in</strong>g its own<strong>in</strong>dependent report to <strong>the</strong> UN Committee <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s withDisabilities• Follow up <strong>on</strong> <strong>the</strong> recommendati<strong>on</strong>s adopted by <strong>the</strong> UN Committee <strong>on</strong> <strong>the</strong> Rights<strong>of</strong> Pers<strong>on</strong>s with Disabilities directed at <strong>the</strong> European Uni<strong>on</strong>• Cooperate with <strong>the</strong> United Nati<strong>on</strong>s <strong>and</strong> o<strong>the</strong>r organisati<strong>on</strong> <strong>in</strong> <strong>the</strong> UN system, <strong>the</strong>regi<strong>on</strong>al <strong>in</strong>stituti<strong>on</strong>s <strong>and</strong> <strong>the</strong> nati<strong>on</strong>al human rights <strong>in</strong>stituti<strong>on</strong>s.• Establish communicati<strong>on</strong> with all nati<strong>on</strong>al bodies established by EU MemberStates that have been allocated <strong>the</strong> functi<strong>on</strong>s foreseen under Article 33(2) UNCRPD, by, am<strong>on</strong>g o<strong>the</strong>rs, organis<strong>in</strong>g an annual meet<strong>in</strong>g <strong>of</strong> all <strong>the</strong>se bodies.• Receive <strong>in</strong>dividual compla<strong>in</strong>ts that would not fall under <strong>the</strong> competence <strong>of</strong> <strong>the</strong>European ombudsman <strong>and</strong> <strong>the</strong> European Civil Service Tribunal.• Undertake awareness rais<strong>in</strong>g measures <strong>on</strong> <strong>the</strong> UN CRPD with<strong>in</strong> <strong>the</strong> EU<strong>in</strong>stituti<strong>on</strong>s, EU country <strong>of</strong>fices, agencies <strong>and</strong> bodies <strong>and</strong> ensure that <strong>in</strong> allrelevant EU awareness rais<strong>in</strong>g campaigns <strong>and</strong> acti<strong>on</strong>s, <strong>in</strong> particular any humanrights educati<strong>on</strong> programmes, <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities areadequately reflected• Provide <strong>in</strong>formati<strong>on</strong> to EU wide media <strong>on</strong> <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilitiesAdditi<strong>on</strong>ally, <strong>the</strong> EU should adequately fund <strong>the</strong> M<strong>on</strong>itor<strong>in</strong>g Body, <strong>in</strong> order to beenabled it to exercise its functi<strong>on</strong>s, provid<strong>in</strong>g an adequate number <strong>of</strong> paid staffmembers <strong>and</strong> its own premises. This fund<strong>in</strong>g will need to be specifically earmarked <strong>in</strong><strong>the</strong> EU budget, <strong>and</strong> it will be <strong>the</strong> resp<strong>on</strong>sibility <strong>of</strong> <strong>the</strong> European Parliament to ensurePage | 170
that <strong>the</strong> fund<strong>in</strong>g provisi<strong>on</strong>s will not underm<strong>in</strong>e <strong>the</strong> <strong>in</strong>dependence <strong>of</strong> <strong>the</strong> EU disabilityrights m<strong>on</strong>itor<strong>in</strong>g body.Regard<strong>in</strong>g compositi<strong>on</strong>, <strong>the</strong> Body should be wide enough to cover <strong>the</strong> expertiseneeded <strong>and</strong> composed by an odd number <strong>of</strong> members so as to ensure effective vot<strong>in</strong>g<strong>and</strong> decisi<strong>on</strong>-mak<strong>in</strong>g processes. The nom<strong>in</strong>ati<strong>on</strong> process for <strong>the</strong> members shall bedef<strong>in</strong>ed <strong>in</strong> <strong>the</strong> decisi<strong>on</strong> establish<strong>in</strong>g this body <strong>and</strong> should <strong>in</strong>clude, am<strong>on</strong>g o<strong>the</strong>rs, <strong>the</strong>follow<strong>in</strong>g elements:• Establishment <strong>of</strong> a selecti<strong>on</strong> committee <strong>of</strong> renowned <strong>in</strong>dependent human rightsexperts that will make a recommendati<strong>on</strong> based <strong>on</strong> <strong>the</strong> quality <strong>of</strong> <strong>the</strong> nom<strong>in</strong>ated<strong>in</strong>dividuals;• Def<strong>in</strong>ed set <strong>of</strong> criteria for <strong>the</strong> members which will <strong>in</strong>clude: <strong>in</strong>dependence, provenexperience <strong>in</strong> <strong>the</strong> area <strong>of</strong> human rights <strong>and</strong> disability, knowledge <strong>of</strong> <strong>the</strong>functi<strong>on</strong><strong>in</strong>g <strong>of</strong> <strong>the</strong> European Uni<strong>on</strong>; <strong>and</strong>• Def<strong>in</strong>ed set <strong>of</strong> criteria for <strong>the</strong> group which reflect <strong>the</strong> Paris Pr<strong>in</strong>ciples: genderbalance, diversity <strong>of</strong> disability, representati<strong>on</strong> <strong>of</strong> different EU countries, mixedpr<strong>of</strong>essi<strong>on</strong>al competences (legal, sociological, communicati<strong>on</strong>, etc.) <strong>and</strong> orig<strong>in</strong>(NGOs, human rights <strong>in</strong>stituti<strong>on</strong>s, academia, social partners).Governments, European Parliament, organisati<strong>on</strong> represent<strong>in</strong>g <strong>the</strong> <strong>in</strong>terests <strong>of</strong> pers<strong>on</strong>swith disabilities, <strong>and</strong> <strong>the</strong> European Commissi<strong>on</strong> should nom<strong>in</strong>ate members for <strong>the</strong> Adhoc EU Disability Rights M<strong>on</strong>itor<strong>in</strong>g Body.The proposal made by <strong>the</strong> selecti<strong>on</strong> committee should be endorsed by <strong>the</strong> College <strong>of</strong>Commissi<strong>on</strong>ers.The m<strong>and</strong>ate <strong>of</strong> <strong>the</strong> members <strong>of</strong> this body should be five years, renewable <strong>on</strong>ce.Members <strong>of</strong> <strong>the</strong> Body will need to devote a m<strong>in</strong>imum <strong>of</strong> days per year to this work, forwhich <strong>the</strong>y would perceive a per diem compensati<strong>on</strong>.The members would elect am<strong>on</strong>g <strong>the</strong>mselves a Chair, Vice-Chair <strong>and</strong> Rapporteur.In relati<strong>on</strong> to <strong>the</strong> body‟s functi<strong>on</strong>s, <strong>the</strong> members <strong>of</strong> <strong>the</strong> body should def<strong>in</strong>e its own way<strong>of</strong> functi<strong>on</strong><strong>in</strong>g to allow <strong>the</strong> adequate exercise <strong>of</strong> its resp<strong>on</strong>sibilities, which <strong>in</strong>ter aliashould <strong>in</strong>clude:• Regular meet<strong>in</strong>gs <strong>of</strong> <strong>the</strong> body;• Adequately publiciz<strong>in</strong>g its work through <strong>the</strong> adequate media <strong>and</strong> especiallythrough electr<strong>on</strong>ic media;• Establishment <strong>of</strong> work<strong>in</strong>g groups;Page | 171
• Regular communicati<strong>on</strong> with EU bodies <strong>in</strong> charge <strong>of</strong> protect<strong>in</strong>g <strong>the</strong> rights <strong>of</strong> EUcitizens, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> European Ombudsman, <strong>the</strong> Court <strong>of</strong> Justice, <strong>the</strong> GeneralCourt <strong>and</strong> <strong>the</strong> Civil Service Tribunal; <strong>and</strong>• Regular communicati<strong>on</strong> with <strong>the</strong> EU Fundamental Rights Agency.C<strong>on</strong>sider<strong>in</strong>g that <strong>the</strong> creati<strong>on</strong> <strong>of</strong> a new ad hoc body requires a decisi<strong>on</strong> from <strong>the</strong>Council, <strong>the</strong> ma<strong>in</strong> challenge lies to whe<strong>the</strong>r or not <strong>the</strong> Members <strong>of</strong> <strong>the</strong> Council(representatives <strong>of</strong> <strong>the</strong> EU Member States) will have <strong>the</strong> political will to establish a newad hoc body for <strong>the</strong> UN CRPD. In case <strong>the</strong> EU Member States reject <strong>the</strong> Commissi<strong>on</strong>‟sproposal for <strong>the</strong> establishment <strong>of</strong> such body (possibly for political reas<strong>on</strong>s), <strong>the</strong> opti<strong>on</strong><strong>of</strong> shar<strong>in</strong>g <strong>the</strong> tasks to „promote, protect <strong>and</strong> m<strong>on</strong>itor‟ am<strong>on</strong>g different (exist<strong>in</strong>g)entities should be c<strong>on</strong>sidered carefully.5.6 General Recommendati<strong>on</strong>s for States Parties <strong>on</strong> Article 33States Parties should undertake an assessment <strong>of</strong> exist<strong>in</strong>g <strong>in</strong>stituti<strong>on</strong>s that can bem<strong>and</strong>ated with <strong>the</strong> tasks set forth <strong>in</strong> Article 33 UN CRPD.States Parties should appo<strong>in</strong>t an overall focal po<strong>in</strong>t for matters related to <strong>the</strong> UNCRPD. This focal po<strong>in</strong>t should be placed at <strong>the</strong> highest executive level <strong>of</strong> <strong>the</strong> StateParty. Accord<strong>in</strong>g to <strong>the</strong> Office <strong>of</strong> <strong>the</strong> United Nati<strong>on</strong>s High Commissi<strong>on</strong>er for HumanRights (OHCHR) 423 <strong>the</strong> tasks <strong>the</strong> focal po<strong>in</strong>t should <strong>in</strong>clude:• Promot<strong>in</strong>g awareness <strong>of</strong> <strong>the</strong> UN CRPD with<strong>in</strong> <strong>the</strong> staff <strong>of</strong> <strong>the</strong> public authority;• Produc<strong>in</strong>g a UN CRPD implementati<strong>on</strong> acti<strong>on</strong> plan for <strong>the</strong> relevant publicauthority, cover<strong>in</strong>g both <strong>in</strong>ternal elements (staff, accessibility provisi<strong>on</strong>s) as wellas external elements (policy area);• Establish<strong>in</strong>g c<strong>on</strong>tact with representative organisati<strong>on</strong>s <strong>of</strong> pers<strong>on</strong>s with disabilitiesto proactively <strong>in</strong>volve <strong>the</strong>m <strong>in</strong> <strong>the</strong> work <strong>of</strong> <strong>the</strong> public authority;• Provid<strong>in</strong>g technical guidance to o<strong>the</strong>r staff members at <strong>the</strong> executive level <strong>on</strong>how to fully respect <strong>the</strong> provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> UN CRPD• Produc<strong>in</strong>g annual reports to be sent to <strong>the</strong> Head <strong>of</strong> <strong>the</strong> public authority <strong>and</strong> toany body <strong>in</strong> charge <strong>of</strong> oversee<strong>in</strong>g <strong>the</strong> work <strong>of</strong> <strong>the</strong> public authority;• Promot<strong>in</strong>g specific acti<strong>on</strong>s to support <strong>the</strong> human rights approach, such asresearch, studies <strong>and</strong> sem<strong>in</strong>ars, <strong>in</strong>volv<strong>in</strong>g experts, universities, public agencies<strong>and</strong> authorities, civil society;423 See OHCHR <str<strong>on</strong>g>Study</str<strong>on</strong>g> <strong>on</strong> Nati<strong>on</strong>al Frameworks for <strong>the</strong> Promoti<strong>on</strong> <strong>and</strong> Protecti<strong>on</strong> <strong>of</strong> <strong>the</strong> Human Rights <strong>of</strong>Pers<strong>on</strong>s with Disabilities, available at http://www2.ohchr.org/english/issues/disability/documents.htmPage | 172
• Review<strong>in</strong>g regularly any reservati<strong>on</strong>s or declarati<strong>on</strong>s <strong>on</strong> <strong>the</strong> UN CRPD <strong>and</strong> makerecommendati<strong>on</strong>s as to whe<strong>the</strong>r <strong>the</strong>y should be removed, <strong>and</strong> also c<strong>on</strong>siderwhe<strong>the</strong>r <strong>the</strong> state should ratify <strong>the</strong> Opti<strong>on</strong>al Protocol <strong>and</strong> makerecommendati<strong>on</strong>s to that effect;• Promot<strong>in</strong>g compliance with <strong>the</strong> UN CRPD by sub-nati<strong>on</strong>al entities <strong>in</strong> federalstates.• Co-ord<strong>in</strong>at<strong>in</strong>g disability-related aspects <strong>of</strong> periodic Party reports submitted to allTreaty m<strong>on</strong>itor<strong>in</strong>g bodies.States Parties should, with<strong>in</strong> <strong>the</strong>ir system <strong>of</strong> organisati<strong>on</strong>, designate departmental focalpo<strong>in</strong>ts with<strong>in</strong> every governmental department or agency. Every departmental focalpo<strong>in</strong>t should be placed at <strong>the</strong> highest level <strong>of</strong> <strong>the</strong> governmental department, or agency.The tasks <strong>of</strong> <strong>the</strong> departmental focal po<strong>in</strong>t should reflect <strong>the</strong> task <strong>of</strong> <strong>the</strong> overall focalpo<strong>in</strong>t, but <strong>the</strong>ir scope should be limited to <strong>the</strong> department <strong>of</strong> agency that <strong>the</strong>y areplaced <strong>in</strong>. Departmental focal po<strong>in</strong>ts should coord<strong>in</strong>ate <strong>the</strong>ir work with <strong>the</strong> overall focalpo<strong>in</strong>t <strong>of</strong> <strong>the</strong> State Party.A coord<strong>in</strong>ati<strong>on</strong> mechanism with<strong>in</strong> government is also deemed necessary to ensurecoherent implementati<strong>on</strong> across m<strong>in</strong>istries <strong>and</strong> agencies.States Parties should ensure that all governmental departments, or agencies, have<strong>in</strong>tegrated <strong>in</strong>to <strong>the</strong>ir agenda (portfolio) respect, <strong>and</strong> <strong>in</strong>clusi<strong>on</strong>, <strong>of</strong> <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>swith disabilities.States Parties should ensure that all governmental departments or agencies areequally aware <strong>of</strong> disability rights (as embedded <strong>in</strong> <strong>the</strong> UNCRPD). 424F<strong>in</strong>ally, an <strong>in</strong>dependent mechanism (or mechanisms), compatible with <strong>the</strong> ParisPr<strong>in</strong>ciples, should also be designated (<strong>and</strong> if not exist<strong>in</strong>g, established) <strong>and</strong> m<strong>and</strong>atedto „promote, protect <strong>and</strong> m<strong>on</strong>itor‟ implementati<strong>on</strong>, as described <strong>in</strong> secti<strong>on</strong> 5.5 <strong>of</strong> thisreport.For <strong>the</strong> purposes <strong>of</strong> Article 33 UN CRPD implementati<strong>on</strong>, States Parties shouldpromptly <strong>in</strong>itiate c<strong>on</strong>sultati<strong>on</strong> with civil society organisati<strong>on</strong>s <strong>and</strong> nati<strong>on</strong>al humanrights <strong>in</strong>stituti<strong>on</strong>s regard<strong>in</strong>g <strong>the</strong>ir role <strong>in</strong> m<strong>on</strong>itor<strong>in</strong>g <strong>and</strong> promot<strong>in</strong>g <strong>the</strong> implementati<strong>on</strong><strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>.424 See CRPD/C/2/3, supra note 386Page | 173
6.0 F<strong>in</strong>al recommendati<strong>on</strong>s for policy makersBased <strong>on</strong> obligati<strong>on</strong>s deriv<strong>in</strong>g from <strong>the</strong> UN C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s withDisabilities, <strong>and</strong> <strong>the</strong> core f<strong>in</strong>d<strong>in</strong>gs <strong>of</strong> <strong>the</strong> study, Secti<strong>on</strong> 6 aims at provid<strong>in</strong>grecommendati<strong>on</strong>s <strong>on</strong> how policy-makers should implement <strong>the</strong> UN C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong>Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities (at nati<strong>on</strong>al <strong>and</strong> EU levels), <strong>and</strong> effectively achieveits objectives. To this end, this secti<strong>on</strong> suggests <strong>good</strong> <strong>practices</strong> for matters related to<strong>the</strong> <strong>in</strong>itial implementati<strong>on</strong> phase <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>, <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> Article 33 UNCRPD as well as <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> specific issues covered by <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>.It is worth recall<strong>in</strong>g that every secti<strong>on</strong> <strong>of</strong> <strong>the</strong> present report <strong>in</strong>cluded general as well asspecific recommendati<strong>on</strong>s <strong>on</strong> changes that need to be made by <strong>the</strong> EU (asappropriate) 425 <strong>and</strong>/or <strong>the</strong> Member States with <strong>the</strong> aim to fully achieve <strong>the</strong> objectives <strong>of</strong><strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. This secti<strong>on</strong> compiles important recommendati<strong>on</strong>s <strong>and</strong> provides help<strong>and</strong> l<strong>on</strong>g term guidance to <strong>the</strong> EU, its Member States <strong>and</strong> various stakeholders formatters related to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD.6.1 Suggested Practices for <strong>the</strong> Initial Implementati<strong>on</strong> Phase1. The ratificati<strong>on</strong> <strong>and</strong> implementati<strong>on</strong> <strong>of</strong> any human rights treaty, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> UNCRPD, should be c<strong>on</strong>sidered an important endeavour. The process <strong>of</strong> ratificati<strong>on</strong> <strong>of</strong><strong>the</strong> UN CRPD, <strong>and</strong> plann<strong>in</strong>g for its implementati<strong>on</strong>, should be treated with <strong>the</strong> samelevel <strong>of</strong> seriousness accorded to o<strong>the</strong>r major nati<strong>on</strong>al <strong>and</strong> supranati<strong>on</strong>al activities.2. The EU <strong>and</strong> its Member States, as Parties to <strong>the</strong> UN CRPD, should avoid, whereat all possible, <strong>the</strong> use <strong>of</strong> reservati<strong>on</strong>s, <strong>in</strong>terpretative declarati<strong>on</strong>s or„explanatory memor<strong>and</strong>ums‟.The Office <strong>of</strong> <strong>the</strong> High Commissi<strong>on</strong>er for Human Rights has recommended that“Parties to <strong>the</strong> UN CRPD should carefully evaluate <strong>the</strong> opportunity to lodgereservati<strong>on</strong>s, or <strong>in</strong>terpretative declarati<strong>on</strong>s, to <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>. Human rights treatybodies have c<strong>on</strong>sistently expressed <strong>the</strong> view that reservati<strong>on</strong>s might have <strong>the</strong> effect<strong>of</strong> dim<strong>in</strong>ish<strong>in</strong>g <strong>the</strong> scope <strong>of</strong> protecti<strong>on</strong> afforded by treaties.” 426425 For <strong>the</strong> particular situati<strong>on</strong> <strong>of</strong> <strong>the</strong> EU <strong>on</strong> issues related to '<strong>in</strong>ternati<strong>on</strong>al resp<strong>on</strong>sibility', please seesecti<strong>on</strong>s 1.2 <strong>and</strong> 3.2 <strong>of</strong> this report. For recommendati<strong>on</strong>s <strong>on</strong> changes that may need to be made <strong>in</strong> EU<strong>in</strong>struments for matters covered by <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>, see Annex IV <strong>of</strong> this report.426 Thematic <str<strong>on</strong>g>Study</str<strong>on</strong>g> by <strong>the</strong> Office <strong>of</strong> <strong>the</strong> United Nati<strong>on</strong>s High Commissi<strong>on</strong>er for Human Rights <strong>on</strong>enhanc<strong>in</strong>g awareness <strong>and</strong> underst<strong>and</strong><strong>in</strong>g <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities.Available at http://www2.ohchr.org/english/bodies/hrcouncil/docs/10sessi<strong>on</strong>/A.HRC.10.48.pdfPage | 174
Where Member States, or <strong>the</strong> EU, determ<strong>in</strong>e that a reservati<strong>on</strong> to <strong>the</strong> UN CRPD isunavoidable, it should endeavour to withdraw <strong>the</strong> reservati<strong>on</strong> at <strong>the</strong> earliest possibleopportunity.3. The process <strong>of</strong> ratificati<strong>on</strong> (or c<strong>on</strong>clusi<strong>on</strong>) <strong>of</strong>fers a great opportunity for awarenessrais<strong>in</strong>g<strong>and</strong> promot<strong>in</strong>g underst<strong>and</strong><strong>in</strong>g <strong>of</strong> <strong>the</strong> UN CRPD. Therefore, it is advisablefor <strong>the</strong> EU <strong>and</strong> its Member States to launch awareness-rais<strong>in</strong>g campaigns atEuropean <strong>and</strong> nati<strong>on</strong>al levels, <strong>in</strong> order to <strong>in</strong>form all people about <strong>the</strong> rights <strong>of</strong>pers<strong>on</strong>s with disabilities, <strong>and</strong> obligati<strong>on</strong>s deriv<strong>in</strong>g from <strong>the</strong> ratificati<strong>on</strong> (orc<strong>on</strong>clusi<strong>on</strong>) <strong>of</strong> <strong>the</strong> UN CRPD.As highlighted by <strong>the</strong> OHCHR Thematic study <strong>on</strong> enhanc<strong>in</strong>g awareness <strong>and</strong>underst<strong>and</strong><strong>in</strong>g <strong>of</strong> <strong>the</strong> UN CRPD (A/HRC/10/48), 427 where States Parties haveengaged <strong>in</strong> adequate c<strong>on</strong>sultati<strong>on</strong> 428 with n<strong>on</strong>-governmental stakeholders, civilsociety <strong>and</strong> <strong>in</strong> particular DPOs, prior to <strong>the</strong> UN CRPD ratificati<strong>on</strong>, this appears toresult <strong>in</strong> a positive impact <strong>on</strong> <strong>the</strong> UN CRPD implementati<strong>on</strong>. In additi<strong>on</strong>, <strong>the</strong> studyunderl<strong>in</strong>es <strong>the</strong> beneficial impact <strong>of</strong> <strong>of</strong>ficially translat<strong>in</strong>g <strong>and</strong> widely dissem<strong>in</strong>at<strong>in</strong>g <strong>the</strong>UN CRPD <strong>in</strong> nati<strong>on</strong>al languages prior to <strong>the</strong> ratificati<strong>on</strong>.4. The EU <strong>and</strong> Member States, as Parties to <strong>the</strong> UN CRPD, should widelydissem<strong>in</strong>ate <strong>the</strong> text <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>, any relevant <strong>in</strong>formati<strong>on</strong> related toratificati<strong>on</strong> (or c<strong>on</strong>clusi<strong>on</strong>), <strong>and</strong> any o<strong>the</strong>r general <strong>in</strong>formati<strong>on</strong> about <strong>the</strong> UN CRPD(e.g. obligati<strong>on</strong>s deriv<strong>in</strong>g from <strong>the</strong> UN CRPD), with<strong>in</strong> all relevant departments (oragencies) <strong>of</strong> government, as well as to major <strong>in</strong>terest groups, <strong>in</strong>clud<strong>in</strong>g pers<strong>on</strong>swith disabilities <strong>and</strong> <strong>the</strong>ir representative organisati<strong>on</strong>s, NGOs, political parties, <strong>the</strong>judiciary <strong>and</strong> academia, <strong>and</strong> o<strong>the</strong>r educati<strong>on</strong>al <strong>in</strong>stituti<strong>on</strong>s. The text <strong>of</strong> <strong>the</strong> UNCRPD <strong>and</strong> all relevant <strong>in</strong>formati<strong>on</strong> should be provided <strong>in</strong> accessible formats, asrequired by <strong>the</strong> Article 9 UN CRPD.5. The Member States <strong>of</strong> <strong>the</strong> EU should translate <strong>the</strong> text <strong>of</strong> <strong>the</strong> UN CRPD <strong>in</strong>t<strong>on</strong>ati<strong>on</strong>al languages, as well as m<strong>in</strong>ority languages, <strong>in</strong> order to ensure that all people<strong>in</strong> <strong>the</strong>ir communities, <strong>and</strong> <strong>in</strong> particular people with disabilities, are adequately427 See <str<strong>on</strong>g>Study</str<strong>on</strong>g> <strong>of</strong> <strong>the</strong> High Commissi<strong>on</strong>er for Human Rights <strong>on</strong> key legal measures for <strong>the</strong> ratificati<strong>on</strong> <strong>and</strong>implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>on</strong> <strong>the</strong> Rights <strong>of</strong> Pers<strong>on</strong>s with Disabilities (A/HRC/10/48), available at:http://www2.ohchr.org/english/issues/disability/documents.htm428 Ibid, The <str<strong>on</strong>g>Study</str<strong>on</strong>g> def<strong>in</strong>es as „adequate‟, a c<strong>on</strong>sultati<strong>on</strong> process that takes place at <strong>the</strong> level <strong>of</strong>government departments <strong>and</strong> agencies <strong>and</strong> (where applicable) State <strong>and</strong> territory level, with <strong>the</strong> active<strong>in</strong>volvement <strong>of</strong> n<strong>on</strong>-governmental stakeholders, civil society <strong>and</strong> <strong>in</strong> particular DPOs. Such c<strong>on</strong>sultati<strong>on</strong>should enhance underst<strong>and</strong><strong>in</strong>g <strong>of</strong> <strong>the</strong> CRPD, c<strong>on</strong>tribute to ascerta<strong>in</strong><strong>in</strong>g compliance <strong>of</strong> laws, policies <strong>and</strong>programmes with <strong>the</strong> CRPD <strong>and</strong> identify areas for improvement.Page | 175
<strong>in</strong>formed. Translati<strong>on</strong> should be a high priority <strong>and</strong> should take place as so<strong>on</strong> aspossible. 4296. Effective use <strong>of</strong> <strong>the</strong> media should be made to obta<strong>in</strong> <strong>the</strong> views <strong>of</strong> members <strong>of</strong> <strong>the</strong>public <strong>on</strong> <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD. This is particularly important <strong>in</strong> large<strong>and</strong> geographically dispersed countries. The <strong>in</strong>ternet, radio <strong>and</strong> televisi<strong>on</strong> shouldbe used to dissem<strong>in</strong>ate <strong>in</strong>formati<strong>on</strong> about <strong>the</strong> UN CRPD <strong>and</strong> processes <strong>of</strong>ratificati<strong>on</strong> (or c<strong>on</strong>clusi<strong>on</strong>), as well as implementati<strong>on</strong>, <strong>and</strong> to obta<strong>in</strong> <strong>in</strong>put from <strong>the</strong>public. Particular attenti<strong>on</strong> should be given to accessibility, to ensure that allsectors <strong>of</strong> <strong>the</strong> disability community have <strong>the</strong> opportunity to receive <strong>in</strong>formati<strong>on</strong>, <strong>and</strong>provide <strong>in</strong>puts <strong>on</strong> implementati<strong>on</strong>, <strong>in</strong> l<strong>in</strong>e with Article 9 UN CRPD.7. As part <strong>of</strong> <strong>the</strong> UN CRPD implementati<strong>on</strong> process, <strong>and</strong> as a matter <strong>of</strong> first priority,<strong>the</strong> EU <strong>and</strong> Member States should undertake a screen<strong>in</strong>g <strong>of</strong> EU <strong>and</strong> nati<strong>on</strong>allegislati<strong>on</strong> <strong>and</strong> policy, <strong>in</strong> order to identify any areas <strong>in</strong> which legislati<strong>on</strong> or policyfails to meet <strong>the</strong> obligati<strong>on</strong>s under <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>.• The EU <strong>and</strong> <strong>the</strong> Member States should ensure that pers<strong>on</strong>s with disabilitiesare fully <strong>in</strong>volved <strong>in</strong> this process, <strong>and</strong> that <strong>the</strong> mean<strong>in</strong>gful c<strong>on</strong>tributi<strong>on</strong> <strong>of</strong>pers<strong>on</strong>s with disabilities <strong>and</strong> <strong>the</strong>ir representative organisati<strong>on</strong>s is sought <strong>and</strong>facilitated. The results <strong>of</strong> <strong>the</strong> screen<strong>in</strong>g process should be made publiclyavailable <strong>and</strong> dissem<strong>in</strong>ated <strong>in</strong> accessible formats.• Given <strong>the</strong> cross-cutt<strong>in</strong>g nature <strong>of</strong> disability, <strong>the</strong> screen<strong>in</strong>g should behoriz<strong>on</strong>tal <strong>in</strong> order to ensure that all legislati<strong>on</strong>, policies <strong>and</strong> programmesare reviewed <strong>and</strong> evaluated.• Such screen<strong>in</strong>g should c<strong>on</strong>sider <strong>the</strong> UN CRPD “not <strong>on</strong>ly article by article, butalso holistically, recognis<strong>in</strong>g <strong>the</strong> <strong>in</strong>terdependence <strong>and</strong> <strong>in</strong>divisibility <strong>of</strong> humanrights.” 4308. Given <strong>the</strong> cross-cutt<strong>in</strong>g nature <strong>of</strong> disability, <strong>and</strong> <strong>the</strong> diverse number <strong>of</strong> organisati<strong>on</strong>s<strong>and</strong> <strong>in</strong>dividuals with an <strong>in</strong>terest <strong>in</strong> <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD, <strong>the</strong> EU <strong>and</strong>Member States should c<strong>on</strong>sider <strong>the</strong> establishment <strong>of</strong> a Steer<strong>in</strong>g Committee with am<strong>and</strong>ate to review legislati<strong>on</strong>, <strong>and</strong> recommend <strong>on</strong> reforms needed <strong>in</strong> law <strong>and</strong> policy(such as adopti<strong>on</strong> <strong>of</strong> disability specific legislati<strong>on</strong>), <strong>in</strong> order to fully meet <strong>the</strong>requirements set forth <strong>in</strong> <strong>the</strong> UN CRPD. The Committee should be comprised <strong>of</strong>representatives <strong>of</strong> relevant government departments, <strong>the</strong> disability community, civilsociety <strong>and</strong> o<strong>the</strong>r stakeholders. The Committee should be chaired at a senior429 It should be recalled that as <strong>the</strong> text <strong>of</strong> <strong>the</strong> UN CRPD was annexed <strong>in</strong> Council Decisi<strong>on</strong> 2010/48/EC(see supra note 13) it has been translated <strong>in</strong>to all EU languages by <strong>the</strong> Commissi<strong>on</strong> <strong>and</strong> is available at:http://eur-lex.europa.eu/JOHtml.do?uri=OJ:L:2010:023:SOM:EN:HTML430 See A/HRC/10/48, supra note 436, p. 10, para. 30Page | 176
level <strong>and</strong> oversee screen<strong>in</strong>g <strong>and</strong> implementati<strong>on</strong> processes, especially where law<strong>and</strong> policy reform is be<strong>in</strong>g undertaken. The Committee should also have <strong>the</strong>resp<strong>on</strong>sibility <strong>of</strong> establish<strong>in</strong>g a coord<strong>in</strong>at<strong>in</strong>g mechanism to support <strong>the</strong> review <strong>of</strong>exist<strong>in</strong>g law <strong>and</strong> policy <strong>in</strong> terms <strong>of</strong> its c<strong>on</strong>formity to <strong>the</strong> UN CRPD, <strong>and</strong> managec<strong>on</strong>sultati<strong>on</strong>s with stakeholders, mak<strong>in</strong>g logistic arrangements, coord<strong>in</strong>at<strong>in</strong>gresources <strong>and</strong> dissem<strong>in</strong>at<strong>in</strong>g <strong>in</strong>formati<strong>on</strong>.9. Follow<strong>in</strong>g ratificati<strong>on</strong> (or c<strong>on</strong>clusi<strong>on</strong>), <strong>the</strong> Member States <strong>and</strong> <strong>the</strong> EU, work<strong>in</strong>gthrough <strong>the</strong> designated focal po<strong>in</strong>t, should organise <strong>in</strong>itial c<strong>on</strong>sultati<strong>on</strong>s <strong>on</strong>implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD, with<strong>in</strong> government departments, <strong>and</strong> betweengovernment departments <strong>and</strong> civil society.10. The EU <strong>and</strong> Member States, work<strong>in</strong>g through <strong>the</strong>ir focal po<strong>in</strong>t, should arrangepublic meet<strong>in</strong>gs to provide opportunities for pers<strong>on</strong>s with disabilities, <strong>the</strong>irrepresentative organisati<strong>on</strong>s, o<strong>the</strong>r n<strong>on</strong>-governmental organisati<strong>on</strong>s, <strong>and</strong> members<strong>of</strong> <strong>the</strong> public to express <strong>the</strong>ir views <strong>on</strong> <strong>the</strong> UN CRPD implementati<strong>on</strong> by <strong>the</strong> EU <strong>and</strong>Member States. Where appropriate, for example <strong>in</strong> <strong>the</strong> c<strong>on</strong>text <strong>of</strong> parliamentaryhuman rights committees, public hear<strong>in</strong>gs should be held.11. The EU <strong>and</strong> Member States should allocate sufficient resources to ensure that aneffective c<strong>on</strong>sultati<strong>on</strong> process c<strong>on</strong>cern<strong>in</strong>g <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD cantake place.12. An <strong>in</strong>itial c<strong>on</strong>sultative meet<strong>in</strong>g or series <strong>of</strong> meet<strong>in</strong>gs, at EU <strong>and</strong> nati<strong>on</strong>al levelsshould be organised before <strong>the</strong> screen<strong>in</strong>g process, with <strong>the</strong> aim to obta<strong>in</strong> <strong>the</strong> views<strong>of</strong> various <strong>in</strong>terest groups regard<strong>in</strong>g implementati<strong>on</strong> <strong>and</strong> necessary law <strong>and</strong> policyreforms. This meet<strong>in</strong>g (or meet<strong>in</strong>gs) should address <strong>the</strong> process <strong>of</strong> screen<strong>in</strong>g <strong>and</strong>implementati<strong>on</strong> by <strong>the</strong> EU <strong>and</strong> Member states.13. C<strong>on</strong>sultati<strong>on</strong> processes <strong>on</strong> <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD should address(but are not limited to) <strong>the</strong> follow<strong>in</strong>g:• <strong>the</strong> situati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities with<strong>in</strong> <strong>the</strong> EU or Member States;• <strong>the</strong> exist<strong>in</strong>g legal framework for ensur<strong>in</strong>g <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s withdisabilities, whe<strong>the</strong>r by c<strong>on</strong>stituti<strong>on</strong> (or Treaty), or by legislati<strong>on</strong>;• <strong>the</strong> need for law <strong>and</strong> policy reform <strong>in</strong> <strong>the</strong> light <strong>of</strong> <strong>the</strong> full <strong>and</strong> effectiveimplementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD;• current mechanisms with<strong>in</strong>, <strong>and</strong> <strong>in</strong>dependent <strong>of</strong>, EU or Member Statesgovernments to <strong>in</strong>vestigate allegati<strong>on</strong>s <strong>of</strong> human rights violati<strong>on</strong>s aga<strong>in</strong>stpers<strong>on</strong>s with disabilities, provide educati<strong>on</strong> <strong>and</strong> disability rights promoti<strong>on</strong>;Page | 177
• <strong>the</strong> existence <strong>of</strong> nati<strong>on</strong>al bodies <strong>and</strong> mechanisms with <strong>the</strong> m<strong>and</strong>ate tom<strong>on</strong>itor <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities; <strong>and</strong>• <strong>the</strong> adequacy <strong>of</strong> resources to ensure implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD <strong>and</strong>compliance with m<strong>on</strong>itor<strong>in</strong>g procedures.14. The c<strong>on</strong>sultati<strong>on</strong> process relat<strong>in</strong>g to all aspects <strong>of</strong> implementati<strong>on</strong> should ensureeffective participati<strong>on</strong> by pers<strong>on</strong>s with disabilities, who may <strong>of</strong>ten be subjected tomultiple or aggravated forms <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong>, <strong>and</strong> those who require more<strong>in</strong>tensive support, <strong>in</strong> keep<strong>in</strong>g <strong>in</strong> l<strong>in</strong>e with <strong>the</strong> UN CRPD, Preamble (j) & (p).15. In <strong>the</strong> light <strong>of</strong> <strong>the</strong> overall c<strong>on</strong>sultati<strong>on</strong> process, <strong>and</strong> throughout <strong>the</strong> course <strong>of</strong>implementati<strong>on</strong>, <strong>the</strong> EU <strong>and</strong> Member States‟ governments should preparerecommendati<strong>on</strong>s regard<strong>in</strong>g <strong>the</strong> need for law <strong>and</strong> policy change <strong>in</strong> order toimplement (or to align laws with) <strong>the</strong> UN CRPD.16. Based <strong>on</strong> <strong>the</strong> results <strong>of</strong> <strong>the</strong> screen<strong>in</strong>g process, <strong>the</strong> EU <strong>and</strong> Member States shouldadopt appropriate legislative, adm<strong>in</strong>istrative <strong>and</strong> o<strong>the</strong>r measures necessary toensure implementati<strong>on</strong> <strong>of</strong> all rights recognised <strong>in</strong> <strong>the</strong> UN CRPD. In tak<strong>in</strong>g <strong>the</strong>semeasures, <strong>the</strong> EU <strong>and</strong> Member States should take <strong>in</strong>to account <strong>the</strong> generalpr<strong>in</strong>ciples <strong>and</strong> obligati<strong>on</strong>s laid down <strong>in</strong> Articles 3, 4 <strong>and</strong> 5, as well as Articles 6 <strong>and</strong>7 <strong>of</strong> <strong>the</strong> UN CRPD (<strong>on</strong> <strong>in</strong>ter-secti<strong>on</strong>ality).17. EU <strong>and</strong> Member States governments, <strong>in</strong> c<strong>on</strong>sultati<strong>on</strong> with pers<strong>on</strong>s with disabilities<strong>and</strong> <strong>the</strong>ir representative organisati<strong>on</strong>s, should proceed to amend expeditiouslylegislati<strong>on</strong> <strong>in</strong> order to br<strong>in</strong>g EU <strong>and</strong> nati<strong>on</strong>al legal frameworks <strong>in</strong>to alignment with<strong>the</strong> UN CRPD.18. If <strong>the</strong> word<strong>in</strong>g <strong>of</strong> EU or nati<strong>on</strong>al legislati<strong>on</strong> is open to more than <strong>on</strong>e <strong>in</strong>terpretati<strong>on</strong>,<strong>the</strong> EU <strong>and</strong> Member States should adhere, as far as possible, to <strong>the</strong> <strong>in</strong>terpretati<strong>on</strong>that renders <strong>the</strong> provisi<strong>on</strong> most c<strong>on</strong>sistent with <strong>the</strong> UN CRPD. 431 Therefore, all EU<strong>and</strong> nati<strong>on</strong>al governmental <strong>in</strong>stituti<strong>on</strong>s, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> judiciary (EU <strong>and</strong> nati<strong>on</strong>alCourts), should apply EU <strong>and</strong> nati<strong>on</strong>al law <strong>in</strong> a manner that is most c<strong>on</strong>sistent with<strong>the</strong> UN CRPD. To this purpose, both <strong>the</strong> EU <strong>and</strong> Member States should organise<strong>and</strong> provide appropriate tra<strong>in</strong><strong>in</strong>g <strong>of</strong> public servants, <strong>in</strong>clud<strong>in</strong>g judiciary staff, <strong>on</strong> <strong>the</strong>rights recognised <strong>in</strong> <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> <strong>and</strong> obligati<strong>on</strong>s deriv<strong>in</strong>g from it. 43219. Any draft legislati<strong>on</strong>, amendments to exist<strong>in</strong>g legislati<strong>on</strong>, or adm<strong>in</strong>istrativeregulati<strong>on</strong>s designed to br<strong>in</strong>g laws <strong>in</strong>to alignment with <strong>the</strong> UN CRPD should be <strong>the</strong>subject <strong>of</strong> fur<strong>the</strong>r c<strong>on</strong>sultati<strong>on</strong> with pers<strong>on</strong>s with disabilities <strong>and</strong> <strong>the</strong>ir representative431 See also A/HRC/10/48, supra note 436, p. 18, para. 58432 It is worth recall<strong>in</strong>g that <strong>the</strong> Commissi<strong>on</strong> committed to fund under PROGRESS tra<strong>in</strong><strong>in</strong>g sem<strong>in</strong>ars forlegal <strong>and</strong> policy practiti<strong>on</strong>ers <strong>on</strong> <strong>the</strong> UN CRPD. See supra note 4Page | 178
organisati<strong>on</strong>s <strong>and</strong> o<strong>the</strong>r <strong>in</strong>terested parties (e.g. employers, teachers, legaloperators, eng<strong>in</strong>eers or o<strong>the</strong>rs). To this end, <strong>the</strong> EU <strong>and</strong> Member States shouldfollow participatory decisi<strong>on</strong>-mak<strong>in</strong>g processes.20. Where proposals for legal reforms are made, <strong>the</strong> EU <strong>and</strong> Member States shouldtake <strong>in</strong>to account Article 4(4) UN CRPD, which makes clear that <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>does not underm<strong>in</strong>e or replace higher st<strong>and</strong>ards <strong>of</strong> protecti<strong>on</strong> that might beprovided for <strong>in</strong> EU or nati<strong>on</strong>al legislati<strong>on</strong>. 43321. The implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD should be understood as an <strong>on</strong>go<strong>in</strong>gprocess. Implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD may be d<strong>on</strong>e by EU or nati<strong>on</strong>algovernment structures, civil society, or as a result <strong>of</strong> <strong>in</strong>ternati<strong>on</strong>al cooperati<strong>on</strong>.Whatever <strong>the</strong> <strong>in</strong>itial stimulus, <strong>and</strong> <strong>in</strong> respect <strong>of</strong> any comp<strong>on</strong>ent <strong>of</strong> implementati<strong>on</strong>,<strong>the</strong> process should be accessible to, <strong>and</strong> <strong>in</strong>clusive <strong>of</strong>, pers<strong>on</strong>s with disabilities <strong>and</strong><strong>the</strong>ir representative organisati<strong>on</strong>s from <strong>the</strong> outset, <strong>in</strong> keep<strong>in</strong>g <strong>in</strong> l<strong>in</strong>e with Article 4(3)<strong>and</strong> <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> participati<strong>on</strong> as reflected <strong>in</strong> Article 3 <strong>of</strong> <strong>the</strong> UN CRPD.22. The EU <strong>and</strong> Member States, as Parties to <strong>the</strong> UN CRPD, should <strong>in</strong>clude <strong>in</strong> allphases <strong>of</strong> <strong>the</strong> implementati<strong>on</strong> process, <strong>the</strong> follow<strong>in</strong>g stakeholders:• Pers<strong>on</strong>s with disabilities <strong>and</strong> <strong>the</strong>ir representative organisati<strong>on</strong>s, <strong>in</strong> l<strong>in</strong>e withArticle 4(3) UN CRPD;• Key figures <strong>of</strong> government, <strong>in</strong>clud<strong>in</strong>g Heads <strong>of</strong> government, <strong>and</strong> resp<strong>on</strong>siblem<strong>in</strong>isters (or Commissi<strong>on</strong>ers);• Representatives <strong>of</strong> major political parties;• Parliamentarians, <strong>in</strong> particular where parliamentary Human RightsCommittees exist;• Relevant executive agencies;• Independent nati<strong>on</strong>al human rights <strong>in</strong>stituti<strong>on</strong>s, whe<strong>the</strong>r <strong>of</strong> a general (e.g.nati<strong>on</strong>al human rights commissi<strong>on</strong>) or disability-specific (e.g. disabilityombudsman or council) nature;• Human rights NGOs, <strong>in</strong>clud<strong>in</strong>g specialised organisati<strong>on</strong>s, such as NGOsfocus<strong>in</strong>g <strong>on</strong> <strong>the</strong> rights <strong>of</strong> women <strong>and</strong> children, <strong>and</strong> <strong>on</strong> social issues, such ashealth, hous<strong>in</strong>g, educati<strong>on</strong>, or o<strong>the</strong>r;• Members <strong>of</strong> <strong>the</strong> judiciary <strong>and</strong> jurists;• Pr<strong>of</strong>essi<strong>on</strong>al groups, <strong>in</strong>clud<strong>in</strong>g associati<strong>on</strong>s <strong>of</strong> teachers, lawyers, <strong>and</strong>journalists;• Disability rights/human rights experts <strong>and</strong> academics.23. At <strong>the</strong> request <strong>of</strong> a Member State, representatives from <strong>the</strong> European Uni<strong>on</strong>, <strong>the</strong>United Nati<strong>on</strong>s, or o<strong>the</strong>r <strong>in</strong>ternati<strong>on</strong>al organisati<strong>on</strong>s, or <strong>the</strong>matic experts might433 See A/HRC/10/48, supra note 436, p. 11 para. 34Page | 179
participate <strong>in</strong> <strong>the</strong> nati<strong>on</strong>al implementati<strong>on</strong> process, <strong>in</strong> an advisory capacity. Thismay occur with<strong>in</strong> <strong>the</strong> framework <strong>of</strong>, for example, a technical cooperati<strong>on</strong>programme.6.2 Suggested <strong>practices</strong> for <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> Article 33UN CRPD: Instituti<strong>on</strong>al Apparatus24. The EU <strong>and</strong> Member States should designate <strong>on</strong>e (or more) focal po<strong>in</strong>t(s) with<strong>in</strong><strong>the</strong> governments for all matters relat<strong>in</strong>g to <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD, <strong>and</strong><strong>in</strong> pursuance <strong>of</strong> implement<strong>in</strong>g Article 33(1). The focal po<strong>in</strong>t should be placed at <strong>the</strong>highest level <strong>of</strong> <strong>the</strong> executive power to guarantee <strong>the</strong> ma<strong>in</strong>stream impact <strong>of</strong> itswork, <strong>and</strong> <strong>the</strong> status <strong>of</strong> its recommendati<strong>on</strong>s, while also serv<strong>in</strong>g as a permanentrem<strong>in</strong>der that <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities need to be respected <strong>in</strong> all areas<strong>of</strong> <strong>the</strong> government. The focal po<strong>in</strong>t should support <strong>the</strong> Steer<strong>in</strong>g Committee (seerecommendati<strong>on</strong> N o 8) <strong>on</strong> specific <strong>in</strong>itiatives, such as <strong>the</strong> development <strong>of</strong> proposalsfor new disability law <strong>and</strong> policy. The m<strong>and</strong>ate <strong>and</strong> resp<strong>on</strong>sibilities <strong>of</strong> <strong>the</strong> focal po<strong>in</strong>tshould <strong>in</strong>clude <strong>the</strong> follow<strong>in</strong>g:• Promot<strong>in</strong>g awareness <strong>of</strong> <strong>the</strong> UN CRPD with<strong>in</strong> <strong>the</strong> staff <strong>of</strong> <strong>the</strong> EU or MemberState (government departments, or DGs; agencies; <strong>and</strong> o<strong>the</strong>rs);• Produc<strong>in</strong>g a UN CRPD implementati<strong>on</strong> acti<strong>on</strong> plan for <strong>the</strong> relevant authority(nati<strong>on</strong>al or European), cover<strong>in</strong>g both <strong>in</strong>ternal elements (e.g. staff tra<strong>in</strong><strong>in</strong>g,accessibility provisi<strong>on</strong>s) as well as external elements (specific policy areas);• Establish<strong>in</strong>g c<strong>on</strong>tact with representative organisati<strong>on</strong>s <strong>of</strong> pers<strong>on</strong>s withdisabilities to proactively <strong>in</strong>volve <strong>the</strong>m <strong>in</strong> <strong>the</strong> work <strong>of</strong> <strong>the</strong> EU or MemberState;• Provid<strong>in</strong>g technical guidance to fellow staff members <strong>on</strong> how to fully respect<strong>and</strong> implement <strong>the</strong> provisi<strong>on</strong>s <strong>of</strong> <strong>the</strong> UN CRPD;• M<strong>on</strong>itor <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD <strong>and</strong> produc<strong>in</strong>g annual reports tobe sent to Heads <strong>of</strong> <strong>the</strong> EU or Member State, <strong>and</strong> to any resp<strong>on</strong>sible body <strong>in</strong>charge <strong>of</strong> oversee<strong>in</strong>g <strong>the</strong> work <strong>of</strong> <strong>the</strong> EU or Member State;• Promot<strong>in</strong>g specific acti<strong>on</strong>s to support <strong>the</strong> human rights approach, such asresearch, studies <strong>and</strong> sem<strong>in</strong>ars, <strong>in</strong>volv<strong>in</strong>g experts, universities, publicagencies <strong>and</strong> authorities, civil society;• Review<strong>in</strong>g regularly any reservati<strong>on</strong>s or declarati<strong>on</strong>s <strong>on</strong> <strong>the</strong> UN CRPD <strong>and</strong>make recommendati<strong>on</strong>s as to whe<strong>the</strong>r <strong>the</strong>y should be removed. The focalpo<strong>in</strong>t should also c<strong>on</strong>sider whe<strong>the</strong>r <strong>the</strong> EU or Member State should(c<strong>on</strong>clude or) ratify <strong>the</strong> Opti<strong>on</strong>al Protocol, <strong>and</strong> make recommendati<strong>on</strong>s to thateffect;Page | 180
• Promot<strong>in</strong>g compliance with <strong>the</strong> UN CRPD by sub-entities with<strong>in</strong> <strong>the</strong> EU <strong>of</strong>Member State;• Co-ord<strong>in</strong>at<strong>in</strong>g disability-related aspects <strong>of</strong> periodic reports submitted to allTreaty m<strong>on</strong>itor<strong>in</strong>g bodies.25. The EU <strong>and</strong> Member States should c<strong>on</strong>sider <strong>the</strong> establishment or designati<strong>on</strong> <strong>of</strong> acoord<strong>in</strong>ati<strong>on</strong> mechanism with<strong>in</strong> government level to facilitate c<strong>on</strong>sistency <strong>of</strong>related acti<strong>on</strong>s <strong>in</strong> different sectors <strong>and</strong> at different levels, <strong>in</strong> accordance with Article33(1) UN CRPD.• The EU should, <strong>in</strong> particular, c<strong>on</strong>sider <strong>the</strong> establishment <strong>of</strong> different types <strong>of</strong>coord<strong>in</strong>ati<strong>on</strong> mechanisms <strong>in</strong> order to ensure coord<strong>in</strong>ati<strong>on</strong> am<strong>on</strong>g <strong>the</strong> DGs;between <strong>the</strong> DGs <strong>and</strong> o<strong>the</strong>r <strong>in</strong>stituti<strong>on</strong> <strong>of</strong> <strong>the</strong> EU (e.g. Parliament, Council, oro<strong>the</strong>r); between <strong>the</strong> EU <strong>and</strong> <strong>the</strong> Member States; <strong>and</strong> <strong>the</strong> facilitati<strong>on</strong> <strong>of</strong>coord<strong>in</strong>ati<strong>on</strong> am<strong>on</strong>g <strong>the</strong> Member States. At <strong>the</strong> current stage, severalcoord<strong>in</strong>ati<strong>on</strong> mechanisms exist with<strong>in</strong> <strong>the</strong> EU system that could facilitatecoord<strong>in</strong>ati<strong>on</strong> at all previously menti<strong>on</strong>ed levels (see details at secti<strong>on</strong> 5.5.2 <strong>of</strong>this report). However, exist<strong>in</strong>g mechanisms may need some sort <strong>of</strong>adjustments <strong>in</strong> order to ensure effective coord<strong>in</strong>ati<strong>on</strong> at all levels. Therefore,before any <strong>of</strong>ficial designati<strong>on</strong> is made, it is recommended that <strong>the</strong> EUlaunches a public c<strong>on</strong>sultati<strong>on</strong> process with <strong>the</strong> aim to identify <strong>the</strong> mostappropriate mechanisms that would ensure effective coord<strong>in</strong>ati<strong>on</strong> at alllevels.• EU Member States should also ensure <strong>the</strong> establishment <strong>of</strong> effectivecoord<strong>in</strong>ati<strong>on</strong> mechanisms with <strong>the</strong> European Uni<strong>on</strong>. Close coord<strong>in</strong>ati<strong>on</strong> <strong>and</strong>c<strong>on</strong>sultati<strong>on</strong> with <strong>the</strong> EU is especially important where Member States <strong>and</strong><strong>the</strong> EU share competence. In areas where Member States are fac<strong>in</strong>g greatchallenges (e.g. implementati<strong>on</strong> <strong>of</strong> Article 12 UN CRPD), <strong>the</strong> EU couldbecome <strong>the</strong> platform to exchange views <strong>and</strong> experiences, <strong>and</strong> facilitateacti<strong>on</strong>s. From <strong>the</strong> EU law perspective, as <strong>the</strong> UN CRPD is a mixedagreement, Member States do not act as entirely aut<strong>on</strong>omous subjects <strong>of</strong><strong>in</strong>ternati<strong>on</strong>al law when implement<strong>in</strong>g <strong>the</strong> UN CRPD. Member States aresubject to a duty <strong>of</strong> loyal cooperati<strong>on</strong> between <strong>the</strong>mselves <strong>and</strong> <strong>the</strong> EU. 434This duty extends to all implementati<strong>on</strong> phases <strong>of</strong> <strong>the</strong> UN CRPD. It is<strong>the</strong>refore essential for <strong>the</strong> EU <strong>and</strong> <strong>the</strong> Member States to closely cooperate <strong>in</strong>order to ensure unity at <strong>the</strong> <strong>in</strong>ternati<strong>on</strong>al representati<strong>on</strong> <strong>of</strong> <strong>the</strong> Uni<strong>on</strong>, as wellas that legislati<strong>on</strong> <strong>and</strong> policy stemm<strong>in</strong>g from <strong>the</strong> C<strong>on</strong>venti<strong>on</strong> is implemented<strong>in</strong> a coherent manner.434 See Article 4(3) TEUPage | 181
26. The EU <strong>and</strong> Member States should, <strong>in</strong> accordance with <strong>the</strong>ir legal <strong>and</strong>adm<strong>in</strong>istrative systems, designate or establish a „framework‟ (such as a disabilityrights council or human rights commissi<strong>on</strong>) for all matters related to <strong>the</strong> UN CRPD.The framework‟s m<strong>and</strong>ate should be to „promote, protect <strong>and</strong> m<strong>on</strong>itor‟implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD. Such a framework should <strong>in</strong>clude <strong>on</strong>e or more<strong>in</strong>dependent mechanisms, which must take <strong>in</strong>to account <strong>the</strong> Paris Pr<strong>in</strong>ciples; forexample, <strong>the</strong> „framework‟ should have adequate expertise <strong>on</strong> disability rights(experts with disabilities should also be <strong>in</strong>cluded <strong>in</strong> framework‟s team) <strong>and</strong> beadequately funded to fulfil its m<strong>and</strong>ate.As regards <strong>the</strong> EU, f<strong>in</strong>d<strong>in</strong>gs <strong>of</strong> this study suggest that at <strong>the</strong> current stage <strong>the</strong>re isno EU body that could adequately fulfil <strong>the</strong> requirements set forth <strong>in</strong> Article 33(2) UNCRPD. Therefore, <strong>the</strong> EU should carefully c<strong>on</strong>sider <strong>the</strong> available opti<strong>on</strong>s fordesignat<strong>in</strong>g a „creative matrix‟ <strong>of</strong> exist<strong>in</strong>g bodies to perform <strong>the</strong> tasks <strong>of</strong> <strong>the</strong>„framework‟, <strong>and</strong> <strong>the</strong> opti<strong>on</strong> <strong>of</strong> establish<strong>in</strong>g a new Ad hoc Disability M<strong>on</strong>itor<strong>in</strong>g Body(for details see secti<strong>on</strong> 5.5.3 <strong>of</strong> this report). F<strong>in</strong>ally, it is recommended that <strong>the</strong> EUlaunches a public c<strong>on</strong>sultati<strong>on</strong> process with <strong>the</strong> aim to identify <strong>the</strong> most appropriate„framework‟ for <strong>the</strong> EU system.27. One <strong>of</strong> <strong>the</strong> earliest acti<strong>on</strong>s <strong>of</strong> an entity resp<strong>on</strong>sible for coord<strong>in</strong>at<strong>in</strong>g work <strong>on</strong>disability issues with<strong>in</strong> government levels should be to develop a nati<strong>on</strong>aldisability strategy, <strong>in</strong> order to ensure comprehensive coverage <strong>of</strong> disability rights<strong>in</strong> human rights acti<strong>on</strong> plan (at EU or Member States level).28. The EU <strong>and</strong> Member States should provide adequate resources to designatedbodies (or <strong>in</strong>stituti<strong>on</strong>s) for m<strong>on</strong>itor<strong>in</strong>g <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD, pursuantto Article 33 UN CRPD.29. The EU <strong>and</strong> Member States should ensure that pers<strong>on</strong>s with disabilities <strong>and</strong> <strong>the</strong>irrespective organisati<strong>on</strong>s are <strong>in</strong>volved <strong>in</strong> <strong>and</strong> participat<strong>in</strong>g fully <strong>in</strong> <strong>the</strong> m<strong>on</strong>itor<strong>in</strong>gprocess <strong>of</strong> <strong>the</strong> UN CRPD implementati<strong>on</strong>, <strong>and</strong> <strong>in</strong> accordance with Article 33(3) <strong>of</strong><strong>the</strong> UN CRPD. In particular, <strong>the</strong>re should be sufficient resources to enable <strong>the</strong>government to undertake a comprehensive public <strong>in</strong>formati<strong>on</strong> <strong>and</strong> educati<strong>on</strong>programme to ensure broad knowledge <strong>and</strong> underst<strong>and</strong><strong>in</strong>g <strong>of</strong> <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>swith disabilities.Page | 182
6.3 Suggested <strong>practices</strong> for <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> specificissues30. The EU <strong>and</strong> Member States should ensure that all legislati<strong>on</strong> <strong>and</strong> policy spr<strong>in</strong>gsfrom <strong>the</strong> social model <strong>of</strong> disability, <strong>and</strong> should thus be reflected <strong>in</strong> <strong>the</strong> overallstatement <strong>of</strong> guid<strong>in</strong>g pr<strong>in</strong>ciples for law <strong>and</strong> policy reform or development.31. The EU <strong>and</strong> Member States should ensure that nati<strong>on</strong>al def<strong>in</strong>iti<strong>on</strong>s <strong>of</strong> disabilityc<strong>on</strong>form with <strong>the</strong> underst<strong>and</strong><strong>in</strong>g <strong>of</strong> disability as a social phenomen<strong>on</strong> (Article 1 UNCRPD). Disability legislati<strong>on</strong> (<strong>and</strong> legislati<strong>on</strong> that applies <strong>in</strong>ter alia to pers<strong>on</strong>s withdisabilities) should unequivocally protect all pers<strong>on</strong>s with disabilities, <strong>in</strong>clud<strong>in</strong>gthose with severe <strong>in</strong>tellectual or psycho-social disabilities. 435As EU legislati<strong>on</strong> is implicitly based <strong>on</strong> a rights-based approach to disability, it issuggested for <strong>the</strong> EU to lead by example or use s<strong>of</strong>t law measures (such ascommunicati<strong>on</strong>s, guidel<strong>in</strong>es etc) <strong>in</strong> order provide guidance for <strong>the</strong> Member States<strong>on</strong> how to achieve a rights-based approach to disability, with <strong>the</strong> aim to ensurec<strong>on</strong>sistency at Member States level, which will c<strong>on</strong>tribute to <strong>the</strong> effectiveimplementati<strong>on</strong> <strong>of</strong>, am<strong>on</strong>g o<strong>the</strong>rs, <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> equal treatment.32. The EU <strong>and</strong> Member States should ensure that legislati<strong>on</strong> (EU or nati<strong>on</strong>al) does notlimit <strong>the</strong> scope <strong>of</strong> <strong>the</strong> duty to provide reas<strong>on</strong>able accommodati<strong>on</strong>. The duty toprovide reas<strong>on</strong>able accommodati<strong>on</strong> should not <strong>on</strong>ly be applied <strong>in</strong> employment, but<strong>in</strong> o<strong>the</strong>r fields as well (e.g. educati<strong>on</strong>, legal capacity etc). The provisi<strong>on</strong> <strong>of</strong>reas<strong>on</strong>able accommodati<strong>on</strong> is a necessary measure to promote equality, <strong>and</strong>should thus be extended to all areas <strong>of</strong> social, political, civil <strong>and</strong> ec<strong>on</strong>omic lifecovered by <strong>the</strong> prohibiti<strong>on</strong> <strong>of</strong> discrim<strong>in</strong>ati<strong>on</strong>. 436Def<strong>in</strong>iti<strong>on</strong>s <strong>of</strong> reas<strong>on</strong>able accommodati<strong>on</strong> (EU or nati<strong>on</strong>al) should follow <strong>the</strong> UNCRPD def<strong>in</strong>iti<strong>on</strong> set forth <strong>in</strong> Article 2 UN CRPD. Fur<strong>the</strong>rmore, <strong>the</strong> EU <strong>and</strong> MemberStates should (by means <strong>of</strong> measures <strong>of</strong> hard or s<strong>of</strong>t law nature) set out st<strong>and</strong>ards<strong>of</strong> reas<strong>on</strong>able accommodati<strong>on</strong> for private <strong>and</strong> public entities to meet.Importantly, both nati<strong>on</strong>al as well as EU n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong> legislati<strong>on</strong> should clearlyprovide that <strong>the</strong> unjustified denial <strong>of</strong> reas<strong>on</strong>able accommodati<strong>on</strong> is a form <strong>of</strong>discrim<strong>in</strong>ati<strong>on</strong>.435 See A/HRC/10/48, supra note 436, p. 11 para. 36436 See for reference background c<strong>on</strong>ference document prepared by <strong>the</strong> UN Department for Ec<strong>on</strong>omic<strong>and</strong> Social Affairs (A/AC.265/2006/CRP.1), “The C<strong>on</strong>cept <strong>of</strong> Reas<strong>on</strong>able Accommodati<strong>on</strong> <strong>in</strong> SelectedNati<strong>on</strong>al Disability Legislati<strong>on</strong>”, available at:http://www.un.org/esa/socdev/enable/rights/ahc7bkgrndra.htmPage | 183
33. Equality legislati<strong>on</strong> should foresee <strong>the</strong> adopti<strong>on</strong> <strong>of</strong> positive measures (such aspositive acti<strong>on</strong> programmes, or educati<strong>on</strong> at all levels <strong>on</strong> n<strong>on</strong>-discrim<strong>in</strong>ati<strong>on</strong>, oro<strong>the</strong>rs) required to promote de facto equality <strong>of</strong> pers<strong>on</strong>s with disabilities, <strong>in</strong>c<strong>on</strong>formity with Article 5(4) UN CRPD.34. The EU <strong>and</strong> Member States should explicitly address <strong>the</strong> issue <strong>of</strong> multiplediscrim<strong>in</strong>ati<strong>on</strong>,<strong>in</strong>clud<strong>in</strong>g discrim<strong>in</strong>ati<strong>on</strong> aga<strong>in</strong>st women <strong>and</strong> children withdisabilities, <strong>in</strong> all types <strong>of</strong> legislati<strong>on</strong>, <strong>and</strong> <strong>in</strong> c<strong>on</strong>formity with <strong>the</strong> general pr<strong>in</strong>ciples<strong>and</strong> Articles 6 <strong>and</strong> 7 <strong>of</strong> <strong>the</strong> UN CRPD.35. EU Member States should, <strong>in</strong> l<strong>in</strong>e with Article 16 UN CRPD, take measuresdirected towards protect<strong>in</strong>g <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities to freedom fromexploitati<strong>on</strong>, violence <strong>and</strong> abuse. In additi<strong>on</strong>, Member States should ensure that<strong>the</strong>re are mechanisms <strong>in</strong> place to m<strong>on</strong>itor facilities <strong>and</strong> programmes designed toserve pers<strong>on</strong>s with disabilities. Such m<strong>on</strong>itor<strong>in</strong>g mechanisms should be effective<strong>and</strong> adequately resourced so as frequent m<strong>on</strong>itor<strong>in</strong>g visits are carried out.36. EU Member States should reform legislati<strong>on</strong> <strong>in</strong> order to abolish restrictiveguardianship laws <strong>and</strong> policies, <strong>in</strong> compliance with Article 12 UN CRPD. To thispurpose, Member States should also take measures to ensure access for pers<strong>on</strong>swith disabilities to supported decisi<strong>on</strong>-mak<strong>in</strong>g. In additi<strong>on</strong>, Member States which,<strong>in</strong> l<strong>in</strong>e with Article 12 UN CRPD, provide for <strong>the</strong> appo<strong>in</strong>tment <strong>of</strong> assistants tosupport pers<strong>on</strong>s with disabilities <strong>in</strong> decisi<strong>on</strong>-mak<strong>in</strong>g, should establish effectivesafeguards to ensure that such assistants do not exceed <strong>the</strong>ir duties <strong>and</strong> displace<strong>the</strong> legal capacity <strong>of</strong> <strong>the</strong> pers<strong>on</strong> <strong>the</strong>y are assist<strong>in</strong>g.37. EU Member States should implement direct payment or <strong>in</strong>dividualised fund<strong>in</strong>gschemes to allow pers<strong>on</strong>s with disabilities to manage <strong>the</strong>ir own lives, as requiredby Article 19 UN CRPD. Such schemes should be accessible to all pers<strong>on</strong>s withdisabilities. Fur<strong>the</strong>rmore, Member States should establish community basedservices, which should be adequately funded <strong>and</strong> sufficiently resourced for <strong>the</strong>provisi<strong>on</strong> <strong>of</strong> <strong>the</strong> required hours <strong>of</strong> pers<strong>on</strong>al assistance to support <strong>the</strong> liv<strong>in</strong>g <strong>and</strong><strong>in</strong>clusi<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> all aspect <strong>of</strong> <strong>the</strong> society. Importantly,Member States should shift <strong>the</strong>ir focus from improv<strong>in</strong>g <strong>in</strong>stituti<strong>on</strong>al care torelocat<strong>in</strong>g <strong>the</strong> residents <strong>of</strong> such <strong>in</strong>stituti<strong>on</strong>s <strong>in</strong> <strong>the</strong> community.38. The EU should c<strong>on</strong>t<strong>in</strong>ue to adopt legislati<strong>on</strong>, <strong>and</strong> fund nati<strong>on</strong>al policies orprogrammes that facilitate, <strong>and</strong> ensure for, pers<strong>on</strong>s with disabilities <strong>in</strong>dependentliv<strong>in</strong>g, <strong>and</strong> <strong>in</strong>clusi<strong>on</strong> <strong>in</strong> <strong>the</strong> society. However, sec<strong>on</strong>dary legislati<strong>on</strong> should ensurethat any <strong>in</strong>direct tax reliefs for <strong>good</strong>s <strong>and</strong> services, or any fund<strong>in</strong>g to be awarded,should encourage <strong>and</strong> promote pers<strong>on</strong>s with disabilities <strong>in</strong>dependent liv<strong>in</strong>g, <strong>and</strong>Page | 184
should not support any residential, or medical care, or o<strong>the</strong>r <strong>in</strong>stituti<strong>on</strong> that restricts<strong>the</strong> aut<strong>on</strong>omy <strong>of</strong> pers<strong>on</strong>s with disabilities.In additi<strong>on</strong>, EU legislati<strong>on</strong> (<strong>of</strong> hard or s<strong>of</strong>t law nature) should provide <strong>in</strong>centives,<strong>and</strong> promote, to Member States <strong>in</strong> ensur<strong>in</strong>g <strong>the</strong> <strong>in</strong>dependent liv<strong>in</strong>g <strong>of</strong> pers<strong>on</strong>s withdisabilities. To this purpose, <strong>the</strong> EU could fund fur<strong>the</strong>r research <strong>in</strong> order to<strong>in</strong>dentify, <strong>and</strong> provide, to Member States cost-effective measures that facilitate,<strong>and</strong> ensure, pers<strong>on</strong>s with disabilities <strong>in</strong>dependent liv<strong>in</strong>g <strong>and</strong> <strong>in</strong>clusi<strong>on</strong> <strong>in</strong> <strong>the</strong> society.39. For matters related to employment, <strong>and</strong> besides <strong>the</strong> applicati<strong>on</strong> <strong>of</strong> <strong>the</strong> equalitypr<strong>in</strong>ciple, it is suggested for <strong>the</strong> EU <strong>and</strong> its Member States to develop a comm<strong>on</strong>strategy to promote equal opportunities <strong>and</strong> combat unemployment <strong>of</strong> pers<strong>on</strong>s withdisabilities. Additi<strong>on</strong>ally, <strong>the</strong> EU should ensure (through for example coord<strong>in</strong>ati<strong>on</strong>)that workers <strong>and</strong> citizens with disabilities, when mov<strong>in</strong>g with<strong>in</strong> <strong>the</strong> EU, enjoy similarlevels <strong>of</strong> social protecti<strong>on</strong>.40. For matters related to educati<strong>on</strong>, EU Member States should ensure that legislati<strong>on</strong><strong>and</strong> policy respect <strong>the</strong> rights <strong>of</strong> pers<strong>on</strong>s with disabilities to be educated <strong>in</strong> an<strong>in</strong>clusive educati<strong>on</strong> system, which guarantees a comm<strong>on</strong> learn<strong>in</strong>genvir<strong>on</strong>ment for all pers<strong>on</strong>s with disabilities. An <strong>in</strong>clusive educati<strong>on</strong> system shouldbe sufficiently funded, while disability-specific tra<strong>in</strong><strong>in</strong>g should be provided to allteachers work<strong>in</strong>g with pupils with disabilities.41. For matters related to general accessibility, as set forth <strong>in</strong> <strong>the</strong> general pr<strong>in</strong>ciples<strong>and</strong> Article 9 <strong>of</strong> <strong>the</strong> UN CRPD, EU Member States should:• approach <strong>the</strong> issue <strong>of</strong> accessibility from a broad perspective,acknowledg<strong>in</strong>g that it encompasses not <strong>on</strong>ly access to <strong>the</strong> physicalenvir<strong>on</strong>ment, but also access to transportati<strong>on</strong>, <strong>in</strong>formati<strong>on</strong> <strong>and</strong>communicati<strong>on</strong>s, <strong>in</strong>clud<strong>in</strong>g <strong>in</strong>formati<strong>on</strong> <strong>and</strong> communicati<strong>on</strong> technologiessystems, <strong>and</strong> to o<strong>the</strong>r facilities <strong>and</strong> services open or provided to <strong>the</strong> public;• take measures to ensure that accessibility legislati<strong>on</strong> is implementedeffectively <strong>in</strong> both urban <strong>and</strong> rural 437 areas;• ensure that <strong>the</strong> implementati<strong>on</strong> <strong>of</strong> accessibility legislati<strong>on</strong> is m<strong>on</strong>itoredeffectively <strong>and</strong> that required st<strong>and</strong>ards are adhered to;• set out accessibility requirements <strong>and</strong> st<strong>and</strong>ards that would <strong>in</strong>clude a cleartimeframe for c<strong>on</strong>formity, <strong>and</strong> <strong>in</strong>dicate <strong>the</strong> nature <strong>of</strong> <strong>in</strong>terventi<strong>on</strong>s <strong>in</strong> cases <strong>of</strong>n<strong>on</strong>-compliance (e.g. f<strong>in</strong>ancial sancti<strong>on</strong>).437 By „rural‟ we refer to n<strong>on</strong>-urban areas, such as villages or o<strong>the</strong>r areas with low populati<strong>on</strong> density.Page | 185
F<strong>in</strong>ally, Member States legislati<strong>on</strong> should not place limits <strong>on</strong> <strong>the</strong> accessibilitypr<strong>in</strong>ciple (e.g. old build<strong>in</strong>g should not be exempted from <strong>the</strong> applicati<strong>on</strong> <strong>of</strong> <strong>the</strong>accessibility obligati<strong>on</strong>).42. The EU should ensure that <strong>the</strong> pr<strong>in</strong>ciple <strong>of</strong> accessibility is respected to all areasfall<strong>in</strong>g with<strong>in</strong> <strong>the</strong> scope <strong>of</strong> its competence (exclusive, shared or support<strong>in</strong>g).Therefore, <strong>the</strong> EU should assess <strong>the</strong> situati<strong>on</strong> <strong>of</strong> pers<strong>on</strong>s with disabilities <strong>in</strong> <strong>the</strong> EU<strong>in</strong> relati<strong>on</strong> to <strong>the</strong>ir access to <strong>the</strong> <strong>in</strong>ternal market, <strong>and</strong> adapt exist<strong>in</strong>g measures so asto ensure full <strong>and</strong> effective implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> accessibility pr<strong>in</strong>ciple whereverpossible. The development by <strong>the</strong> EU <strong>of</strong> <strong>in</strong>dicators to measure performance <strong>of</strong>undertak<strong>in</strong>gs <strong>in</strong> <strong>the</strong> provisi<strong>on</strong> <strong>of</strong> services to disabled users is also ano<strong>the</strong>r measurethat will positively c<strong>on</strong>tribute to <strong>the</strong> full <strong>and</strong> effective access <strong>of</strong> pers<strong>on</strong>s withdisabilities to <strong>the</strong> <strong>in</strong>ternal market.43. The European Funds (such as <strong>the</strong> European Regi<strong>on</strong>al Development Fund, <strong>the</strong>European Social Fund <strong>and</strong> <strong>the</strong> Cohesi<strong>on</strong> Fund) should support all rights protectedby <strong>the</strong> UN CRPD. As accessibility is a general pr<strong>in</strong>ciple <strong>of</strong> <strong>the</strong> UN CRPD, <strong>and</strong> thusapplied across all fields covered by <strong>the</strong> C<strong>on</strong>venti<strong>on</strong>, <strong>the</strong> EU should allocatef<strong>in</strong>ancial resources to promote <strong>and</strong> encourage implementati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD asa whole, <strong>and</strong> not limit funds to projects or programmes that are ma<strong>in</strong>ly focused <strong>on</strong>accessibility to <strong>the</strong> physical envir<strong>on</strong>ment. F<strong>in</strong>ally, EU fund<strong>in</strong>g should be subject to<strong>the</strong> c<strong>on</strong>diti<strong>on</strong> that all supported projects (disability-specific or general) are <strong>in</strong>clusive<strong>of</strong>, <strong>and</strong> accessible to, pers<strong>on</strong>s with disabilities, <strong>and</strong> enable pers<strong>on</strong>s with disabilitiesto live <strong>in</strong>dependently <strong>and</strong> participate fully <strong>in</strong> all aspects <strong>of</strong> life.44. EU Member States, should, <strong>in</strong> l<strong>in</strong>e with Article 29 UN CRPD, take measures toensure that <strong>the</strong> right <strong>of</strong> pers<strong>on</strong>s with disabilities to participate <strong>in</strong> political decisi<strong>on</strong>mak<strong>in</strong>g(<strong>in</strong>clud<strong>in</strong>g st<strong>and</strong> as c<strong>and</strong>idates <strong>in</strong> nati<strong>on</strong>al electi<strong>on</strong> processes) is effectivelyimplemented. Member States should ensure <strong>the</strong> right <strong>of</strong> pers<strong>on</strong>s with disabilities tovote by secret ballot is respected. F<strong>in</strong>ally, Member States should also takemeasures to ensure that pers<strong>on</strong>s with disabilities are <strong>in</strong>formed <strong>of</strong> <strong>the</strong>ir vot<strong>in</strong>gentitlements <strong>and</strong> assistive measures are provided to facilitate <strong>the</strong>ir vot<strong>in</strong>g.45. EU Member States should, <strong>in</strong> l<strong>in</strong>e with Article 24 UN CRPD, ensure that:• adequate resources are available to provide <strong>in</strong>dividualised services <strong>and</strong>supports to children <strong>and</strong> adults with special educati<strong>on</strong>al needs;• <strong>the</strong> duty to provide reas<strong>on</strong>able accommodati<strong>on</strong> is extended to <strong>the</strong> fields <strong>of</strong>educati<strong>on</strong>;• teachers are provided with specialised tra<strong>in</strong><strong>in</strong>g <strong>in</strong> support<strong>in</strong>g children withdisabilities; <strong>and</strong>Page | 186
• students with disabilities <strong>in</strong> both urban <strong>and</strong> rural areas have equal access toeducati<strong>on</strong>.46. The EU <strong>and</strong> Member States should ensure that <strong>the</strong>ir <strong>in</strong>ternati<strong>on</strong>al developmentprogrammes respect <strong>the</strong> pr<strong>in</strong>ciples set forth <strong>in</strong> <strong>the</strong> UN CRPD, <strong>and</strong> promote <strong>the</strong>rights <strong>of</strong> all pers<strong>on</strong>s with disabilities, as required by Article 32 UN CRPD.47. The EU as a world d<strong>on</strong>or should, <strong>in</strong> particular, <strong>in</strong>fluence <strong>and</strong> support thirdcountries to ensure <strong>the</strong> progressive realisati<strong>on</strong> <strong>of</strong> <strong>the</strong> UN CRPD objectives with<strong>in</strong><strong>the</strong>ir territory. To this purpose <strong>the</strong> EU could apply disability-specific “human rightsclauses” to all <strong>in</strong>ternati<strong>on</strong>al partnership agreements that it establishes with thirdcountries.48. For <strong>the</strong> effective formulati<strong>on</strong>, implementati<strong>on</strong> <strong>and</strong> m<strong>on</strong>itor<strong>in</strong>g <strong>of</strong> policies that giveeffect to rights recognised <strong>in</strong> <strong>the</strong> UN CRPD, <strong>the</strong> collecti<strong>on</strong> <strong>of</strong> reliable data,disaggregated as appropriate to identify barriers faced by pers<strong>on</strong>s with disabilities,is necessary, <strong>in</strong> l<strong>in</strong>e with Article 31 UN CRPD. Specifically, it is recommended that<strong>the</strong> EU toge<strong>the</strong>r with <strong>the</strong> Member States, develop an Expert Group <strong>on</strong> UN CRPDIndicator Development. Such a Group should be composed <strong>of</strong> <strong>in</strong>dividuals with <strong>the</strong>relevant scientific expertise, representatives <strong>of</strong> NGOs <strong>and</strong> DPOs, representatives <strong>of</strong>European statistical <strong>of</strong>fices, EUROSTAT, <strong>and</strong> o<strong>the</strong>r statistical organisati<strong>on</strong>s, <strong>and</strong>representatives from UN specialty agencies (WHO, ILO, UNESCO), OECD <strong>and</strong>CoE, <strong>and</strong> o<strong>the</strong>rs. This Group should be m<strong>and</strong>ated to collect exist<strong>in</strong>g UN CRPDrelevant <strong>in</strong>dicator data, reach c<strong>on</strong>sensus <strong>on</strong> potential <strong>in</strong>dicators, pilot exist<strong>in</strong>g datasources across <strong>the</strong> EU, <strong>and</strong> provide technical assistance to all parties (EU <strong>and</strong>Member States) <strong>on</strong> <strong>in</strong>dicator issues. F<strong>in</strong>ally, <strong>the</strong> EU <strong>and</strong> Member States shouldmake a creative use <strong>of</strong> currently available disability data collecti<strong>on</strong> <strong>in</strong>struments.Page | 187