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Strategy
Jobs Strategy for People with DisabilitiesAnnex to bill brought before Parliament, Proposition to Stortinget 1 S (2011–2012) – National Budget 2012
Jobs Strategy for People with DisabilitiesAnnex to bill brought before Parliament, Proposition to Stortinget 1 S (2011–2012) – National Budget 2012
Innhold
1. Foreword 7
2. Introduction 9
3. Summary 11
4. Whoarepeoplewithdisabilities? 13
5. TheJobsStrategy’stargetgroup 15
6. Labourmarketparticipation 16
7. Effortstodate 17
8. Evidencebasisfornewefforts 19
8.1 Findingstodate
8.2 Whatinitiativesareeffective? 20
8.3 Evidencefromothercountries 20
9. Barrierstoemployment 22
10. Strategytoboostemployment 24
11. BriefsummaryoftheJobsStrategy’spolicyinstruments 25
12. Follow-upandcooperationontheJobsStrategy 26
Appendix1 Initiativesin2012 29
Appendix2 Disabilityandimpairedworkingcapacity 44
Jobs Strategy for People with Disabilities 5
1. Foreword
Therighttoworkisfundamentalforparticipationinsociety.TheNorwegianGovernment’saimistoachieveamoreinclusivelabourmarket.Thevisionisalabourmarketaccessibletoeveryonecapableofworking.ThepurposeoftheJobsStrategyistorealisethisvision.
AkeygoalunderthetripartiteagreementbetweentheGovernmentandthesocialpartnerstowardsaMoreInclusiveWorkingLife(theIAAgreement)istoincreasetheemployabilityofpeoplewithdisabilities.Sofarthisgoalhasnotbeenreached.AccordingtoStatisticsNorway,in2011,78,000disabledpeoplewerelookingforwork.22,000ofthesewereunder30yearsofage.Theemploymentrateforthisgrouphasbeenlowevenduringeconomicupturnswithhighdemandforlabour.Accordingly,newlabourmarketinstrumentsmustbetestedandexistingeffortsmustbeintensified.
Theaimisformorepeoplewithdisabilitiestoenterthelabourmarket.Thebenefitsofachievingthiswillbemanyandvaried:itwillimprovethefinancialindependenceandlivingconditionsoftheindividual;itwillalsoenablesocietyatlargeandenterprisestomakebetteruseoftheskillsandlabourresourceswhichpeoplewithdisabilitiesrepresent;andenterprisesalsostandtobenefitfromhavingemployeeswithdiversifiedbackgroundsandexperienceinlife.
Inthisstrategy,theGovernmenthasdecidedtoconcentrateonpeoplewithdisabilitiesunder30yearsofagewhoneedsupportinordertogainemployment.Givingprioritytoyoungpeopleisinformedbytheprinciplethatagoodstartinworkinglifeisthebestfoundationforalongand
rewardingcareer.Thefocusisconsequentlyonyoungpeopleinthetransitionbetweeneducationandworkinglife.Thevariousinitiativesshouldalsoservetocounteractearlyretirementfromthelabourmarketonandisabilitypension.Proposedinitiativesfor2012aredesignedtoreducetheobstaclesandbarrierscurrentlyfacedbyjob-seekers,inordertoimprovetheirprospectsonthelabourmarket.
TheJobsStrategydemonstratestheGovernment’sintegratedapproachtoIAefforts.
Inordertoincreasetheemployabilityofyoungpeoplewithdisabilities,awidearrayofinitiativesandschemesmustbeemployed.WorkontheJobsStrategyhasbeenwidelyinformedbydiscussionswiththeNationalDisabil-ityCouncilofNorwayandbetween the ministries.Twopanelshavebeencommissionedtosubmitproposalsforinitiatives:apanelofrepresentativesoforganisationsforpeoplewithdisabilitiesandapaneloflabourmarketandbusinessandindustryrepresentatives.
TheWorkResearchInstitutehascompiledasystematicreviewonexistingknowledgeofimplementingpolicyinthisarea.TheNorwegianDirectorateofLabourandWelfarehasbeeninvolvedinformulatingthepresentJobsStrategyandwillplayanimportantroleinitsimplementa-tion.Withthisstrategy,theNorwegianGovern-mentisseekingtoincreasetheemployabilityofpeoplewithdisabilities.However,thechallengescannotbeovercomebygovernmentalinitiativesalone.Openingthedoorstoemploymentwillcallforalarge-scale,concertedeffort,inwhichemployers(notleast)willhaveakeyparttoplay.
HanneIngerBjurstrømMinister of Labour
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2. Introduction
Thepoliticalplatformforthemajoritygovernment2009-2013(SoriaMoriaII)declarestheintentiontoestablishaJobsStrategyforPeoplewithDisabilities.ThesameJobsStrategyisalsolaiddowninthenewIAAgreement,whichincludestheobjectiveofboostingemploymentamongpeoplewithdisabilities.
‘Workforeveryone’isoneoftheNorwegianGovernment’sprincipalobjectives.Everyoneistohavetheopportunitytoparticipateinworkinglifebasedontheirabilitiesandresources.Intheyearsaheadwewillneedmorepeoplewithdisabilitiesasactiveparticipantsonthelabourmarket.Thepoliticalchallengeconsistsofcreatingtheframeworksthatwillallowthistobeaccomplished.Ifwesucceed,greaternumbersofpeoplewillhavebetterprospectsforlabourmarketparticipationandincreasedwelfareandwewillachieveamorediversifiedlabourmarket.
Properuseoflabourmarketresourcesisapreconditionforasustainablewelfaresocietyandforsoundlivingconditionsforindividualcitizens.Weneedtostartusingwhatiscurrentlyanunderusedworkforce.Conditionsmustbeputinplacetoachieveadiversifiedlabourmarketthataccommodateseveryone.Manystudieshavedemonstratedthat,oncompletingtheireducationortraining,youngpeoplewithdisabilities,who
oftenhavelittleornoworkexperience,generallyencountermajorbarriersinthetransitionfromeducationtoemployment.Employerswhosucceedinrecruitingfromamongabroaderbaseofjob-seekersstandtogainaccesstovaluableexperienceandskills.
TheGovernmentintendstobringabouttheconditionsnecessarytoenablepeoplewithdisabilitiestoexercisetheirrightsandobligationsasactiveparticipantsinthelabourmarket.TheGovernmentabidesbytheprinciplesofsocialequalityanduniversaldesigninitsundertakings.Universaldesignofthephysicalenvironmentimpliesequalaccessibilityforeveryoneinorderthatthemainstreamsolutionisonethatmaybeusedbyasmanypeopleaspossible.
Inthepresentdocument,theGovernmentpresentsbothanoverarchingstrategicplanforenablingmorepeoplewithdisabilitiestoparticipateinthelabourmarket,butalsoproposalsforspecificinitiativesfor2012.Thestrategyislongterm.Effortsunderthestrategywillbeevaluatedonanongoingbasis.Thestrategyhasanexplicitresults-orientedfocus.
Jobs Strategy for People with Disabilities 9
IntheJobsStrategy,theGovernmentsetsouttheorientationofeffortswithinthepriorityareasoverthecomingyears.Inthisway,thestrategyidentifiesinitiativesandschemesthatwillbeofstrategicimportanceinreducingthebarrierstoemploymentfacedbypeoplewithdisabilities.Proposalsforinitiativesfor2012breakdownintovariousactionareasthataimtomakeiteasierforyoungpeoplewithdisabilitiestojoinandremainonthelabourmarket.
TheJobsStrategyattachesimportancetostrengtheningandsupplementingordinaryandgeneralinitiativesindifferentareasofpolicywithmoretargetedlabourmarketinstrumentstocompensatefordifferenttypesofdisabilities.Inthefieldoflabourmarketpolicy,thismightmeanimplementingdifferentformsofworkplacefacilitationinitiativesandsupervisoryschemes.Theideaisthatwhenvarioussupplementaryservicesorcompensatorysolutionsarecombinedwithgeneralinstrumentssuchastheuseoflabourmarketinitiatives,thisincreasesthechancesofmoreyoungpeoplewithdisabilitiesjoiningthelabourmarket.
Peoplewithdisabilitiesmakeupadiversegroupwithdifferentchallengesonthelabourmarket.Thereisthereforeaneedforbothindividualised,tailoredschemesandinstruments,aswellasuniversalsolutions.
Itisimportanttodevelopinstrumentsthatcanhelpbothjob-seekersandemployerstoreducetheirmutualuncertaintyandrisk.Oneexamplewouldbethelabourmarketprogrammesthat
givejob-seekerstheopportunitytotryouttheircapacityforworkandwhichgiveemployerstheopportunitytoassessjob-seekeremployabilitybasedonprovencapacity.
ResponsibilityforimplementationoftheGovernment’sJobsStrategyliesjointlywiththesocialpartners,organisationsrepresentingpeoplewithdisabilities,employers,theLabourandWelfareServiceandotherpublicserviceprovidersandwiththejob-seekersthemselves.
Certainkeyelementsofthesystemoflabourmarketinstrumentsforpeoplewithdisabilitieswillnotbeincludedintheproposalsforinitiativesfor2012.Theseinclude,forexample,theassistivetechnologiesareaandtheemployment-orientedschemewhichtheLabourandWelfareServicecurrentlyprocuresfromprovidersofshelteredemployment.Adedicatednationalcommitteehasbeenappointedandwillbesubmittingitsrecommendationregardingemployment-orientedinitiativesintheshelteredsectorbyJanuary2012.Thecommitteewillbeaddressingaspectssuchashowtodevisefacilitatedemploymentforpersonswithpermanentdisabilities.
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3. Summary
From2012,theGovernmentwillbeimplement-ingaJobsStrategyforPeoplewithDisabilities.Thestrategyisinformedbythevisionthateveryonewhoisabletomustbegiventheopportunitytoparticipateinworkinglife.Thisisanoverarchingobjective.WiththisJobsStrat-egy,theGovernmentisimplementingdifferentvigorousmeasurestofindjobsformorepeopleundertheageof30withdisabilities.Thefocusismainlyonyoungpeopleinthetransitionbetweeneducationandworkinglife.
Ithasproveddifficulttoincreasetherateofemploymentamongpeoplewithdisabilities.
Theemploymentrateforthisgrouphasbeenlowevenduringeconomicupturns.Thereisthereforenosimpleformulaforhowthissituationcanbereversed.
TheGovernment’sstrategywillnotresolveeverychallengeencounteredbypeoplewithdisabilitiesinworkinglife.Thestrategyishoweverbasedonthefollowingapproaches:• Fourbarriersareidentifiedaspreventing
peoplewithdisabilitiesfromgainingemployment.Instrumentscoveredbythestrategyaregearedtoreducingthesebarriers.Thebarriersaredefinedas:thediscriminationbarrier,costbarrier,productivitybarrierandinformationandattitudinalbarrier.
• Thestrategyfocusesonpreventingthepermanentexclusionorrelegationofyoungpeoplewithdisabilitiesfromworkinglife.Wehavetoactatanearlystagetopreventprolongeddependencyonwelfarebenefits.Ifwesucceedinthis,thefinancialandsocialconsequenceswillbeverypositiveforboththeindividualandforsocietyasawhole.
• Thestrategyoperateswithanintegrativeandlong-rangeperspective.Thisentailstestingoutvariousinitiativesanddrawinglessonslearnedfromattemptsmadealongtheway.Wehavetotakeonestepatatime.Theactivitiesmustbemonitoredcloselyinorderthatthecoursemaybealteredand
improved,anddifferentinitiativestestedout.
• Theinitiativesunderthestrategymustbeundertakeninclosecooperationwiththesocialpartnersandorganisationsrepresentingpeoplewithdisabilities.
• Intestingoutnewlabourmarketinstruments,wewillbeapplyingourownpreviousexperiences;experiencesfromothercountriesandthefindingsofresearchonwhatinitiativesandschemesareeffectiveinhelpingmorepeopletogainemployment.Effortsmustasfaraspossiblebeevidence-based.Muchofwhatweknowhoweveraboutwhatiseffectiveinthisareaislimitedanduncertain.Consequently,oneoftheambitionsofthestrategyistoacquirenewknowledgeofeffectivemeansandmethods.
Closeprivate-publicpartnershipswillbecrucialtothesuccessoftheJobsStrategy.Formanyyoungpeoplewithdisabilities,itisimportanttobegiventheopportunitytotryouttheircapacityforwork-ingandgainessentialworkexperience.Conse-quently,implementationofthestrategywillrequirebothlabourmarketinstrumentscapableofstimu-latingdemandforpeoplewithdisabilitiesandemployerswhoarewillingtotakeonthesocialresponsibilityofofferingplacesonwork-experi-enceprogrammesandlabourmarketprogrammesforthetargetgroup.
Inadditiontotheproposedinitiativesfor2012,arethegeneralactivitiesindifferentareasfromwhichthestrategy’stargetgroupalsostandstobenefit.
Jobbstrategi for personer med nedsatt funksjonsevne 11
4.Whoarepeoplewithdisabilities?
StatisticsNorwayconductsanannualadhocsurvey,insupplementtoitsLabourForceSurvey,ondisabilityandpeoplewithdisabilitiesonthelabourmarket.AccordingtoStatisticsNorway,thenumberofpeoplewithdisabilities1inNorwayinQ22011amountedto542,000intheage-group15-66years,or16percentofthepopulationinthesameage-group2.ThisproportionhasremainedmoreorlessunchangedsincethefirstLabourForceSurveywasconductedin2002.OECDstatisticsindicatethatNorwayhasamid-positionamongOECDcountriesintermsoftheproportionofpeoplewithdisabilitiesinthepopulation3.
Somepeoplehaveacongenitaldisability,butalargeproportionbecamedisabledinlaterlife.Whilesevenpercentof15-24year-oldshavedisabilities,thepercentageis34percentamongpersonsagedbetween60and66years.Theproportionofpeoplewithdisabilitiesisslightlyhigheramongwomenthanamongmen;18and14percentrespectivelyintheannualsurvey.
FiguresfromStatisticsNorwayindicatethatapproximatelyoneinthreepeoplewithdisabili-tiesleavethe‘disabilitygroup’annually.Thisindicatesthatdisabilityisnotnecessarilyaperma-nentconditionorbarriertoemployment,
Figure1.Distributionofpeoplewithdisabilitiesaged15-66years,bytypeofhealthproblem.2011(%)
0 5 10 15 20 25 30 35
Back or neck problem (incl. rheumatism)
Problem with legs or feet (incl. rheumatism)
Problem with hands or arms (incl. rheumatism)
Mental disorder
Other severe disease (cancer, MS, HIV)
Cardiovascular disease
Lung or breathing problem (incl. asthma and bronchitis)
Problems with vision, hearing or speech
Other long-standing health problems (including drug and/or alcohol dependency)
Reading, writing, maths problems, (dyslexia/dysgraphia/discalculia)
Diabetes
Gastric, intestinal, renal or hepatic disease
Epilepsy
Skin problem (incl. allergy)
Source:StatisticsNorway
1 StatisticsNorwaydefinesdisabilityas“long-termhealthproblemsthatmaylimiteverydaylife”.FortheNorwegianMinistryofLabourterminologydefinitions,seeAppendix2.
2 StatisticsNorway’sLabourForceSurvey.Ad hoc module on disabled people,Q22011.3Sickness,disabilityandwork:Breakingthebarriers.OECD,2010
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anddemonstrateshowdifficultitistodelimitpeoplewithdisabilitiesasagroup.ThefigurespresentedbytheStatisticsNorwayLabourForceSurveyarebasedonwhethersurveyrespondentsperceivethemselvesashavingadisability(notingthatintheoriginalNorwegian-languagesurvey,ratherthanitsEnglishtranslation,respondentsareaskedtoconsiderwhethertheyhavea‘functionalimpairment’ratherthana‘disability’).
While2in3peoplewithdisabilities(orfunctionalimpairment)intheage-group16-66havecompleteduppersecondaryeducation,thisistrueof3in4ofthegeneralpopulation.Partoftheexplanationforthisdifferenceisthatpeoplewithdisabilitiesasagrouptendtobeolderthanthegeneralpopulation.
Peoplewithdisabilitiesmakeupahighlydisparategroup.Thedisabilitiesrangefromproblemsasdisparateasmusculo-skeletaldisorders,heartandlungdisease,psychologicaldevelopmentaldisorders,mentaldisorders,severesightorhearingimpairmentandlearningdisabilitiesinreadingandwriting(dyslexiaanddysgraphia).Figure1showsthedistributionofdisabilitiesamongpeopleaffected.Approximatelythreeinfourhavemusculo-skeletaldisorders,while12percentareaffectedbyamentaldisorder.Manypeoplehavetocopewithseveralconcomitanthealthproblems.
Theprospectsofgainingandretainingemploy-mentdependbothonthedegreeofdisabilityandthetypesofjobsavailableonthelabourmarket.Amongpeoplewithdisabilitieswhowereinemploymentin2011,61percentstatedthattheirdisabilitylimitsthetypesofworktaskstheycanperform,inspiteofanyassistivetechnologiesthatmaybeavailabletothem.55percentstatedthattheirdisabilityrestrictshowmuchtheyareabletowork,thatis,theirdailyorweeklyworkinghours.56percentofemployeeshadhadtheirworksituationadjustedtotheirdisabilityinrespectofworktasks,workingtimeorphysicalfacilitation.Theneedforfacilitationandtheproportionthatwouldhaveexperiencedlimitationsontheirworkingcapacityarepresumablygreateramongthosewhoarenotemployed.Thefiguresvarysomewhatfromoneyeartothenext.
Manypeoplewithdisabilitiesaredependentonshort-termorlong-termbenefits.Table1showsthat313,000peoplewithdisabilitiesin2011werereceivingoneormorebenefits,accordingtotheStatisticsNorwayLabourForceSurvey.Thepropor-tionofbenefitrecipientswassomewhatloweramongemployedpersonsthanamongunem-ployedpersons.Disabilitypensionwasthemainbenefit,followedbyworkclarificationallowance.TheJobsStrategyaimstoassistmorepeopletogainemploymentandpreventmorepeoplefromleavingpaidemploymentforalifeonadisabilitypension.
Table1.Peoplewithdisabilitiesaged15-66years,bybenefitsreceived,2011.
All EmployedPersons Percentage Persons Percentage
Total 542,000 100 230,000 100Receivenobenefits 160,000 30 128,000 56Receiveoneormorebenefits 1 313,000 58 84,000 37Disabilitypension 204,000 38 48,000 21Basicbenefitorattendancebenefit 11,000 2 6,000 3Workclarificationallowance 77,000 14 15,000 7Sicknessbenefit 14,000 3 11,000 5Other 26,000 5 7,000 3Notstated 69,000 13 18,000 8
Source:StatisticsNorway
1 Thesamepersonmayreceivemultiplebenefitsconcurrently,andthesumtotalofrecipientsoftheindividualformsofbenefitisthereforegreaterthanthetotalnumberofrecipients.
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5.TheJobsStrategy’stargetgroup
Inselectingitsmaintargetgroup,theGovern-menthasdecidedtodirecteffortsatyoungpeoplewithdisabilitieswhoareinthetransitionalperiodfromeducationtoworkinglife.Thetargetgroupconsistsbothofjob-seekerswhohavecompletededucationortrainingandwhoareavailableforwork,andpeoplewithdisabilitieswhoarelong-termrecipientsoftheworkclarifica-tionallowance(transitionalbenefitpendingclarifi-cationofworkingcapacity).Enablingmorepeopleinthistargetgrouptogainemploymentandachievingfewerpeopleoncontinuedbenefitswillbenefitthenationaleconomyandbeofgreatsignificancefortheindividual’sincomeandlivingconditions.
ThemajorityofpeoplewithdisabilitieswhoareabouttoenterthelabourmarketareregisteredusersofservicesfromtheLabourandWelfareService.Thisappliestorecipientsoftheworkclarificationallowance(WCA)amongothers.InJune2011,approximately29,000WCArecipientswereundertheageof30.Ofthese,around18,600hadreceivedWCAfor12monthsorlonger.Thesearethepeoplewedefineasbeinglong-termrecipientsofWCA,andwhocomeunderthedefinitionofthestrategy’stargetgroup.Inaddi-tion,thetargetgroupincludessome3,000youngpeoplewithdisabilitiesundertheageof30whoeachyearcompleteeducationabovelower-secondary-schoollevel.Itisnotknownhowmanyoftheseindividualsapplyforandneedemploy-ment-orientedassistancefromtheLabourandWelfareServiceinordertojointhelabourmarket.
The Jobs Strategy and the focus on a new disability pension reform
Peopleundertheageof30accountforarelativelysmallproportionofalldisabilitypensioners,butthenumberofyoungpersonsawardeddisabilitybenefithasincreasedinrecentyears.Theincreasehasbeenhighnotablyamongpersonswithmentaldisorders.Themajorityofpeoplewhoacquireadisabilityatayoungagehavelittleornopreviousworkexperience.
TheGovernmentisproposingtostrengtheneffortstoincreasetheemployabilityofpeoplewhowouldotherwisebeawardedapermanentdisabilitypension.Preventionandearlyinterven-tionarethemainmeasuresforboostingparticipa-tionineducationandworkinglifeandforreduc-ingthetransitiontodisabilitybenefitinallagegroups.
Inordertoreducethenumberofnewyoungdisabilitypensioners,theGovernmentispropos-ingastrategywhich,inadditiontoMinistryofLabourpolicyinstruments,alsocomprisestheinstrumentsofotherNorwegianministries.Inordertopreventyoungpeoplefrombeingexcludedfromworkinglife,thefollowingareimperative:• Earlierandbetterpreventiveefforts• Bettercooperationandcoordination
betweensectorsandintensifiedemployment-orientedinterventions
• Improvedknowledgeconcerningyoungpeoplewithdisabilitiesandregularevaluationofprogressinimplementingthestrategy
TheintroductionofanewdisabilitybenefitwillunderpineffortsundertheJobsStrategyandwillenablemoreyoungpeoplewithdisabilitiestogainandretainemployment.
Jobs Strategy for People with Disabilities 15
6.Labourmarketparticipation
AccordingtofiguresfromStatisticsNorway,in2011,42percentofpeoplewithdisabilitieswereinemployment.Theproportionofemployedpersonshasremainedrelativelystableovertime;seefigure2.Theproportionofemployedpersonsislowerthaninthepopulationasawhole,where74percentwereworkingin2011.Inthesameperiod,some13,000peoplewithdisabilitieswereunemployed,correspondingto2.5percentofallpeoplewithdisabilities.Theproportionofunem-ployedpersonswas2.8percentofthepopulation.
Manypeoplewithdisabilitieswhoareoutofworkarecapableofworkinggiventherightcircum-stances.AccordingtoStatisticsNorway,in2011,78,000unemployedpeoplewithdisabilitieswerelookingforwork.22,000ofthesewereunder30yearsofage.Althoughmanywhowishtoworkarenotactivelyjob-seeking,thenumbersdosuggestthatmorepeoplewithdisabilitiesareabletojointhelabourmarketthanareparticipatingatpresent.
Figure2.Absolutenumberofemployedpeoplewithdisabilities,andproportionofemployedpeoplewithdisabilities(%),aged15-66years.
150000
200000
250000
300000
20112010200920082007200620042002
Employed Proportion employed %
35%
40%
45%
50%
Source:StatisticsNorway
FiguresfromOECDindicatethattheemploymentrateamongpeoplewithdisabilitiesislowinNorwaycomparedwithDenmark,IcelandandSweden.5ManypersonsinNorwayreceiveadisabilitypension;seetable1.Denmarkhasbeenworkingactivelytoputconditionsinplacetopromoteincreasedemploymentamongpeoplewithdisabilities.InSweden,thegovernmenthaspresentedaplantoeasethetransitionto
employmentforpeoplewithdisabilities.TheDanishandSwedishpoliciesarecharacterisedbyalargerwagesubsidisationcomponentthaninNorway,intheshapeoftheDanishflexjobordningen(flexi-jobscheme)andtheSwedishlönebidraget(wagesubsidy).Personalassistanceandassistivetechnologiesareotherkeycomponentsofinitiativesinthesecountries.
5 Sickness,disabilityandwork:Breakingthebarriers.OECD,2010.
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7.Effortstodate
UniversalpolicyinstrumentsandthesectoralresponsibilityprinciplearethefoundationfortheNorwegianpolicyonpeoplewithdisabilities.Mainstreamservicesinsocietyaretocompriseeveryone–includingpeoplewithdisabilities.Basedonthespecificgoalofachievingfullpartici-pationandequality,eachsectorisrequiredtosetgoalsforitsdomains,andtoachievethem.
TheGovernmenthasreliedonthetraditionalNorwegiantenetoftheprimacyofemployment,knownasthe‘workapproach’,arbeidslinje (in-formedby‘therightanddutytowork’),inestab-lishinginitiativesandpolicyinstrumentsforthenationallabourandwelfarepolicy.Themaintackinelaborationofthe‘workapproach’istosustainandrealisetheambitionembodiedbythe‘NAVreform’of2006inwhichthenationalemploymentserviceandtheNationalInsuranceServiceweremergedunderthecurrentLabourandWelfareService.Themainelementsare:• Employment-orientation.Effortsfrom
day-onetobedirectedateasingeachindividualintoemployment.
• Individualisedtreatment.Theinitiativesmustbeadaptedtotheindividual’scircumstancesandneeds.
• Rapidandearlyintervention.Theshortestpossibleperiodoftimemustbeallowedtoelapsebetweenanemployeeexperiencingproblemsorhavingtoleaveemploymentandstartingonaback-to-workscheme.
TheLabourandWelfareService’sassistancetopeoplewithdisabilitiesentailsoptionsforemployingawiderangeofinitiativestailoredtotheneedsoftheindividual.AnyonewhocontactsaNAVofficeshallbeentitledtohavehisorherassistanceneedsevaluated.Needsassessmentmayincludeassessmentoftheperson’sprospectsofgainingemployment,andwhetherthepersonneedsdifferenttypesofemployment-orientedassistance,facilitation,assistivetechnologiesetc.inordertoaccomplishthisobjective.
TheGovernment’seducationandtrainingpolicyistopromotepersonaldevelopment,reinforcedemocraticvaluesandfacilitateinnovation,productivityandeconomicgrowth.Withtheincreasingskillsrequirementsofbusinessandindustryandtheincreasedimportanceofeffortstoensuresoundlivingconditions,educationandtrainingisincreasinglyimportantasagatewaytolabourmarketparticipation.
Thenumberofjobsthatdonotrequireuppersecondaryorhighereducationisdiminishing.Educationgenerallyandhighereducationspecifi-callyaremajordeterminantsofwhetherpeoplewithdisabilitiesareabletogainemployment.Acentralobjectiveistoreducethedefection(‘drop-out’)ratefromuppersecondaryeducationandtraining;see,forexample,the‘NYGIV’projectatlocal-governmentleveltoincreaseupper-sec-ondary-levelcompletion.Inordertorealisethenewemploymentpolicy,wealsohavetosuccess-fullyimplementthenationaleducationandtrainingpolicy.
UseoftheWelfareandLabourService’semployment-orientedinstrumentsandinitiativesoftenentailstheinvolvementandconcurrentassistanceofdifferentpartsofthehealthservice.Doctorsforexampleplayanimportantroleinthesicknessabsencephase;aphysiotherapistandoccupationaltherapistwillbeinvolvedinworkplaceevaluationandfacilitationetc.“Raskere tilbake”(back-to-work)isaschemebasedontheemploymentandwelfaresector’sneedforrapidaccesstorelevantrehabilitationandhealthservices,andisasupplementaryprogrammeofindividualisedservicestohelppeoplereturntoworkfollowingextendedsickleave.“Individuell plan”(individualplan)isatoolforcoordinatingtheactivitiesofdifferentserviceproviderssuchastheLabourandWelfareServiceandthehealthserviceforpeoplerequiringlong-termandcoordinatedservices.
Healthcaremaybeanimportantelementinjoiningthelabourmarketorreturningtowork.Keyhealthservicestothatendareprevention,
Jobs Strategy for People with Disabilities 17
diagnostics,treatment,coaching,trainingandrehabilitation.
NationalStrategicPlanforWorkandMentalHealth(2007-2012)isaimedspecificallyatfacilitatingemploymentforpeoplewithmentalhealthproblems.ThepresentJobsStrategywillintensifyeffortsundertheNationalStrategicPlanforWorkandMentalHealthbyimplementingnewemployment-orientedinitiativesandinstruments,whichwillalsobenefittheStrategicPlan’stargetgroup.
Supportforphysicalactivityandparticipationinsportsisbeneficialtohealthandaidstheabilitytocopeandparticipateinsocietygenerally.Thereareseveralgoodexamplesofinitiativeswheresportsactivitiesareofferedaslow-thresholdschemesforhealth-relatedbenefitrecipientswhoneedassistanceinordertoreturntoworkinglife.Oneexampleofsuchschemesis“Aktiv på dagtid”,inwhichlocalsportsassociationsrunadaptedphysicalactivityprogrammesduringthedaytimeforpeoplereceivinganyformofhealth-relatedbenefit.
Cooperation regarding a More Inclusive Working Life (IA Agreement)
Secondarygoal2oftheIAAgreementistoincreasetherateofemploymentamongpeoplewithdisabilitiesthroughincreasedrecruitmentofjob-seekersandbyputtinginitiativesinplacetopreventemployeeswithdisabilitiesfrombeingexcludedfromworkinglife.
EvaluationsoftheIAAgreement(2001-2009)howeverdidnotfindthattheagreementhadresultedinincreasedemploymentamongpeoplewithdisabilities. 4OnereasonforthismaybethatIAeffortssofarhaveconcentratedonreducingsicknessabsences(secondarygoal1),whilefewerIAinstrumentswereaimedatincreasingtheemployabilityofpeoplewithdisabilities.ThenewIAAgreement2010-2013remediesthissituation.Thefollowingkeyperformanceindicatorswillbeusedinmonitoringthesuccessofthisinitiative:• Reducednumberofpersonspassingfrom
employmenttobenefits.• Increasedproportionofpersonsonlong-
termsickleavewhoprogresstotheworkclarificationallowance.
• Increasedproportionofpeoplewithdisabilitieswhomakethetransitionfromnationalinsurancebenefitstopaidemployment.
4 Seee.g.theNorvoll,R.andK.Fossestøl,systematicreviewofdisabilityandemployment(2010):Funksjonshemmede og arbeid – en kunnskapsstatus.Report2010:13(Norwegianonly),WorkResearchInstitute.Ose,S.O.etal(2009):EvalueringavIA-avtalen2001-2009(EvaluationoftheIAAgreement20012009),published(inNorwegian)bytheindependentresearchinstitute,SINTEF.
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8.1 Findingstodate
TheWorkResearchInstitutewascommissionedbytheMinistryofLabourtoproduceasystematicreviewoftheemployabilityofpeoplewithdisabilities.6Thefollowinglistskeyfindings:• Vocationalrehabilitationhasapositive
effectonlabourmarketparticipationforthosewhocompletetheassociatedinitiatives.Thegreatesteffectisonpeoplewhorequireextensiveassistanceinordertostartworking.Initiativesbasedonordinaryemploymentappeartohavethegreatesteffect.
• Profitabilityandefficiencyrequirementsmaymakeitdifficultforpeoplewithdisabilitiestoengageinworkinglife.Discriminationmayalsooccur.Governmentalinitiativesinthisareahavecomeundercriticism.
• Conditionsonthelabourmarketgenerallyandatworkplacesspecificallyhavegreatinfluenceontheprospectsofgaining/retainingemployment.Initiativesbasedonworkplace facilitationarealsohighlysignificant.
• Thelabourmarket’sattitudetopeoplewithdisabilitiesvaries–notleastdependingonsomeonecurrentlyhasajoborislookingforwork.Attitudestoemployeeretentionaremorepositivethantheyaretorecruitment.
• TheWorkResearchInstitutefoundscarceliteraturetoaccountfortheweakresultsinachievingsecondary-goal2oftheIAAgreementonincreasingtheemployabilityofpeoplewithdisabilities.TheInstituteindicatesthatfinancialincentivesfor
systematicIAeffortstorecruitpeoplewithdisabilitiesareeitherinadequateorlackingaltogether.
• ThemajorityofbusinessesinNorwayareSMEswithlimitedadministrativecapacity.Therearealsosubstantialdifferencesbetweendifferentsegmentsofthelabourmarketasregardstheconditionsgoverninghowworkisperformed.Thismayindicatetheneedforamorenuancedanddiversifiedinclusionpolicy.
• Alargebodyofresearchidentifieschallengesinhowthepublicassistancesystemdealswithitsusers.
• Peoplewithdisabilitiesconstituteahighlydisparategroupwithdifferingneedsforassistanceandfacilitation.Inmanycases,theirneedforassistancewillextendacrossprevailingadministrativeandprofessionaldivides.Bridgingthesedividescallsforintegrativepolicyandinterdisciplinaryefforts.
8.2 Whatinitiativesareeffective?7
Itisdifficulttodeterminewhatinitiativesaremosteffectiveinfacilitatingthetransitiontoemployment.Thisisdueinparttoitbeingfarfromarbitrarywhoisrecruitedforparticipationinalabourmarketprogramme.Oneandthesamelabourmarketprogrammemayalsohavedifferenteffectsondifferentparticipants,dependingontheindividual’scapacity,needsandthequalityoftheprogramme.Effects,positiveornegative,maybederivedfromtheprogrammebothbefore,duringandafteritisrun.Owingtothesechallengesandvariationinthedatamaterialandmethodologies,
6 Norvoll,R.andK.Fossestøl:Funksjonshemmede og arbeid – en kunnskapsstatus (systematicreviewofdisabilityandemployment).Report2010:13(Norwegianonly),WorkResearchInstitute.
7 ThissectionisbasedlargelyonNorvoll,R.&K.Fossestøl(2010):Funksjonshemmedeogarbeid–enkunnskapsstatus,Notat2010:13(seeearliermention),WorkResearchInstitute,and”Virkningavarbeidsrettedetiltakforpersonermednedsattarbeidsevne–Enlitteraturstudie”,Rapport2011-02(theeffectofemployment-orientedinitiativesforpeoplewithdisabilities.Asystematicreview),ProbaResearch.BothreportswerecommissionedbytheMinistryofLabour.
8.Evidencebasisfornewefforts
Jobs Strategy for People with Disabilities 19
theresearchfindingsarenotconsistent.Inaddition,somecautionmustbeexercisedintransferringtheexperiencesofothercountriestoNorwaysincetheremaybedifferencesinprogrammecontentanddesignandthebackgroundoftheparticipants.
Findingsfromothercountriesindicatethatlabourmarketprogrammesbasedonnear-ordinaryemploymentaremosteffectiveinfacilitatingthetransitiontoemployment.DanishandSwedishstudiesofwelfarebenefitrecipientsandpeopleonlong-termsickleaveindicatethatworkexperienceisconducivetoemployment.Anumberofstudiesfindthateducation/trainingisaneffectiveinitiative,althoughitisnotpossibletodrawconclusionsastotheeffectofcourse-basedtrainingonthebasisofexistingstudies.Specialtrainingprogrammesmaybedetrimentalinthattheylockparticipantsinontheprogrammesothatthechancesoftransitiontoemploymentarereducedforthedurationoftheprogramme.Thisresultsinanegativeemploymentgainovertheshortterm.Thisisparticularlythecaseforpersonswhoareclosesttogainingaccesstothelabourmarket.Workexperiencecombinedwithfollow-upfromasupervisorandmedicalprofessionalswouldappeartohaveapositiveeffectonpersonswithmentaldisorders.
RecentNorwegianregister-basedresearchindicateslargelypositiveemploymentoutcomesfrominitiativesforpeoplewithdisabilities.Wagesubsidieshavealsoprovedaneffectiveinitiative.LabourmarketcoursesrunbytheLabourandWelfareAdministrationforbothordinaryjob-seekersandforthosewithreducedworkingcapacity,educationandworkexperienceinordinaryenterpriseswouldalsoappeartoincrease
theiremploymentprospects.8Wagesubsidisationschemesposeachallengeinthatsomeemployersmayapplyforwagesubsidiesforpersonswhowouldotherwisehavebeenemployedonordinaryterms.
Conditionsonthelabourmarketgenerallyandatworkplacesspecificallyhavegreatinfluenceontheprospectsofgaining/retainingemployment.Initiativesgearedtoworkplacefacilitationandpersonalsupervisionalsoappeartogreatlyinfluencetheprospectsofvocationalrehabilitationresultinginlastingemployment.
8.3 Evidencefromothercountries
ArecentlypublishedreportbyWHOandtheWorldBankestimatesthatpeoplewithdisabilitiesaccountforapproximately15percentoftheglobalpopulation.9Theincreasingageofthepopulationandanincreaseinthenumberofpersonswithchronicmedicalconditionshascausedtheriseinthispercentageoverthelastfewdecades.Thereportrevealsthatpeoplewithdisabilitiesfacemajorbarrierswhenaccessinghealthservicesorenteringthelabourmarketforexample.Peoplewithmentaldisordersespecially,facediscriminationandstigmatisation.Thereportdescribesthatinmanycountries,peoplewithdisabilitiesaretreatedassecond-classcitizens.WithintheOECDarea,therateoflabourmarketparticipationamongpeoplewithdisabilitieshasbeenmeasuredas44percent,thatis,aroundtheratewehaveinNorway,whiletheproportionintherestofthepopulationoftheOECDareais75percent.Thethreemainrecommendationsofthereportare:
8 SeeforinstanceLarsWestlie:TheLongTermImpactsofVocationalRehabilitation,RagnarFrischCentreforEconomicResearch,June2008
9 WorldReportonDisability.WHO/TheWorldBank,June2011
20 Jobs Strategy for People with Disabilities
• Enableaccesstoallmainstreampolicies,systemsandservicesInvestinspecificprogrammesandservicesforpeoplewithdisabilitiesAdoptanationaldisabilitystrategyandplanofaction(whichembodythe2foregoingrecommendationsandarecross-sectoral)
TheNOVAresearchinstitute(undertheNorwegianMinistryofEducationandResearch)examinedmodelsinselectedcountriesforassistingpeoplewithdisabilitiestomakethetransitiontoemployment.10ThereportprovidesasummaryofpolicyinstrumentstopromoteemploymentamongpeoplewithdisabilitieswhoareexcludedfromtheordinarylabourmarketintheUSandEurope(Belgium,Denmark,Germany,theNetherlands,SwedenandtheUK).ThereportindicatesthatNorwayisnotthatdiffer-entfromotherEuropeancountriesintermsoftotalexpenditureonfinancialbenefitsandservicestothepopulationasawhole,butthattheScandina-viancountriesallocatealargerproportionoftheirtotalwelfareexpendituretofinancialprovisionsandservicesforpeoplewithdisabilities.TheScandinaviancountriesarealsodistinctinhavingahighdegreeofpublicfinancingofincomemainte-nancesystems.Assuch,thispointstoadistinctlyScandinavianmodel.
DifferencesdohoweverexistbetweentheScandi-naviancountries.NorwaydiffersinspendingalargerproportionofGDPonanincomemainte-nancesystemforpeoplewithdisabilitiesthanotherEuropeancountries.Swedenischaracterisedbyhavingahigherlevelofexpenditureifwetakeservicesandassistancetopeoplewithdisabilitiesasone,whileNorwayandDenmarkhaveasomewhat
lowertotalexpenditurelevel.InSweden,employercontributionstofinancingincomemaintenancearehigherthaninDenmarkandNorway.NOVApointstothefactthattheScandinaviancountriesandtheNetherlandshaveconsistentlyspentmoreresourcesonemployment-orientedinitiativesthanotherOECDcountries.Employ-ment-orientedinitiativescompriseprogrammestopromoteincreasedemploymentanddonotincludeexpenditureonincomemaintenance.AccordingtoNOVA,Norwayallocatedrelativelymoreresourcestoemployment-orientedinitiativesforpeoplewithdisabilitiesparticipatinginemploy-ment-qualifyingprogrammes,typicallyeducation/training,whileSwedenandDenmarktendtofavourfinancialincentivesforemployers.SwedenandDenmarkattachmoreimportancetoon-the-jobtrainingatordinaryworkplacesandwagesubsidiesforemployersthanNorwaydoes.
NOVAconcludesthattheuseofshelteredemploymentvariesextensivelyinthecountriesunderreview,butthatthemaintrendisfornationalauthoritiestoaimtomoveawayfrompermanentshelteredemploymentinfavourofactivelabourmarketinitiativestopromoteagreaterdegreeofinclusioninordinaryworkinglife.
10 Halvorsen,Rune&Hvinden,Bjørn:“ModelsforpromotinglabourmarketparticipationofpersonswithdisabilitiesinEuropeandUSA”(Englishversion)NOVA.2011.
Jobs Strategy for People with Disabilities 21
9.Barrierstoemployment
Therearemanyfactorstoaccountfortherelativelylow(ifstable)rateoflabourmarketparticipationamongpeoplewithdisabilities.Inproposalsforinitiativesfor2012,wehavechosentodirecteffortsatfourmainbarriersreducinglabourmarketparticipation.Thesearebarriersthatappeartobeimportantfromtheperspectiveofbothemployersandjob-seekersandwhichmaybepreventingmorepeoplewithdisabilitiesfromjoiningthelabourmarket.Discrimination barrier. Peoplewithdisabilitiesmaybeexposedtodiscriminatoryattitudesandactions.Thebarriersmayconsistofsimpleprejudiceaboutpeoplewithdisabilities,orphysical,environmentalandtechnologicalsolutionsthatfailtotakeeveryoneinthepopulationintoaccount.Inspiteofthefactthatanti-discriminationrulesinNorwayarenowmorestringent,manyemployersinNorwayarestillprejudicedagainstrecruitingjob-seekerswithdisabilities.Itisdocumented,forexample,aslesslikelythathighlyqualifiedwheelchairusersandblindpersonswillbeinvitedtoajobinterviewthanothercandidates.Peoplewithdisabilitieswhoarealreadyinemploymentmayalsoexperiencediscrimination.
Thisdiscriminationbarriercanbecounteredbothbylegislativemeansandbyhelpingmorepeoplewithdisabilitiestofindemployment.Public-sectoremployershaveaspecialresponsibilityforreducingthisbarrier.Effortstoimplementuniversaldesignofthepublictransportsystemwillalsobehighlyconducivetoincreasedlabourmarketparticipationbythestrategy’stargetgroup.
Cost barrier. Inhiringpersonswithreducedcapacityforwork,manyemployersassumethattheirorganisationmayincuranumberofcostsinworkplacefacilitationandprovidingindividualsupervision.Theindividualmayrequireassistivetechnologiesinordertoperformthework,orpracticalandphysicalfacilitationoftheworksituation,trainingandadviceforcolleagues,specialtransporttoandfromworketc.
Onewayofreducingthecostbarrieristooperatepublic-sectorschemescoveringaproportionoftheemployer’sdocumentedexpenditureonfacilitationandsupervision.Productivity barrier. Evenwitheffectivefacilitationandclosesupervisionoftheindividualandtheenterprise,manyprospectiveemployersbelievethatpeoplewithdisabilitieswillhavelesscapacityforworkandlowerproductivitythanotheremployees.Theseorganisationsmaythereforefeelthattheyarerunningafinancialriskiftheyhavetobearthefullsalarycostsofrecruitingpeoplewithunstableorpermanentlyreducedcapacityforwork.
Onewayofreducingthisbarrierisbyimplementingwagesubsidiesorbyensuringthatpersonswithaweakeducationalbackgroundreceivethenecessarytrainingandvocationalexperience.
22 Jobs Strategy for People with Disabilities
Information and attitudinal barrier. Peoplewithdisabilitiesarealltoooftenoverlookedasavaluablesourceoflabour.Negativeattitudesandalackofinformationmayconstituteabarriertojob-seekerswithdisabilities.Thesebarriersexistamongthepopulationasawhole,amongemployers,co-workersetc.Butamongpeoplewithdisabilitiesthemselves,theremayalsobeattitudesandlackofinformationthatconstituteabarriertoemployment.Eligibilityforemployment-orientedbenefitsisconditionalonthepersonbeingregisteredwiththeLabourandWelfareService.ItisthereforeimportantfortheindividualtoactuallymakecontactwiththeService.
Forboththeemployerandjob-seeker,workperformanceandproductivitywillbeanunknownfactoruntilthecandidate’scapacityforworkhasbeentriedoutinarealworksetting.Fortheenterprise,incorrectassessmentofthecandidate’scapacityforworkwillconstituteariskintermsofunforeseeablecosts,whilethecandidatehimself/herselfriskspublicfailure.Bothenterprisesandjob-seekersthemselvesconsequentlyneedlabourmarketschemesthatcanreducethismutualriskoruncertainty.
Theinformationandattitudinalbarriercanbereducedforexamplebyestablishingnewsettingsfortryingoutcapacityforwork,on-the-jobtrainingandworkparticipationforpeoplewithnopreviousworkexperience.Thisbarriercanalsobereducedthroughlabourmarketinitiativesthatpromoteproactiveopinion-formingandawareness-raisingamongdifferentstakeholdersandgroupsinsociety.
Jobs Strategy for People with Disabilities 23
Norwayhasawell-functioninglabourmarketwithsoundandwell-regulatedworkplaceconditions,highproductivity,andlowunemployment/highrateofemployment.Nonetheless,peoplewithdisabilitiesfacebarriersthatotherjob-seekersmayneverencounter.
WithaJobsStrategyaimedspecificallyatpeoplewithdisabilities,theNorwegianGovernmentwillbelaunchingalong-termandtargeteddrivetoboostlabourmarketparticipationamongpeoplewithdisabilitiesgenerallyandamongyoungpeoplespecifically.Thestrategyislong-rangeandcross-sectoral.
ThestructureoftheJobsStrategyisasfollows:• Targetgroupidentifiedanddelimited.• Targetgroupsituationonthelabour
marketdescribed.• Policypursuedforboostinglabourmarket
participationdescribed.• Evidencefortheeffectofeffortstodatein
Norwayandabroaddiscussed.• Barriersreducingthetargetgroup’slabour
marketparticipationidentified.• Initiativestoreducebarriersandboost
labourmarketparticipationidentified.• Effortsrecorded,reportedonand
evaluated.• InitiativesintheJobsStrategyshall
underpinandsupplementothertargetedeffortssuchastheNationalStrategicPlanforWorkandMentalHealth.
• ActivitiesimplementedviatheJobsStrategyshallalsosupporttheuniversallabourmarketandwelfarepolicywithtargetedinitiativesandprogrammes.
• TheMinistryofLabourshallhaveleadresponsibilityforeffectiveimplementationofthestrategyjointlywiththeministriesparticipatingwithinitiativesunderthestrategy.
Arrangementsmustbemadetofacilitateactiveinvolvementbyorganisationsforpeoplewithdisabilities,thesocialpartnersandotherkeystakeholders.
TheJobsStrategyisfoundedonthecurrentNorwegianlabourandwelfarepolicy.Inadditiontouniversalschemescomprisingthegeneralpopulation,thereisaneedformoretargetedinterventionsforpeoplewithdisabilities.
Althoughfoundedonexistingpolicy,theJobsStrategyalsochallengestraditionalapproaches.Weproposebothadoptingnewpolicyinstrumentsandmethodswhileintensifyingtheeffortssurroundinginitiativesandschemesalreadyinexistence.AllcurrentpolicyinstrumentswillbeavailabletothetargetgroupwithintheJobsStrategy.Arrangementswillalsobemadetoputtogetherspecialpolicyinstrumentpackagesconsistingofamixofappropriateinitiativesandschemes.TheLabourandWelfareServicewillbestrengthenedtoenablethestrategytobeimplementedefficientlyandreliably.
10.Strategytoboostemployment
24 Jobs Strategy for People with Disabilities
InAppendix1,theGovernmentpresentsvariousproposalsforinitiativesfor2012togetherwithotherproposalscurrentlyunderreview.Theseinitiativeswillbegearedtoreducingthebarriersdefinedearlier:thediscriminationbarrier,costbarrier,productivitybarrierandinformationandattitudinalbarrier.
Initiatives to reduce the discrimination barrier• Areviewoftheregulationsappertainingto
theActrelatingtocivilservantsetc.isinprogresswithregardtotherulesoninterviewprocedureandrecruitmentinthepublicsector,whichwouldpromoteincreasedrecruitmentofpeoplewithdisabilities.
Initiatives to reduce the cost barrier• TheGovernmentproposespiloting
facilitationsubsidiesforjob-seekerswithdisabilitiesasanewschemetocoverdocumentedexpensesonworkplacefacilitationforemployeeswithdisabilities.
• TheGovernmentproposesenhancingvariousformsofsupervisoryprogrammesundertheLabourandWelfareService.Thisappliestoamentoringschemeandextendedtrialsoffunctionalassistance.Theschemeforuser-controlledpersonalassistanceisespeciallyimportantinenablingpeoplewithextensiveassistancerequirementstogainandretainemployment.
• Job-seekersinthestrategy’stargetgroupwhorequiredifferentformsofemployment-orientedassistancewillbegivenafacilitationguaranteesothatboththejob-seekerandemployerarefullyinformedofwhattheyareentitledtointhewayofassistancefromtheLabourandWelfareServiceandwhenthevariousinitiativesandarrangementswillbeputinplace.
Initiatives to reduce the productivity barrier• Inordertocoveraproportionofthe
employer’ssalaryexpensesonpeoplewithdisabilities,existingwagesubsidyschemeswillbemadeakeycomponentofemployment-orientedservices.
• Intensifiedeffortswillbedirectedatensuringthatmorepeoplecompleteuppersecondaryeducationsothatthetransitionfromschooltoworkisnothinderedbyalackofqualifications.
Initiatives to reduce the information and attitudinal barrier• Increaseduseofwork-experience
programmesunderbothcentralandlocalgovernmentwillservetoreduceuncertaintyandlackofknowledgeamongemployersaboutthetargetgroupandgivemoreyoungpeoplewithdisabilitiesanopportunityforon-the-jobtrainingandessentialworkexperience.TheGovernmentproposesthat500placesonlabourmarketprogrammesbeearmarkedspecificallyforthestrategy’stargetgroup.
• AttheNAVInclusiveWorkplaceSupportCentres,theproposalistoestablishdedicatedworkplacesupportcoachestofurtheractivitiesundertheJobsStrategy.Thecoacheswillconductoutreachwork,e.g.byassistingemployerswhowishtohirepeoplefromthestrategy’stargetgrouporofferthemaplaceonalabourmarketprogramme.
• ItisproposedtocreatededicatedprojectmanagerorcoordinatorpositionswithintheLabourandWelfareServicewithresponsibilityforinformationactivitiesandprofessionaldevelopmentwithintheService.
• AcontactpersonschemewillbeintroducedwithintheLabourandWelfareServiceforpeoplewithdisabilitieswhoneedassistancetogainemployment.Thecontactpersonschemewillbeacomponentofthefacilitationguarantee.
11.BriefsummaryoftheJobsStrategy’spolicy instruments
Jobs Strategy for People with Disabilities 25
Systematicfollow-upofthestrategyisessentialinmonitoringthatitisbeingexecutedasintendedandtheextenttowhichitcontributestoincreasedemploymentinthetargetgroup.Follow-upwillbetwo-pronged.TheDirectorateofLabourandWelfarewillbereportingonresultsachievedandanexternalevaluationwillbeconductedofstrategyexecutionandeffects.
Eachyear,inconnectionwiththebudgetbill,theGovernmentwillreportonprogressandtheresultsofthestrategy.Theaimofthisistodeterminewhatworksandwhatdoesnot.Thiswillenableustochangecourseifandwhennecessary.Theaimistodevelopnewandmoreeffectiveinstrumentsforhelpingmorepeopleintoemployment.
12.Follow-upandcooperationontheJobsStrategy
26 Jobs Strategy for People with Disabilities
Closecooperationwiththesocialpartnersandorganisationsrepresentingpeoplewithdisabilitiesonincreasedattainmentofsecondarygoal2oftheIAAgreementandthedevelopmentandexecutionoftheJobsStrategymustbecontinued.Creatingagenuinelyinclusivelabourmarketinwhichjob-seekerswithdisabilitiesareabletorealisetheircapacityforworkwillrequireaneffortfrommorethanjusttheauthoritiesalone.Openingupthelabourmarkettothoseseekingentrywillentailactiveparticipationbyemployeesandemployers,organisationsrepresentingpeoplewithdisabilitiesandjob-seekersthemselves.Tothatend,theIAcooperationisvital.
TheLabourandWelfareServicealsoplaysakeyroleinassistingstakeholderswithitsexpertiseandfinancialinstruments.Consequently,theJobsStrategyproposesstrengtheningtheLabourandWelfareService’seffortstoextenditsin-houseprofessionalexpertiseandexternaloutreachactivities.Thiswillbedoneby,forexample,advising,informingandassistingemployersinordertofacilitatelabourmarketentryforyoungjob-seekerswithdisabilities.TheseactivitiesentailtheactiveinvolvementoforganisationsandinstitutionsforpeoplewithdisabilitiesinordertobuilduptheLabourandWelfareService’sexpertiseinthisfieldandtoprovideinputsforongoingworkonthestrategy.
Jobs Strategy for People with Disabilities 27
Initiativesin2012
1.Initiativestoreducethediscriminationbarrier
1a Employer’sdutytomakeactiveeffortsandtoreport1b Regulatoryamendmentsrelatingtointerviewprocedureetc.1c Follow-upontheIAAgreementwithincentralgovernment1d Universaldesignandincreasedaccessibility1e Healthandcarepolicyinstruments
2.Initiativestoreducethecostbarrier
2a Useoffacilitationguarantees2b Pilotsofworkplacefacilitationsubsidies2c Provisionofassistivetechnologies2d Newmentoringscheme2e User-controlledpersonalassistance2f Strengthentheschemeforfunctionalassistanceatwork2g Improveopportunitiesforpeoplewithdisabilitiestostarttheirownbusiness2h Pilotofoccupationalandeducationaltravel
3.Initiativestoreducetheproductivitybarrier
3a Coveraproportionofemployersalaryexpenses3b Initiativesineducationandtraining
4.Initiativestoreducetheinformationandattitudinalbarrier
4a Increasethenumberofplacesonwork-experienceprogrammes4b Partneringwithlocalauthorities4c Traineeprogrammeswithingovernmentalenterprises4d Placesonwork-experienceprogrammeswithingovernmentalenterprises4e DedicatedprojectmanagerorcoordinatorpositionswithintheLabourandWelfareService4f NewpositionswithintheLabourandWelfareServiceasworkplacesupportcoaches4g In-houseprofessionalcompetencedevelopmentprogrammewithintheLabourandWelfare
Service4h InformationabouttheJobsStrategy4i Actionareaswithingovernmentalemployerpolicy4j Follow-upandevaluationoftheJobsStrategy4k Jointjoblistings
Jobs Strategy for People with Disabilities 29
Appendix 1
Inthisappendix,wereviewspecificinitiativesfor2012andotherproposalscurrentlyunderreview.Thesespananumberofministerialremitsandpolicyareasthataredeterminativefortheprospectsoflabourmarketparticipationfor
Initiativesin2012
peoplewithdisabilities.Theseinitiativeswillbegearedtoreducingthebarriersdiscussedsofar:thediscriminationbarrier,costbarrier,productivitybarrierandinformationandattitudinalbarrier.Thefollowingdescribestheinitiativesinmoredetail.
1. Initiativestoreducethediscriminationbarrier
Peoplewithdisabilitiesmaybeexposedtodiscriminatoryattitudesandactionsthatpreventtheirparticipationinworkinglife.Thebarriersmayconsistofsimpleprejudiceaboutpeoplewithdisabilities,orphysical,environmentalandtechnologicalsolutionsthatfailtotakeeveryoneinthepopulationintoaccount.Inspiteofthefactthatanti-discriminationrulesinNorwayarenowmorestringent,manyemployersinNorwayarestillprejudicedagainstrecruitingjob-seekerswithdisabilities.Itisdocumented,forexample,aslesslikelythathighlyqualifiedwheelchairusersandblindpersonswillbeinvitedtoajobinterviewthanothercandidates.Peoplewithdisabilitieswhoarealreadyinemploymentmayalsoexperiencediscrimination.
Interventionsandinitiativesin2012concerningthediscriminationbarrierwillcontributetoreducingdiscriminationagainstpeoplewithdisabilitiesonthelabourmarket.
Thediscriminationbarriercanbecounteredbylegislativemeans,butthefocusonuniversaldesignofthepublicdomaingreatlyinfluencestheprospectsforincreasedlabourmarketparticipation.
1a Employer’sdutytomakeactive effortsandtoreport
Section3oftheAnti-discriminationandAccessibilityActstatesthatemployershaveaduty‘tomakeactiveeffortsandtoreport’.Thisdutyappliestoemployersintheprivatesectorwithmorethan50employees,andtoallpublicauthorities.Theduty‘tomakeactiveefforts’meansthatemployersaretoworkactively,purposefullyandaccordingtoplanstopromoteequalopportunitiesandequalityandtopreventdiscriminationonthegroundsofdisability.
TheGovernmentwillbemakingadetailedappraisalofhoweffortsbyenterprisestorecruitandincludepeoplewithdisabilitiescanbestbeundertakeninpursuanceofSection3oftheAct.
TheGovernmentisreviewingproposalsforanewanti-discriminationactinresponsetotherecommendationoftheParliamentaryCommitteeontheAnti-DiscriminationAct.
TheGovernmentwillseek,jointlywiththesocialpartnersandtheEqualityandAnti-DiscriminationOmbud,tostimulateintensifiedeffortsonthelabourmarkettopromoteequalitybasedongender,ethnicityanddisabilitythroughcallstoapplyforprojectfunding.Theintentionisforthistocontributetoobservanceofthedutytomakeactiveeffortsandtoreport.Private-sectoremployers,public-sectoremployers(local,regionalandcentralgovernmentbodies);foundationsworkingtopromoteequal
30 Jobs Strategy for People with Disabilities
opportunitiesonthelabourmarketandinpublicserviceprovision;andtradeunionsandprofessionalassociationshadtheopportunitytoapplyforfundingin2010and2011. Applications may be made for funding for initiatives to develop routines/tools for:• Systemsfortrainingandadvisingonequal
opportunitiesandthedutytomakeactiveeffortsandtoreport.
• Reportingonandanchoringequalopportunitiesefforts.
• Developmentofmodelsforpartneringwithdifferentstakeholders.
• Traininginandadviceonequalopportunitiesandthedutytomakeactiveeffortsandtoreport.
• Concreteequalopportunitiesinitiativesandplannedequalopportunitieswork,includingactionplans.
1b Regulatoryamendments relatingtointerviewprocedure etc.
TheGovernmentisreviewingtheregulationsappertainingtotheActrelatingtocivilservantswithaviewtoenablingtheregulationstopromoteincreasedrecruitmentofpeoplewithdisabilitiesinthecentralgovernmentsector.Thisconcernsbothrulesregardingparticipationintraineeshipsandproceduresforinterviewandpossiblyquota-basedappointments.
1c Follow-upontheIAAgreement withincentralgovernment
TheIAAgreementrequiresthattheparticipatingenterprisespreventandreducesicknessabsences,promotejobpresenceandcounteremployeerelegationanddefection.Theenterprisesaretosetactivityandperformancetargetsforreducingsicknessabsences;increasehiringofpeoplewithdisabilities;andencouragejobretentionafterage50byanadditionalsixmonths.
TheMinistryofGovernmentAdministration,ReformandChurchAffairsisresponsibleforoverarchingemployerpolicyatgovernmentallevel.TheGovernmentiscommittedtotargetedpursuanceoftheIAAgreementwithinitsowndomains.OnbehalfoftheGovernment,theMinistryofGovernmentAdministration,ReformandChurchAffairswillbecallingonallcentralgovernmentbodiestobeparticularlymindfuloftheneedtorecruitmoreyoungpeoplewithdisabilities.
ThesameMinistrywillbecontinuingitsclosecooperationwiththemainunionsandassociationstofulfiltheIAAgreementinthecentralgovernmentsector.OneimportantinitiativewillbetoencouragetheorganisationstorefertoanewguidetotheIAAgreementforthecentralgovernmentsector.TheMinistryofGovernmentAdministration,ReformandChurchAffairswillalsobeworkingtoensurethatArticle5.6oftheMainTariffAgreementunderwhichtheunionsarepermittedtoapplyforfundingtocovercompetencedevelopmentandreformprojectsisusedmoreextensivelyinpursuanceofsecondarygoal2oftheIAAgreement.
1d Universaldesignandincreased accessibility
ThevisionoftheGovernment’sActionPlanforUniversalDesignandIncreasedAccessibility2009–2013isforNorwaytobeuniversallydesignedby2025.16ministriesarecontributinginitiativestothisactionplan.
Priorityactionareasintheaboveactionplanconsistofplanningofpublicspaces,buildings,transportandICT.Increasedemploymentforpeoplewithdisabilitiesisaconsistentobjectiveintheplanandthecommitmenttothefouractionareaswillservetomakeiteasierforpeoplewithdisabilitiestogainemploymentandparticipateinthelabourmarket.Amongotherthings,theplanwillensureimprovedaccessibilitytoteaching
Jobs Strategy for People with Disabilities 31
buildings,workplacebuildings,ICT,infrastructureandpublictransport.
Specifically concerning initiatives relating to a universally designed system of public transport
ItensuesfromtheAnti-discriminationandAccessibilityActthatuniversaldesignisdefinedinsuchawaythatinfrastructureandpublictransportcanbeusedbyeveryone,ofallagesandofdifferingabilities.
AtpresentthereisnogeneralappraisaloftheNorwegianpublictransportnetwork.Asidefromensuringthatbusstopsorrailwaystationsinthepublictransportnetworkandferryquaysareuniversallydesigned,itisimportanttoensuretheaccessibilityofthemeansoftransportinthemselves.Thiswillinvolvelong-term,targetedefforts.
Thereisaneedtoupgradeintersections,terminals,busstopsandstoppingplacesalongthetrunkroadnetworkandstationsintherailwaynetwork.Theinitiativeswillbeconcentratedonafewselectedgeographicalareas,andonthebusiestpublictransportarteriessothattheymaybecoordinatedandfacilitatetransfersbetweendifferentmeansoftransport.Inthisway,goodaccessibilitywillbeprovidedfortheneedsofdifferentgroupsandtravelpatterns.
InitiativesunderNationalTransportPlan2010-2019willbeinstrumentalinachievingtheobjectivesforauniversallydesignedtransportsystem:
• Bus fleet: Forthenewscheduledsuburbanandexpressbuses,from1January2010,therearerequirementsforaccessibilityforpeoplewithdisabilities.
• Rail fleet: NSB,thenationalrailoperator,hasaprogrammefortrainupgradescomprising,forexample,installationofwheelchairliftsonaproportionofitsrollingstock.NSBhassignedacontractforthe
supplyof50newtrainsetswhichwillmeettherequirementsforuniversaldesign.Theplanistointroducethetrainsetsgraduallyfrom2012.
1e Healthandcarepolicy instruments
Employmentisimportantforpublichealth.Aninclusiveworkinglifewhichpreventssicknessabsences,preventsexclusionandgivesallcitizensanopportunitytoparticipateonthelabourmarketisofgreatvalueforNorwayasasociety,whileitalsopromotesparticipation,personalindependenceanddignityforallgroups,includingpeoplewithdisabilities.Thewhitepaper,ReportNo.20totheStorting(2006-2007)National strategy to reduce social inequalities in health,laysdownguidelinesforapolicyinthisareaalso.Sound,universal,health-promotingschemes,combinedwithinitiativesaimedspecificallyatvulnerablegroupswillservetoassistpeoplewithdisabilitiesingainingemployment.
The“CoordinationReform”(promotingcontinuityofcareintheNorwegianhealthservice)alsocoversfactorsaffectingpeoplewithdisabilities.Healthcaremaybeanimportantelementinjoiningthelabourmarketorreturningtowork.Keyhealthservicestothatendareprevention,diagnostics,treatment,coaching,trainingandrehabilitation.ThenewMunicipalHealthServicesActisanimportantelementintheCoordinationReform.ThisActdetailstheroleofpersonalcoordinators,andlodgesresponsibilityforIndividualPlanswithacoordinatingunitwithineachmunicipality.TheHealthPersonnelActexplicitlysetsoutthedutyofhealthpersonneltoengageactivelyinIndividualPlans.
Thespecialisthealthserviceoperateswithanumberofinitiativesinhospitals,outpatientclinicsviaoutpatientservicesandlearning&copingcentres.Importantinitiativesarealsobeingimplementedwithinprivate-sectortrainingandrehabilitationinstitutionscontractedtothe
32 Jobs Strategy for People with Disabilities
regionalhealthauthorities.Anumberoftheseinstitutionsofferprogrammesinwhichthetransitiontoworkinglifeisinfocus.
InaccordancewiththenewMunicipalHealthServicesActof1January2012,theprovisionofsocial,psychosocialandmedicalhabilitationandrehabilitationisastatutorymunicipalresponsibility.Thisisdefinedastime-delimited,plannedprocesseswithclear-cutgoalsandresourcesinwhichmultipleactorscooperateonsupplementingtheuser’sowneffortswiththenecessaryassistanceinordertoachievethebestpossiblefunctioningandcopingability,independenceandparticipationsociallyandinsocietyatlarge.Themunicipalauthoritiesarerequiredtomaintainanoverviewofindividualneedsandtoplansuchactivities.
Thecareservicewillalsobeanimportantagentformanyyoungpeoplewithdisabilitiesinfacilitatingtheirparticipationinworkinglife.Suchservicesincludehome-help,personalassistance,includingpracticalassistance,andsupportcontactanduser-controlledpersonalassistance.Themunicipalauthoritiesarerequiredtoensurethatcitizensareprovidedwithservicesthatarewellcoordinatedandadaptedtotheindividual.OnemainfeatureoftheGovernment’spolicyforthemunicipalhealthandcareservicesistheimportanceattachedtoqualityoflife,copingabilityanddependabilityineverydaylife.Themunicipalauthorityisrequiredtoensurethenecessaryprovisionofservicestoaidstimulationofownlearning,motivation,increasedfunctionalandcopingability,equalityandparticipation.Theservicesaretobeprovidedandsuppliedfromauser-centredperspective;andmustbecoordinated,interdisciplinaryandplannedeitherinorneartheuser’sfamiliarenvironmentinwhatfortheusermakesforameaningfulexistence.ThisisemphasisedinthenewMunicipalHealthServicesAct.
Againstthisbackground,itisagiventhatyoungpeoplewiththerighttoessentialcareservicescanexpecttoreceiveassistanceintimetoallowthemtogettoworkorschool.Ineachindividualinstance,thiswillensuefromtherequirementregardingproperservices,includingthattheindividualpatientoruseristoreceiveaservicethatrespectshisorherdignity;seeSection4-1oftheMunicipalHealthServicesAct.Theopportunitytotakeupemploymentmaybedecisiveinassessmentofboththescopeandtypeofserviceprovision.Peoplewhoneedsuchservicesaretobeissuedwithaformaldecisiondocumentdescribingtheservicetheyaretobeprovidedwith.Itisimportantthatthisdocumentissufficientlypreciseinorderthatthepersoncandependonthepredictabilityoftheserviceprovision.
Peoplewithneurologicalconditionsrepresentthegroupthathasundergonethehighestgrowthinmunicipalcareserviceusersinrecentyears.UnderNevroPlan 2015,theMinistryofHealthandCareServiceswillbecontributingtoupgradingthecompetenceandqualityofmunicipalserviceprovisionforthistargetgroup.
Jobs Strategy for People with Disabilities 33
Whenemployingpeoplewithdisabilities,manyemployerswillincuranumberofcostsentailedbyworkplacefacilitationandtheneedforindividualisedsupervision.Initiativestoreducesuchcostswillbedirectedatensuringthatpeoplewithdisabilitiesareprovidedwiththenecessaryassistivetechnologiesandotherassistance.Schemestothatendmaybeaimedatcompensatingemployersforexpenditureonassistivetechnologiesandotherpracticalaidstogetherwithvariousformsofsupervision.
2a Useoffacilitationguarantees
InordertoensurethatthetargetgroupfortheJobsStrategyreceivesthebestpossiblesupervi-sionandfacilitation,awrittenserviceguaranteewillbeissuedbytheLabourandWelfareService.Thisguaranteewillcoveranyonewhoisabouttotakeupemployment,whetherintheformofanordinarypositionoraplaceonalabourmarketprogramme.Underthisguarantee,theLabourandWelfareServicepledgestoproviderapidcaseprocessing,comprisinganeedsorworking-capac-ityassessmentandindividuallyadaptedemploy-ment-orientedassistancetotheparticipantandemployer.Theassistancemustbenecessaryandappropriate.Theguaranteewillalsoensureswiftprovisionandeffectivecoordinationofnecessaryfinancialinstruments(subsidies).InordertoensureaccessibilityandsupportfromtheLabourandWelfareService,theguaranteeincludesaprovisionwherebyboththejob-seekerandemployerareassignedaregularcontactpersonattheNAVofficesforeitherpartytogetintouchwithiftheyneedadvice,guidanceorsupport.Anevaluationofthisschemetodateindi-catesthatthecurrentguaranteeschemehasbeen
verywellreceived.11 11AfacilitationguaranteeforthetargetgroupintheJobsStrategycanbetailoredtotheneedsoftheindividual.
Aserviceguaranteeisnotalegally-bindingagreementconcerningfinancing,butdoeshelptoclarifyinadvancewhattypeofsupportthepartiesareeligibleforandwhensuchsupportwillbeprovided.Thisprovidesincreasedsecurityandreducestheriskforboththejob-seekerandemployer.
Thepaneloflabourmarket,businessandindustryrepresentativesindicatedinitsrecommendationthatthefacilitationguaranteeschemeshouldbeallowedtobenefitmorepeople.ProposalsforafacilitationguaranteewerepresentedbythepartiestotheworkontheIAAgreement,andfrom2008,theschemewentnationwide.ThefacilitationguaranteemayincludeallinstrumentsandinitiativeswithintheLabourandWelfareService.
2b Pilotsofworkplacefacilitation subsidies
FacilitationsubsidiescurrentlyrepresentoneofthemostwidelyusedandpopularlabourmarketinstrumentswithintheIAarea.ThisinstrumentisalsohighlightedintherecommendationsreceivedbytheGovernmentfromuserorganisationsandenterprises.
WecurrentlyhaveadedicatedschemeforIAenterpriseslinkedtosecondarygoal1oftheIAAgreementforsubsidisationofworkplacefacilitationforemployeesonextendedsickleaveandforemployeesatriskofhavingtotakesickleave,butwhoarestillworking.AspartoftheJobsStrategy,anewnationwidepilotschemeof
2. Initiativestoreducethecostbarrier
11 RambøllManagement:Følgeevalueringavprosjektet”Tilretteleggingsgaranti”.Sluttrapport(Post-evaluationofthe“FacilitationGuarantee”project:FinalReport),August2008
34 Jobs Strategy for People with Disabilities
workplacefacilitationsubsidieswillbeimplementedforjob-seekerswithreducedworkingcapacity.Thetargetgroupforthisnewschemewillbepeoplewithreducedworkingcapacitywhoareexcludedfromthelabourmarket.Thepilotwillbeopentoallorganisationsthatrecruitpersonswithreducedworkingcapacity.
Thepurpose,durationandsizeofthesubsidywillbeinlinewiththeexistingscheme.Thesubsidymaybeusedforexampleinsettingupinitiativesintheformofjobtry-outs,facilitationoron-the-jobtraining.Grantsmaybeawardedfortrainingintheformofcoursesandshorttrainingprogrammes.
Underthepilotscheme,subsidieswillalsobeavailableforpurchasingfixturesandwork-relatedassistivetechnologiesasisthecaseundertheexistingschemeforemployeesonextendedsickleave.Inthelongterm,adecisionwillhavetobemadeconcerningtheformatoffinancingandorganisationofwork-relatedassistivetechnolo-gies.TheexpertiseattheAssistiveTechnologyCentresmaybeabletoprovideadviceandguidanceandaccesstotechnologiestocompen-satefordisabilities.Inordertosucceedinreducingbarriersinsocietygenerallyandonthelabourmarketspecifically,itwillbeimportanttoadoptnewtechnologiesandinstruments.
Facilitationinvolvesmorethanassistivedevicesandtechnologies.AdvicefromtheAssistiveTechnologyCentresonsolutionsandprocessesinconjunctionwiththeuserandemployerinordertocreateintegratedsolutionsisoftenofgreatimportance.
Itisalsoimportanttocoordinatetheuseofinstrumentsmoreeffectively,andtoensurethatessentialfacilitationoftheworkplaceiscompletedrapidlyandefficiently.Thisiscarriedoutviaongoinginnovationanddevelopmentworkinthefieldofassistivetechnologies.Itisimportanttomakeuseofthesetechnologiesinordertoensurethatmorepeoplewithdisabilitiescangain
employment.ApilotschemeofnewfacilitationsubsidiestailoredtothetargetgroupintheJobsStrategywillcommencein2012.
Forpeoplewithdisabilities,itmayalsobeimportanttoarrangeforfacilitationandadjustmentoftheirworkinghoursinorder,forinstance,toallowthepersontoreceivetreatmentorcompleteatrainingsessionduringtheworkingday.Itisimportanttodemonstratetherangeofoptionsopentotheemployerandemployeeforarrangingeffectivesolutionstosuiteachparticularjob.TheGovernmentwishestoraiseawarenessofthepossibilitiesaffordedbythecurrentregulations.
Providedthatitcausesnosignificantinconven-iencetotheemployer,itis,forexample,permis-sibleforemployeestoworkoutsideoftheusualworkinghoursof8amto4pm.Throughthefacilitationsubsidy,theemployerwillbeeligibleforcompensationofthecostsentailedbyvariousadjustmentstotheworksituation.
2c Provisionofassistive technologies
In2011,theLabourandWelfareServicewillbeestablishinganewresourcecentreforassistivetechnologiesandfacilitation.ThemainconstituentsofthecentreincludewhatwereformerlyspecialistunitsforICT-basedassistivetechnologiesandtheNAVCentreforoccupationalrehabilitation.OneoftheprincipalobjectsofsettingupthecentreistoproviderequirementsandrespondtochallengeswithintheLabourandWelfareServiceentailedbythemoreextensiveemployment-orientationoftheinitiative.
Itwillbenecessarytointensifyeffortsintheareasofemploymentandeducationinboththeuser-orientedandsystem-orientedprogrammes.TheresourcecentrementionedabovewillbeasourceofsupportforboththeAssistiveTechnologyCentresandtheNAVoffices’professionalcompe-tencedevelopmentprogrammes.Initiativesto
Jobs Strategy for People with Disabilities 35
stimulateextendedinterdisciplinarycooperationwithotherunitsunderNAV(NAVoffice,NAVWorkplaceSupportCentres,employmentadvisorycentresandtheAssistiveTechnologyCentres)willbecentraltotasksundertakenbytheresourcecentre.WewouldalsodrawattentiontoNorwe-gianOfficialReport2010:13on‘WorkforHealth’,whichindicatestheneedtodevelopwelfaretechnologiesinpreventingphysicalandpsycho-logicaldisordersandsicknessabsences.
Viatheresourcecentre,theLabourandWelfareServicewillbeparticipatinginaNordicinnovationnetworkonwelfaretechnology,whichtheNordicCentreforWelfareandSocialIssueshastakentheinitiativeforsettingup.Thepurposeofthisnetworkistopromotethesharingofexperienceconcerningwelfaretechnologysolutions;moreefficientcollaborationbetweenresearchersandbusinesses;andthecreationofNordicinnovationclustersinpriorityareas.
2d Newmentoringscheme
Differentformsofsupervisionandpersonalassistancemaybecrucialingettingmoreyoungpeoplewithdisabilitiestojointhelabourmarket.Manystudiesindicatetheneedforsocialsupportandcounsellinginordertogainandretainemployment,especiallyamongpersonswithmusculo-skeletaldisordersandmentaldisorders.
Tothatend,theGovernmentisproposingtostrengthenandupdatetwoofthecurrentsupervisoryschemes:thefunctionalassistancescheme(seeseparatediscussion)andthementoringscheme.Thementoringschemeisatpresentalittle-knowntypeofsupervisoryscheme.Thisisunfortunate,sinceoutcomesofthistypeofschemehavebeenpositiveformanydifferentusergroups.
Thementoringschemeisdesignedtoprovidesupervisionforpersonstakingpartinvarioustrainingschemesandprogrammesrunwithinordinarycompanies,orinthetransitionalphase
fromaschemetoordinaryemployment.Theschemeprovidesthelabourmarketprogrammeparticipantortheemployeewithessentialoccupational,socialandpracticalsupportattheworkplaceortraininglocation.Thementormaybeaco-trainee/co-participantoraco-workerwhoonanhourlybasisprovidesthesupportneededfortheparticipant/employeetosucceedinaccomplishingthetasksentailedbythejoborthetraineeship.
Asof1January2012,anewsetofregulationswillbeputinplaceforthementoringscheme,whichwillcomprisepersonswithimpairedworkingcapacityparticipatingindifferentformsoftrainingandlabourmarketprogrammesinordinarybusinesses,andalsopersonsprogressingtoordinaryemploymentstatus.
Thementoringschemehasaspectsincommonwiththepeerlearningprogrammesrunbyorganisationsforpeoplewithdisabilities.SuchorganisationsreceiveGovernmentsubsidiesforpeerlearningprogrammeslinkedtoemployment-orientedinitiatives.Thissubsidyisintendedtoencouragetheorganisationstorunpeerlearningprogrammesforpeoplewithdisabilitieswhoareparticipatinginemployment-orientedinitiatives,areleavingemploymentorwhomayrequirejobcounsellingandmotivationinordertoremaininemployment.Anevaluationofthesubsidyfororganisationsforpeoplewithdisabilitiesisinprogress.
2e User-controlledpersonal assistance
User-controlledpersonalassistanceisaserviceprovisionmadeupofthemunicipalcareservicesofpracticalassistanceandtraining.
Thisformofassistanceisintendedforpersonswithextensivedisabilities.Basically,theschemeisanarrangementwherebytheuseristhe“supervisor”ofassistantsretainedonaregularbasis,anddecides,withinthenumber
36 Jobs Strategy for People with Disabilities
ofhoursallocated,whattaskstheassistantsaretoperformandwhen.Thelastdecadehasseensteadygrowthinthenumberofusersreceivinguser-controlledpersonalassistance,fromalmost700in2000tomorethan2,600in2010.Nearlythreeinfiveoftheusersofthisformofassistanceareundertheageof50.
Infuture,theGovernmentwillbepermittingthemunicipalauthoritiestoextendtheuser-controlledpersonalassistancescheme.Thiswillbeespeciallyimportantinenablingpeoplewithextensiveservicerequirementstoparticipateineducation/trainingandworkinglife.Forfurtherdetails,pleaserefertotheMinistryofHealthandCareServices’budgetbill.
2f Strengthentheschemefor functionalassistanceatwork
In2012,theGovernmentwillbestrengtheningtheschemeforfunctionalassistanceatwork.Thisschemecomprisespersonswithextensivephysicaldisabilities,andinvolvesapaidassistanthelpingtherecipientwithpracticaltasksattheirplaceofwork.
TheGovernment’sadvisorypanelshaveindicatedtheneedforessentialworkplacefacilitationandsupervision.TheGovernmentwillconsequentlybeextendingthepilotschemeoffunctionalassistanceatworkandregulatingthepilotinaseparatesetofregulations.
Econhasevaluatedthisscheme.12Theevaluationindicatesthatthefunctionalassistanceatworkschemehelpspersonswithseveredisabilitiestogainandretainemployment.Usersoftheschemereportsatisfactionwiththescheme,statingthatitmeantagreatdealtotheirabilitytowork.
2g Improveopportunitiesfor peoplewithdisabilitiestostart theirownbusiness
IntheministerialletterofinstructiontoInnovationNorway,theGovernment’smaininstrumentforinnovationanddevelopmentofNorwegianenterprisesandindustry,thevalue-creationpotentialofentrepreneurswithdisabilitieswillreceivespecificmention.Itisimportantthatapplicationsfrompeoplewithdisabilitiesareconsideredonanequalbasiswiththosefromotherapplicants.
2h Pilotofoccupationaland educationaltravel
Facilitatedtransportmaybeofgreatsignificanceinenablingpeoplewithdisabilitiestogainorretainemployment.Thepilotschemeofoccupationalandeducationaltravelisasupportprogrammeforpeoplewithdisabilitieswhoareunabletomakeuseofpublictransportoraprivatevehicle.Thisschemeisintendedtocoverneeds-assessedtravelexpensesinordertoattendworkoreducation.
Anevaluationofthepilotschemeforoccupationalandeducationaltravelhasbeenlaunchedinordertomapthesocioeconomicconsequencesofthescheme,andthenatureoftheneedscoveredbytheschemevis-à-visotherestablishedtransportationschemes.Theevaluationreportisduein2012.Basedonthis,theMinistrywillbedecidingonfurtheralignmentofthescheme.Thepresentpilotschemewillbecontinuedin2012.
12ECON:Medlittbistandkanflerejobbe.Evalueringavordningenmedfunksjonsassistanseiarbeid.Rapport2008-039Econ:Medlittbistandkanflerejobbe.Evalueringavordningenmedfunksjons-assistanseiarbeid.Rapport2008-039(“Withabitofhelpmorepeoplecanwork.Evaluationofthefunctionalassistanceatworkscheme.Report2008”)
Jobs Strategy for People with Disabilities 37
Evenwitheffectivefacilitationandclosesupervisionoftheindividualandtheenterprise,manyprospectiveemployersbelievethatpeoplewithdisabilitieswillhavelesscapacityforworkandlowerproductivitythanotheremployees.Theorganisationsmaythereforefeelthattheyarerunningafinancialriskiftheyhavetobearthefullsalarycostsofrecruitingpeoplewithunstableorpermanentlyimpairedcapacityforwork.
Forboththeemployerandjob-seeker,workperformanceandproductivitywillbeanunknownfactoruntilthecandidate’scapacityforworkhasbeenputtothetestinanactualworksetting.Fortheenterprise,incorrectassessmentofthecandidate’scapacityforworkwillconstituteariskintermsofunforeseeablecosts,whilethecandidatehimself/herselfriskspublicfailure.Bothenterprisesandjob-seekersthemselvesconsequentlyneedlabourmarketschemesthatcanreducethismutualriskoruncertainty.
Onewayofreducingthisbarrierisbyusingvariouspublic-sectorwagesubsidiesorensuringthatpersonswithaweakeducationalbackgroundreceivethenecessarytrainingandvocationalexperience.
3a Coveraproportionofemployer salaryexpenses
Useofexistingwagesubsidyschemeswillservetocoverpartofemployers’salaryexpenditureonpeoplewithdisabilities.Subsidisedlabourmarketprogrammesinordinarycompaniescanbecombinedwithdifferenttypesofsupervisionandfacilitationwhennecessaryandappropriate.
Withinthefundingallocationforlabourmarketinitiativesfor2012,peoplewithdisabilitiesundertheageof30withaneedforemployment-
orientedassistancewillbegivenprioritywhenplacesonlabourmarketprogrammesareawarded.Thiswillentailanintensifiedandmoretargetedeffortasawholeforthisagegroup.Theexistingwagesubsidyschemeswillbeacorecomponentoftheemployment-orientedservicetothetargetgroup.
3b Initiativesineducationand training
TheGovernmentemphasisestheimportanceofhavingstrategiesandinitiativesinplaceforkindergartens,secondaryschooleducationandhighereducation.Initiativesandstrategiestoimprovelearningandeducationaimtoreachallgroupsofchildren,pupils,apprentices/traineesandstudents.Sound,mainstreamschemesareimportantingivingpeoplewithdisabilitiesgoodprospectsforcompletingtrainingandeducation.Specialschemesandinterventionssupplementmainstreamschemesasandwherenecessarytoprovidedifferentgroupsofpupils,apprentices/traineesandstudentswithequalopportunitiesforcompletingtrainingandeducation.
Thewhitepaper,Reportno.18totheStorting(2010-2011)Learning together,setsouttheGovernment’sstrategyforearlyinterventionsandsoundlearningsettingsforchildren,youngpeopleandadultswithspecialneeds.Thereportemphasisestheimportanceofkindergartensandschoolsimprovingtheircapacitytoidentifyandfollowuponthosewhorequirehelpandsupport.Ifkindergartensandschoolsaretosucceedincateringtoadiversityofchildren’sandyoungpeople’sneedsandabilities,morespecialisedandtargetedcompetencewillberequired.
3. Initiativestoreducetheproductivitybarrier
38 Jobs Strategy for People with Disabilities
Thequalityofspecialneedseducationalassistanceandspecialneedsteachingmustbeimproved.Kindergartensandschoolsaretohavegoodaccesstointegrativespecialneedseducationalsupportnationwide,amongotherthings,bygivingtheNationalSupportSystemforSpecialNeedsEducation(Statped)amoremultidisciplinaryserviceprofile.Improvedinformationandcooperationforusersofthelocal,regionalandnationalservicesystemisapriorityarea.Cooperationwithparentsofchildrenwhoneedspecialhelpandassistancemustalsobeimprovedthroughinformationandcoordination.
Inresponsetothewhitepaper,Reportno.18totheStorting(2010-2011) Learning together,theMinistryofEducationandResearchwillberequestingitsDirectorateofEducationandTrainingtopreparetargetfiguresandimplementinitiativestorecruitmorepeoplewithdisabilitiestopositionswithintheNationalSupportSystemforSpecialNeedsEducation(Statped).
FortheGovernment,enablingmoreyoungpeopletocompleteuppersecondaryeducationisaprimeobjective.NYGIVisathree-yearprojectthataimstoestablishlong-termcooperationbetweencentral,regionalandlocalgovernmentauthoritiestoimprovetheprospectsofpupilsforsuccessfullycompletinguppersecondaryeducation.Theseeffortswillalsobenefitpupilswithdisabilities.
UndertheUniversitiesandCollegesAct,Norwegianhighereducationinstitutionsaregivenresponsibilityfortheirstudents’learningenvironment.Thisappliesequallytostudentswithdisabilities.UnderSection4-3oftheAct,theinstitutionsshallensurethatthelearningenvironmentisdesignedaccordingtotheprincipleofuniversaldesign.Thismeansthatitmustbelaidoutandequippedinsuchawaythat
allstudents,irrespectiveoftheirfunctionalability,areabletocompletehighereducationwithminimaluseofspecialneedssolutions.Theinstitutionsshallassignliaisonofficerstostudentswithdisabilities.Thisserviceshallprovideinformationaboutstudycentreandstudyfacilitation.Inaddition,atanumberofinstitutions,careerscentreshavebeenestablishedtoprovideadviceandcounsellingtostudentsprogressingtoemployment.Thisisaprovisionfromwhichstudentswithdisabilitiesalsostandtobenefit.
Inorderforpeoplewithdisabilitiestobeabletoparticipateinandcompletehighereducation,insomeareasitisimportantforthesurroundingstobespeciallyadaptedforthisgroup.Specialschemesinstudiesfinancinghavelongbeenavailableforstudentswithdisabilities.Inrecentyears,theGovernmenthasimprovedstudies-financingforpeoplewithdisabilities.In2009-2010,thedefinitionofeligibilityforthespecialschemeswasamended,andasof2011-2012,additionalinitiativeshavebeenintroducedtoenablemorepeoplewithdisabilitiestopursuehighereducation.
Studentswhoareunabletotakeonpaidemploymentalongsidetheirstudiesorduringthesummerholidaysareeligibleforamonthlyscholarshipandaneducationalgranttocoverthesummermonthsaswellastermtime.Studentswhoseeducationisdelayedbecauseconditionsattheirplaceofeducationhavenotbeenadaptedtothestudent’sdisabilityareentitledtoreceivetheentirestudentgrantasascholarshipiftheirstudiesaredelayedbymorethanayear.
Jobs Strategy for People with Disabilities 39
Peoplewithdisabilitiesoftentendtobeoverlookedasasourceoflabour.Negativeattitudesandalackofinformationmayconstituteabarriertojob-seekerswithdisabilities.Thesebarriersexistamongthepopulationasawhole,amongemployers,co-workersetc.Butamongpeoplewithdisabilitiesthemselves,theremayalsobeattitudesandlackofinformationthatconstituteabarriertogainingemployment.
Eligibilityforemployment-orientedbenefitsisconditionalonthepersonbeingregisteredwiththeLabourandWelfareService.ItisthereforeimportantfortheindividualtoactuallymakecontactwiththeService.
Theinformationandattitudinalbarriercanbereduced,forexample,byestablishingnewsettingsfortryingoutcapacityforwork,foron-the-jobtrainingandworkparticipationforpeoplewithnopreviousworkexperience.Thebarriercanalsobereducedthroughlabourmarketinitiativesthatpromoteproactiveopinion-formingandawareness-raisingamongdifferentstakeholdersandgroupsinsociety.
4a Increasethenumberofplaces onwork-experience programmes
AspartoftheJobsStrategy,specialprioritywillbegiventoprovidingplacesonwork-experienceprogrammesinordinaryworkinglife.Theobjectistogiveyoungpeoplewithdisabilitieswhohavenopreviousexperienceofworkinganopportunitytotryoutanordinaryjob,ifonlyforashortperiod.Thegovernmentproposesthat500placesbeallocatedspecificallyforthestrategy’stargetgroup.Thesewillincludeplacesonwork-experienceprogrammes.
4b Partneringwithlocal authorities
Work-experienceplacesofferbothenterprisesandpeoplewithdisabilitiesusefulexperience.Localauthoritiesaremajoremployerswithmanytasksandopportunities,andevennowhaveahigherproportionofpeoplewithdisabilitiesamongtheirstaffthantheprivatesectororgovernmentalsector.AjointprojecthasbeeninitiatedwiththeNorwegianAssociationofLocalandRegionalAuthoritiesonfurthercontributionsbythemunicipalsector.Anassessmentwillbemadeofwhetherthiscanberealisedwithintheframeworksofthelabourmarketprogrammefor‘workexperienceinanordinaryenterprise’.Theobjectistogivejob-seekerswithdisabilitiesessentialworkexperienceandtraining.
4c Traineeprogrammeswithin governmentalenterprises
In2011,theGovernmentlaunchedthethirdtraineeprogrammeforpeoplewithdisabilitiesandhighereducation.Theobjectoftheprogrammeshasbeentorecruitqualifiedemployeestogovernmentalenterprisesandtoofferintensivetraininginordertoimprovetheiremploymentprospects.Anotherobjecthasbeentoincreasethecompetenceandexperienceofstateemployersasregardsrecruitmentandfacilitationforthisgroup.
Oneimportantoutcomeoftheprogrammeshasbeenthesuccessinraisingawarenessthatmanypeoplewithdisabilitiesconstituteavaluableresourceinenterprisesthatmakehighdemandsregardingprofessionalism,paceandquality.Inmanyenterprisestherewasformerlylimitedexperiencewiththisgroup,andmanymanagershavebenefitedfromgainingmoreexperienceof
4. Initiativestoreducetheinformationandattitudinalbarrier
40 Jobs Strategy for People with Disabilities
thenecessaryworkplacefacilitation.Manymanagersfounditaneyeopenerthatdisabilitiessoonfadedintothebackgroundwheretherewasagoodmatchbetweenqualificationrequirementsandtraineecompetencies.
ExperiencesofthetraineeprogrammeshavebeenevaluatedinresearchreportsbytheFaforesearchfoundationandtheWorkResearchInstitute,andwillhopefullyserveasanencouragementtoenterprisesinothersectors.
TheGovernmentisproposingthatthetraineeprogrammebeestablishedasapermanentscheme,andthatanewprogrammeofcallstoinviteenterpriseparticipationbelaunchedin2012.
4d Placesonwork-experience programmeswithin governmentalenterprises
Inlinewiththepanels’recommendations,theMinistryofGovernmentAdministration,ReformandChurchAffairswillbeassessingthepossibilityofinvolvinggovernmentalenterprisesmoreactivelyincreatingplacesforon-the-jobtrainingandtraineeships.
4e Dedicatedprojectmanageror coordinatorpositionswithin theLabourandWelfareService
Effectiveimplementationandfollow-upoftheJobsStrategywillbeessentialinincreasingthetransitiontoemploymentamongpeoplewithdisabilities.Extensiveclarificationwillbecarriedoutbymeansofworkingcapacityassessments,andanappropriateemployment-orientedassistanceschemewillbedesignedforpersonswhooftenhavelittleornoworkexperience.This
drivewillrequirededicatedstaffresourcesanddevelopmentoftargetedexpertisewithintheLabourandWelfareService.TheGovernmentthereforeproposesappointingdedicatedprojectmanagersorcoordinatorsineachcountyandwithintheDirectorateofLabourandWelfareServicelinkedtotheJobsStrategy.
TheLabourandWelfareService’ssystematicinvestmentinmethodologydevelopmentandcompetencedevelopmentiskeytoenhancingtheService’scapability.Inordertodirectandcoordinatethiswork,staffresourceswillberequiredforsupervisionandfollow-up.Additionalstaffingwillpermitconsolidation,anchoringandfollow-upoftheJobsStrategyduringtheimplementationandexecutionphases.
AschemeinvolvingcountycoordinatorslinkedtotheNationalStrategicPlanforWorkandMentalHealthhasbeenevaluatedbytheTelemarksforskningresearchinstitute.Outcomeswerereportedaspositive.Oneofthemainconclusionsisthatthecountycoordinators’roleaschangeagentsisdecisiveintheinterestsofdisseminatinginformationaboutnewinitiativeswithintheLabourandWelfareService.13
4f Newpositionswithinthe LabourandWelfareServiceas workplacesupportcoaches
Alackofknow-howandexperienceinretainingemployeeswithdisabilitiesmaycausemanyemployerstoregarditasriskytohireyoungpeoplewithdisabilities.AtrialprojectofemployerpilotsundertheNationalStrategicPlanforWorkandMentalHealth(2007-2012)hasbeenevaluatedbytheWorkResearchInstitute.Experiencesofthistrialprojectindicatethatemployershavereceivedexcellentassistancefromthepilotsandhavebeenextremelypleasedwith
13 GeirMøller,BentAslakBrandtzæg&JoarSannes:“EvalueringavfylkesvisekoordinatorstillingeriNAVogbrukavøremerkedetiltaksmidler”.Telemarksforskning.Rapport238.2007.(EvaluationofcountycoordinatorpositionswithinNAVandtheuseofearmarkedschemefunding.)
Jobs Strategy for People with Disabilities 41
theexpertsupportprovidedindemandingindividualcasesandatsystemlevel.Theemployerpilotschemerepresentsatypeofexpertisethatisinhighdemandbecauseitisrarelyavailableattheworkplace14
4g In-houseprofessional competencedevelopment programmewithintheLabour andWelfareService
TheGovernmentisproposingtocreateadedicatedspecialistandcompetencedevelopmentprogrammetotieinwiththeJobsStrategy.Theobjectistwo-fold:
(1)Toprovidecoursesandothertrainingforemployersandotherstakeholdersonthelabourmarket.ThismodelhasbeenusedpreviouslyundertheNationalStrategicPlanforWorkandMentalHealth(2007-2012)fortheWorkplaceSupportCentres(acoursecalled”Sees i morgen”(Seeyoutomorrow)).Experiencesfromthisprogrammehavebeenpositive.
(2)TolaunchadedicatedcompetencedevelopmentprogrammeforstaffwithintheLabourandWelfareService,whichtheServicewillberesponsiblefordevelopinginclosecooperationwithorganisationsrepresentingpeoplewithdisabilitiesandthesocialpartners.Theprojectmanager/coordinatorpositionswillalsobeinvolvedinthisactivity.
4h InformationabouttheJobs Strategy
InordertorealisetheobjectivesoftheGovernment’sJobsStrategyforpeoplewithdisabilities,itisimportanttodisseminateinformationaboutthestrategy’sgoalsandinstruments.Specialfundshaveconsequentlybeenearmarkedforthispurpose.DisseminationofinformationcanbecarriedoutthroughinformationchannelswithintheLabourandWelfareService,viathesocialpartnersororganisationsrepresentingpeoplewithdisabilities.
Disseminationofinformationisakeymeansofreachingbothpeoplewithdisabilitieswhoarelookingforworkandemployerslookingtohireorofferplacesonlabourmarketprogrammestoyoungpeoplewithdisabilities.Itisalsoimportanttokeepuserorganisationsandotheraffectedstakeholdersinformedofworkonthestrategy.
4i Actionareaswithin governmentalemployerpolicy
Withitsresponsibilityforoverallemployerpolicywithinthestate,theMinistryofGovernmentAdministration,ReformandChurchAffairsisespeciallycommittedtosupportingenterprisesintheireffortstoattainitssector-specificobjectives.Tothatend,theMinistryofAdministration,ReformandChurchAffairsiscommittedtopromotinggreaterawarenessthatdiversityinhumanresourcespolicyisconducivetogoal-attainmentwithincoretasks.
14AngelikaSchafft&ØysteinSpjelkavik:“Arbeidsgiverlos-evalueringavpilotprosjekt”.Underveisrap-port.AFInotatnr.6.2010(employerpilots-mid-termevaluationreportonthepilotproject.WorkResearchInstitutereportno.62010)
42 Jobs Strategy for People with Disabilities
4j Follow-upandevaluationofthe JobsStrategy
Systematicfollow-upofthestrategyisessentialinmonitoringthatthestrategyisbeingexecutedasintendedandtheextenttowhichitcontributestoincreasedemploymentofthetargetgroup.Follow-upwillbetwo-pronged:theDirectorateofLabourandWelfarewillbereportingonresultsachievedandanexternalevaluationwillbelaunchedofstrategyexecutionandimpacts.
TheMinistryofChildren,EqualityandSocialInclusionhastakentheinitiativeforconductingasocioeconomicanalysisofthecostsandbenefitsofincreasingtheemploymentrateamongpeoplewithdisabilities.
4k Jointjoblistings
TheMinistryofChildren,EqualityandSocialInclusionhasjoinedforceswithanorganisationthatrepresentsyoungpeoplewithdisabilitiesinwhichalljoblistingsfromtheMinistrywillbepublishedontheorganisation’swebsite;www.jobbressurs.no.Theaimisforthejoblistingstoreachasmanyofthewebsite’sreadersaspossibleandtherebyhelptoprocureabroaderrecruitmentpoolfortheMinistry.
Jobs Strategy for People with Disabilities 43
Disabilityandimpairedworkingcapacity
Appendix 2
A disability or functional impairment denotesanindividual’sphysical,mentalorcognitiveabilitiesandfunctioning.Physicalfunctionspertaintomobility,sightorhearingfunction,orchronicconditionssuchasallergy,cardiovasculardisease,pulmonarydiseaseetc.Mentalfunctionscomprisetheabilitytocontrolthoughts,emotionsandbehaviourandtheabilitytoadapttochangesandcopewithadversity.Examplesofcognitivefunctionsincludecapacityformentalprocessessuchaslanguage,recall,problem-solving,andtheacquisitionofskillsandexperience.
Traditionally,adisabilityorfunctionalimpairmentwasregardedasanattributeoftheindividual.Itwasformerlycloselyboundupwithamedicalperspective,inwhichdisabilitywasregardedasaconsequenceofdisease,damageorinjury.Withinthelast20years,thebiomedicalperspectivehasbeenchallengedbytheprinciplethatthisperspectivefailstotakesufficientaccountofthesocietythatsurroundstheindividual.
Thedefinitionwenowapplytodisabilityorfunctionalimpairmentisrelational.Itisinformedbytherelationshipbetweentheindividual’sfunctionalabilityandtherequirementsmadebyboththephysicalandthesocialsurroundingsoftheindividualindifferentlifephases.Adisabilityorfunctionalimpairmentariseswhenagapormismatchexistsbetweentheindividual’sabilitiesandtherequirementsmadebytheenvironmentorsocietyregardingfunctionalabilityinareasthataresignificantinestablishingandmaintainingindependenceandasocialexistence.Adisabilityorfunctionalimpairmentneednotthereforeimplylimitationsonsocietalparticipation,sincethiswillbedeterminedbythedegreeoffacilita-tionanduniversaldesignpresentinsocietyandworkinglife.
People with impaired working capacity and people with disabilities
Norwegianwelfarelegislation,publicdocumentsandsurveysvariablyusetheexpressionspersonswith impaired working capacity and people with disabilities.Unlikepeoplewhomthepublic-sectorassistancesystem,throughvarioussurveys,concludeashavingimpairedworkingcapacity,peoplewith disabilitiestendasagrouptobeassociatedwithpersonalperceptionsofdisabilityandarehencedefinedbysubjectiveopinion.Inpractice,thisgrouptendstooverlapwiththegroupofpeoplewithimpairedworkingcapacity,butapersonmaywellhaveadisabilitywithoutthisaffectinghisorherworkingcapacitytoanysignificantextent.
Statistics Norway’s Labour Market Survey
Personsincludedashavingadisability(theoriginalNorwegianterminthesurveymeans‘functionalimpairment’)intheStatisticsNorwayLabourForceSurveyincludethosewhoperceivethemselvesashavingadisability,basedonthefollowingquestion:“Adisabilityistakentomeanphysicalormentalhealthproblemsofanendur-ingnaturethatmaycauselimitationsindailylife.Examplesmightincludeseveresightimpairmentorhearing,readingorwritingproblems,mobilityimpairment,heartorlungproblems,apsychologi-caldevelopmentaldisorder,amentaldisorderorotherproblemsorconditions.Inyouropinion,doyouhaveadisability?”
Assuch,StatisticsNorway’ssurveyisbasedontherespondents’subjectiveopinion.Thesurveyalsoaskswhattypeofdisability/impairmentorhealthproblemtherespondenthas.
Jobs Strategy for People with Disabilities 45
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