Linda Hofstad Helleland

Regjeringens strategi for likestilling av mennesker med funksjonsnedsettelse

Prosessen rundt utarbeidelsen av regjeringens strategi for likestilling av mennesker med funksjonsnedsettelse var positiv. Strategidokumentet er informativt og innholdsrikt. Regjeringen er utvilsomt velmenende, men strategien mangler i strategidokumentet.

En god prosess

Barne- og likestilligsdepartementet og de andre involverte departementene skal ha ros for prosessen som førte frem til strategien. Den var uvanlig åpen og inkluderende overfor paraplyorganisasjonene FFO, Unge Funksjonshemmede og SAFO. Alle er tjent med slike prosesser, de gir tillit, forståelse, konstruktiv kritikk og konstruktive innspill.

Strategien er langt mer omfattende enn de 40 sidene som er på trykk. Strategien er undertegnet av ni statsråder. Det er en krevende oppgave for en statsråd å styre eget departement. Det å samordne mange departement er ubeskrivelig krevende. Denne samordningsproblematikken er det skrevet og gjort for lite med.

Byråkratisk språkdrakt

"Riksrevisjonens undersøkelse av vergemålsreformens iverksettelse,viste imidlertid at reformens potensial for forbedring av rettsikkerheten ikke var blitt godt nok utnyttet", kan en lese i strategidokumentet. Utsagnet blir en smule svakt i lys av Riksrevisjonens funn, Justisdepartementets nye lovtolkninger, Tolga-saken og VGs avsløringer på vergemålsfeltet. Selv justisministeren er klarere i ordbruken.

Det kan sikkert kildebellegges når strategidokumentet hevdet at "Rundt 40 prosent av elever med vedtak om spesialundervisning får denne opplæringen i klassefellesskapet, og det har vært en bedring år for år". "GSI: Rekordmange elever på spesialskole", var overskriften i Utdanningsnytt den 13.12.2018.

Virkelighetsbeskrivelsene er ført i pennen med tanke på å ikke ramme regjeringen. Departementet er regjeringens sekretæriat, så i en viss grad er dette akseptabelt og forståelig. Når en går for langt i denne retningen, så "virkelighetsbeskrivelsen" beskrive noe annet enn virkeligheten. Norge er et bra land å bo i for de fleste, men mange har mer enn nok å slite med. Det er mer forståelig når spaden kalles for en spade og ikke et manuelt redskap for forflytting av porøs masse.

Strategiens innhold

Strategidokumentet inneholder 5 kapittel. Kapitlene 1 og 2 er begge en slags innledning. Kapittel 1 sier at en skal jobbe for selvbestemmelse, medvirkning, deltakelse og inkludering. En skal sikre en god koordinering mellom forvaltningssektorene. Utdanning, arbeid, helse og omsorg, kultur og fritid etableres som spesielle innsatsområder. I kapittel 2 presenteres regjeringens visjoner som kort kan oppsummeres med tittelen på strategidokumentet, – Et samfunn for alle.

Kapittel 3 bør være nyttig lesing for alle. Her gjennomgås de viktigste regelverkene med relevans for mennesker med nedsatt funksjonsevne. Kapittelet er god voksenopplæring for tillitsvalgte i organisasjonene, politikere og forvaltere. For enhver som vil gjøre noe på feltet, så er kapittel 3 minimumspensum.

Kapittel 4 er en utdypning av forholdene som ble trukket frem i kapittel 1. Utdypningen er nødvendigvis relativt generell og lite forpliktene. Språkbruker er av typen: Regjeringen vil bidra til ..., tydeliggjøre ..., videreføre ..., legge tilrette for ... osv. Slik må det nødvendigvis bli all den tid planen skal gjelde til 2030 og ingen av sakene som skal inngå i strategien foreløpig er utarbeidet.

Kapittel 5 kalles avslutning, men er ingen oppsummering. Kapittelet forteller hvordan informasjon om likestillingsproblematikken skal spres på tvers av sektorer og forvaltningsnivå, samles inn og litt om hvordan myndighetene skal kunne følge utviklingen i livsvilkårene til mennesker med nedsatt funksjonsnivå skal overvåkes.

Strategidokumentet har en klar struktur. I kapittel 1 etableres de bærende elementene. Kapittel 4 bretter dem ut og i kapittel 5 samles trådene med litt mer kjøtt på beina enn i kapittel 1.

Innen rammen av strategien, skal det utarbeides handlingsplaner, dvs. enkeltsaker. En av de første handlingsplanene blir trolig rettighetene til mennesker med utviklingshemming. Stortingsflertallet ba regjeringen om å videreføre Rettighetsutvalgets arbeid i form av en stortingsmelding.

Hvor er strategien?

En strategi er en handlingsregel. Skal likestillingen av mennesker med nedsatt funksjonsevne styrkes, så kreves politiske tiltak og oppfølging av politiske vedtak. Strategien sier lite om hvordan dette skal gjøres. En finner fragmenter av en strategi, for det meste det å sikre bedre informasjon mellom forvaltningssektorer, organ og nivå. Betydningen av brukermedvirkning trekkes frem. Det skal bli bedre koordinering mellom departementer, mellom departement og direktorat. I tillegg skal det etableres en embetsgruppe på tvers av aktuelle departementer. Gruppen skal bidra til at departementene jobber på en samordnet måte. Ut over bidragene fra embetsgruppen, sier strategien lite om hvordan denne koordineringen skal skje.

En bør stille spørsmål med om en trenger et dokument som forteller at statlig virksomhet skal koordineres og gis nødvendig informasjon. Dette er prinsipper som har vært velkjente siden de første huleboeres tid. Koordinering og informasjonsdeling er grunnleggende for enhver forfaltning, et hvert samfunn og alle sosiale relasjoner. Koordinering er ikke spesifikt for likestilling av mennesker med funksjonsnedsettelse.

Brukermedvirkning er heller ikke noe nytt. Vi trenger ikke en strategiplan for å fastslå brukermedvirkning som prinsipp. Det prinsippet er allerede godt forankret i FN-konvensjonen om rettighetene til mennesker med nedsatt funksjonsevne, artikkel 4. Brukermedvirkning er det feltet hvor organisasjonene svir av mesteparten av kruttet sitt.

Embetsgruppen er et konkret og nytt tiltak som kan lette arbeidet med å koordinere departementene i likestillingspolitikken. Men tiltaket er langt fra tilstrekkelig.

Vi vet mye om hva som skal til for å sikre likestilling av mennesker med nedsatt funksjonsevne. For mennesker med utviklingshemming vet vi at:

  • Siden Helsetilsynet begynte med nasjonale tilsyn, er det avdekket ulovligheter. Årsaken ligger i manglende økonomisk prioritering i kommunene.
  • Andelen personer med utviklingshemming uten jobb er større enn i 1990, da regjering og storting var enige om å bygge opp tilbudet. Vi vet at tilbudet ikke er bygget opp fordi arbeids- og sosialdepartementet ikke har prioritert feltet høyt nok.
  • Antallet elever i spesialskoler er høyere i dag enn i 1992 da de statlige spesialskolene ble nedlagt. Vi vet at det kommer av manglende styring på feltet.
  • Kommunene bygger store bofellesskap og at staten både finansierer og subsidierer institusjonsbyggingen. Manglende myndighet og for slakke retningslinjer hos Husbanken er årsaken.
  • Voksne med utviklingshemming verken kommer seg til kirken, til trening eller på andre aktiviteter på fritiden fordi de ikke får tilstrekkelig med individuelle tjenester. Situasjonen er forårsaket av kommunenes iver etter å redusere kostnadene.
  • Mennesker med utviklingshemming har fått en kraftig forverret økonomi de senere årene fordi trygdeoppgjørene har vært dårlig, bostøtten har forsvunnet, flere må betale egenandeler for omsorgstjenestene og husleien har eksplodert. Stortingets bevilgninger og trygdeforhandlingene er en del av årsaken. En annen del er kommunenes fokus på å sikre seg inntekter.
  • Personer med utviklingshemming ikke får velge hvor og med hvem de vil bo. Mange kommuner sorterer dem etter bistandsbehov. Begrunnelsen er alltid effektiv drift av de nye institusjonene. Forholdet er et resultat av grunnleggende mangler i boligpolitikken. Mennesker med utviklingshemming inngår heller ikke i den ordinære boligpolitikken overfor vanskeligstilte, men defineres inn i helse- og omsorgspolitikken.

Vi vet også at informasjon og brukermedvirkning har vært brukt i mange år, uten at likestillingsproblemet er blitt redusert de siste 15-20 årene.

Embetsgruppen er et nytt og positivt tiltak, men vi vet at hvis likestillingen skal økes, så må likestillingen gis en solid politisk forankring. Ut over de ni statsrådenes underskrift, så er det ikke noe i strategiplanen som sikrer den politiske forankringen.

Når staten styrer underliggende etater, så er etatenes rapportering til overordnet organ sentralt. Tilsvarende ordning bør en få på plass innen rammen av strategien. Status og utvikling må jevnlig rapporteres til stortinget. Hvis ikke vil politikken overfor mennesker med nedsatt funksjonsevne forbli i skyggenes dal og selv klare signaler og vedtak fra stortinget vil fortsette å fordufte mellom departementer som alle i utgangspunktet har for mye å gjøre, for få ansatte og for lite penger.

Fortsatt håp

Selv om strategien ikke forteller hvordan en skal sikre en likestillingspolitikk som er godt forankret i regjeringen, inngår i budsjettprosessene og drives gjennom i departementene, så er det fortsatt håp. Forslagene i strategien er ikke skadelige, kun utilstrekkelige. Innen rammen av strategien skal det lages handlingsplaner, i dem vil det bli nye anledninger for å etablere strategier som gjør det mulig å komme ut av skyggenenes dal.

Jens Petter Gitlesen

 

 

21 desember 2018

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