Visual description: A purple Whaikaha logo with a QR scan for the NZSL name.
Briefing
Date:
19 June 2025
For:
Hon Louise Upston, Minister for Disability Issues
File reference:
REP/WHK/25/6/044
Security level:
In confidence
Updating the Vision and Principles in the
New Zealand Disability Strategy
Purpose
To provide advice on potential visions and principles for the refreshed Disability
Strategy.
Executive summary
The 2016 – 2026 New Zealand Disability Strategy includes a vision, principles, and
approaches to underpin the implementation of the strategy. These are attached as
Appendix 1 for ease of reference.
As part of the refresh process, the Ministry of Disabled People – Whaikaha (the
Ministry) has been working with the disability community over the past two months to
update these elements of the strategy.
While we’ve attended these discussions, we contracted external advisors to gather
and analyse the feedback to ensure that the updating process had a degree of
independence from the Ministry. It is particularly important that these elements of the
strategy are owned by the disability community.
The external advisors – Te Amokura Consultants Ltd – have supported and
summarised 11 engagements with disabled community groups – some pan-disability
groups, and some tāngata whaikaha Māori groups. They have drawn on these
discussions to recommend options for the vision statement and principles for the
refreshed strategy.
Disabled people thriving in New Zealand
IN-CONFIDENCE
Vision statement
Two options for the vision have been presented. The key difference between these
relates to human rights. In the first option, the realisation of disabled people’s rights
is implied but not explicit:
Vision Statement Option One:
“Aotearoa New Zealand is an accessible and equitable society for disabled people
and their whānau – a place where disabled people thrive, lead, and participate in
all aspects of life.”
In option two, the need for the rights of disabled people and whānau to be upheld is
explicitly referenced:
Vision Statement Option Two:
"Aotearoa New Zealand is an accessible and equitable society where the rights of
disabled people and their whānau are upheld – a place where they thrive, lead,
and participate in all aspects of life."
We recommend that both options are put forward for feedback as part of consultation
on the draft strategy.
Principles
The independent advisors have drawn on the feedback to recommend eight updated
principles to underpin the strategy, focused on the following areas:
Te Tiriti o Waitangi
This principle recognises the mana and status of Te Tiriti o
Waitangi.
Human Rights
This principle firmly anchors the Strategy in international
human rights frameworks.
Participation and
This principle recognises that disabled people have the right
Inclusion
to be active members of their communities and cultures in
all aspects of life.
Accessibility
Accessibility is fundamental to participation and inclusion.
Equity and Cultural
This principle merges concepts of equity, non-
Inclusion
discrimination, and cultural inclusion.
Intersectionality
This principle recognizes that many disabled individuals
have multiple identities that can exacerbate discrimination
or lead to distinct experiences.
Respect and Dignity
This principle confronts the negative attitudes, stereotypes,
and discrimination that many disabled people encounter.
Choice and Control
This principle recognises that decisions about disabled
people's lives have often been made by others.
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We recommend that these are presented as options to choose from, to develop a
shorter list of principles to guide those who are implementing the strategy.
Approaches
There was no clear consensus from the engagements on preferred approaches to
implement the strategy, although the discussions did provide some critique of the
existing approaches, and suggestions for how the strategy could be implemented.
Rather than recommend specific approaches for the refreshed strategy, the advisors
have recommended that the Ministry carefully consider key themes from the
discussion in the development of the final strategy:
Following your feedback, we will include potential vision statements and principles in
the draft strategy we are developing for consultation. We are aiming for Ministerial
approval to consult on a draft strategy by the end of July.
Recommendations
It is recommended that you:
a)
Note the themes that were identified in engagements
Noted
to update the vision and principles for the disability
strategy.
b)
Provide any feedback on the draft vision and
Yes / No
principles set out in this report.
Hon Louise Upston
Minister for Disability Issues
Date
Ben O’Meara
Deputy Chief Executive, Policy and Insights
Date 19 June 2025
Actions for private secretaries:
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Updating the Vision and Principles in the New Zealand Disability Strategy
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Updating the Vision and Principles in the
New Zealand Disability Strategy
Background
1. The current NZ Disability Strategy contains a high-level vision, and a set of
principles and approaches that underpin the vision.
2. When you sought Cabinet’s agreement to the approach to the refresh of the
Strategy, you indicated that the Ministry would work with key groups within the
disability community including Disabled People’s Organisations to refresh the
current vision and principles. You also noted that this vision and principles will
set expectations to guide all work, both government and non-government, to
better meet the needs of disabled people, particularly relating to accessibility
(SOU-25-SUB-0017, para 26 refers).
3. We have been working with the disability community over the past two months
to update these elements of the strategy. This work has progressed alongside
the work of the priority outcome area working groups.
4. While the Ministry has attended all of these discussions, we contracted external
advisors to gather and analyse feedback from these discussions to ensure that
the updating process had a degree of independence from the Ministry. It is
particularly important that these elements of the strategy are owned by the
disability community.
Summary of themes from the engagements
5. The engagements revealed a variety of perspectives on where New Zealand
should focus its efforts during the 2026–2030 period. Some overarching key
themes from the engagements were:
•
An urgent call to action: There was a consensus among participants that
a solid disability strategy is essential, as long as it is accompanied by
concrete actions to bring it to life. Many participants continue to face
barriers in accessing their fundamental human rights right now; therefore,
they were particularly interested in what the government could do
immediately to help eliminate these accessibility barriers. This urgency does
not diminish the importance of future planning; rather, it serves as a critical
reminder of the immediate nature of this work.
•
Mistrust of government: Participants highlighted that there have always
been tensions between disabled individuals and government decisions.
However, this is especially contentious now due to recent changes in
disability funding and a what is perceived as a lack of attention to disability
issues in recent years. Navigating this mistrust will be an ongoing challenge
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for the Ministry, underscoring the importance of developing a strategy that
is directly informed by disabled communities.
•
Systemic challenges: Barriers faced by disabled individuals are multi-
layered and complex, stemming from deeply entrenched systemic issues.
The Ministry, along with the entire government, must consider how existing
systems—such as healthcare and education—have been designed in ways
that limit accessibility. By focusing on these systems, the government can
work toward long-term, sustainable solutions that ensure accessibility for all.
6. Our independent advisors, Te Amokura Consultants, supported and summarised
11 engagements with diverse groups within the disabled community. Six were
pan-disability groups, and five were tāngata whaikaha Māori groups.
Pan-Disability Groups
Tāngata Whaikaha Māori
• Parent/Family/Whānau Network
• Kāpō Māori Aotearoa
and Carers Alliance
• Te Rōpū Kaitiaki (Turi Māori)
• Whaikaha Strategic Advisory
• Te Rōpū Waiora
Group
• Te Ao Mārama o Aotearoa Trust
• National Enabling Good Lives
(TAMA)
Leadership Group
• Whānau Ora Interface Group
• I.Lead
• Disabled People’s Organisations
Coalition
• Faiva Ora
7. Structured workshops were held, capturing contributions through experienced
note-takers. The advisers then applied a methodology of coding, theme
extraction, quote selection and thematic grouping to identify key themes and
develop their advice.
Updating the Vision
8. The vision in the current Disability Strategy is:
New Zealand is a non-disabling society - a place where disabled people have an
equal opportunity to achieve their goals and aspirations, and all of New Zealand
works together to make this happen.
Theme One: Simple, clear language
9. The NZDS vision uses language that is not widely understood, particularly the
term “non-disabling.” It was acknowledged that this term comes from the social
model of disability; however, the term was not widely used. Some participants
rejected the term entirely, stating that their disability is an important part of
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their identity, while others felt the term created a division between disabled and
non-disabled people.
10. The phrasing of “goals and aspirations” was also problematic. It was not always
clear to participants what “goals and aspirations” referred to, and many felt this
wording was ‘fluffy’ or too vague.
Theme Two: Accessibility and inclusion
11. Participants suggested that the new vision include reference to accessibility.
Accessibility barriers were discussed in every engagement. People considered
that accessibility is a fundamental issue that impacts disabled people in a
multitude of ways and must therefore sit at the forefront of the strategy.
12. Inclusion was also discussed frequently throughout the engagements, usually
alongside accessibility as the two concepts go hand-in-hand (i.e. if something is
accessible to a disabled person, they are then able to be fully included).
Theme Three: Equality vs Equity
13. Most participants expressed that they would prefer that any reference to equality
be changed to equity or fairness, as an equity approach takes into account the
unique needs of disabled people.
14. Not only does an equity lens recognise that disabled people have unique needs
compared to non-disabled people, but also recognises that there are multiple and
different needs within the disabled community.
Theme Four: Tāngata whaikaha Māori
15. Tāngata whaikaha Māori did not see themselves reflected in the existing vision as
there is no reference to Māori, or to things which are fundamental for Māori like
whānau. Reflecting tāngata whaikaha Māori in the vision does not necessarily
mean the addition of phrases like ‘disabled people including Māori,’, but instead
reflecting, in some way, what is important to tāngata whaikaha Māori. This could
be through use of te reo Māori or recognition of the role of whānau and iwi in the
lives of tāngata whaikaha Māori.
16. As mentioned in the summary themes above, disabled people generally are
experiencing a mistrust in government; and this was especially relevant to
tāngata whaikaha Māori, who expressed their disappointment with government
decisions related to Māori in recent years.
Theme Five: Recognition of support networks
17. The existing vision speaks about disabled people, however participants expressed
they would like to see recognition of whānau, family, communities, and other
networks that support disabled people. These support networks are integral to
the lives of so many disabled people and therefore are deeply implicated in the
outcomes of the NZDS.
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Theme Six: Sustainability and future-thinking
18. Some participants noted their frustration of having to be consulted multiple times
on government documents and strategies and suggested that a more future-
focused vision that is sustainable might help mitigate the need for frequent
consultation.
19. Participants also raised the fact that, with a growing population, the number of
disabled people will grow, and the needs of disabled people are likely to become
more complex. The vision and strategy must consider how the government will
respond to changes in disability needs over time.
Options for a new Vision Statement
20. Based on the example vision statements received from participants, and the
themes in this report, our independent advisors have presented the following
options for a future vision statement.
21. They note that they have endeavoured to use language that captures as many
ideas as possible, but that can still be easily understood. For example, they
considered that the idea of inclusion is implicit in the words ‘accessibility’ and
‘equitable’, and therefore chose not to use the word “inclusion”, in order to avoid
using more words than necessary.
Vision Statement Option One:
“Aotearoa New Zealand is an accessible and equitable society for disabled
people and their whānau – a place where disabled people thrive, lead, and
participate in all aspects of life.”
22. This option is intentionally high-level but includes the key themes which arose
from the engagements.
Vision Statement Option Two:
"Aotearoa New Zealand is an accessible and equitable society where the rights
of disabled people and their whānau are upheld – a place where they thrive,
lead, and participate in all aspects of life."
23. This option specifically references the need to uphold the rights of disabled
people, which was a common theme in the engagements. While this idea is
implicit in the first option, this second option would more explicitly reference the
rights of disabled people.
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Updating the Principles
24. The principles in the current strategy are:
Principle
Explanation
The Principles of Te Tiriti o Waitangi
The Treaty establishes the relationship
between Māori and the Crown,
recognising the unique position of Māori
as tāngata whenua and ensuring
partnership, participation and protection
for disabled Māori.
The United Nations Convention on the
The Convention provides a framework to
Rights of Persons with Disabilities
promote, protect and ensure human
rights and fundamental freedoms for all
disabled people.
Ensuring disabled people are involved in Decisions on issues that impact disabled
decision-making that impacts them
people are made with their active
involvement, recognising their unique
lived experience and expertise.
Theme One: Te Tiriti o Waitangi
25. The engagements confirmed that Te Tiriti o Waitangi should remain an integral
part of the NZDS – participants in every engagement stressed the importance of
Te Tiriti in the strategy. However, many participants shared that currently Te Tiriti
is not given the mana (prestige) that it deserves by sitting as one of the three
principles.
26. Participants suggested that we consider reframing Te Tiriti to make the connection
between Te Tiriti and disabled people clearer. They recommended focusing on the
articles of Te Tiriti rather than just the principles to highlight important concepts
such as 'autonomy' (Article 1), 'good faith and fairness' (Article 2), and 'equity and
mutual respect' (Article 3).
Theme Two: The UN Convention on the Rights of Persons with Disabilities and
Enabling Good Lives
27. People acknowledged that the UN Convention on the Rights of Persons with
Disabilities (UNCRPD) provides an international framework. However, participants
emphasised the need to contextualise it for New Zealand.
28. Participants felt that the principles from the Enabling Good Lives (EGL) framework
should also be included, with key considerations such as self-determination,
participation, equity, non-discrimination, inclusion, and holistic well-being
(including spirituality).
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Theme Three: Leadership and Decision-Making
29. One of the strongest themes across every engagement was the vital importance of
leadership by disabled people. Participants expressed disappointment that
‘Leadership’ had been removed as an outcome area in the upcoming strategy.
Theme Four: Intersectionality
30. The concept of intersectionality must be central to the NZDS, recognising that
disabled people hold multiple identities that can compound discrimination or
create unique experiences.
Theme Five: Accessibility
31. Accessibility is a significant challenge for disabled people as it directly impacts
their ability to participate fully in society, including education, employment,
housing and social services.
Theme Six: Human Rights
32. The UNCRPD, Declaration on the Rights of Indigenous Peoples, Convention on the
Rights of the Child and the Universal Declaration of Human Rights must be
included in the principles of the NZDS.
Theme Seven: Whānau, Aiga, and Community Support
33. Families, Whānau, Aiga, and communities play an essential role in supporting
disabled people and should be included in solutions.
Theme Eight: Data Collection
34. Data collection and analysis represent a significant opportunity to better
understand and address the needs of disabled people.
A proposed New Set of Principles
35. Our independent advisors’ recommendation for a new set of refreshed principles
is:
Te Tiriti o Waitangi
This principle recognises the mana and status of Te Tiriti o
Waitangi, including its principles and articles, providing a
foundation for the refreshed NZDS.
Human Rights
This principle firmly anchors the Strategy in international
human rights frameworks, including the UN Convention on
the Rights of Persons with Disabilities, UN Declaration on
the Rights of Indigenous Peoples, UN Convention on the
Rights of the Child, and Universal Declaration of Human
Rights.
Participation and
The principle of participation and inclusion recognises that
Inclusion
disabled people have the right to be active members of their
communities and cultures in all aspects of life.
Accessibility
Accessibility is fundamental to participation and inclusion.
When environments and services are designed with
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accessibility in mind from the beginning, they benefit
everyone, not just disabled people.
Equity and Cultural
This principle merges concepts of equity, non-
Inclusion
discrimination, and cultural inclusion. It acknowledges that
disabled individuals belong to diverse whānau,
communities, and cultures, each with its own unique values
and practices.
Intersectionality
The intersectionality principle recognizes that disabled
individuals possess multiple identities—such as gender,
ethnicity, age, sexual orientation, and socioeconomic
status—that can exacerbate discrimination or lead to
distinct experiences.
Respect and Dignity
The principle of respect and dignity confronts the negative
attitudes, stereotypes, and discrimination that many
disabled people encounter. It emphasizes that everyone
deserves to be treated with respect, regardless of their
abilities, and acknowledges that societal attitudes can be as
significant a barrier as physical accessibility issues.
Choice and Control
This principle recognises that decisions about disabled
people's lives have often been made by others. It asserts
that disabled individuals are the experts in their own lives
and should have the same right to self-determination as
everyone else.
Updating the Approaches
36. The approaches outlined in the current strategy are:
Approach
Explanation
Investing in our whole lives – a long-
This reflects our lives, supporting people
term approach
at every stage and age of their life.
Specific and mainstream services – a
This approach is not about having to
twin track approach (e.g. mainstream
choose between the specific or
services first, with the backup of
mainstream option; rather it is about
specialist services where required)
having the right access to the right
high-quality support or services, at the
right time and in the right place.
37. There was no clear consensus from the engagements on a preferred approach to
implementing the strategy. Most participants provided critique on the existing
approaches, which is useful in knowing what to avoid in future strategies.
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Participants also provided general ideas as to how the strategy could be
implemented and some important considerations for the Ministry.
38. For this reason, our advisors did not provide a recommendation for a specific
approach. Instead, their recommendation is that the Ministry carefully consider
the following themes as it develops the final strategy:
• Moving beyond the idea of ‘mainstream’ and ‘Twin-Track’ approach. The
general sense from the engagements was that participants want a system in
which they can easily receive the support they need, no matter which
service they go to.
• Monitoring and Accountability. Ensuring robust monitoring of the new
strategy, with communication to the public to demonstrate that work is
progressing.
• Considering Different Models. People want future approaches that focus on
the positive aspects of disabled people’s lives rather than a deficit-based
approach.
• Workforce Capability. People considered that the Ministry should consider
how it can support an uplift in workforce capability across a range of
services.
• Self-Determination. Any future approach must keep the voice of disabled
people at the centre and allow for disabled people to make the decisions
about their own lives.
Risks
39. We took a targeted approach to engagement with the disability community to
support drafting of a proposed new vision and principles. There is a risk that
people in the wider disability community will feel that they have not had an
opportunity to contribute to the development of the draft vision and principles for
the refreshed strategy. In addition, individuals who attended the workshops may
feel that their contribution has not been reflected in the summary of key themes,
or in the draft vision and principles.
40. These risks are mitigated by the upcoming public consultation on the draft vision
and principles, with opportunities for all disabled people to provide feedback.
41. There is also a risk that the community will see the draft vision and principles as
being of the Government’s making, rather than owned by them. We mitigated
this risk by engaging Te Amokura Consultants as independent advisors to
analyse the feedback and advise on a vision and principles to reflect the key
themes.
Next steps
42. We consider that Te Amokura have provided a clear and succinct analysis of the
themes identified in the engagements to update the vision and principles. We
now need to make a decision on whether to include one or two potential vision
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statements in the draft strategy, for people to provide feedback on; and whether
to present the potential principles as options from which to choose a shorter list
or as a complete set of principles.
43. Because the draft strategy is seeking to generate discussion and feedback, we
consider that it makes most sense to include both options for the vision, for
people to provide feedback on.
44. We recommend presenting the principles as options from which a shorter list
could be developed. We are conscious that, when we ask government
organisations, non-government organisations and businesses to implement the
strategy, it will be easier for them to understand what they need to do if the list
of principles is as short as possible. Having eight principles is probably too many
to use as a list for people to analyse their ideas against
1.
45. We are seeking your feedback on this proposed approach before drafting the text
on vision and principles for inclusion in the draft strategy.
End
Author / Responsible manager:
Ben O’Meara, Deputy Chief Executive, Policy & Insights
Appendix 1 - Vision, principles and approaches in the New Zealand Disability Strategy,
2016 – 2026
1 By way of comparison, the 2016 – 2026 Strategy has five - three principles and two
approaches.
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Appendix 1 - Vision, principles and approaches in the
New Zealand Disability Strategy, 2016 – 2026
New Zealand is a non-disabling society – a place where disabled people have
an equal opportunity to achieve their goals and aspirations, and all of New
Zealand works together to make this happen.
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Document Outline
