WORK, DISABILITY AND CIVIL PROTECTION

Edited by Elena ZizioliGianni PetitiJuri Pittaluga

Contributions from Giovanni BastianiniAlessandro RadicchiAlfredo Sodano

Copyright Europe Consulting società cooperativa sociale a r.l.www.europeconsulting.it

Roma, Dec 2008

If you can’t propose a solution, then you too are part of the problem.

From the mission statement of Cooperativa Sociale

Europe Consulting

Foreword to the English Edition

The difference between a disabled and an able-bodied person is often that of a clear visible difficulty, which can and has to be tackled like an objective problem, without any need for improper emotional responses. Physical as well as mental disabilities naturally create a condition whereby differences among people may be more visible. The emotive part of the brain leads to varying and quite inadequate reactions, ranging from pity to taking flight from the problem. I believe that the experience that our disabled colleagues and we have had at the Department, has managed to strike a balance between emotional reactions and a rational approach to differences. This is essential for those serving as rescuers, as protectors of the tranquillity and safety of citizens, often the bearers of cultural, intellectual, phy-sical and emotional differences so vast as to be inconceivable for anyone that has never seen a real emergency up close. We began to work with disabled persons by asking them to lend us a hand. It may perhaps seem paradoxical for a Civil Protec-tion Department to ask for help rather than to give it!

I am convinced that this was the most serious way for Civil Protection to go about things: firstly because disabled persons have become our colleagues, secon-dly because concrete experience has enabled us to learn from them, simply by li-stening, looking, talking, as is common for people working together.

We began by asking a social cooperative, the Europe Consulting to select disa-bled persons that could become involved in a part of the work of the Press Office, in particular the monitoring of press agencies, which for us are a vital source of infor-mation. At the Department this work is done by people suffering from a variety of physical disabilities, and is done very well indeed.

The things done subsequently are a direct consequence of this first step. Thanks to their presence, we have begun to consider the problem of coming to the rescue of handicapped persons. We have published a civil protection handbook for families; we have participated in and rolled out a number of projects, begun to work with volunteer associations which more than others have demonstrated an ability to work on this front.

The Cooperative we are working with has published a text on our experience and on its characteristics, which we present here translated into English.

I would like our work in this area to carry on from what youngsters have writ-ten, suggesting a “slogan” for their experience with us: “Able to protect”, like every-one else working in the Civil Protection national service, and like all others with the right to be protected, notwithstanding their specific personal traits.

All of the above can be summed up in a few words: thanks to the work of many, both able-bodied and disabled, we have succeeded in reaching a stage that we might consider to be a starting point.

Guido BertolasoHead of the Civil Protection Department

Authors and Contributors

This report was written by members of the Europe Consulting cooperative after two years of work on a project at the Civil Protection Department. It was a job inclu-sion project for persons with physical, mental or sensory disabilities or intellectual handicaps, which reduced their working ability by over 45% as defined in Law no. 68 dated 12/03/1999.

This publication was entirely conceived, planned, written and edited together with the disabled members of the cooperative, specially those working at the De-partment itself: Michele Davia, Serena Di Nocera, Luigi Falcone, Marco Ferrari, Mghagh Ali Esharef and Francesco Gabrielli.

Elena Zizioli, Gianni Petiti and Juri Pittaluga, all members of the cooperative worked on the studies, research and writing that went into this book. Juri also wor-ked as a job placement tutor at the Civil Protection Department.

Alessandro Radicchi, president of Europe Consulting and Giovanni Bastianini, consultant to the Civil Protection Department also contributed to this project.

Alfredo Sodano, whose study contributed to the work, also personally reviewed the information. The book can be used as a manual for consultation by persons directly involved in the work but also as a reference text for the world of social cooperatives and the Public Administration, which, through social enterprises want to find or improve ways of placing disabled persons in jobs in their offices .

Special thanks are due to the Civil Protection Department of the Prime Mini-ster’s Office, which made this publication possible, and in particular to the staff of the Press and Information Service, who made the experience of writing this pu-blication not only unforgettable, but also replete with significance, objectives and values.

The study is also available online at www.abiliaproteggere.net (website content in Italian).

Europe Consulting

Europe Consulting is a type B social cooperative founded in 1997 on the basis of law 381/199. It is a member of the SOL.CO. Solidarietà e Cooperazione consortium and works at a local level in the Lazio region in the fields of immigration, commu-nication, hospitality and social inclusion.It manages the Help Center, social orientation helpdesk and the “Binario 95”, Dayti-me Center at Rome’s Termini Station in collaboration with the Sala Operativa So-ciale (Social Operations Centre) of Rome Municipality and the Italian State Rail-ways. It produces several publications including the street journal “Shaker” (www.shaker.roma.it).Europe Consulting coordinates its research and training activities in Italy throu-gh the Osservatorio Nazionale sul Disagio e la Solidarietà nelle Stazioni italiane (National Observatory on hardship and solidarity in Italian stations - www.onds.it) on behalf of the Italian National Railway in partnership with ANCI - Associazio-ne Nazionale Comuni Italiani (National Association of Italian Municipalities). At a European level, it coordinates research studies on the subjects of immigration (www.europelandofasylum.net), social inclusion and job inclusion for disabled per-sons. Europe Consulting has been working within the Civil Protection Department since November 2004 with its study and job placement project for disabled persons within selected strategic offices in the Department. As required by law 381/91, more than 30% of the working members of the cooperative are disadvantaged.

The Civil Protection Department

The Civil Protection Department of the Presidency of the Council of Ministers is the operative arm of the President of the Council, when it comes to coping with the protection of the country’s people and goods, undergoing particular threats and dangers deriving from conditions of natural, environmental or anthropic risk. With the Act n.225 of 24 February 1992, Italy has organised civil protection as a “National Service”. As stated under the first article of this act, the Civil Protection National Service consists of central and peripheral State administrations, Re-gions, Provinces, municipalities, national and territorial public agencies, and any other public and private institution and organisation present on the national terri-tory. The President of the Council of Ministers provides for the co-ordination of the National Service and the promotion of civil protection activities through the Civil Protection Department.The Department, which is today organised in 9 general offices and 44 units, con-stitutes the junction of the Civil Protection National Service. Its tasks include: pro-moting and co-ordinating the whole system; intervening directly in case of natio-nal disasters; defining intervention and action procedures common to the whole system; giving guidelines for legislation relative to risk prevention; supporting peripheral structures, particularly the ones with fewer resources; promoting and supporting the activities for the formation and growth of civil protection organisa-tions; informing public opinion and promoting civil protection culture, particular-ly among young people; directing the setting up and management of information networks necessary for risk prevention; producing and managing exceptional re-gulations – the official orders - needed to enforce emergency interventions and deal with calamities, in order to reduce to the utmost the damage to people and things. The Department’s staff is highly specialised in emergency management, both from the administrative and technical-operative viewpoint. This has led the Go-vernment to request its intervention in all situations, even atypical ones, in which organisational and managerial capability in complex operations and the efficient and authoritative co-ordination of numerous administrations and institutions are necessary, as in the case of “great events”. Or, more recently, in dealing with new risks that can also involve our country with the changed international situations, or in case of the spreading of dangerous and unknown epidemics.

I

Cooperation means working together; social co-operation me-ans working together towards a common goal.It is a mission that holds within itself the multiple indivi-dual and social dimensions of a human being in all their complexity.Evolution means awareness of the risks which surround us and the opportunities which arise; it is the yardstick by which we measure weaknesses and develop talent; it means aware-ness of limits and of creativity for solutions.Interpreting, developing and capitalising on these talents can offer added value in social and economic terms for our society. And although challenging and possibly even hard to believe, it can also mean turning culture and work on its head for the progress of humankind.Holding fast to evolutionary theories that reward the strong and marginalize the weak would mean repressing our evolu-tionary potential for creativity and growth. In a society where Bombay and Manhattan see each other through a web cam and an Afghan refugee can spread his cries through the network or the ether with the speed with which we once wrote letters; when we can fly over the ruins of the Forbidden City in China using a satellite browser in our kitchen; where scientists work to discover the right enzyma-tic and molecular combination to make a child’s body “accept” a chimpanzee’s liver, in this highly charged and unstoppable face of things to come, we cannot continue to remain frozen within our cultural and mental prejudices and limits, running the risk of endangering our true evolution, be it human, moral or spiritual.Humankind is at a turning point, and must realise it.

Cooperation: cooperate \k_-ä-p_-r_t\ (also co-operate) verb - work jointly towards the same end. — ORIGIN: Latin cooperari ‘work together’.

Evolution: evolution noun - the process by which different kinds of living organism are believed to have developed, especially by natural selection. — ORIGIN Latin evolvere ‘unrolling’.

(Compact Oxford English Dictionary)

COOPERATION, EVOLUTION

Alessandro Radicchi

President of the Cooperativa Sociale Europe Consulting

PREFACE

II

Social cooperation has been going through a delicate phase of transition and of change in the last few years. On the one hand, there are large cooperatives, with hundreds or thousands of members. They have sacrificed the self-help objectives that are the true aim of cooperation to become businesses. On the other hand, small and medium organisations have managed, thanks to their more manageable size, to concentrate their resources on the social welfare objectives of the society they live in, thus fulfilling the public interest aims laid out in their statutes.This is what makes social cooperatives natural partners for the Public Admi-nistration. With the above objectives translated into a commercial enterprise, it means they work towards policies of social and job inclusion for “protected categories”.All of this has clear benefits in terms of planning and managing services be-nefiting the public. It also guarantees added value, which is so hard to obtain in other work situations. In our case the beneficiaries have been involved right from the planning stages of the action plan.A social enterprise is a tangible example of sustainable development because it combines financial needs with wider individual and social needs for growth. There are no guarantees, but it is certainly something that is worth pursuing.

In a situation of this type, our project (Abili a Proteggere) presents a constructive challenge, a stimulus and an invitation to think. The Civil Protection Depart-ment is implementing this project with the assistance of Europe Consulting social cooperative. Thus two organisations each with a different mission, le-gal status and purpose, have worked together towards one shared objective: to reinforce the added value of public policies regarding social inclusion and the enhancement of co-operative partnerships.When two organisations concur on the value of this type of experiment it me-ans they have become conscious of the potential that every person has within himself, and are trying to find a way to express and value it. They are looking for a way to make our very existence more significant and meaningful.

PREFACE

III

European Union documents speak of promoting policies for inclusion in a society where companies have computerised their productive processes to a large extent and consider hu-man resources to be a principal component of competitive ad-vantage.Work is one way, probably the main one, for a person to so-cialise and integrate fully into society. Can a disabled person today fit into the labour market legitimately, as a person in his own right?We have tried to answer these questions in our study, by car-rying out a successful project, which we feel is largely replica-ble. We placed a group of persons with disabilities of over 45% (according to Italian ministerial tables) in jobs at the Press and Information Service of the Civil Protection Department.We do not claim to present the complete job placement picture for disabled people in Italy. This has already been analysed in depth in numerous studies. Instead, we have accentuated the cultural revolution that has taken place in the last few ye-ars with regard to disability and pointed out its significant features. The legislative situation continues to change and new types of experiments are also being carried out. Our stu-dy takes an “in-depth” look at one specific case, that of the Civil Protection Department. It identifies the most significant features, which contribute to making it an example of excel-lence.We asked the main characters to tell us their own stories. Using a questionnaire, we were able to identify factors ran-ging from specific project implementation techniques to envi-ronmental conditions, which made our job inclusion project for disabled persons in the Press Office an exemplary model.

INTRODUCTION

What does it mean to be disabled in today’s world?

INTRODUCTION

IV

For everyone to “be there”1, we first need to rid ourselves of the doubts and prejudices that too often condition the job inclusion process. The first of these is the belief that disabled workers belong to a category of their own.But actually no “normal” category exists. And above all, it is not the physical condition of disabled persons that stands in the way of their doing jobs. The problem is of a social nature and it is here that we must intervene.In a deliberately provocative interview given in September 2006, Bomprezzi stated that all of us could become disabled if the environment where we live and work did not fully support us as citizens in attaining our full potential2.During the course of our lives, we could all find ourselves in a physical or psy-chological situation that could make it impossible to carry out a job that we had done before.Social cooperatives play a vital role in such cases, as the analysis of the expe-rience with the Press and Information Service of the Civil Protection Depart-ment demonstrates. Thus the objective of the study was to identify good practices for all those who wish carry out job inclusion projects for disabled persons, mediated by social cooperatives with added value in the role of facilitator for the process of integration between the two parties. This example was carried out in the public administration sector, but the information can also apply to a wider business context.

1 See FRANCO BOMPREZZI (ed.), Esserci tutti. Idee, progetti, leggi del 2003. Anno Europeo delle persone con disabilità, (We’re all there. Ideas, projects and laws of 2003. European year of the disabled person) Ministry of Labour and Social Policy, RAI Segretari-ato Sociale, 2003.

2 Bomprezzi’s interview can been seen at www.superabile.it.

INTRODUCTION

1

Why should companies hire disabled persons and fit them into their work routines?Our search for the answer to this question guided our contex-tual analysis. We identified our strategic objective as that of promoting true and full integration of disabled persons within organisations. Our operative objectives were to identify me-thods and tools to facilitate the placement process.In order to look at the issue from a new perspective, we analysed the strengths and weaknesses of the situation. We took into ac-count the revolution regarding disability that is taking place in our culture, using appropriate tools and a different approach.

From a desktop analysis (case history of the application of legi-slative prescriptions and literature) it was clear that, despite the progress already made, the issue is still considered in relation to a specific sector of society, while in fact, it is a human rights issue.Even today, all over the world, disabled persons are discrimi-nated against and lack equal opportunities. In Europe, more than half a million of them live their daily lives in 2,500 insti-tutes. 56% of disabled school-age children go to special classes or schools and unemployment in this group of persons exce-eds 80%1.

Obstacles, barriers and prejudices are still alive in 27-nation Europe, making the struggle for accepted fundamental rights effectively unequal.However, scientific thought has evolved. Endorsed by the World Health Organisation, this progress has gradually led to a new

1 For statistical information on the Italian situation, see the official data from ISTAT and the Ministry of Labour and Social Policy available at www.handicapincifre.it.

THE CONTEXT

A cultural revolution towards a more inclusive society

part I

THE CONTEXT

2

medical model of disability, which also takes social and environmental factors into consideration2.For centuries the medical model has considered disabled persons sick and inca-pable. But when these people and their families refuse to accept this model and use a human rights based approach, society will be forced to take notice and offer new services for these citizens.International organisations that represent disabled persons, especially DPI (Disabled Peoples’ International) have worked with this objective in mind3. This approach allows us to have a “universalistic cultural base” recognized in all countries around the world and disabled persons to be the subjects of their own empowerment process.

The new disability paradigm has resulted in an exemplary experience of direct civil society participation, modifying international cultural orientations and approaches.It is a “cultural revolution” in the true sense of the word and has given rise to a significant body of documents and interpretations regarding international instruments to regulate compliance with human right principles. It is also sub-stantiated by action programmes which are an original and accurate source of information regarding cultural transformation, judicial tutelage and social and economic intervention, which is changing the quality of life for over 600 million disabled people around the world.

This human rights paradigm applied to disabled persons has become part of the documents of the European Union and the European Council, OAS (Organiza-tion of American States), WHO (World Health Organization), ILO (Internatio-nal Labour Organisation), UNESCO, UNICEF and the UN Economic and Social Council, all the way to the United Nations General Assembly, which deliberated in 2000 to finalize the previously cited Comprehensive and Integral Internatio-nal Convention on the promotion and protection of rights and dignity of persons with disabilities and later nominated an Ad Hoc Committee to draft the text (2003) which was then presented to the United Nations General Assembly.

The anti-discrimination potential of the ICF model

Do “normal” people exist? Over the last 20 years, scientific knowledge regarding disability has evolved and

2 See http://www.asphi.it/DisabilitaOggi/DefinizioniOMS.htm.

3 For the international and EU rules framework see: SENATO DELLA REPUBBLICA, 11° COMMISSIONE LAVORO, PREVIDENZA SOCI-ALE (ITALIAN SENATE; 11th LABOUR AND SOCIAL SECURITY COMMISSION Wednesday 8 February 2006, 366th sitting Documen-to conclusivo dell’indagine conoscitiva sullo stato di attuazione della disciplina in materia di diritto al lavoro delle persone disabili (Conclusive document of the informative investigation on the state of implementation of laws regarding disabled persons’ right to work), pages 4-13.

PART I

3

it has become possible to develop a model integrating the social and medical aspects, thus avoiding the separation of the indivi-dual and his background. The WHO document that we refer to is the International Classification of Functioning, Disability and Health (ICF). It is indicative of a substantial change in the way of understanding the problem and provides a reference model and a unified language to describe the state of a person. The ICF is the result of seven years of work in 65 countries4.The significant feature of the WHO document is that the sta-te of an individual is associated not only to the functions and structures of the human body, but also to individual levels of ac-tivity or participation in social life. There are no more referrals to a functional or structural problem, without it being related to a state considered “healthy”.The new document substitutes the terms and concepts which are generally used:

• impairment: a physical or mental defect, understood as loss or abnormality of psychological, physiological or anatomical structure or function;

• disability: understood as partial or total loss of the capacity to carry out an activity in the way or within limits judged to be “normal”;

• handicap: should be understood as the social disadvantage that ensues as a result of the disability.

with: • body functions, i.e. the physiological functions of body sy-

stems (including psychological functions); • body structures, i.e. anatomical parts of the body such as

organs, limbs and their components; • activities, i.e. the execution of a task or action by an indivi-

dual; • participation, i.e. involvement in a life situation; ∑• environmental factors, i.e. the physical, social and attitu-

dinal environment in which people live and conduct their lives, which can have an impact on the performance of an individual in a certain context.

While highlighting the importance of an integrated approach, the classification introduced by ICF also takes into account en-vironmental factors, organising them in a systematic manner.

4 See M. CONCLAVE, A. PETRANGELI (editors) ICF e Politiche del Lavoro. Il progetto nascita, sviluppo, risultati, (ICF and labour policies, the project: its birth, development and results) Pubblimax, 2005.

The ICF classification

Body functions1. Mental functions 2. Sensory functions and pain3. Voice and speech functions 4. Functions of the cardiovascular, haema-

tological, immunological and respiratory systems

5. Functions of the digestive, metabolic and endocrine systems

6. Genitourinary and reproductive functions 7. Neuromuscoloskeletal and movement

related functions 8. Functions of the skin and related structures

Body structures1. Structures of the nervous system2. The eye, ear and related structures3. Structures involved in voice and speech 4. Structures of the cardiovascular, immunolo-

gical and respiratory systems5. Structures related to the digestive, metabo-

lic and endocrine systems6. Structures related to the genitourinary and

reproductive systems 7. Structures related to movement8. Skin and related structures

Activities and participation1. Learning and applying knowledge 2. General tasks and demands 3. Communication4. Mobility 5. Self-care 6. Domestic life 7. Interpersonal interactions and relation-

ships 8. Major life areas 9. Community, social and civic life

Environmental factors1. Products and technology 2. Natural environment and human-made

changes to environment 3. Support and relationships 4. Attitudes 5. Services, systems and policies

THE CONTEXT

4

The new classification takes into consideration the person’s contextual factors and allows us to draw a parallel between the state of health and the environ-ment.Thus, disability is defined as a health condition in an unfavourable environ-ment5.The environment, taken as determining contextual factor in defining disability, can be a barrier or a facilitator.The ICF classification allows us to state that all persons, in certain contexts or times of their lives, can be disabled, whether or not there is an associated patho-logy.The principal purpose of ICF is to provide a standard, unified language, which puts the quality of life of the person at the centre and can be used as a reference model for the description of health and health-related conditions. This is why the WHO classification has been proposed for use as a reference tool which should be adapted and used for the targeted placement of disabled persons in the labour market6.ICF can be used to evaluate performance and abilities, to enhance personal abi-lities of the disabled person and to measure the impact of the environment he/she lives in.

The procedure leading to a disabled person’s inclusion or re-inclusion in the la-bour market should in fact, have the principal aim of translating abilities and at-titudes into skills and expertise, and of enabling their recognition and enhance-ment in the social environment, exactly the way this happens with every worker. For our study, ICF is the scientific reference model, as it permits us to evaluate the disabled person according to what he knows or what he can be enabled to do, not according to what he cannot do. The category of disabled workers does not exist any longer. There is only one category now: workers. This is because every-one is relatively able, depending upon the environment and the conditions in which he or she is required to work.

Accepting the ICF philosophy means considering disability as a problem that does not involve single citizens who are affected by it or their families. Rather, it is a commitment made by the entire community starting first with the insti-tutions, which will make an integrated multisectorial effort to collaborate. This is why no synergy is necessary between different levels of institutional respon-sibility (vertical subsidiarity) and across institutions, associations and private social sector (horizontal subsidiarity).Thus the health and disability model put forward by ICF is a biopsychological model which involves all sectors of public policy making, especially with regard

5 ibid., p.19.

6 See M. CONCLAVE, G.GORINI, ICF e Politiche del Lavoro La sperimentazione sul territorio. ICF come strumento per l’inserimento lavorativo? (ICF and Labour Policy. Territorial trials. ICF as an instrument for job placement?) Pubblimax, 2005

PART I

5

to welfare, health, education and labour. In other words, it is an instrument of social policy.Stimulated by the Ministry of Labour, at the end of 2003, the European year of persons with disabilities, Italia Lavoro7 developed a project to make the princi-ples, characteristics and tools for ICF classification widely known.Three important results were obtained by March 2006, at the end of the project8:

· The first one is related to widespread sharing of information at a national level, of knowledge regarding the use and the possibilities offered by the ICF classi-fication. This was done by organising 21 training courses in 17 Regions and 78 Provinces, for a total of approximately 1000 participants, all of them people who work in different roles in the targeted job placement sector;

∑· The second one was the stimulus for the creation of a targeted placement net-work at the provincial level. It is based on the use of a common language and to-ols that facilitate dialogue and cooperation between the different participants in the process;

∑· The third result was the production of a first version of a functioning ICF sy-stem. This comprises a series of innovative instruments, specifically used in classifying disabled persons in search of work, characteristics of companies and a training course for workers9.

The project was therefore a priority within policy development for disabled per-sons and their employment. The general objective was to stimulate the largest possible number of persons who work in this field to think in a different cultural context: that of “networking”.

The role of institutions

The common rationale behind new welfare policies is that of tracing a new social image of the disabled person, no longer a citizen who needs to be assisted, but a person in need of promotion10.Countries recognize the right of disabled persons to work. They make a commit-ment and take adequate measures to protect and promote the implementation of this right.The main commitments they have made are the following:

• to promote open, inclusive and accessible labour markets and environments for disabled persons;

7 7 For the mission and initiatives of Italia Lavoro see the site: www.italialavoro.it

8 See MINISTRY OF LABOUR AND SOCIAL POLICY, ICF Project and labour policies, Objectives, results and future developments, Rome, 10 March 2006.

9 ibid., p. 2.

10 For an exhaustive overview and discussion see the official site of the Ministry of Welfare: www.welfare.gov.it

THE CONTEXT

6

∑• to enable real access to assistance, continual professional preparation to shared programmes for technical and profes-sional orientation and job placement services for disabled persons;

• to promote opportunities for work and career advancement for disabled persons in the open workplace, including oppor-tunities for self-employment and business start-ups, as well as help in searching for, obtaining and keeping a job;

• to encourage employers to hire disabled persons, using me-chanisms such as incentives and quotas if necessary;

∑• to ensure adequate arrangements for disabled persons at the workplace and in the working environment;

• to promote acquisition of professional experience by disabled persons in the open labour market;

∑• to promote professional rehabilitation programmes, as well as keeping jobs and returning to previous jobs;

∑• to defend disabled persons through employment related legislation regarding employment duration, career advan-cement, working conditions, including fair pay for work of equal value, equal opportunities and compensation for da-mage, and furthermore ensuring that disabled persons are able to exercise their rights as workers and union members;

• to ensure that disabled persons have equal rights to work in the public sector;

∑• to promote the recognition of capability, merit, abilities and contributions of disabled persons at the workplace or in the work market and to fight prejudices and stereotypes regar-ding disabled persons.

Recent institutional initiatives comprise a series of actions, including awareness building for employers regarding “anti-discrimination” legislation, as well as information sharing re-garding experiences of job inclusion pilot projects for disabled persons in companies11. The purpose of this is:

∑• to fight discrimination against disabled persons and favour their inclusion in social and working situations;

• to make information known, regarding opportunities offe-red by the new disability classification (ICF) for removing barriers which, especially in places of work, can prevent the principles of non-discrimination from being really put into practice.

11 For an overview of events see the site of the Ministry of labour: www.welfare.gov.it

Universal Declaration of Human Rights

Adopted by the General Assembly of the United Nations on 10 December 1948, the declaration also speaks indirectly about disability, through the principle of equality between individuals and the principle of non-discrimination:Everyone is entitled to all the rights and fre-edoms set forth in this Declaration, without distinction of any kind, such as race, colour, sex, language, religion, political or other opinion, national or social origin, property, birth or other status.

Declaration on the Rights of Mentally Retarded Persons

This declaration, adopted by the United Nations General Assembly on 20 December 1971, is the first official document where the issue of disability is dealt with explicitly, and not as an extension of the principle of equa-lity. Some fundamental rights of mentally retarded persons are also stated:1. The mentally retarded person has, to the

maximum degree of feasibility, the same rights as other human beings.

2. The mentally retarded person has a right to proper medical care and physical therapy and to such education, training, rehabili-tation and guidance as will enable him to develop his ability and maximum potential.

3. The mentally retarded person has a right to economic security and to a decent standard of living. He has a right to perform producti-ve work or to engage in any other meaning-ful occupation to the fullest possible extent of his capabilities.

PART I

7

Declaration on the Rights of Disabled Persons

Proclaimed on the 9th of December 1975 by the United Nations General Assembly, it extends the principles expressed in 1971 to all disabled persons, not just the mentally disabled, deciding on a definition and reaffir-ming the right to an adequate standard of living, health, education, work and care.The General Assembly, proclaims this Declaration on the Rights of Disabled Persons and calls for na-tional and international action to ensure that it will be used as a common basis and frame of reference for the protection of these rights. 1. The term “disabled person” means any person unable to ensure by himself or herself, wholly or partly,

the necessities of a normal individual and/or social life, as a result of deficiency, either congenital or not, in his or her physical or mental capabilities.

3. Disabled persons have the inherent right to respect for their human dignity. Disabled persons, whatever the origin, nature and seriousness of their handicaps and disabilities, have the same fundamental rights as their fellow-citizens of the same age, which implies first and foremost the right to enjoy a decent life, as normal and full as possible.

4. Disabled persons have the same civil and political rights as other human beings.

ILO, International Labour Organisation Employment (Transition from War to Peace) Recommendation no. 71, 1944

In this document, the ILO, International Labour Organisation gives its Member States guidelines regarding the job market for the period of transition from war to peacetime, explicitly mentioning – with great foresight – the rights of disabled workers:X. Disabled workers, whatever the origin of their disability, should be provided with full opportunities for

rehabilitation, specialised vocational guidance, training and retraining, and employment on useful work.

Vocational Rehabilitation and Employment (Disabled Persons) Convention no. 159, 1983

With this convention, signed on the occasion of the International Year of Disabled Persons, the ILO returned to speaking about the relationship between disabled persons and the labour market, solici-ting States to implement all necessary measures to ensure attainment of professional qualifications and requalification of disabled workers and their access to the work market at conditions on par with other citizens.Article 2. Each Member shall, in accordance with national conditions, practice and possibilities, formulate,

implement and periodically review a national policy on vocational rehabilitation and employment of disabled persons. A key element is the invitation to also involve the organisations of workers and emplo-yers, as well as associations of disabled persons or of those who work with them, in the job placement process.

Article 5. The representative organisations of employers and workers shall be consulted on the implemen-tation of the said policy, including the measures to be taken to promote co-operation and co-ordination between the public and private bodies engaged in vocational rehabilitation activities. The representati-ve organisations of and for disabled persons shall also be consulted.

THE CONTEXT

8

Charter of Fundamental Rights of the European Union

This document, approved in Nice on 7 December 2000 by the then 15 representatives of the member States of the European Union, lists all the fundamental rights enjoyed by citizens of the EU countries. The Charter specifically mentions the disabled, affirming the principle of non-discrimination as well as reiterating the rights of the disabled to full social and professional inclusion. Article 21. Non-discrimination 1. Any discrimination based on any ground such as sex, race, colour, ethnic or social origin, genetic features,

language, religion or belief, political or any other opinion, membership of a national minority, property, birth, disability, age or sexual orientation shall be prohibited.

2. Within the scope of application of the Treaty establishing the European Community and of the Treaty on European Union, and without prejudice to the special provisions of those Treaties, any discrimination on grounds of nationality shall be prohibited.

Article 26. Integration of persons with disabilities. The Union recognises and respects the right of persons with disabilities to benefit from measures designed to ensure their independence, social and occupational integration and participation in thelife of the community.

World Programme of Action concerning Disabled Persons

A major outcome of the International Year of Disabled Persons (1981) was the formulation of the World Programme of Action concerning Disabled Persons, adopted by the General Assembly in December 1982. In finalizing its action guidelines to achieve these objectives, the Programme recom-mends a global strategy, which deals with disability issues in the context of normal services offered to citizens.The World Programme of Action (WPA) is a global strategy to enhance disability prevention, rehabilita-tion and equalisation of opportunities, which pertains to full participation of persons with disabilities in social life and national development. The WPA also emphasizes the need to approach disability from a human rights perspective.

ILO, (International Labour Organisation) Code of practice on Managing disability in the workplace, 2002

In this document, which suggests a series of guidelines taken from studies on the topic and good practices adopted in some situations, the contribution that a disabled person can bring to a business in terms of ability and productivity is clearly stated right from the beginning, in the Preface.The case that was made in the WPA was reiterated in the Standard Rules on the Equalization of Opportunities for Persons with Disabilities, and approved by the United Nations General Assembly on 20th December 1993, at the end of the Decade of disabled persons.It is increasingly apparent that disabled people not only have a valuable contribution to make to the national economy but that their employment also reduces the cost of disability benefits and may redu-ce poverty. There is a strong business case for employing people with disabilities since they are often well qualified for certain jobs. Employers may also gain by expanding the number of eligible workers through continuing the employment of those who become disabled, since valuable expertise acquired on the job and through work-related training is retained.

PART I

9

Legislation

The Italian Constitution, adopted on 1 January 1948, does not deal with the issue of disability explicitly. The principles of equality and non-discrimination summarize the relevant applications of the law with regard to social inclusion of disa-bled persons, including their right to work, considering this an expression of citizenship and of working together for the development of the country.Speaking of the subject of work in the specific context of the rights of the disabled person means dealing with the main issue: the integration process and social inclusiveness. Work takes on a special significance for every person. The idea of work is im-mediately associated with creativity, productivity, self-esteem, fulfilment of oneself and one’s own desires, satisfaction of per-sonal expectations and needs, as well as making a contribution to the social and economic growth of the country. Being a wor-ker is also an occasion for frequent and intense social relation-ships, a chance to share and compare ideas and also the most obvious way to fight the cultural and social discrimination of disability that remains even today.To ensure the right to work as far as possible for persons with different types of disabilities, the Italian state has made legisla-tive provisions right from the 1960s12.An important first step was taken in this direction with law number 482/68 on “General rules for compulsory hiring in pu-blic administration and private companies”. This regulation, better known as the “law on compulsory hiring” (“legge sul collocamento obbligatorio”), protects the rights of disabled wor-kers by compelling public institutions and certain private com-panies to hire persons with a recognized disability. However, this law (often not complied with in any case) not only did not make work a legally due right, but even in the case when it was successful, it did not ensure the quality of job inclusion which could enhance capabilities and skills. There was often the risk of transforming a job, potentially a chance for personal fulfil-ment, into a time of frustration and low gratification13.Despite this, law 482/68 was still an important milestone in af-firming the right to work.

12 For an overview, also see the site www.handylex.it, which is a databank of nationally applicable rules, news and information on legislative aspects of disability.

13 For a complete history of the discussion see also G. DE ANTONIIS, (editor), Inserimento lavorativo. Dalla teoria alla pratica, (Job placement, from theory to practice) 2006, pp. 11-18.

Constitution of the Italian Republic

Article 3. All citizens have equal social status and are equal before the law, without regard to their sex, race, language, religion, political opinions, and personal or social conditions.It is the duty of the republic to remove all eco-nomic and social obstacles that, by limiting the freedom and equality of citizens, prevent full individual development and the participa-tion of all workers in the political, economic, and social organisation of the country.Article 4. The republic recognizes the right of all citizens to work and promotes conditions to fulfil this right.According to capability and choice, every citi-zen has the duty to undertake an activity or a function that will contribute to the material and moral progress of society.

THE CONTEXT

10

The evolution of the debate has several significant stages inclu-ding the emanation of law no. 381/91, “Rules regarding social cooperatives (Disciplina delle cooperative sociali)”. Its purpose was to promote and encourage type B cooperatives (for produc-tion and work), with the aim of creating suitable situations for including disadvantaged persons in job situations. The next year, the framework law on handicaps (law no. 104/92) intro-duced a new way to look at disability, endorsing the principle of evaluating individuals in relation to actual working and re-lationship abilities and simultaneously providing legal instru-ments for severely handicapped workers.

The road towards promotion of equal working opportunities and qualified job placement in the labour market was recently regulated by law number 68/99, “Norms on labour rights for disabled persons” (“Norme per il diritto al lavoro dei disabili”). All public and private employers with at least 15 employees are required to hire disabled persons, whose number varies accor-ding to the total number of employees:

∑• one person, for a total of 15 to 35 employees (only in the case of new hires);

∑• 3% of workers for a total of 36 to 50 employees; • 7% of workers for a total of more than 50 employees. An addi-

tional reserve category equal to one worker per employer of 51 to 150 employees or 1% for employers with a greater number of employees is also required to benefit the categories referred to in law number 763/81 (orphans and spouses of deceased persons or those with serious invalidity caused by work, war or service, and repatriated Italian refugees) and law 407/98 (family members of victims of terrorism or organised cri-me).

In the case of political parties, trade union organisations, and non-profit organisations working in the field of solidarity, reha-bilitation and assistance, the reserve order applies only for tech-nical and administrative personnel. This requirement applies only to new hires.In the case of police, civil protection and national defence, the order applies only to administrative services.Persons who are not disabled at the time when initially emplo-yed and who later suffered work-related injuries or illness, or any disability (as long as it is over 60%), have the right to keep their job.

Catalogue of national legislation

• Presidential Decree no. 333 dated 10/10/2000 “Executive order for law no. 68 dated 12 March 1999, regarding regulations for disabled workers’ right to work”.

• Ministerial Circular no. 41 – Ministry of labour and Social Security, General Employment Office 26/06/2000 “Com-pulsory hiring. Further indications for the application of law no. 68 dated 12 March 1999. Amendment to circulars no. 4/2000 and 36/2000.”

• Ministry Circular no. 4 - Ministry of Labour and Social Security - General Employment Office - Division III 17/01/2000 “Initial information for implementation of law no. 68 dated 12 March 1999, referring to: “Regu-lations for disabled workers’ right to work”.

• Ministerial Circular - Ministry of Labour and Social Security 24/11/1999 no. 77 “L. 12 March 1999, no. 68, referring to: “Regulations for disabled workers’ right to work”, published in the Official Gazette. no. 68, ordinary supplement no. 57/L. Modifications to the application of law no. 482 dated 2 April 1967”.

• Ministerial Circular – Ministry of Labour and Social Security 24/11/1999 no. 76 “Compulsory Hiring. First definition of the authority of central and peripheral offices following the transferral of functions and assignments regarding the labour market by the State to the Regions and Provinces”.

• Law - 12/03/1999 no. 68 “Regulations for disabled persons’ right to work”.

• Ministerial Decree - Ministry of labour and Social Security together with the Ministry of Health and the Ministry of Social Affairs 30/11/1994 “Approval of the template agree-ment provided for by the framework law no. 104 on handicap, dated 5 February1992”.

• Legislative decree dated 23 December 1997 no. 469: Conferral to the regions and local authorities of functions and assignments related to the labour market, in accordance with article 1 of law no. 59 of 15 March 1997, as modified by article 6 comma 2 of law no.

PART I

11

There is also a specific rule regarding rankings. Unemployed and disabled persons must register on a special list kept by “competent offices”. These bodies, identified by the Region wi-thin the Provincial Employment Service (Regional Law 41/98), keep a record of abilities, skills, experience and preferences on a personal file, as well as the type and degree of ability and analy-se the characteristics of open positions, matching as far as pos-sible demand and supply. Persons are inserted into the list on the basis of a single public ranking. The elements for evaluation which determine the ranking are defined by the Regions, and are:

∑• seniority of position in the register of compulsory job place-ments;

∑• family size;∑• financial condition;∑• disability level; ∑• ease of transportation in the territory.

The great novelty of law 68/99, which reformed the job market for disabled persons, is in the fact of recognizing the job as a right and not simply a form of protection.Having shed the “assistance” attitude of the older laws, this law lays the groundwork for active policy making linking occupa-tion and training. The intention is to give disabled workers a job in the right place so that they can take maximum advantage of their own working abilities. We are therefore witnessing a change from an imposed model to a consensual one.

The objective is to find the best suited job for the disabled per-son through focused job placement, using a series of technical tools and support. These permit adequate evaluation of their working abilities sufficiently in advance, as far as compatible with their health condition.In this framework, what we called focused job placement beco-mes the collection of technical tools and support which allow an optimal evaluation of the working abilities of disabled persons and appropriate help in starting work in the best suited posi-tion, through training processes and personalised procedures permitting the enhancement of remaining talents and abili-ties14.

14 Many exhaustive studies have been carried out in this field, including published documents and those available on the web. Those especially relevant to the evolution of the whole debate regarding the law can be found for example at www.handilex.org and www.handimpresa.it.

68 of 12 March 1999 - art. 6 “Suppression of collegial organs”.

• Ministerial decree of 22 November 1999: Criteria regarding the transmission of infor-mation from the employers subject to Law no. 68, dated 12 March 1999 regarding com-pulsory employment entitled “Regulations regarding disabled persons’ right to work”.

• Ministerial decree dated 10 January 2000: Identification of equivalent qualifications for a non-sighted telephone operator for purposes of application of Law no. 113, dated 29 March 1985, in accordance with the provisions of article 45, comma 12, of Law no. 144 dated 17 May 1999.

• Prime ministerial decree of 13 January 2000: Direction and coordination for com-pulsory job placement for disabled persons in accordance with article 1, comma 4 of law no. 68 dated 12 March 1999.

• Ministerial decree dated 13 January 2000 no. 91: Regulations containing details outlining the functioning of the National Fund for disabled persons’ right to work, set up in accordance with article 13, comma 4 of law no. 68 dated 12 March 1999.

• Law no. 126 of 18 May 2000: Conversion of Legislative Decree no. 60 dated 16 March 2000, no. 60, bearing urgent provisions to ensure the continuation of assistance to di-sabled persons with intellectual handicaps.

• Executive Decree of 26 September 2000: Sharing between regions of financial resources from the Fund for right to work of disabled persons, established by article 13, comma 4, of law no. 68.dated 12 March 1999.

• Presidential Decree 10 October 2000, no. 333: Executive regulation for implementa-tion of law no. 68 dated 12 March 1999, with regulations regarding disabled persons’ right to work.

• Law no. 30 dated 14 February 2003: Dele-gated law regarding occupation and the labour market.

• Law no. 4 dated 9 January 2004,: Regu-lations for access of disabled persons to information technology.

THE CONTEXT

12

This real novelty here regards compulsory hiring and it is on this principle that all later regulations are based.The working ability of the disabled person is ascertained throu-gh a complex procedure outlined in the Prime Ministerial De-cree dated 13 January 2000 “Document providing direction and coordination regarding compulsory hiring of disabled persons, in accordance with art. 1, comma 4 of law no. 68 dated 12 March 1999”.

According to this procedure, working together with territorial services, a technical committee must evaluate the real working capacity of the disabled worker and the characteristics of the jobs available, identifying personal job placement procedures, ensuring facilitation is also for employers in terms of modifica-tion of the environment, time and organisation of work. In this way, the state then once again looking to more than its propo-sals for active policies for the labour market, for training poli-cies which allow access and effective introduction for disabled persons to the working world.The beneficiaries are usually:

∑• persons of working age (men between 15 and 65 years of age; women between 15 and 60 years) who are physically, mentally or sensorially disabled;

∑• intellectually handicapped persons with a proven loss of wor-king ability greater than 45%, ascertained by commissions appointed to evaluate civil invalidity (established by art. 4 of previous Law 104/92) in conformity with the table indicating percentage of invalidity due to disability or illness according to art. 2 of the previous Legislative Decree 509/88;

∑• invalids with a disability due to work-related injuries greater than 33% as ascertained by INAIL;

∑• non sighted persons (total blindness or with residual vision not greater than one tenth in both eyes after correction) and deaf mute people who have been deaf since birth or before le-arning to speak;

• war invalids, civil invalids of war or public employees who ac-quired invalidity in service with handicaps belonging to the first to the eighth category of the tables annexed to the con-solidating act regarding war pensions (Presidential Decree 915/1978 and subsequent modifications);

• disabled foreigners with residence permit valid for more than a year (Circular of Ministry of Labour 02/02/1999).

List of Regional Legislation with regard to job placement for disabled persons:

Regional Law no. 12 dated10-04-2001 FRIULI-VE-NEZIA GIULIA REGION (Directives regarding disabled workers’ right to work, telework and social security issues).

Regional Law no. 13 dated 4-08-2003 LOMBAR-DIA REGION (Promotion of access to work for disabled and disadvantaged persons).

Regional Law no. 51 dated 29-08-2000 PIE-MONTE REGION (Regional fund for employ-ment of disabled persons).

Regional Law no. 16 dated 3-08-2001 VENETO REGION (Regulations regarding disabled workers’ right to work).

Regional Law no. 15 dated 29-05-2003 LIGURIA REGION (Rules for promotion of job placement for disabled workers)

Regional Law no. 14 dated 25-02-2000 EMILIA-ROMAGNA REGION (Promotion of access to work for disabled and disadvantaged persons).

Regional Law no. 19 dated 21-07-2003 LAZIO RE-GION (Regulations regarding disabled workers’ right to work).

Regional Law no. 11 del 15-03-1984 CAMPANIA REGION (Rules for prevention, care and rehabilitation of handicap and for insertion into social life).

Regional Law no. 24 del 26-11-2000 SICILY RE-GION (Directives regarding job placement for persons occupied in socially useful jobs. Urgent regulations regarding work and institutions of the regional fund for employment of disabled persons).

PARTE IPART I

13

Furthermore the law calls for positive action, aiming to support persons and improve job placement, including the elimination of environmental and relational impediments. It also meets companies’ needs for a rewarding job inclusion experience wi-thin the organisation itself, including employment incentives such as the opportunity to make agreements with public bodies and their services.

Offers of employment can take place through start-up requests or agreements, made with the appropriate services. Start-up re-quests can be by name or by number. The agreements as pro-vided for in art. 11 of Law no. 68/99, are stipulated between employees and the appropriate services and establish the ti-meframe and methods that will be used by the employer.According to art. 13 of the above law, private employers may have access to financial inducements for hiring as part of the quotas assigned in each region by the National fund for the right to work of disabled persons. Comma 4 of this article pro-vides for the establishment of this National fund at the Mini-stry of labour and social policy, with the purpose of financing job placement initiatives. There is a fund at the regional level corresponding to the National one, for the employment of disa-bled workers, to finance regional job placement programmes and related services.

Legislative decree no. 4 of 10 January 2006, regarding urgent measures for organisation and functioning of public admini-stration was converted into law no. 80 on 9 March 2006. This is a reminder of the importance of the cultural revolution brought about by the ICF model and subsequent planning activities. The new law provides for simplification and unification of the proce-dures for health service ascertainment of disability.

The framework labour law was completed with the promul-gation of Law no. 30/2003, the so-called “Legge Biagi”. One of the objectives was to modernise public job placement, with the aim of simplifying procedures and reinforcing steps to prevent unemployment, through a model which considers cooperation and competition between public and private structures and tho-se with special agreements.In order to counter infractions which often occur in job place-ments, especially if disabled persons are involved, along with the Law also the inspection procedures will be revised and pro-

Law no. 80 of 9 March 2006

“Conversion into law of legal decree number no. 4 of 10 January 2006 with modifications, referring to urgent measures regarding the organisation and functioning of public administration.”Published in the official Gazette dated 11 March 2006, n. 59 (omissis)

Article 6. (Simplification of administrative procedures for disabled persons) 1. Within their territorial limits, Regions will

adopt regulations to simplify and unify procedures of health assessment referred to in article 1 of law no. 295, of 15 October 1990, for assessment of civil invalidity, blindness, deafness, as well as handicap and severe handicap as specified in articles 3 and 4 of law no. 104 dated 5 February 1992, and subsequent amendments, carried out by specific commissions in a single location, using a single form and on a single date for all groups for which legal ascertainment is required.

2. At comma 3 of article 399 of the consolida-ting act on legislative regulations in force regarding education, applicable to schools of every type and level, according to legisla-tive decree no. 297, of 16 April 1994, after the words: «does not apply to personnel accor-ding to article 21 of law no. 104 of 5 February 1992» the following has been added: «and to personnel according to article 33, comma 5, of the same law».

3. Comma 2 of article 97 of law no. 388 dated 23 December 2000, has been substituted by the following: «2. Disabled subjects or those with stabilized or ingravescent pa-thologies, including those affected by the thalidomide syndrome, who have already been granted an allowance for accompa-niment or communication are exonerated from the medical check-up for purposes of ascertainment of the existence of the civil disability or handicap.

THE CONTEXT

14

vision will be made not only for the traditional repressive fun-ctions and sanctions, but also for prevention and support for the normal and correct functioning of labour relations.Another novelty of the Legge Biagi is the recognition of special job contracts, listed below.

Placement contracts (Contratti di inserimento)(articles 54 and following of the Legislative Decree no. 276/2003) whose purpose is to place, among others, “persons with a reco-gnized and severe physical, mental or psychic handicap in ac-cordance with the current legislation” through an individual project of adaptation of professional abilities of the worker to a certain work situation.The contract must necessarily be in writing and must indicate the individual placement project. In any case, the duration can-not be less than nine months or more than eighteen.

Occasional accessory job contract (articles 70 and following of the Legislative Decree no. 276/2003) in favour of job placement for weaker groups of job seekers in-creasing opportunities with families or non profit organisa-tions.The law identifies the exact assignments that the worker can be entrusted with: small household jobs, including help for chil-dren and elderly persons at home, both ill and handicapped; pri-vate additional teaching; small gardening jobs, cleaning; hol-ding social, cultural and sports exhibitions; collaboration with public organisations and voluntary associations for emergency or socially useful work. This occasional accessory job type can-not be carried out for more than thirty days during the solar year (even if it is done for several employers); and the pay cannot exceed three thousand euros per solar year.

Teleworking contract This is a contract where the work is done using a connection from home, from a telecenter or from different places through a computer to the company or organisation that the person is working for or with. This flexible form of employment has several advantages. For an organisation it means, first of all, cost reduction. Also, by giving its employees the chance to organize the work by them-selves at home, motivation, productivity and creativity are in-creased.

By decree of the Minister of Economy and Finance, along with the Minister of Health, without further financial obligations for the state, the pathologies and disabilities for which ascertainment for checking and revision are excluded and the health documentation is indicated, to request from the parties concerned or the medical commissions of the local health agencies if not formally recorded, suitable to prove the disability».

3-bis. The ascertainment of civil invalidity or handicap, regarding persons with oncolo-gical pathologies, is carried out by medical commissions according to article 1 of the law no. 295 dated 15 October 1990, or article 4 of law no. 104 dated 5 Februry1992, within fifteen days of the request of the person involved.

The outcome of the ascertainment has immediate validity for entitlement to bene-fits deriving from it, unless the peripheral medical commission refers to article 1, comma 7, of law no. 295 dated 15 October 1990, to suspend the effects until further ascertainment is carried out.

PART I

15

For the teleworkers, the first and easily understood advantage is greater freedom in reconciling work with personal and family needs. And let’s not forget the re-duction in travel related stress.For society, the first fact that should be remembered is that telework can create new work opportunities, especially for disabled persons, reducing traffic stress, pollution and energy consumption at the same time.

The executive decrees for the “Legge Biagi” also provide for employers to be exo-nerated from the compulsory hiring policy, providing for job inclusion for disa-bled persons within social co-operatives.The current regulations also provide for special conditions in the form of part-time work. This form of protection of rights of this category of workers, accor-ding to the provisions of Law 104/1992, makes work a true occasion for social inclusion and not for isolation.

Agreements

Among the legislative tools that are being used for orientation and facilitation of job placement for disabled persons, the agreement allows for the use of placement services and the chance for the employer, the worker and companies to personali-se the process to the maximum extent possible. Several types of agreements are provided although the common final goal remains that of progressively filling the compulsory quota15.Framework agreements have been drawn up and determined by law no. 68/99 and legislative decree no. 276/03. Some of them, especially those outlined in ar-ticle 12 of law no. 68/99, have encountered difficulties in the applicative phase16, however it is useful to briefly explain all the different types so as to have a gene-ral understanding.

The job placement agreement (art. 11, Law no. 68/99)This agreement refers to article 11, commas 1, 2 and 3 of law no. 68/99. It calls for an agreement between the employer and the competent provincial office, for gradual job inclusion procedures for disabled persons, using apprenticeship pe-riods when necessary for training and orientation, prolonging trial periods with respect to collective national labour contract requirements and hiring using fi-xed period contracts.

15 For the different types see ITALIAN SENATE, 11th WORK COMMISSION, SOCIAL SECURITY (11ª) Wednesday 8 February 2006, 366th sitting, Conclusive document of the informative investigation on the state of implementation of laws regarding disabled persons’ right to work, pp. 29-31.

16 As already highlighted by several studies, this regulation has had, all over Italy, irrelevant adherence and progress in its preli-minary phases. See PROGETTO SPINN, SERVIZI PER L’IMPIEGO NETWORK NAZIONALE, State of implementation of Italia Lavoro action plan 2004, PON Ob. 3 “System actions” Axis A – Measure A.1 territorial development and social inclusion. article. 12 of Law 68/99.

THE CONTEXT

16

Legge 12 marzo 1999, n. 68“Norme per il diritto al lavoro dei disabili”

CAPO IV- CONVENZIONI E INCENTIVIPARAGRAPH IV – AGREEMENTS AND INCENTIVES Article 12. (Social cooperatives) 1. Without prejudice to articles 9 e 11, the com-

petent offices may stipulate with private employers who are subject to article 3, with social cooperatives indicated in article 1, comma 1, letter b), of law no. 381 dated 8 November 1991, and successive modifi-cations, and with self-employed disabled persons, even when working with individual companies, specific agreements targeted at temporary job placement for disabled persons belonging to categories specified in article 1 with the social cooperatives themselves, or with the aforementioned self employed persons, and with whom the employers underwrite work contracts. These agreements, which cannot be repeated for the same person, except in the case of a different opinion of the technical committee defined in comma 2, letter b) of article 6, cannot involve more than one disabled worker, if the employer employs fewer than 50 persons, or more than 30 per cent of the disabled workers who have been employed according to article 3, if the employer employs more than 50 persons.

2. The agreement is subordinate to the existence of the following requisites

a) simultaneous permanent employment of the disabled person by the employer;

b) coverage of the compulsory quota referred to in article 3 through employment as in a);

c) employment of the disabled person at a social cooperative or a self employed per-son as specified in comma 1 with payment provided for services, insurance and health cover by the latter, for the entire duration of the agreement, which cannot exceed twelve months, or can be prolonged by twelve months by the competent offices;

If the job placement takes place based on an agreement of this type, the employer will not be subject to penalties which would have been called for in the case of non-respect of times and hi-ring quotas required by the general legislation, provided inste-ad that he respects those established by this agreement.In practice it is a tool that adapts the execution of regulations related to the compulsory quota for a project of targeted place-ment, basically taking into consideration the internal condi-tions of the company or organisation and its capacity to take in and manage a disabled worker in an efficient manner.

The work integration agreement between employees and job placement centres (article. 11, Law no. 68/99)Detailed in comma 4 of article 11 of Law no. 68/99, this agree-ment requires an arrangement between the employer and the competent office, with regard to further job placement measures as applied specifically to disabled persons with special characte-ristics and problems for inclusion in the normal working cycle.With respect work placement, these agreements provide for de-tailed descriptions of the jobs assigned to the worker and faci-litate supporting actions necessary, training and tutorship for targeted job placement.The implementation of these additional actions had been encou-raged by financial subsidies disbursed by the National fund, available to the employer who signs the agreements.

The agreement according to art. 12This type of agreement confirms the role of social cooperatives in rehabilitating disabled persons, both in the context of social life, as well as at work.This is a trilateral accord between the employer, social co-opera-tive (or self-employed disabled persons) and the relevant offices and allows disabled workers, employed on a permanent basis by an employer, to be temporary placed with a social cooperative which ensures the company that it will assign an appropriate job for the duration of the agreement and will cover the expen-ses of the disabled worker, which the cooperative would be re-sponsible for. In practice this is an arrangement for an initial training period with a cooperative, before being taken on direct-ly by the employing company or organisation.This agreement, however, is conditioned by limitations which influence its application, and which are explained in the law itself.

PART I

17

The main ones are:

∑ · The number of disabled people who can be accommodated: only one, if the company has fewer than 50 employees; not more than 30% of the compulsory quota, if the company has more than 50 employees;

∑ · The type of contract: the disabled worker must have a perma-nent work contract;

· The duration: the agreement lasts for one year and can be re-newed for a further 12 months, at the end of which period the disabled person must be transferred to the company;

· The sum paid to carry out this work: it must be sufficient to cover the pay, insurance, health coverage and training costs met by the cooperative for this person.

The investigation carried out by the 11th Senate Commission17 highlighted the way these limitations had actually restrained the use of this agreement. Above and beyond the shrinking of the field of application, determined by the size of the company and the duration of the agreement, it is interesting to note how the disabled person, in this case, is introduced into a placement process that lacks continuity. Initially working in a social cooperative, where training is gi-ven for jobs that will be carried out in the company, he has the advantage at the beginning of a protected environment and a personalised work and training programme, which does not necessarily proceed in a linear manner, after he moves to the company. It is reasonable to assume that the company does not have hu-man resources or physical and operative structures suitable for employment of disabled persons (otherwise the disabled person would have started work directly at the company), which in any case would be structured differently from a so-cial cooperative.

In brief, there is a real risk that the problem is only being postpo-ned through the use of this agreement. Furthermore, it forces the disabled person to make an effort for a second time to adapt to new working and environmental conditions. Also, the time limit for the agreement does not ensure that the job placement

17 See ITALIAN SENATE, 11th LABOUR AND SOCIAL SECURITY COMMISSION Wednesday 8 Februa-ry2006, 366th session, Conclusive Document of the informative investigation on the implementation of the informative investigation on laws regarding disabled persons’ right to work p.31.

THE CONTEXT

d) indication of the following in the agree-ment:

1) the total sum that the employer must pay the cooperative or the self emplo-yed person referred to in comma 1; this sum must not be less that that which permits the cooperative or the self-employed person referred to in comma 1 to apply the normative and retributive parts of the national collective work contract, also including the expenditure for accident and health insurance, and carrying out the functions necessary for job placement of disabled persons;

2) the names of the persons which should be inserted according to the require-ments of comma 1;

3) a description of the personalised training program.

3. The provisions of article 11, comma 7 also apply to the agreements referred to in this article, as they are compatible.

4. The competent offices may stipulate with private employers as specified in article 3 and social cooperatives as in article 1, comma 1, letter b), of law no. 381 dated 8 No-vember 1991, and successive amendments, agreements suitable for temporary job placement of disabled prisoners.

Legislative Decree no. 276 dated 10 September 2003, “Implementation of the relevant act regar-ding occupation and the labour market according to law no. 30 dated 14 Februry2003”

Article 14.Social cooperatives and job placement for disadvantaged workers 1. With the aim of encouraging job place-ment for disadvantaged and handicapped workers, the services referred to in article 6, comma 1, of law no. 68 dated12 March 1999, after consulting the organism referred to in article 6, comma 3, of the legislative decree number no. 469 dated 23 December 1997, as modified in article 6 of law no. 68, dated

18

and training process at the cooperative will actually have been completed, and not simply interrupted. We cannot be sure that one year is enough to ensure that a disa-bled worker, especially if he/she is unqualified, severely handi-capped, or has simply had a long illness, has all the tools neces-sary to be prepared for becoming part of a company, if there is no facilitating structure awaiting him.

The agreement according to art. 14 of Legislative Decree no. 276 dated 10 September 2003The newest type of agreement is defined in article 14 of Legi-slative Decree 276/03 and follows on the lines of the agreement according to article 12.In this case, the job placement services are required to stipu-late, with the labour market subjects and with organisations comprising of type B social cooperatives, territorial framework agreements for assigning jobs by companies to social coopera-tives.The size of jobs, the calculation of the coefficient to determine the number of disabled persons who must be placed at the so-cial cooperative to satisfy the compulsory quota, the criteria for evaluation of disadvantaged workers have been established by the agreement, which also regulates how companies participate and the highest percentage of the quota that can be covered by this system.With respect to the agreements according to article 12, the most important differences refer to the increased importance of con-sultation and the fact that the disabled worker does not neces-sarily have to pass to the company. It is worth nothing that this tool fits in with territorial labour policy and calls for the direct involvement of all relevant institutions.

From a certain point of view, it seems more favourable to the disabled worker, who – differently than described in article 12 – does not leave the cooperative at the end of the placement pe-riod.However, it is precisely this factor which risks excluding the di-sabled worker from the wider labour market, relegating him/her to a small compartment of the productive world, but above all subordinating his work to the availability of job orders.Without arriving at the extreme conclusion of the 11th Commis-sion of the Senate, which expressed the fear that the disabled

12 March 1999, stipulate with trade union organisations and employers and workers comparatively more representative at a national level and with the associations which represent, assist and protect the interests of the cooperatives referred to in article 1, comma 1, letter b), of the law no. 381 dated 8 November 1991, and with its group referred to in article 8 of the same law, framework agreements on a territorial basis, which must be validated by the regions, after hearing from consultation bodies referred to in legislative decree no. 469 of 23 December 1997, and later amendments, which have the objective of awarding of job orders to social cooperatives by associated companies or members.2. The framework agreement regulates the following aspects: a) the ways in which interested companies can take part; b) criteria to identify disadvantaged wor-kers; disabled workers will be evaluated by the services on the basis of article 6, comma 1, of law no. 68 dated 12 March 1999; c) methods for certifying the total annual value of the work agreed with each company and the relationship with the number of disadvantaged workers who are sent to work in cooperatives; d) how to determine the calculation coef-ficient of the unit value of job orders, in order to satisfy comma 3, second congruity criterion with the costs of work derived from collective contracts for the category applied by social cooperatives; e) the promotion and development of work orders for social cooperatives; f) the constitution, if necessary, within the social agency referred to in article 13, of a non-profit technical and operative structure to support of the activities given for in the agreement; g) the maximum percentage limits for cove-rage of the compulsory quota to be calcula-ted with tools indicated in the agreement.

PART I

19

worker would be reduced to an “exchange commodity”, useful to a company to cover the compulsory quota and to the cooperative to obtain job orders, it does seem that the risk of marginalisa-tion is real. Ultimately, the agreement according to art. 14 does not stimulate the company itself to take on social responsibility, but to limit itself to giving out a job order, without there being an effort within the company to achieve the conditions (structu-ral, methodological, operative, and strategic) which can lead to professional inclusion of the disabled citizen in a broad sense.Further along the lines of the observations in ILO’s “Code of practice on managing disability in the workplace”, if a company responds to the issue of disability merely by assigning job or-ders to social cooperatives, without investing in measures ne-cessary to admit the person within its structure, it will not be able to manage if one of its present employees, say a foreman or the best secretary, becomes disabled, because the lift will not be large enough for a wheelchair.Because of the limits already highlighted and the fact that it is new, this type of agreement is seldom applied today and it is not yet possible to state how it can contribute to resolving the pro-blem of job inclusion for disabled persons.Legislative innovations and the many projects under way do not in any case ensure complete job occupation of disadvantaged persons nor project sustainability.

Employment levels in Italy are still fairly low. The employment rate among disabled persons is 21%, less than half of that for non disabled persons. We need to also remember that about 27% of disabled persons of working age are totally unfit for work. Disabled women are significantly disadvantaged with respect to men: the former have an employment rate of 11% and the lat-ter 29%. The gender disadvantage for women exists also among non disabled workers, although the difference is not so great in this case18.

18 See INTERMINISTERIAL COMMISSION ON DEVELOPMENT AND USE OF INFORMATION TECHNOLO-GIES FOR WEAK CATEGORIES, White Paper, Technologies for disability. A society where no one is left out (Tecnologie per la disabilità. Una società senza esclusi) 30 pages. The study is available at this site: www.innovazione.gov.it/librobianco.

3. In so far as job placement in social coopera-tives, carried out according to commas 1 and 2, is related to disabled workers, who have special characteristics and problems in fitting into the normal working cycle, on the basis of evaluation exclusively by the services referred to in article 6, comma 1, of law no. 68 dated 12 March 1999, the same will be considered valid or covering the reserved quotas referred to in article 3 of the same law which the contributing companies are part of. The number of places per company is given by the annual sum of job orders granted, di-vided by the coefficient described in comma 2, letter d), and within the maximum percen-tage limits established within the framework agreements referred to in comma 1.These maximum percentage limits are not effective in the case of companies that employ between 15 and 35 persons. The numberof workers sent to social cooperati-ves will be checked by the Provincial Work Commission.4. The application of the provisions of com-ma 3 is subordinate to the hiring of disabled workers for the purpose of covering the remaining quota which applies to them and is determined on the basis of article 3 of law no. 68 dated 12 March 1999.

THE CONTEXT

PART I

21

In the previous parts of this publication, the major milestones of a long legislative path have been highlighted. This will help to clarify and give official weight to the legislative basis for the concept of full and complete inclusion of the “disabled person” as someone who has rights and responsibilities of citizenship. In the United Nations document, as well as in the Italian legal texts, the principle of total equality in citizenship rights for disabled and non-disabled persons has been explicitly formali-sed. The documents presented and examined here have clearly shown that no type of reduction or absence or change in ability – “dis-ability” – either physical or mental, whether temporary or permanent, can in any case and for any reason lead to modify the equal citizenship status of the person involved. This consi-deration is part of our judicial and cultural heritage.

Although we may state that human rights and principles have been clearly enunciated and no further discussion is necessary, this is not true of behaviour, which is the practical and functio-nal translation of these principles of citizenship in the daily life of disabled persons.In their daily lives, disabled people especially in Italy are still not a full part of the society they live in and feel it acutely. The delay in changing attitudes can be explained by the country’s history, traditions and culture.

Italy progressed from a rural economy to a post-industrial so-ciety in record-breaking time and the effects of this rapid tran-sformation were felt especially on the cultural level. Within three or four generations a farming culture was transformed into a mass culture which adopted the criteria and trends that characterise the entire western world. An almost exclusive em-

DISABILITY AND CITIZENSHIP

…no type of reduction or absence or change in ability – dis-ability – either physical or mental, … can be the cause or reason to modify the equal citizenship status of the person involved.

Giovanni Bastianini

THE CONTEXT

22

phasis is placed on personal performance, the single individual and the opportu-nities available to this individual. Social relationships are presented as a simple network of possibilities to be used as best as possible for the individual’s own progress and well-being. This is further aggravated by the fact that it takes pla-ce in a consumer culture which is presented as a multi-value terrain, where we measure personal success, social homologation and acceptance, recognition, a large part of personal identity, consideration and respect from others, the values which are truly shared on a social level.

The season for developing concepts regarding the rights and responsibilities of citizenship has been too brief. There has been a significant increase in financial freedom and collective well-being strongly rooted at a local level. New behaviours have sprung up and adapted to newer standards, these too supported by changes in laws and legislation. In many Italian regions we moved far too quickly from a farming culture to its destruction and standardisation, and ended up with a rough piecemeal post-industrial culture. At the same time, the well structured and solid industrial culture left a lasting mark only in some parts of Italy and an even more symbolic political heritage. But it was actually the industrial pha-se, which played a key role in economic development, that gave us the chance to conceive welfare policies and translate them into practice. In practical terms this means an attempt to actually exercise measures to support the weaker sections of society, redistributing well-being and citizenship rights. In the post industrial phase that followed, welfare began to be considered a problem, an ever increasing burden and an impediment to new economic progress. A country’s relationship with disability is closely related to the level of civilisa-tion that its citizens share. In the case of Italy, impulsive and confused develop-ment has given rise to different layers of social understanding. In a single day, a single person can live in a succession of situations that are culturally completely different. In the morning he leaves the rural remnants of the town where he lives, to go to a city whose structure still responds to industrial era standards. He then settles down to work “on line” in an environment totally alien to the two he has just left behind. And so the “social understanding” of disability, lacking a com-mon cultural denominator, has found refuge in bureaucratisation.

Instead of becoming part of the common heritage of the way of thinking and be-haviour of all citizens, the inclusion of disabled citizens into society was seen and perceived as a series of circumscribed tasks, left to public and volunteer ser-vices to cope with, nothing more than another chapter in the execution of welfare policy. In the meantime, the “common” culture pushed ahead on its own, riding on the wave of cultural ideas reinforced in its every aspect by the medium of tele-vision, which in the era of individualism and consumerism is certainly the best heeded soothsayer and oracle. The indignation expressed in 1975 by Pier Paolo Pasolini in his articles in “Il Mondo” and “Corriere della Sera”, now published by

PART I

23

Einaudi under the title “Lettere luterane” (Lutheran letters), seems today, thir-ty years later, to be remarkably prophetic, yet naive. Although he perceived very clearly the beginning of a series of collective phenomena, thanks to his extra-ordinarily sensitive vision as an artist and man on the sidelines, Pasolini could not perfectly imagine then how many and which particular hurried steps our country would take towards a widespread situation of social malaise. This ma-laise became the standard yet manifold expression of the difficulty of ensuring a “civilised culture” for citizens living together. This lead in turn to an over-accu-mulation of cultural deterioration, a general conformism to the rules of mass cul-ture consumerism and frenetic individualism. The disintegration of the social fabric of relationships, which are the most important and most fragile heritage of the people of any country was exacerbated by part of the population who are emarginated by the pathways of development and growth. The person who emer-ged as a result of this was extremely impoverished at the personal cultural level, therefore more fragile and vulnerable to every kind of over-stimulation.

It should therefore not surprise us that disabled persons’ issues, expressed as a request to put into practice what the law already provides for, often fall on deaf ears and fail to become a “normal”, obvious, immediate and “natural” part of the collective culture. Every time an architectural barrier is torn down, or a collecti-ve targeted service is carried out, every time we translate the most elementary rights into practice, we congratulate ourselves. This reveals that even today, col-lective behaviours only too often overlook the rights of disabled persons.In fact disabled persons – who translate their disability into greater dependence on others and in the need for specific “services” – counter societal trends which exalt the individual who manages on his own, who can depend upon his own abilities to go ahead on his own towards success, who uses the environment and persons close to him as support to get ahead in this dramatic challenge between himself and the rest of the world, a challenge seen as a sign of modern living, made of flexibility, change, transformation, with pathways criss-crossing betwe-en new opportunities, new feelings and new experiences, all of them symbolising individuality. For this reason there is a certain amount of pleasure when we see a disabled person who has been “successful on his own”, whether artist or scien-tist or businessman or manager. It is not the disability in itself which causes such pleasure, it is in the confirmation that public opinion finds in the dominant ethos, one which is valid for all, that success is merely the result of each person’s own strategy.

Most disabled people who already have a host of problems to deal with discover that they are also part of a cultural minority. They do not have the time to wor-ry about individual success and the challenge of remaining at the centre of the world. This situation becomes very clear when the issue of work comes up. The laws, in this issue of disabled persons’ right to work, have established procedures,

THE CONTEXT

24

administrative pathways, quantities, thresholds and controls, to make it possi-ble to “administer” the issue, transforming the problem into a series of exercises which just about any bureaucracy can handle. Thus disabled persons’ work is no longer something to do with their personal history and background; it is merely a “phenomenon” or “problem”, a procedure, and therefore manageable in itself. If the file reaches the end of its bureaucratic procedure, the person will be granted his “rights”, and he will be the recipient or beneficiary of the administrative pro-cedure. If there are snags or delays, they will not have been caused by the lack of care for a person’s needs, but by superior procedural issues. Bureaucracy provi-des an extraordinary service to society in transforming even the most difficult personal cases in “bureaucratic procedures”, with no feelings whatsoever, free from the nightmare of faces, eyes and lives which have an impact on our lives unless the relationship is brought down to the most neutral administrative di-mensions possible.

In this situation where the real problems of a person – a disabled person – are transformed into a “procedure”, the role of other parties, such as associations and non-profit social cooperatives, also need to be regulated. The current legislation states very clearly its obvious need to ensure maximum coordination between the parties and to increase the guarantees, controls, the number of persons who par-ticipate in job placement with different roles as well as the full involvement of all the “public” structures in charge of the “issue”. As always, the only factor which is completely absent is the timeframe: we are not given to know how much time the “machines” designed to resolve the problem will need to start working and go through the entire procedure. And if you do not want to follow this complex series of procedures inspired perhaps by the logic of finding the right person for the right job, the old “quantitative” system still holds, with the risk of finding any random sort of job, with no mediation between the requirements of the company, the organisation and person involved. The preservation of this state of affairs is also aided, effectively, by the behaviour of powerful associations of disabled per-sons, who are organized on the basis of political and corporative representation. By this means they often obtain public funding and other measures in favour of the “category” that they represent, but do not contribute the pressure necessary to modify the situation from the point of view of the civil culture.

For a disabled person, the full exercise of citizenship rights means firstly and above all that his constitutional rights must be translated into solidarity and work as a way to earn a living, but mainly as a bridge to the social dimension of personal dignity. The result should be a variety of real options and prospects, both for the disabled person and for employers. Social cooperatives bring com-mitment to the cause of inclusion of disabled citizens. It is the reason they exist and work. They can fit into this flexible relationship in an exceptionally useful way.

PART I

25

At least in appearance and at the initial impact, the disabled person is always and in any case someone “different”. Careful work is necessary on a social level before we realize that there really is no difference, or if there is, it is one of the many that each one of us is perfectly capable of dealing with in our normal, daily lives. A cultural mediator facilitates relationships, explaining and showing us the possibility of normal relationships between people. His presence is at least as useful in the case of job placement for disabled persons, as when work colleagues and other persons come from other countries, where the culture and sensitivi-ties are different. The “diversity” which distinguishes our epoch of migration and temporary, still unachieved social integration should be considered and ma-naged just like any natural obstacle which needs to be removed to smooth the road towards a type of citizenship, translated into daily actions. This diversity can be due to a different physical or mental “ability”, or an inability to form rela-tionships because of different languages, traditions and ways of understanding relationships.

It is probably easier in a work context than in other situations, to act on cultu-ral beliefs, thus facilitating inclusion processes, involvement and relationships. This is simply because of the fact that no employee, disabled or not, is ever hired to do all possible jobs and tasks perfectly. For a long time the organisational me-chanisms of companies and organisations have been very careful in selecting personnel, using processes which identify persons with a series of abilities and skills specifically required for that particular job. The candidate must have some technical skills, a “knowledge” base of a certain type, a character that permits normal social interaction in the workplace and some specific skills considered suitable for the role he must fill. The work relationship stars off by “slicing up” the future worker. Once it has been determined that he has the ability to carry out a certain job and that there are no factors which would compromise the nor-mal use of this ability, all the other parts of the “person”, his ideas, dreams, way of living, his “worlds” are of no interest whatsoever. It is up to the others, and to the dynamics of the work community, to see the person as a whole with all his characteristics together. A person is usually selected on the basis of job requi-rements in the company or organisation. His others facets of a will come to light only later. They will define the quality of life and the working climate, which will define the relationships workers have with each other and with other persons in the organisation with whom they have direct contact.

In this “dehumanised” relationships, paradoxically, we can see chances for the world of work to build relationships easily with disabled persons. When “sliced up”, the disabled person can often show that he is in no way lacking when com-pared with normally able people, in relation to the specifics of a certain job. For this to happen it is enough that the dis-ability be related to functions which are not relevant to work performance. Although the difference between a disabled

THE CONTEXT

26

and a normally able person may not be apparent when it is an question of filling a job, it may arise when the quality of the work environment and of life in that en-vironment are concerned. The tutor’s role can be decisive in this case, in creating a situation which makes job placement a success. He can be a facilitator for rela-tionships, someone who translates the expectations that disabled persons have of their colleagues and vice versa: he can be an example of relaxed yet respec-tful relationships, for disabled persons and others. A tutor’s job is not easy. He accepts the responsibility of setting a relationship between “different” people in motion and keeping it normal. Problems can arise on both sides of a relationship. Normally “able” people can be the “healthy carriers” of a unknowingly distorted way of seeing and working with disabled persons. But disabled persons, too, can make the relationship difficult by wanting to settle scores or unload long accu-mulated frustrations and bitterness. Both parties will live through experiences and have chances to learn to recognize and express themselves for what they are. And of course, both of them are free to express friendship, liking and sociability as well as search for harmony and empathy.

All the rest, all that happens later, is history, life and an exercise in citizenship. The company can go bankrupt, people can change and individuals can show unexpectedly agreeable or disturbed sides to their characters. Relationships can become very tense and sometimes disruptive. But once he finds a job in a favou-rable environment, the disabled person can find the right conditions to start his career path either in the same company or organisation or in the “world of work”, accepting responsibility for his own job mobility, an option still available today. But no citizen has the right to a guaranteed happy ending. At the beginning of any procedure, the bulk of everyone’s work and commitments needs stop to per-mit equality and justice to work. They should initiate and reinforce processes of social inclusion, true understanding of rights and responsibilities and inclusion of the disabled person “within” the walls of the city and not outside it.

To make sure this happens, what is true for disabled persons should also be true for everyone else. Citizenship means liberty and personal dignity. By reducing it to the object of welfare policies, benevolence, and social assistance in a way that does exalt the liberty and dignity of each person, is the most efficient way of killing democracy.

PART I

27

Introduction

Introductory information on the relationship between compa-nies and the world of disability could be useful before setting out to look at the job placement study in the Department of Civil Protection and to understand why it could be a reference model. This relationship, as confirmed by the analysis of literature and case studies, is still a difficult one. It meets many obstacles and often comes up against contradictions and prejudices. Despite this, there is an increasing demand for companies to be invol-ved. The reasons for this have been explained in many different ways and places.

When a company or business integrates disabled persons, it ac-quires “ethical know how” and shows “responsible behaviour”. It is the response to what is defined as Social Responsibility of Bu-siness1. In practice, this translates into behaviour that assures the clients they work with, of their trustworthiness, transparen-cy, fairness, respect and willingness to help.This behaviour generates motivation within the company and consensus within the community where the company works.

However, an analysis of good practices in businesses which have chosen to favour inclusion policies, reveals results that are far from expectations.

1 The concept of social responsibility of businesses unanimously defined as “inclusion on a voluntary ba-sis, by the company, of social and ecological concerns in their commercial operations and relationships with stakeholders.” The review of CSR and good practices followed by Italian businesses edited by the Ministry of Labour and Social Policy provides interesting information. See MINISTRY OF LABOUR AND SOCIAL POLICY, Responsabilità Sociale delle Imprese. Esempi di buone pratiche italiane.(Social responsibility of companies. Examples of good practice in Italy). Available for consultation on the site www.welfare.gov.it.

part II

“If a disabled person enters an organisation which does not make any changes then he will be assimilated; if instead his arrival brings about adaptation both on the part of the person and the organisation, then this is integration.”

(A. Canevaro)1

1 From inclusion to integration in FONDAZIONE IBM ITALIA, ASPHI FONDAZIONE ONLUS, Linee guida per l’integrazione dei disabili in azienda, (Guidelines for in-clusion of disabled persons in companies) p. 16, http://www.asphi.it/DisabilitaOggi/LineeGuida2005.pdf.

The case study THE MODEL OF JOB INCLUSION AT THE CIVIL PROTECTION DEPARTMENT

THE JOB INCLUSION MODEL

28

The inclusion of disabled persons is considered by most of the companies as a legal obligation. Workers are considered persons who must be aided and given jobs in positions where they can cause the least possible damage, rather than a resource to be used well2.

The current situation was illustrated recently by the 11th Work Commission for Social Security on 8 February 2006. Most employers blame the employment of disabled workers in a company as being responsible for3:

• costly modifications to the work place;• complex organisational problems; • slowing down work schedules; • reduced production; • problems of integration with colleagues; • need to dedicate human resources to supervise the process.

This means that recent measures, which provide for compulsory job placement (already referred to under the history of the legislation), as well as a series of in-centives have been applied insufficiently or not at all.4 An example is the Fund for disabled workers’ rights at the Ministry of Welfare5, whose purpose is to finance:

a) agreements between employers and job placement bodies for disabled wor-kers;

b) tax breaks for social security contributions from companies; c) partial refunds for expenses incurred in modifying working environments.

On the other hand, within the new “services system for information networks and employment”, the Regions have the responsibility for:

• identifying offices which are capable of planning the necessary steps for ap-plication of the law on job placement for disabled persons;

• keeping the registers of applicants updated; • issuing authorisations; • stipulating agreements to carry out targeted job placement (execution of regio-

nal law 19/03).

We should also remember that recent legislation has instituted new organisms, i.e. Commissions and Employment Agencies, who have been designated with the

2 See ITALIAN SENATE, 11th LABOUR AND SOCIAL SECURITY COMMISSION Wednesday 8 February 2006, 366th Sitting, Conclusive Document of the informative investigation on the implementation of laws regarding disabled persons’ right to work, p. 2.

3 ibid., p. 2.

4 REGIONAL ORGANISATION FOR COMMUNICATION – “ISTITUTO MONTECELIO”, P.O.R. Ob. 3 Esf 2000/2006 Measure B1 “Direct public information and communication campaign for social inclusion of persons at risk”, Investigation on job placement of disabled persons in SME in Lazio, p.3.

5 See www.governo.it/GovernoInforma/Dossier/fondo_disabili/collo.

PART II

29

responsibility of mediating the job placement process by analy-sing available positions, performing targeted pre-selection, providing support, solutions for environmental and structural problems, and practical training for requirements of individuals and job markets. Social cooperatives, especially those belonging to type B6 have an important role in facilitating the integration of disabled per-sons in the workplace.

Regulated by law no. 381 of 1991, social cooperatives’ purpose is to promote social inclusion of citizens by managing educational and health-related services and carrying out various activities (in the agricultural, industrial, commercial and service sectors) with the aim of facilitating job placement for disadvantaged per-sons.

Law makers too, consider cooperatives among the most suita-ble parties to help in job placement, because they know how to enhance the potential of workers. They are also well able to in-terpret the emerging needs of the territory and the needs of the companies efficiently and in a flexible way. Democracy, participation, quality of service and strong links with the community are the distinctive characteristics of social cooperatives, which foster a model of job placement centred on the needs of the disadvantaged person.

In other terms, by working together simultaneously to coordina-te demand and supply, these organisations create a high quality offering, bringing out the best in disadvantaged workers and supporting the persons who already work there.

The work style typical of social cooperatives legitimates them in the eyes of the Public Administration. The Biagi Reform (“Rifor-ma Biagi”) pursues the aim of including “weak” subjects in work situations. The law states that active participation of parties with significant experience regarding work and disadvantaged persons is extremely important. Many “Equal” projects have been carried out all over the country with the intention of matching demand and offer. These experi-

6 For the information on these brief notes about type B social cooperatives see G. DE ANTONIIS, (a cura di), Inserimento lavorativo. Dalla teoria alla pratica, (Job placement, from theory to practice) 2006, pp. 27-29.

Law , no. 381 of 8 November 1991 “Disciplina delle cooperative sociali (Rules regarding social cooperatives)”

Conventions. - 1. Public entities, including businesses, and publicly held companies, also as exemptions to the regulations regarding public administration contracts, may stipulate agreements with cooperatives which carry out the activities outlined in article I, paragraph 1, letter b), or with equiva-lent organisations based in other European Member states, for providing goods or services different from those of a socio-sanitary and educational nature and whose estimated cost net of VAT is lower than that of imports fixed by community directives regarding public contracts, provided that these agreements are made to create work opportunities for disadvantaged persons referred to in article 4, paragraph 1.

THE JOB INCLUSION MODEL

30

ments are very relevant to the objectives of our study, because they have directly involved companies in setting new mechanisms and procedures in motion, resul-ting in a successful job placement experience for disabled workers. Barriers have been overcome in these cases by identifying good practices to make job inclusion sustainable in the long term.Two projects can be considered excellent examples of such good practices: one in Northern Italy7 (in the Triveneto area) and the other one in the South, in the Cata-nia area.8

The analysis

The Civil Protection Department study was carried out in order to highlight the strengths, weaknesses, opportunities and threats in relation to the entire work integration process 9.We wanted to analyse the complex problems related to the social and work inclu-sion process for persons with various types of disability. In order to collect direct information, avoiding available pre-selected data in the form of tables and models, we decided to design a form especially for the purpose10.The most useful tool turned out to be a questionnaire, which we distributed to disabled workers, employees in the Press service project and the Civil Protection Department. The questionnaire examines workers’ opinions on the various aspects of their ex-perience. It is a useful way to codify a type of intervention, where the main charac-ters are the disabled persons and the implementing party, which in our project is the cooperative that keeps an eye on the perception of both the disabled persons, and the company where they are employed.It is the tool that allows us to set a boundary wall and do a qualitative analysis of the study.

The questionnaire is divided into two sections, each dealing with a specific aspect of the investigation:

7 The Equal Project we refer to is the “S.O.LE. –Strategie per l’occupazione sostenibile (Strategies for sustainable occupation)” pro-ject with which it is possible to place the objective of trying innovative experimental methods to increase sustainability over time of job placements for disadvantaged persons, so as to ensure conditions for effective inclusion into society. See www.equal-sole.org.

8 In June 2006 a study seminar was held in Catania as part of the EX AEQUO project, in partnership between local institutions and organisations, SCO (an Italia Lavoro company), who repeated a similar event which the Ministry of Labour and Social Policy carried out with Italia Lavoro, during the Week of disabled persons (6-14 December 2005).

9 The SWOT Analysis, which allows us to evaluate Strengths , Weaknesses , Opportunities and Threats of any project, plan, program or initiative was used. This technique puts the present (Strengths and Weaknesses) and future (Opportunities and Threats) toge-ther to evaluate possible strategies and procedures.

10 Different studies have revealed how during the job placement process for disabled persons, it is extremely important not to be sub-jected to ideological conditioning and to be free from misleading categorisation. The interesting study by E.SPALTRO and S. PIU, Attitudes, perceptions and opinions of disabled workers about the work they do and the companies where they work, is available at http://www.provincia.pistoia.it/LAVORO/DISABILI/AGGIORNAMENTO05_04_04/IndagineSpaltro.pdf.

PART II

31

• characteristics of the company, including: work sector, weak and strong points, number of employees present in the organisation chart;

• characteristics of the disabled employees and their expectations, position, re-lationship with other people (supervisors and colleagues etc.).

While devising the questionnaire, we inserted questions regarding the employer’s attitudes, helpfulness and cordiality as well as the potential and critical aspects of the company.We also asked those filling in the questionnaire to specify any fears and problems that a disabled person working in a productive sector could cause from their point of view.

One of our aims was also to identify professional profiles compatible with disabi-lity. More in details, we aimed at:

• understanding and checking which types of disability cause more problems for job inclusion;

• understanding how much responsibility an employer is willing to entrust to a disabled person;

• exploring attitudes of disabled persons with respect to the job they do, their expectations, relationships with colleagues, etc.

To check that the questionnaire could provide useful information regarding gene-ral placement problems in the Department, we asked a few companies who employ disabled persons, both from the non-profit (cooperatives) and profit-making (bu-siness) world, to fill it in.The decision to widen the field of investigation and submit the questionnaire to other organisms was not dictated by statistical requirements, or the simply need for comparison. Although it has already been the subject of numerous statistical and scientific analyses, we simply felt the need to do a direct check, to understand how commonly problems arose during the job inclusion process in a limited num-ber of employment situations.

Problems arose right away when companies were asked to fill in the questionnai-re. Many businesses, non totally unexpectedly, showed reluctance to take part in an investigation involving job inclusion for disabled persons, a specially sensitive issue. It is worth explaining here that not all companies are legally obliged to employ disabled persons. Besides those which employ fewer than 15 persons, there are a few more categories in the public and private sector which are exempt from this rule, including:

1) Air, sea and land transport, crew and travelling personnel; 2) Operational cableway transport personnel;

THE JOB INCLUSION MODEL

32

3) Some special sectors, which due to the nature of their activity, can be partially exonerated on request, and on payment to a regional fund for the employment of disabled persons;

4) Some sectors which have been exonerated by a Decree of the Ministry of La-bour and Social Security.

After we eliminated the categories listed above and the companies unwilling to collaborate with us, the field of inquiry shrank. We therefore decided to turn to a trade association, in our case FIPE (Federazione Italiana Pubblici Esercizi – The Italian Bar and Restaurant Owners’ Federation)11 who agreed to be our interme-diary and facilitator.

It turned out to be easier to work with cooperatives. There was a general attitude of openness, a spirit of collaboration and willingness to discuss a topic that is an important part of their work.We therefore ended up concentrating on successful and better known situations, where disabled persons felt welcomed, their progress was well monitored and they received all the necessary attention.For this part of our work we chose ten cooperatives affiliated with the Consorzio SOL.CO. Solidarietà e Cooperazione, which has worked for years towards job inclu-sion for protected categories12.

11 Fipe, Federazione Italiana Pubblici Esercizi is a leading association in the of the restaurant and entertainment business sector such as coffee bars, wine bars, pubs, internet cafès, piano bars, videobars, restaurants, trattorias, free flows, taverns, pizzerias, eateries, ice cream parlours, pastry shops, school, office and hospital canteens, discotheques, night clubs, station buffets, and seaside establishments. Today this sector consists of over 230 thousand companies with 750 thousand workers, and a total annual turnover of more than 45 billion euros. For further information see www.fipe.it/fipe/Chi-Siamo.

12 sThe Consorzio SOL.CO. Solidarietà e Cooperazione società cooperativa sociale a r. l., was registered in Rome on 20 November 1985 and works in accordance with Law 381/91 “Rules regarding social cooperatives”. It is listed in section C of the Regional Register of Social cooperatives by presidential decree in the Regional Gazette no. 443 dated 27/2/1997. It has 91 members who carry out services in the social welfare, health and educational fields and activities aimed at job placement of disadvantaged persons. In this field SOL.CO. carries out socio-economic studies, organises and manages development programs, offers services to companies and carries out educational activities for the development of employment in the personal services, information technology, commerce, crafts, tourism, communication and environmental sectors. See http://www.solcoroma.net.

PARTE II

33THE JOB INCLUSION MODEL

questionnaires

For companies For those with decisional power (President, Managing Director, Personnel Manager) depending on the

size of the company.

Notes The questionnaire has been designed to make it as easy as possible to fill in. It has been written to make

it easy for disabled persons to fill it in without assistance from the tutor, unless specifically requested. Open-ended questions can be answered on the dotted lines, returning to the beginning of the para-graph when necessary, without influencing the layout of other questions. Multiple choice questions can be answered by selecting the square and substituting an X, bolding or underlining, or inapplicable responses can be deleted.

1. Which area does your company work in? (specify the industry)

2. What is the organisational model? (if possible attach the organisation chart)

3. Which are the success factors of your company?

4. In your opinion, what are the problems that your company must face in the next three years?

5. Describe the relationship between your company and the local community.

6. How many disabled persons work in your company and what sort of job contracts do they have?

7. Who did you work with for including differently able people in your company? ❑ Personal contacts ❑ Employment services ❑ Social cooperatives

8. Which provisions of Law no. 68/99 (other than the financial incentives) are applied in your company concurren-tly with the inclusion of a disabled worker? ❑ Organisation of conferences and seminars, for the purpose of sharing knowledge about

the labour market for disabled persons ❑ On-the-job training and orientation for vocational training and continuing education ❑ Work inclusion support services (personal assistance, tutorship, technical assistance and psycho-social support) ❑ Elimination of architectural and other barriers ❑ Introduction of telecommuting and professional distance-learning technology

34 PART II

9. How do you evaluate job inclusion for the differently able worker with regard to: productivity level

❑ low ❑ acceptable ❑ good ❑ excellent

relationships with colleagues ❑ low ❑ acceptable ❑ good ❑ excellent

10. . List three factors that you consider critical for work inclusion

a)

b)

b)

11. How are the differently able worker’s capabilities evaluated in your company? ❑ Individual interviews ❑ Evaluation of skills ❑ Aptitude tests ❑ Trial period ❑ Other

12. Is a tutor employed to facilitate the job inclusion process? ❑ yes ❑ no

13. How have premises been modified?

14. Are your products and services available to everyone? ❑ yes ❑ no

15. How important do employees in your company think their work is? ❑ not at all ❑ not much ❑ quite a bit ❑ a lot ❑ a great deal

16. How do you make sure that disabled employees have the same access to training, career advancement and promotion as other employees?

17. Do you ask your disabled employees what they think about policies and practices that concern them?

18. Are you sure that persons in key positions in the company, such as personnel, research and development and production managers, have enough knowledge about disability issues?

❑ yes ❑ no

35THE JOB INCLUSION MODEL

FOR THE DISABLED PERSON

Notes The questionnaire has been designed to make it as easy as possible to fill in.

Open-ended questions can be answered on the dotted lines, returning to the beginning of the para-graph when necessary, without influencing the layout of other questions. Multiple choice questions can be answered by selecting the square and substituting an X, bolding or underlining, or inapplicable responses can be deleted.

PERSONAL DETAILS1. Age ❑ 18-30 ❑ 31-40 ❑ 41-50 ❑ over 51

2. Who do you live with? ❑ With parents ❑ With your spouse/partner ❑ Alone ❑ With friends ❑ Residential Structure

3. Level of education ❑ Middle school diploma ❑ Professional training certification ❑ High school diploma ❑ Degree

4. What type of disability do you have? ❑ Motor ❑ Visual ❑ Auditory ❑ Relational ❑ Other

5. Do you require mobility aids? ❑ yes ❑ no

6. If yes, please indicate which one: ❑ Wheelchair with assistant ❑ Wheelchair without assistant ❑ Walker ❑ Crutches ❑ Artificial limbs ❑ Seeing eye dog ❑ Other

36 PART II

7. Do you need an assistant: ❑ to move ❑ to go to the toilet ❑ to eat ❑ to dress ❑ other

8. Other major professional experiences

THE PROCESS OF JOB INCLUSION

9. Who did you contact in looking for work? ❑ Personal contacts ❑ Employment services ❑ A social cooperative

10. How did the job placement process take place?

11. Do you believe that social cooperatives can have a decisive role in job inclusion? ❑ yes ❑ no

12. If yes, what are the benefits of belonging to a social cooperative?

13. And what are the disadvantages?

14. How were you abilities evaluated? ❑ Individual interviews ❑ Evaluation of skills ❑ Aptitude tests ❑ Trial period ❑ Other

15. Was your work described to you beforehand? ❑ yes ❑ no

16. Did you have a tutor during the initial period? ❑ yes ❑ no

17. Which were the major problems you encountered during the job placement process?

37THE JOB INCLUSION MODEL

RELATIONSHIP WITH THE PRESENT JOB

18. How do you reach your workplace? ❑ own transport without assistant ❑ own transport with assistant ❑ public transport ❑ special transport service ❑ taxi ❑ other

19. Is there reserved parking at your work place? ❑ yes, internally ❑ yes, public ❑ no

20. How do you evaluate your present job with regard to: accessibility to the premises ❑ low ❑ acceptable ❑ good ❑ excellent

position ❑ low ❑ acceptable ❑ good ❑ excellent

relationship with supervisors ❑ low ❑ acceptable ❑ good ❑ excellent

relationship with colleagues ❑ low ❑ acceptable ❑ good ❑ excellent

type of work ❑ low ❑ acceptable ❑ good ❑ excellent

wages ❑ low ❑ acceptable ❑ good ❑ excellent

21. What would you change in your working situation regarding: accessibility of premises

your job

relationship with your direct supervisor

relationship with “external” supervisors

38 PART II

22. Tell us two things you like about your job

a)

b)

23. Tell us two things you don’t like about your job

a)

b)

24. How important do you think you are in your job ? ❑ not at all ❑ not much ❑ quite a bit ❑ a lot ❑ a great deal

25. What career advancement possibilities exist in your field?

26. How do you evaluate your work with respect to: professional qualification ❑ low ❑ acceptable ❑ good ❑ excellent

human relations ❑ low ❑ acceptable ❑ good ❑ excellent

independence ❑ low ❑ acceptable ❑ good ❑ excellent

self motivation ❑ low ❑ acceptable ❑ good ❑ excellent

27. How is the present job different from any previous ones you have had?

39THE JOB INCLUSION MODEL

RELATIONSHIPS WITH COLLEAGUES

28. How do you evaluate interpersonal relationships within your work group? At the beginning

❑ cold ❑ polite ❑ fairly good ❑ warm ❑ very good

Now

❑ cold ❑ polite ❑ fairly good ❑ warm ❑ very good

29. How do you evaluate interpersonal relationships with your other colleagues (who you do not work with daily)? At the beginning

❑ cold ❑ polite ❑ fairly good ❑ warm ❑ very good

Now

❑ cold ❑ polite ❑ fairly good ❑ warm ❑ very good

THE FUTURE

30. What are your expectations for the future?

THE QUESTIONNAIRE

31. Please evaluate this questionnaire. Was it Easy to understand ❑ low ❑ acceptable ❑ good ❑ excellent

Easy to fill in ❑ low ❑ acceptable ❑ good ❑ excellent

Completeness with regard to coverage of the issue ❑ low ❑ acceptable ❑ good ❑ excellent

40

The results

After reading and analysing the questionnaires filled in by the different groups, we were able to identify various strengths and weaknesses.Questionnaires filled in by employees were compared directly with those filled in by the companies where they worked.In cases where employers were reluctant to provide information, for instance about the modification of the premises, a corresponding difficulty was noted in the wor-ker’s form regarding ease of movement at the workplace. When an effective tutor was present, the disabled worker felt better accepted at work and the job inclusion process was easier.In many cases, career prospects looked very dim. Most workers felt that their situa-tion was static. The lack of satisfaction led to frustration and thus the inability to foster expectations.

The inclusion of a disabled worker was truly successful when it came about in re-sponse to a real need, and the job was offered to that person because personnel was required in that department of the company.Our analysis showed also that attitudes, perceptions and opinions played a decisi-ve role in job placement and inclusion processes and that they can influence outco-me13. When supervisors have an open and welcoming attitude towards a new per-son, it goes a long way towards reducing job anxiety.Training is another crucial issue in successful placement. The information we col-lected from these questionnaires tells us that this particularly delicate period re-ceives special attention when a cooperative is involved. This does not happen in the case of a multinational company. Here disabled workers often found themselves doing jobs they had never done and never been trained to do. When jobs are conside-red uninteresting or repetitive, feelings of boredom and uselessness can result. When cooperatives were involved, the type of job assigned was selected according to the potential abilities of the disabled members. Very often, through contracts with the public administration, these cooperatives carry out services for the pu-blic, and these jobs can be easily done by a disabled person14.

Upon an analysis of the different types of disability, it became apparent that no one type is privileged with respect to another. The variety of the jobs offered allowed those with physical as well as mental disabilities to find jobs.Clearly, career prospects and jobs which carry responsibility apply mainly to phy-sically disabled persons.

13 These attitudes are identified as the human factor in our job model.

14 The areas where cooperatives traditionally work are the following: upkeep of green areas, transportation and delivery, cleaning, tax collection, social welfare services, printing and related services, catering, managing school canteens, disposal of solid urban waste. The ten SOL.CO.cooperatives we contacted work in all these sectors.

PART II

41

In the end, we noted that the problems that disabled persons have are for the most part similar to those that any new employee experiences when he is first hired. The real difference derives from cultural prejudices and hostility.

When these are present, they cause: ∑· discrimination, or on the contrary, excessive protection of the new person; ∑· superficial evaluation of the potential or limitations; ∑· lack of sensitivity within the work group; ∑· offers of unsuitable and inflexibile roles: when the person involved is physical-

ly disabled, available gratifying and responsible jobs that do not require per-sons “to move around” are not taken into consideration;

∑· inability of the tutor to identify problems or favourable conditions; ∑· reluctance or total unwillingness of the employer to entrust the person with

highly responsible jobs.

Social cooperatives help to overcome such reluctance to change. As our survey shows, they play a decisive role. Employees who were interviewed stated that belon-ging to a social cooperative was only beneficial for their integration. They felt taken care of at every stage. Having a point of reference helped to increase their confidence significantly.

Our experience in the Civil Protection Department confirms this.The three main parties involved in this experiment were:

· the Department itself;· the disabled persons at the centre of the process;· Europe Consulting social cooperative15 which hired the disabled persons wor-

king at the Department in the frame of an ad hoc agreement.

As we will be able to see in the following pages, the role of the cooperative turned out to be essential to all stages of the inclusion process, from analysis of the tasks to be carried out, to the selection and training of the employees themselves.

15 We will be able to speak at length of the role of Europe Consulting cooperative in the section dedicated to the analysis of the model. For a first presentation see www.europeconsulting.it.

THE JOB INCLUSION MODEL

42

THE VARIOUS PHASES OF JOB INCLUSION AND THE ROLE OF EUROPE CONSULTING COOPERATIVE

The scene: the Civil Protection Department

The Italian Parliament passed law no. 225 on 24 February 1992, defining civil protec-tion as “all the structures and activities which the State makes available to protect life, property, inhabited areas and the environment from damage or risk of damage deriving from natural calamities, catastrophes and other disasters”. It created the National civil protection agency, which is made up of central and peripheral state administrations, Regions, Provinces, Municipalities, national and local public Enti-ties and all other public and private institutions in the country.This system is peculiar to Italy and is based on the application of the principle of subsidiarity, according to which each mayor is responsible for civil protection in his Municipality. He must make sure all measures for forecasting and preventing disasters are used and he needs to act when they take place. If the proportions or consequences of the disaster are such that the single municipalities cannot manage them, then higher levels come into play: the Province, the Region and finally, the State, through the Civil Protection Department. The Department was established by law within the Prime Minister’s office.

This structure clearly reflects the guidelines provided in the reform of Title V of the Constitution, where the trend is to increase the jurisdiction and the responsibility of peripheral administrations, making the most of local institutions, in contrast to the strong centralism that was a feature of previous phases of Italy’s history. Because of its peculiar geophysical character, practically all types of natural and man-made risks exist in the Italian territory (including those related to nuclear power stations in France, in an area very close to the Italian border): the country therefore needs to be carefully monitored at a local level.

However, public administration is not the only subject involved in civil protection: in fact, the Fire Department, the Armed Forces and the scientific community also share responsibility. The law also explains how all of civil society participates in managing emergencies, from utility companies to the national health service, right up to voluntary associations, that are acquiring an increasingly important role. Vo-lunteers have played an increasingly significant role in civil protection, since the flooding of the Arno in 1966 to the many natural disasters that have hit Italy. On occasions such as the funeral of Pope John Paul II, they have made up over 50% of the forces on the ground. Today the national register of the Civil Protection Depart-ment lists approximately 2500 volunteer organisations, totalling over one million three hundred thousand men and women. This data reveals to what extent Italians are involved in civil protection activities, both in their country and the many mis-

PART II

43

sions abroad. By offering their personal talents and energies at times when there are serious problems, it is a way for citizens to contribute to their Country. Citizens have become aware of how important they are and how correct behaviour on their part can be crucial in preventing risks. Civic conscience has grown and a greater sense of responsibility has been achieved locally and when there have been disaster situations.The Department has helped greatly to spread what can be defined the culture of ci-vil protection in recent years. It is made up of nine offices and forty three services which carry out the jobs assigned to it by law. At the top of the organisation is the Department Head, who has the functional responsibility for operations and actions, while the political responsibility rests with the President of the Council of Mini-sters.16

The Department offices are located in Rome at the new centre in via Vitorchiano where most of its services are based, including the brand new control room, and in via Ulpiano, the historic headquarters in the Prati area, where the offices of the Department head and his staff remain. The Press and Information Service of the Department, where our job inclusion project was carried out is also located in via Ulpiano.

The type of work

The office where the group of disabled persons now work, refers directly to the head of the Department and carries out two main jobs. On the one hand it is responsible for contacts with the media, and on the other it monitors all the news that is availa-ble in Italy and abroad, through newspapers, news agency releases and TV and radio news services.Besides managing emergency communications, responsibility for relationships with the mass media means organising and managing continuous requests for in-formation from journalists, press conferences and awareness campaigns, and radio and television interviews for Department officials. The aim of all this activity is pre-vention, the driving force behind most civil protection actions.Monitoring is important because the Department needs to remain constantly up to date with regard to situations which are or could become risky, and which might require Civil Protection intervention.For example, when a news agency reports a pile up on the highway, a mechanism gets under way to check how serious the situation actually is. This same procedure can provide for assistance, meaning relief supplies in this case if people are held up for a long time.The same is true in case earthquakes, fires and floods both in Italy and abroad. Press reports supplement the information sent from scientific measuring systems or via

16 For further details see www.protezionecivile.it.

THE JOB INCLUSION MODEL

44

the territorial civil protection network. At times the gravity of the situation can be underestimated at the local level. When this information is interpreted in the wider context of news coming from surrounding areas, the real risk becomes clearer and it may become necessary to take action.Continuous monitoring of news regarding the civil protection department is just as important. The information must be correct and should not cause damage to ci-tizens or to the system. For example, when the Department head issues a statement about an emergency situation, it is important to check that the media carry this news correctly. It should not give rise to misunderstandings, or cause panic or unde-restimation of risk among members of civil society.

The Press and Information Service therefore carries out a job that is no less im-portant than the rescue operations on the disaster scene. They take care of com-munication to citizens and need to ensure the flow of information in the right direction so that civil protection can be ensured. Suffice it to say that when an emergency strikes, the press service personnel remain on duty until the critical pha-se has passed and the “all clear” message is delivered, exactly like their colleagues in the control room or those who are at the location of the emergency coordinating and managing rescue operations.

The project idea

Two very different ways of working exist, side by side, within the Press and Informa-tion Service of the Civil Protection Department. Concentration, attention to detail and diligence are essential while continuously monitoring news channels. On the other hand, utmost flexibility is called for in responding to the numerous requests for information from the media and from other offices, but also in following events in the field as they unfold. Press and Information service personnel often travel to emergency sites, where they need to work directly with newspaper and television reporters and take care of news coverage on the spot. These two different ways of work are hard to reconcile, and after long reflection, it was decided to separate the two roles by assigning some human resources to monitor news agencies, media and press reviews and other resources to the other tasks.

The idea to put press monitoring and reviews in the hands of a disabled person springs from the intuition that jobs like this can be looked at from a different viewpoint than in the past. Rather than hastily dismissing them as boring tasks because they require little movement, when compared with other more dynamic and stimulating jobs, we simply considered the supposedly negative aspects in a positive way.We therefore no longer considered news agency monitoring as a job where one could not move, but one where movement was not necessary.

PART II

45

Introducing new human resources, and persons with disabilities, within a conso-lidated work group in the Public Administration Sector, an extremely formal and bureaucratic setting, did not look like an easy task. Nor was it one that could be ma-naged solely using internal resources. There were two main reasons:

∑· no-one on the staff had any training in coping with disability, and thus there was no-one prepared to organise and manage the appointment of a new col-league, with very different needs from those that they normally need to deal with;

· the employees were already busy with their daily work, and thus not willing to take on the training of a new, disabled colleague, not so much because they didn’t want to help, but because their many other jobs did not allow them the time, especially during emergencies when work schedules become much more intense.

In order to carry out the idea, many issues were raised. Firstly there was the que-stion of the contract, which we will speak of when we deal with the agreement.But first of all, let us list the three main stages:

· recruitment ∑· selection∑· training

Furthermore, there was also the need to adapt the work premises, for those who ne-eded to move in a wheelchair. Considering the complexity of these operations, it see-med necessary to turn to an intermediary with specific experience in job placement, particularly for disabled persons, who would be able to manage the transition and create a new team.The choice fell on a social cooperative, Europe Consulting that contributed to desi-gning a project for introducing the new group of persons to the office, taking into consideration the needs of the Press and Information Service, and working to ensu-re human well being and the professional growth of all those involved.

Activities and roles of disabled persons

Let us now take an in-depth look at the different jobs that disabled persons do in the Press and Information Service of the Civil Protection Department. When descri-bing the jobs, we have already listed the two main activities:

∑· monitoring of news agencies and television news services; ∑· press reviews.

News agencies are monitored without interruption from 7.30 am to 9 pm. All relea-ses from Italian and foreign news agencies are read on the computer screen using

THE JOB INCLUSION MODEL

46

dedicated software. The job thus consists of looking at a succession of headlines, an average of about 10.000 every weekday, which describe the events as they unfold and change for better or worse. The person who does this job must pay great atten-tion to the principal events as the day progresses, with special regard to topics rele-vant to all parts of the national civil protection system. The program allows for the use of key words within the text and responds with special colours or sound signals according to the level of importance. For example, the system gives maximum visi-bility to news that contains the words “protezione civile” (civil protection).

The employee reads the highlighted article (but also those which are not highlighted, if the title sounds interesting and relevant to an ongoing situation) and decides whe-ther it should be passed on to other colleagues and faxes it to offices that can action it. This job is basic to the activities of the entire Department: for example, an update on bird flu would be sent to the Heath Risk Service, which is in charge of this issue. Once printed and sent on, the person files it according to the correct category. Very often, the head of the press service is busy with activities that take him out of the office and requires fast and continuous updates. Therefore he relies on the person in the office to summarise the most useful news releases and communicate this infor-mation to him by telephone or occasionally an SMS.This job entails a certain amount of responsibility, because it is the employee who must decide which news is important for the whole system and which isn’t, on the basis of criteria he has been given.

The same is true for news monitoring. With two television sets always on, the job of the employee is to listen to television news services and fill in the forms provided, with details of programs which might be of interest, along with the name of the re-porter. When there are two simultaneous news services on different channels, two people work together to monitor both programs. Television news services are also recorded on cassettes and filed for at least 30 days. The same is done with in-depth programs whenever they involve topics related to civil protection.Disabled employees work with their other colleagues in the office on the press re-views. At 7 am they start reading the Italian national newspapers (local newspapers reach Rome later so they are read in the afternoon). The most relevant news for civil protection purposes is selected and scanned, converted into pdf files, catalogued and archived daily.

A printed document is then assembled using the selected files and distributed to the offices at about 9.30 am every morning and simultaneously published on the departmental intranet. The same procedure is followed later on in the morning with regional newspapers and any weekly publications, creating a second printed press review which completes and supplements the first one, bringing the total number of specifically relevant articles to about a hundred every day.As with the monitoring of news agencies, besides the mechanical operations of as-

PART II

47

sembling the reviews and putting them onto the departmental intranet site, the em-ployee has the job of choosing the most relevant articles. For this reason he must have acquired an in-depth knowledge of the civil protection system, of its wide field of action and involvement, along with a certain amount of far sightedness in order to be able to evaluate, events as they take place day after day, and to understand which topics could be important.

Recruitment and selection of personnel

Selection is a delicate phase, and is basic to ensuring the successful appointment of disabled persons17.This job was delegated to the cooperative. The personnel search for the Press and Information Service took place on two levels, one formal and one informal.We got in touch with SOL.CO. Solidarietà e Cooperazione consortium right away, of which we are members. SOL.CO. carries out a job orientation program for protected categories through Idea Lavoro, and provided us with the details of some candidates who might be able to satisfy the job requirements.The cooperative also placed an announcement on the website describing the job and explaining how to apply. This message, addressed specially to associations which work with disabled persons, was seen on numerous occasions at the Provincial Offi-ces for Job integration for Disabled persons and Protected Categories, especially in Frosinone and Latina provinces, as is evinced by the large number of responses.The other informal route that was followed to widen the selection range and speed up the process was by word of mouth. In other words, we passed information regar-ding our search for personnel to colleagues and acquaintances who had contacts with disabled persons. This type of search certainly did not enable us to reach a lar-ge number of people, but it did allow us to establish a direct link and to include those who for many reasons had never ever been in the labour market.

17 For the purposes of this study it is useful to provide some historical background notes. The following notes are based on an interesting study: G. DE ANTONIIS (ed.) Inserimento Lavorativo. Dalla teoria alla pratica. Progetto Integrazione. Consorzi sociali per l’inserimento lavorativo. (Job placement: from theory to practice. Integration project Social consortium for job integration) See especially pages 30-32. From the mid 1950s onward, along with the setting up of large industries, personnel selection took on a purpose that was more quan-titative than qualitative. The technical and practical abilities of candidates to fill a certain position were evaluated without taking into consideration the values and ability to relate to others. In the 70s and 80s, work psychologists began to take into consideration the limitations of the interviewer in processing the information collected during the interview, with the various distortions that could interfere with the process of evaluation of the candidate. From the early 80s until 2000 the labour market became more open and more competitive, stimulating greater job mobility for qualified workers; personnel selection thus became the chance to put “the right person in the right place”, making the most use of the candidate’s individual as well as technical abilities. This is why compa-nies started evaluating the candidate’s attitudes, expectations, and values. Today selection is a “commercial negotiation” where on the one hand you have a candidate who offers himself, his knowledge and abilities, attempting to promote his “commercial” value in a certain sense, and on the other hand we have a selector who needs to filter the request of his client, the company who will de-cide whether or not to buy. In the present complex market situation, personnel selection today requires an analytical organisational process, which makes it possible to examine and evaluate scope and possible ways of integrating individuals and organisations. Personnel selection methods use different tools. Usually interviews and multiple choice tests are used , the first being considered a flexible method which allows candidates to express themselves more freely and the second as a more “scientific” approach. Even when tests are used the preferred selection method seems to be the interview.

THE JOB INCLUSION MODEL

48

From these two sources we were able to identify several persons whose profile matched the job requirements, yet keeping in mind three main considerations: the type of disability, which would allow the person to carry out the mechanical tasks required and to cope with the often intense job pressure; flexibility with regard to working hours, with the knowledge that the job lasts from early morning to evening, even on holidays; the level of autonomy of the disabled person. It was not possible, for example to hire disabled persons who needed to be escorted to the bathroom, be-cause of the excessive cost of an additional person to do that job.

Once the persons had been identified, selection was carried out using two inter-views. The first, a fact-finding exercise, focused on the technical knowledge and character of the candidate. The second interview took place at the Press and Infor-mation Service itself. Candidates’ impressions and abilities were evaluated using a test simulating a work situation. In this way, the candidates themselves were able to evaluate whether they felt at ease with the environment at the department, especial-ly from the logistic point of view.

The interview, differently from other tools such as tests and questionnaires, etc. (so-called cold tools), enabled a rapid overall evaluation of the candidates’ personality, motivation and abilities, and permitted them to express themselves in a more free and relaxed manner18.The employees of the Department participated in the presentation and description of the jobs, helping to describe all the aspects clearly, in a way that only someone who has many years of experience can do. The final decision however is up to the candidate himself.Once the selection was made, it was up to the person himself to decide whether or not to continue the process. It is significant, for example, that some of the can-didates who were selected forewent the job because of the location of the offices, a confirmation of the difficulties that a disabled person has when travelling me-dium to long distances inside a city. The peculiarity of the Civil Protection mo-del includes the fact that a single disabled person was not appointed in a job, but that a group of disabled persons (from the Europe Consulting cooperative) were appointed. The members of the group had and still have different disabilities; putting together persons with motor, psychophysical and sensory handicaps, a group was created which could motivate itself and where the members could sup-port each other.

18 In fact the disabled person who approaches a new job opportunity can run the risk of “projecting” his/her expectations of failure due to past experience, thus fuelling a self-exclusion process. To avoid underestimating these abilities, therefore, it is the job of the interviewer to put the candidate at ease thus helping him to express himself better. The fact that in our case the selection process was managed by a cooperative, as already specified, made it possible to avoid the risks indicated above. On this issue see G. DE ANTONIIS (ed.) Inserimento Lavorativo. Dalla teoria alla pratica. Progetto Integrazione. Consorzi sociali per l’inserimento lavorativo. (Job placement: from theory to practice. Integration project Social consortium for job integration), page 36.

PART II

49

Specific training for the job

In our experience, training was carried out mainly in the field, using a mentoring system. Besides the ability to utilise the computer and other commonly used equip-ment, the jobs to be carried out do not require particular skills, unless we include the ability to learn about the world of information. This is not an innate sensitivity, and must be built on and stimulated continually, in responding to the issues that come up day after day and trying to gain an intimate understanding of the various mechanisms, which feed communication methods. The only theoretical parts of the training process were the detailed presentation of the civil protection system and the organisation of the Department, as well as the distinctive features of the social cooperation situation within which these disabled persons found themselves.The key to the training process was the tutor, who first learned the tasks that the di-sabled persons would have to carry out. Later, he provided support for the mentors of the new workers, their colleagues in the Press and Information Service, facilitating relationships especially with regard to the approach to disability.

The tutor

Training took place often in the presence of a tutor who accompanied the disabled person in his/her daily tasks. He facilitated the learning process, not only with re-gard to the job itself, but also and above all, with regard to personal relationships. When a person is appointed to a job in a new group of people he/she undergoes a considerable amount of emotional stress, which adds up to the effort required to le-arn the job.In the Civil Protection Department project, the tutor was and continued to be re-sponsible for relationship between the cooperative, the disabled workers and the Press and Information Service.In his position as a member of the cooperative, he represents it fully in relations with the employer and the disabled workers. He follows administrative issues for them and supports the Human Resources Sector.

As coordinator of the project, he is responsible for organising work shifts, adap-ted within contractual limits to employees needs, without forgetting that a team made up exclusively of disabled persons always has certain limitations. On the logistic level, the work shifts need to cover a stretch of almost 14 hours every day. They need to be organised keeping in mind transportation issues, the timing of individual therapy sessions and regulations which limit the time that a person can remain at the place of work. And then there are specific needs of the Press and Information Service, which vary according to the work which is taking place.

THE JOB INCLUSION MODEL

50

His continuing presence at the office, his own place of work, makes it possible for him to substitute for absences due to illness or other personal reasons. Thus, the group which is part of a system that requires the maximum level of reliability is not perceived as an unreliable entity. Other than the purely organisational aspect, the tutor carries out the job of media-tor/facilitator between the Press and Information Service and the work group, ensu-ring that mutual issues are treated with an element of understanding and without confrontation.In other words, he manages the mechanisms for inclusion of disabled persons wi-thin a well-established system. His primary activity is certainly that of helping to overcome relational difficulties. He is the “contact person” towards the world of di-sability but also communicates in the other direction, presenting the disabled em-ployees’ requests to the rest of the office.

PART II

51

THE MODEL: CHARACTERISTICS

From the experience that we have described, we can extrapolate a series of elements that make up the model. Some of these are contextual structural elements, mea-ning that they are the foundation upon which the project was developed and are the fertile ground from which results can spring forth.Others are strategic elements, that is, actions that were carried out specifically for this project.And still other elements make up what we have defined the human factor. It is a net-work of interpersonal relationships, at different levels, which formed between the persons who took part in this study and which owe a debt both to the work of those who supported it, as well as to the lucky combination which allowed the develop-ment of a positive relationship.

The structural elements

The structural elements of the context were identified as:· the Institution· the type of work ∑· the cooperative

The Institution

The Civil Protection Department is a part of Public Administration with distinctive characteristics. Thanks to its relationship to the Council of Ministers and the many persons involved, it has a role that cuts through all levels to carry out a coordina-tion role in large emergencies, of predicting and preventing natural disasters and of ensuring that recovery operations are carried out correctly. The Department, the core of the civil protection system, is therefore a microcosm where a large number of people participate.

Among Public Administration offices the Department is quite unique as it is easy to see the practical use to which one’s work is put. Disabled workers do back-office jobs which are totally related to field activities. Thus, through their highly professional contribution, they become an integral part of the system of civil protection.This system produces real results, which are very important for citizens especially when they are in trouble. The tangibility of these results is extremely motivating for those who contribute to the process by which they are produced, much greater than what happens when efforts, albeit extremely professional, pour into the vast ocean of public machinery.In assigning the work of job placement for disabled persons to the cooperative, the

THE JOB INCLUSION MODEL

52

Department demonstrated clearly its intention to appoint disabled persons to jobs that they would be able to carry out capably. They did not stop with the mere need to fulfil legal requirements for minimum quotas, but were interested in the entire process.

The type of work

In the Press and Information Service office, the atmosphere created when dealing with emergencies, which alternate with periods of calm, makes this work very varia-ble and engages workers in the intervention process, generating a sense of empathy which positively influences their own perception of their jobs.The way of working necessitates concentration but also continual presence at the workstation. The job also requires the employee to personally evaluate and select the news of interest.

This element of choice is the “keystone” which, although it does not totally compen-sate for the repetitive work routine, allows people to use the skills they already have or are developing and to put their own unique mark on the final product – or as in this case, service.The fact that the job is not merely mechanical but that there is space for personal interpretation, was the element of added value when compared to jobs normally assigned to disabled persons and was a significant contribution to professional growth.It’s worthwhile emphasising that office work not only stimulates sensitivity to cur-rent events and problems but also the acquiring of greater social conscience. It gi-ves the feeling to the worker that he is really contributing to the development of the country.

The cooperative

The participation of the cooperative in this process made all the difference to the outcome. Europe Consulting itself was a key element of the process, due to several factors explained below:

· The size: it is a relatively small organisation, therefore it can personalise projects and maintain close relationships between the head and its members quite easily. Decisions are always made jointly and reflect the wishes of the ma-jority of the members.

· The strategic choice for services: the cooperative chose to work on selected and specialised services, in the course of this process developing flexible social inclusion methodologies, combined according to the need at hand, keeping in

PART II

53

mind workers’ desires and practical requirements. This type of approach which excludes more general and less specialised activities, resulted in reinforcing a professional approach to job placement on the basis of “the right person in the right place”, even when the worker has all the problems related to his disadvan-taged situation. This approach was found to be especially suited to the needs of the Civil Protection Department.

· The know-how of the members: Europe Consulting is a young cooperative (ave-rage age of the members is 34; and that of the workers is 30), where there is a strong human and intellectual willingness to try innovative solutions, and take professional risks, to accept complex tasks to adapt methods to human re-sources instead of doing things the other way round.

The combination of these elements was found to work well giving good results with the cases studied, as it not only favoured professional placement, but it also enriched the cooperative as a whole: all the disabled persons who participated in this process became members of the cooperative, contributing to their own personal empower-ment and taking a further step towards their own independence.

The strategic elements

The following strategic elements were identified:· targeted selection· type of training· the tutor’s job· modification of spaces

Targeted Selection

The selection carried out by Europe Consulting cooperative is doubtless a key featu-re of this model. It was considered one of the strategic elements and made it possible to evaluate on the basis of the candidates’ real expectations and potential, avoiding unnecessary and unpleasant surprises during the training period.Targeted selection worked 80% of the time. During this process, careful analysis of the working context carried out by the cooperative turned out to be very useful. An outside look at the jobs that needed to be done helped to define their perimeter, thus defining the best fitting professional profile and the compatible level of disability. The trial period was not considered excessively important. Rather, selection was carried out with the greatest attention and care, precisely to avoid any insufficiently weighed incompatibilities which could rapidly bring the job to an end, with negative psychological consequences for the person.

THE JOB INCLUSION MODEL

54

Training

Work was initiated at the Press and information Service, without a preceding pe-riod of traditional (classroom) teaching. Rather, it was decided to go immediately for an “on the job” type of training, which would allow knowledge to be transferred quickly and efficiently. The training style was deliberately chosen to reinforce the self-esteem of the disabled worker.During this period, the disabled workers were supported not only by the tutor, but also by a person from within the service, an expert provided by the office. The skills’ learning procedure was the result of a choice and not the outcome of the conditions as we believed that this would be the most efficient way of transferring the knowled-ge required in this office.

The tutor

The work carried out by the tutor, a young professional and member of the coope-rative, was a determining factor and decisive in the selection of the model. A key figure in the placement process, he was equally important whenever there was a crisis. He supported the learning process, encouraged the interaction of the new group with other colleagues in the Department who he had already had the chance to meet and ensured that the work of the service went on. But above all, he was the cooperative’s representative for the disabled employees. He made sure they under-stood he was not a marginal factor in the project but the common denominator for the whole group, the Department’s constant reference point and a guarantee that the work would continue. He was able to establish a cordial working relationship with both groups, so much so that both of them, the one at work and the cooperative considered him to be “one of the family”.Indeed, an analysis of good practices that came also from other experiments con-firms that good quality, sustainable placement processes are those in which the tutor-company-disabled person triangle works well.

Modification of premises

The solutions adopted with regard to modification of the premises can be considered satisfactory in our case. Toilets were adapted to fit current regulations and none of the the working spaces had special problems which required expensive or unaffor-dable alterations. Parking was guaranteed in the spaces reserved for service vehi-cles.A specific chapter later in this book has been dedicated to the issue of architectural barriers19.

19 See the third part of this study: The issue of accessibility.

PART II

55

The human factor

The human factor makes all the difference in the placement process. This is where the situation is turned on its head. If we can overcome cultural barriers and prejudi-ces which we have spoken about several times in this work, the inclusion of a disa-bled person gives added value to human relationships.In our experience, the human factor was nurtured by an initial willingness, althou-gh not totally free from fear, rather than prejudices, of all the main characters who wanted to help each other, especially on a professional level. But as time passed and people got to know each other better, personal relationships also were formed. Not all of this can be attributed to strategic choices. It’s quite clear that if the persons had been different and had not accepted the challenge of working with each other, the re-sults would have been quite different. In any case, the project structure did consider the human element and made adaptations to avoid clashes and tense situations. All of this reflected positively both on the Department and on the cooperative.The fact that this issue was so close to the Department’s daily life probably had an in-fluence on the way the Department dealt with it in general. For example, for the first time, a special chapter on disability was added to the risk management handbook distributed to millions of Italian families.20

On many occasions, colleagues in the Department remarked on the positive influen-ce that disabled workers had. As borne out by recorded video footage, the presence of disabled persons working in the Press Office did not slow the work schedules. Instead it contributed to create a relaxed and pleasant atmosphere, which leads to occasions for socialisation even after work hours. The success of the project led to the cooperative being accredited with the Department. It also introduced the disa-bled workers who participated and their specific know-how into the entire social system.

The model: characteristics for success and conditions for replicability

Our experience can be considered a model thanks to the following successful cha-racteristics:

· the ability to treat disabled workers on the same level as others and not a ca-tegory on their own. This resulted in turning a way of thinking on its head. Instead of the disabled person being a passive subject who needed help, he was considered an active subject who could contribute to the productive process;

· the willingness of the Department to break with tradition and carry out an unconventional experiment 21;

20 Protezione civile in famiglia, (Civil protection in the family) second enlarged and revised edition, PCM - DPC 2005. 5,600,000 copies of the handbook were distributed with the principal daily newspapers and weeklies.

21 The issue of agreements for companies and social cooperatives to work together has already been amply addressed under job in-

THE JOB INCLUSION MODEL

56

· the added value which comes from a small social cooperative that can persona-lise programmes;

∑· the inclusion of a whole group of disabled persons belonging to the same coope-rative;

· targeted selection which promotes self empowerment abilities of candidates and reinforces their self esteem;

∑· the presence of an authoritative tutor figure recognised by both workers and their colleagues in the Department;

· the ability to gather parties (persons and organisations) who are very familiar with the networking ethos around a project. They did not stop at giving a “stan-dard” contribution but were willing to share the challenges, highlighting the additional value generated.

According to us, the characteristics which make this model stand out are the same as those that ensure its replicability. The combination of the same struc-tural elements is rare. It’s unusual to find a key office within the Public Admini-stration that has an informal working style. It’s unusual to find disabled persons included in a job placement process as a group. They usually need to face new work situations on their own. Yet we should remember that the Public Admini-stration (and also private business) works in a vast variety of fields. If there is the will, this would permit us to identify, jobs and assignments suited to disabled persons, which are motivating and professionally satisfying at the same time. And then comes the next simple step, finding a small or medium sized cooperati-ve, which is able to manage direct personal contacts both with the employer and the worker. Everything else is strategy.

clusion for disabled persons. The law does not however provide for any specific type of agreement that would reflect the intention to create a group of disabled employees within the Department itself, mediated by a cooperative, which could bring its specific know how on the subject into the organisation. Therefore it was necessary to use a generic instrument – direct assignment (affidamento diretto) – but expressly and specifically based on the aims of law 68/99, whose objective has been fully achieved in this case.

PART II

57

AGREEMENT BETWEEN THE CIVIL PROTECTION DEPARTMENT AND THE EUROPE CONSULTING COOPERATIVE FOR JOB INCLUSION OF WORKING-AGE DISABLED PERSONS, WITH PHYSICAL, MENTAL OR SENSORIAL DISABILITIES OR INTELLECTUAL HANDICAPS.

WHEREAS:• in accordance with art. 6 of law no. 225 dated 24 February 1992, national and local civil protection structu-

res can stipulate agreements with public and private parties for carrying out civil protection activities; • the Department, in consideration of the experiment carried out in 2005 involving a group of disabled

persons supporting the activities of the information sector, intends to reinforce this experience wor-king with specialised parties for inclusion of disabled persons in working environments;

• in response to this requirement, the Department has identified in the Cooperative the party suitable to carry out the programme of job placement for working-age disabled persons;

• the Cooperative was formed in January 1997 as a non-profit (ONLUS) limited responsibility social coo-perative with the purpose of pursuing the general interest of the community for human development and the social inclusion of citizens through management of services and production activities, which are a means for inclusion of disadvantaged persons in the work process, with special reference to the contents of law 381/91 and as provided for in art. 4 of the statutes of the Cooperative;

• the Cooperative, in order to pursue its mission of inclusion of persons at risk of social exclusion, has carried out and continues to do carry out, in collaboration with public and private bodies, different projects including the Help Centre project in Termini Station in Rome and the Social Hostess project at Department V of Rome Municipality;

• in 2005, within the purview of an agreement between ISPRO and the Department, the same Cooperati-ve already carried out, as an experimental version, a support programme for the Information and Press and Information Service of the Civil Protection Department aimed at job placement of disadvantaged persons;

• in the light of the aforementioned collaboration the Cooperative under consideration has obtained special know-how about this topic which identifies and gives it specific qualifications;

• this know how fully satisfies the financial requirements of the Department and the objectives of civil protection;

• the aim of the proposals for the year 2006 for the Cooperative are to produce and share a culture of inclusion, which increases the duration of work experiences and improves the steadfastness over time. The duration and continuity are important components when measuring the soundness and efficiency of the inclusion process.

Whereas all factors listed above have been considered, the following is stipulated and agreed

Art. 1(Objective of the agreement) With this agreement the aforesaid Cooperative proposes to reinforce the process of job place-ment for working age disabled persons, with physical, mental or sensory disabilities or intellectual handicaps which result in a reduction of working ability by over 45% according to law no. 68 dated 12/03/1999, and registered in the appropriate lists of the competent provincial offices, assisting the growth of competence making every effort to ensure stability in the occupation;

THE JOB INCLUSION MODEL

58

Art. 2(Aim of the Agreement) The activity program of the Cooperative will be divided into three main work areas.

1. MEDIA MONITORING.Monitoring of news agencies: this job will be carried out from Monday to Friday covering the time pe-riod between 07.30 am and 9.00 pm and on Saturday between 7.30 am and 1 pm. The work consists of selecting relevant news articles, visualising them using Telpress Tosca 2000 Viewer software and the subsequent relaying of these articles via fax, to the secretaries of the supervisors, after informing the spokesperson of the head of the Department.

Press review: This will be carried out from Monday to Saturday by two employees working from 07.30 am to 3.00 pm. On the basis of past experience, an extension of the working hours was proposed, over that of 2005 which ended at 12.30 pm, but which had always been exceeded because of work demands.

The purpose of the work is that of reading Italian and foreign newspapers and magazines, with the aim of identifying articles of interest for Civil Protection activities. The articles are scanned and then used to put together daily a printed publication for the supervisors and the main Department servi-ces and simultaneously published on the departmental intranet so that it is available to all internal departmental users.

Later, after further selection, some articles are made available to the public through the site www.protezionecivile.it.

A parallel activity in Italian and foreign areas in which the Civil Protection Department is carrying out development projects, will be started by the cooperative with the purpose of identifying any possible modification of the media monitoring service and inclusion of disabled persons.

A specially appointed coordinator will supervise this activity.

[omissis]

PART II

59

THE CONCEPT OF ACCESSIBILITY

All of us have problems when we walk on the street, enter a buil-ding or look for a place within the building, if the sidewalk is too high for a stroller or wheelchair to move easily, the doors are too narrow to enter or too hard for a child or elderly person to open, signs are insufficient, too complicated and confused… Our envi-ronment, especially in large cities, creates obstacles and barriers, permanent and temporary, for everyone.Accessibility is the foundation upon which a society based on in-clusion and non-discrimination lies. It is of concern to everyone, not just a small minority of persons with special difficulties and should be put into practice globally and in an integrated fashion with the participation of all citizens. An accessibly constructed environment is the key to a society based on equal rights and gua-rantees full autonomy to its citizens as well as the means to live an active social and working life.A necessary factor, when approaching such an important and de-licate subject, is to establish a common glossary, a list of the most significant and commonly used terms.

Accessibility: this means the chance also for persons with reduced or lack of motor or sensory ability, to reach the building and each of its individual constructed or open areas, to enter them easily and utilise the spaces and equipment under sufficiently safe and autonomous conditions. (Public Works Ministry Decree no. 236/89 and Presidential Decree no. 503/96).

THE ISSUE OF ACCESSIBILITY

THE ISSUE OF ACCESSIBILITY

The glossary for planning, the meaning of architectural barriers, usability, visitability.

part IIIAlfredo Sodano

60

Architectural barriers: this means: a) Physical obstacles which make it difficult to move for any

person, in particular for those who for any reason have per-manent or temporarily reduced motor ability or lack it alto-gether;

b) obstacles which limit or prevent anyone from using any pre-mises, equipment or components safely or comfortably;

c) the lack of information and signals which allow orientation and recognition of the places and sources of danger for all persons, and especially for those who are blind, functional-ly blind and deaf. (Public Works Ministry Decree no. 236/89 and Presidential Decree no. 503/96).

Usability: this means the actual possibility of easy and safe use, including with “alternative solutions”, of the human en-vironment, built with enclosed spaces or natural spa-ces and equipment or services connected with them. This means not only providing a ramp for wheelchair users, but also creating an “environment” that most persons, wha-tever their physical condition, can use comfortably. This ta-kes into consideration persons with different types of limi-tations, permanent or temporary (elderly persons, pregnant women, persons with small children, obese or overweight persons, persons with large baggage or packages, etc.). It should be noted that the term “usability” is different from “accessibility”. For example, a path may not be “accessible” according to legally defined criteria and standards, but may be made usable also for persons with reduced motor ability by use of special means such as electric scooters. (L.A. Erco-lani, F. Vescovo, 2002).

Visitability: this means the possibility, even by people with reduced or complete lack of motor or sensory ability, to access social areas or at least a toilet in every constructed unit. Social are-as include reception and eating areas of houses and work, utility and meeting places, where the citizen interacts with any function taking place in the area. (Public Works Minist-ry Decree no. 236/89 and Presidential Decree no. 503/96).

PART III

61

Ramp: an uninterrupted inclined plane (with one or more slopes appropriately inclined also depending upon length), which permits movement from one level to another. It is also meant for wheelchair users or those who have difficulty in moving (elderly persons, persons transporting loads, small children etc.). (F. Vescovo in “Accessibilità e barriere architettoniche (Accessibility and architectural barriers)”, Maggioli, Rimini, 1990).

Slide: a commonly used term for ramp but which gives the feeling of something unstable, which could cause accidents.

Badly constructed ramp… we can call it a “slide”

THE ISSUE OF ACCESSIBILITY

62

THE PROJECT FOR A WIDER USER BASEA new way to consider the environmental system for human beings

Accessibility can be portrayed as a cross-sectional discipline. Its objectives have enormous human, social and financial implications. An improvement in accessi-bility results in a wider sense of “urban comfort”, significantly reducing danger, hardship and fatigue for everyone at the same time.This qualitative aspect should be considered right from the beginning along with other specific “sectorial information” details. It should be part of the many routine organisational and thought processes in planning any project.“Accessibility” is a qualitative concept, which means enabling full and easy uti-lisation of built areas and their facilities for a “Wider User Base”. It also includes safety and comfort factors. Art. 2 of ministerial decree 236/89 uses the word an-yone when defining an architectural barrier (see above). This makes it clear that the target for Italian disability legislation has been widened, to include all citi-zens with special needs, including those with reduced autonomy or in any case whose ability to move is limited.Accessibility is therefore used in the sense of a “universal discipline” with huge human and financial implications. It should therefore be pursued steadily and pro-gressively at all levels and with all available means.This is what we are doing when we implement an “inclusive” planning method, because we are using it as a way of getting to know the world, mankind and the relationship between the two. A Wider User Base cannot be confined to a previou-sly determined number of individuals or an unchanging, defined group. Rather, it is an “open set”, an evolving scale, a future possibility. Adopting an attitude of continuing inquiry, it considers fortuitous events as part of a learning process about users. The wider user base project considers the relationship between human beings and the environment as something which varies according to the complexity of “real” users, which depends on the multiple and varied characteristics that human beings can adopt or obtain during their lifetime. It thus tries to interpret explicit and implicit demands and needs ex-pressed by the largest possible number of persons, taking cognisance of related problems.

Project for a Wider User Base

This goes beyond the concept of barrier-free design because it does not start by eli-minating or overcoming a problem, but is even more radical as it means planning and building objects and areas following a more dialectic attitude.This is different from “design for all”. The term “for all” brings to mind an abstract

PART III

63

concept that attempts to embrace all the differences, thus actually losing sight of the complexity and variety of the real world.It implies a sense of limits with regard to possible solutions (every solution can cau-se difficulties for some user), as well as the situation (human beings in their com-plexity cannot be linked to inflexible plans: there will always be special situations which call for personalised solutions).

OVERCOMING DISTANCES AND SLOPES AND USE OF ENVIRONMENTAL UNITSThe objective of accessibility: three study areas

Excessive distances, or specifically, those which are measured in hundreds of me-tres, are an obstacle for those such as elderly persons, heart patients and those who need to use crutches temporarily and who find walking long distances difficult. A service called “ShopMobility” has been available for years (also in parts of Italy) as a response to these needs. It is offers small single-seater electrical vehicles with 3 or 4 wheels (electric scooters) to persons who have problems walking. In this way they can make use of services and equipment in urban pedestrian areas, shopping mal-ls and parks. The positive features of this “alternative mobility” service, according to a “Universal Design” concept, can be summarised in eight points:

• ∑distance barriers can be overcome; ∑• ∑persons with limited mobility can utilise pedestrian areas; • ∑more services and equipment can be used by citizens; ∑• ∑social activities are reinforced; • ∑commercial and related activities are increased; ∑• ∑greater autonomy is ensured; • ∑maximum inclusion is ensured, thanks to vehicles designed for a wider user

base; • ∑ecology.

The service is provided by a central office and additional mobile positions when ne-cessary (such as trucks for special or out of town events – temporary events, public parks, etc.). It needs a parking area within 40 m from the office entrance, an acces-sible toilet, a training area where the vehicles can be tried out and a covered area for storing vehicles and recharging batteries. Finally, the service must be adapted as much as possible to local requirements.In Italy, these services are available in Ferrara with Mobility Card, and in Ge-noa thanks to “La Cruna” social cooperative, which manages the information portal “Terre di Mare” where all information necessary to use this service can be obtained.

THE ISSUE OF ACCESSIBILITY

64

Good examples of mobility services in limited or closed areas are available in Rome, in the archaeological area of the Palatine, or in Tivoli at Villa d’Este.

The Villa d’Este gardens in Tivoli are laid out in descending terraces connected by steps and ramps. The difference in elevation between the palace and the lower le-vel exceeds 45 m. This has always been an obstacle to persons who have trouble walking or those who tire easily. A special “alternative solution” has been found to make the garden and its beautiful fountains more “visible”. A dedicated “transport service” was set up, within the area, using small silent electric vehicles, similar to those normally used on golf greens and is available to the visitor on application. These 2 to 4 seater vehicles are driven by site personnel along pedestrian routes consisting of avenues and steps that have been slightly modified into ramps, using suitable materials. This type of solution fits in with current legislation, as it offers a “service”. This means that the objectives of the regulation (i.e. services to be offe-red) are fulfilled by utilisation of a “valuable” space, at least in part, for the greatest number of persons possible.

Resolving height difference problems is closely linked to breaking down archi-tectural barriers. Steps are the first problem that comes up when we talk of archi-tectural barriers. At times only one step can cause a process of exclusion and self limitation when there are mobility problems, so it is a significant obstacle. The ma-ximum ramp length permissible is 3.20 m. Extremely long ramps could excessively tire those who use them, so by law they cannot be built. An immediate solution to this problem is the elevator. There can be many reasons why elevators cannot be installed, so we do need to consider whether it is possible to adapt existing buildings. Adaptation could also mean using an area in the building or outside it, which is not directly accessible, and modifying it by making it acces-sible to a wider user base.

In place of an elevator, we can use two other solutions: the stairlift and the pla-tform lift or minielevator. The stairlift is a device consisting of a suitably equip-ped means of transport which moves along the side of a staircase or slope in both directions, by means of a wall-mounted support. Stairlifts in public buildings are operated using a key or with the help of specifically trained personnel. Stairs where these chair lifts are mounted must be at least two metres wide, to allow free movement of persons. In case of smaller spaces, an audible alarm should be activated when the chairlift is working. However, this solution is an extreme measure taken when all other solutions have proven impossible, as the space it occupies in the stairwell can cause safety concerns, should evacuation ever be necessary.The platform lift, on the other hand, is a machine that moves up and down along rigid vertical guides, and is meant for the transportation of persons with redu-ced motor ability, with or without an assistant. The platform lift or minielevator

PART III

65

is different from the elevator proper although their purpose, vertical movement is similar. The main difference is in their application. An elevator connects dif-ferent floors, and has a completely closed cabin while the minielevator, which moves much more slowly, does not require a full cabin. The lift consists of a me-chanical system, a floor plate, a side wall with push buttons and a hand grip and in some cases a roof. The start button needs to be kept pressed during the entire time the lift is moving so that if there are any problems, the lift will stop by sim-ply releasing the pressure. The cabin can be walled in or have a metallic structure with glass walls to reduce the risk of claustrophobia. This type of lift is very small and can be installed in stairwells within buildings or outdoors.To overcome problems of different levels inside a house, “space saving” vertical platform lifts can be used. These are cabins that move freely and do not require a walled enclosure. The lift cabin moves from one floor to another, along guiderails anchored to a supporting wall. When the lift moves to the upper floor, its roof rai-ses a mobile flap which normally covers the gap between the floors. When the lift returns downstairs the flap comes down and the normal floor reappears. In order to ensure safety, the platform is fitted with ultrasound sensors that can block the movement of the cabin if there are any obstacles in its path.When there is no space outside a building for a ramp, suitable lifting equipment can be used. This works on the same principle as the platform lift described above, and can be used independently and safely.

THE ISSUE OF ACCESSIBILITY

66

LEGAL AND REGULATORY PROVISIONS

Alternative solutions

The logic behind Italian accessibility legislation and the elimination of architec-tural barriers is basically that of orienting technical experts and administrators towards better quality in open and built up areas, so that they are easy to use for the largest possible number of citizens. Current legislation should not be interpre-ted as being specifically dedicated to a limited group of people (disabled persons), but considered instead as an opportunity to raise the general quality of planning in order to obtain a more appropriate and comfortable habitat for all “real” persons. Several laws, decrees, circulars and directives exist on this complex subject of accessibility. Until a short while ago, unfortunately, there were two sets of regu-lations, one for public and the other for privately owned property. With the pre-sidential decree no. 503 of 24.07.1996 these two sets were grouped together, and technical regulations for both were set out in a single document, the Ministerial decree 236/89.Regulations preceding the Ministerial decree no. 236/89 were prescriptive in cha-racter. Presidential decree no. 384 of 1978, for example, set out regulations for a “lift for handicapped persons” as though it were a lift exclusively for the use of persons with motor problems. The minimum dimensions prescribed were clearly excessive (150x137 cm.). This meant an elevator for 11-12 persons, requiring a large space and significant financial means, which could not be considered reasonable. The new Presidential decree no. 503 substituted the old one in its entirety. It puts the new technical regulations for public spaces and buildings together with those laid out in Ministerial Decree no. 236/89, keeping these essential aspects in mind. Another example, which made it difficult to apply the regulations contained in Pre-sidential Decree no. 384 of 1978, were the rules regarding toilets. For a toilet to be

PART III

Example of solution A

Non accessible Accessible

67

considered accessible to a person on a wheelchair a minimum size of 180 x 180 cm was required. A description was provided, rigidly defining the position of the door, the WC and the sink, as well as the handgrips. With the passage of time and the ac-cumulation of experience, it was seen that problems of accessibility really could be solved without resorting to excessive dimensions, often by presenting “alternative solutions”.Article 7 of Ministerial Decree 236/89 regarding the “obligatory nature of prescrip-tions” specifies what the prescriptions described in the regulation really mean. The innovative content of Ministerial Decree 236/89 lies specifically in defining compulsory performance characteristics, while leaving the designer free, giving him the formal responsibility to choose or invent the best suited technical solu-tions from the various possibilities. Besides those mentioned in the regulation itself (articles 8 and 9), so-called “alternative solutions” are also permitted provi-ded that the designer demonstrates that the outcome is “ equivalent or better than the existing alternatives”. Articles 7 and 12 of Ministerial Decree 236/89 provide details regarding “alternative solutions”. Point 7.3 specifies the requirements for the designer-technician through “certification”, as well as the requirements for the Municipal Technical Office (or of the technician designated by the Administration) with regard to verification of conformity of the design presented as required by the law. Point 7.4 permits an “exemption” from the prescribed requirements only when other specific technical regulations already allowed for it, when they cannot be sa-tisfied in certain places or buildings without the creation of architectural barriers. In other words we are referring to “technical rooms” where access is reserved for specialised personnel. Besides providing “measurement procedures” for planning and checking, Article 8 also defines minimum spaces for manoeuvring wheelchai-rs in new buildings and when modifications are carried out so that there is at least the possibility of “visitability”.

THE ISSUE OF ACCESSIBILITY

68

The plans presented by the designer, as prescribed in article 10, must clearly show pathways, technical solutions and steps taken to ensure that accessibility, visitabi-lity and adaptability requirements are satisfied. It would therefore be advisable to produce a written report and a drawing on the same scale as the project, detailing any “alternative solutions” or requests for “exemption”, to have on hand for succes-sive checks by the municipal technician in charge. Article 11 - Checks – contains many innovative features with respect to the previous regulation. It actually requi-res the mayor to check whether the work has been actually carried out according to the requirements of the law, before certifying that it is habitable or safe.Furthermore, article 12 of Ministerial Decree no. 236/89 provides for alternatives to the technical solutions proposed by the permanent commission for the elimina-tion of architectural barriers at the Ministry of Public Works. Local organisations, university level institutions and individual professionals can propose these. In case they are accepted they may be used to update the decree.Below are some ideas from the architect Fabrizio Vescovo regarding toilets, which have been approved by the above commission in accordance with article 12 cited above. They are alternative solutions which allow persons with reduced or no motor ability to make comfortable use of these facilities.A wheelchair requires extra space from the floor only up to a height of 65-70 cm to permit it to turn around, as the feet and knees of the person protrude. Taking into consideration this fact, only the space near the WC has been increased to allow for turning the wheelchair, without increasing the size of the entire bathroom.The next solution was conceived in response to needs of small public areas. Limited numbers of persons are usually present at any one time (restaurants, bars, meeting rooms, bank offices, etc.). This solution allows significant space saving, and con-tains a small yet accessible anteroom with a sink, separated from the toilet area by a combination of a folding door and a hinged panel. In the rare cases when it needs to be used by a person in a wheelchair, the two areas can be united by simply unho-oking and rotating the panel towards the anteroom, leaving the folding door open. The resulting room is larger and allows for moving the wheelchair right next to the WC using the handgrips provided. Naturally, in this case the sliding door between the anteroom and the public area must be closed.We continue to feel that one of the most significant parts of the current regulation, although it is still not sufficiently understood, is the flexibility deriving from the “functional” approach. We hope therefore that there will be many more occasions on which these solutions will be adopted, especially in case of modifications or re-novation of existing buildings when limited space is available.

PART III

69

Work places, usability of spaces and equipment. Planning and modification guidelines.

With the advent of law 68/99, it became important to promote job inclusion of di-sabled persons and to ensure their right to work. Thus a new discipline was born to study accessibility and modification of workplaces. The inclusion of a worker with motor or sensory disability can be facilitated if three disciplines work together: functional study of the Disability, Ergonomics and Universal Design. Disability, according to ICF WHO, is defined by a dynamic interaction between health condi-tions and personal and environmental contextual factors. These contextual factors can facilitate or hinder a disabled person’s physical or social abilities. Ergonomics, on the other hand, studies human interactions with machines, processes and the environment, to optimise the users’ psychophysical well-being and overall system performance. The aim is to make the outcome compatible with human needs, abi-lities and characteristics. A current objective is to contribute to designing objects, services, and living and working environments so that they respect human limits and help people to work better. The colloquial use of this term corresponds to what should more correctly be termed physical ergonomics; in other words, it is limited to the postural and anthropometrical aspects, as well as the use of physical force in utilising work instruments and their placement. Anthropometrical ergonomics defines operational distances and characteristics of working areas in order to help modify work places appropriately.Universal Design is product and environmental design aimed at a wide-ranging group of users with different degrees of ability. It doesn’t focus on persons with disabilities, thus it does not make different products for different people. The seven principles of Universal Design are:

• Equitable use: Provide the same means of use for all users: identical whenever possible; equivalent when not. Avoid segregating or stigmatising any users. Make the design appealing to all users.

∑• Flexibility of use: The design should accommodate a wide range of individual preferences and abilities. It must provide choice in methods of use, accommodate right- or left-handed access and use and provide adaptability to the user’s pace.

∑• Simple and intuitive use of the design: Usage that is easy to understand, re-gardless of the user’s experience, or concentration level.

∑• Perceptible Information: The design must communicate necessary informa-tion effectively to the user, regardless of ambient conditions or the user’s sen-sory abilities.

∑• Tolerance for Error: Design which minimises hazards and the adverse conse-quences of accidental mistakes.

∑• Low Physical Effort: Design which can be used efficiently and comfortably and with a minimum of fatigue, allowing the user to maintain a neutral body position, and minimise repetitive actions.

THE ISSUE OF ACCESSIBILITY

70

∑• Appropriate size and space for approach, reach, manipulation, and use regar-dless of user’s body size, posture, or mobility. This is why it is necessary to pro-vide a clear line of sight to important elements for any seated or standing user and make it possible to reach and use all components in both positions as well as provide adequate space for the use of assistive devices.

Both functional requirements and fire regulations should be considered when mo-difying premises. Disabled persons may need to be transported or simply assisted in the event of fire or other emergencies. In this case rescuers will need to use speci-fic and appropriate methods and procedures. Current Italian legislation specifical-ly emphasises the importance of rescuing disabled persons during an emergency.Legislative decree no. 626 of 1994, which revised and updated the accident pre-vention regulations, referred to specific problems related to rescuing disabled per-sons.The Ministerial decree dated 10 March 1998, issued in accordance with legislative decree 626/94, provided the initial information on criteria for risk evaluation and emergency management. Circular no. 4 of 2002 provides further information re-garding specific risk evaluation criteria in the case of disabled persons. It also calls for the production of literature containing technical information and examples of good practice.When drafting emergency plans, we need to consider that procedures for assisting disabled persons are among the most difficult to plan and carry out. In part it’s be-cause people have difficulty in relating to these situations. Also, there is very little literature available on this topic and very few people have had relevant first hand experience and shared it with others who work in this field.When in a crisis situation, a person who might not be considered disabled under normal environmental conditions can demonstrate transitory disability and may not be able to respond correctly. A rescuer needs to understand the type of disabi-lity that the person has to be able to help him in an emergency situation. He needs to be able to reassure the person immediately and explain what is being done to get

PART III

Vertical lines Horizontal spaces

71

Operational distances Operational distances

him out of danger safely and rapidly. Factors that can make a critical difference at a time like this include:

• ∑ architectural barriers in the building (stairs, steps, narrow corridors, percep-tion barriers, etc.), which reduce the chances, or make it impossible for persons to reach a safe place by themselves;

∑• ∑ the lack of appropriate information available to rescuers and evacuation coor-dinators, regarding these persons’ perceptions, orientation and spatial utilisa-tion.

The two factors can exist simultaneously, thus they should be handled and solved together. In the first case, building modification should be appropriately plan-ned. The second problem calls for establishing emergency procedures and pro-perly training the staff involved. Safety is ensured when the potential problems relating to movement, orientation and perception of alarm signals are solved and emergency responses are established. This is what makes up an emergency plan.

Modification of heritage buildings

Italy’s historical heritage is an important economic resource and should be enhan-ced in a many different ways. According to current legislation, historical buildings also need to be modified, where possible, to permit accessibility and usability by persons with reduced or no motor or sensory ability. Whenever renovation, impro-vement and maintenance projects are undertaken, suitable technical solutions and procedures must be identified so that persons who are unable to move easily can still visit these places.It is often believed that buildings subject to preservation orders as defined in laws

THE ISSUE OF ACCESSIBILITY

72

no. 1497/39 and 1089/39 are exempt from respecting the usability requirements dictated by other equally compulsory legislation. It is said that historical buildings are untouchable and therefore it may seem that the regulations calling for removal of architectural barriers do not carry weight, but this is not so. Naturally, compati-ble design solutions must be identified case by case to ensure that different regula-tory requirements are met.

Article 4 of law no. 13 enacted in 1989, states that when buildings are modified as per law no. 1497/39, the Regions will issue an authorisation within 90 days “with appropriate instructions where necessary”. The lack of a communication within the 90-day period is equivalent to assent. It should also be specified that authorisa-tion to carry out the work can be refused “only where it is not possible to do the work without seriously damaging the protected property”. If the request meets with a re-fusal it “must be explained, specifying the type and degree of risk and its relevance to the work as a whole” referring to all the alternatives proposed by the applicant.

Art. 5 of law no. 13/89, refers to buildings of major historical interest as defined in law no. 1089/39. It requires the Superintendent’s office give its opinion regarding the permission to carry out modifications as specified in the request within 120 days “issuing appropriate instructions where necessary”, and in this case too, once this period has passed the request is considered granted. Law no. 13 thus clearly demolishes the previously prevailing concept that even the simplest modifications cannot be made to help people with mobility problems, in order to “safeguard” a heritage building.In 1992, law no. 104 introduced more novelties on this topic. Article 24 of this law specifies that when it is not possible to carry out “permanent works” for the purpo-se of eliminating architectural barriers because this would cause “serious damage to the protected property”, design proposals can also take into consideration “pro-visional works” or in other words solutions that can permit all persons to comforta-bly use the property despite the restrictions.Furthermore, the law also specifies clearly that “changes of purpose [to permit] activities aimed at the public or open to them” are not allowed if these alterations cannot be carried out and checked for usability of the relevant areas. In conclusion, if a building of historical and environmental value cannot be modified in line with accessibility regulations, it continues to be considered a “monument”, but can ne-ver be used as an enclosure or shelter for public events.And finally, it may be useful to remind ourselves of article 32 of law no. 41 dated 28/02/86, which forbids the use of public money for any project which might lead to the erection of a “barrier” including archaeological areas and buildings of special historic value.Thus it is quite clear that no laws exist which consider the preservation of Italy’s hi-storic and archaeological heritage incompatible with other rules and regulations, to facilitate responsible general public use.

73

THE CHALLENGE

From differently able to capable professionals

CONCLUSIONS

Our conclusions are also a challenge for others who want to take it up.The results from the study of the model and the project itself lead us to conclude that:

• disability is not a limiting factor for some types of jobs and tasks. In situations where processes are computerised and therefore very little physical strength is required to do a job, disabled persons can use their skills and professional abili-ties to do an excellent job1.

∑• Accessible assistive technologies and specific training op-portunities will doubtless create a better employment situa-tion and more opportunities for disabled persons.

∑• With minimum effort, information from industry, business and Public Administration can always be made “available”. Businesses and disabled persons often both require coordi-nated information that is simply not available. The use of appropriate technology can help to bridge this gap.

∑• Social cooperatives contribute efficiently and significantly to the inclusion process for two main reasons:

1 Telework for example can offer important chances for job inclusion for the disabled citizen. For more information see Commissione interministeriale sullo sviluppo e l’impiego delle tecnologie dell’informazione per le categorie deboli, (Interministerial Commission on the development and use of information technology for weak categories) White Paper. Tecnologie per la disabilità. Una società senza esclusi (Technologies for disability, a society where no one is left out) p.85-86. Site: www.inno-vazione.gov.it/librobianco/

THE CHALLENGE

74

1. the participatory style, which characterises the working method of coo-peratives, empowers disabled persons to take responsibility for themsel-ves;

2. the personalised working style means job inclusion procedures can be tailored to fit the person’s skills and abilities.

• The working environment no longer needs to be a barrier. A workstation that is impossible to modify or a job that is located in an inconvenient location can compromise the work process.

A study carried out within cooperatives showed that the modification of premises is one of the most problematic issues in inclusion and often is not properly handled in all its complexity. In order to break down barriers, orga-nisations and businesses where the disabled person is due to start work are often forced to take on financial burdens and face bureaucratic problems. Naturally these can discourage this type of initiative.

However, as can be seen from Architect Sodano’s contribution to this work, alternative solutions can be found, with minimal expenditure, or at the very least, an affordable cost. It is not necessary to have large spaces available as the use of alternative solutions means that even small areas can be adapted for this purpose.

• New job opportunities can also be created by increasing accessibility of are-as, be they closed or open. ShopMobility is a case in point. Social cooperati-ves have played a crucial role here too. The management of the various hiring points for scooters can be delegated to them. These vehicles make it easier to move around the historical centre of cities, like Rome where the traditional cobblestones (“sampietrini”) on the streets can make life difficult not only for disabled persons but also for the elderly.

• The number of disabled persons is on the increase and can therefore become an important and significant “target” market. To understand the size of this phenomenon, we only need to remember that 15% of the population and 12.7% of families are involved in some way.22.

The derived market potential is worth thinking about. Investment in pro-ducts and infrastructures for a wider user base also contributes to the deve-lopment of society, through the creation of new markets.

The points indicated above are some of the most important ones to work on when considering full job access for disabled citizens.

2 Even today it is complicated to carry out a census of disabled persons for statistical and cultural reasons. This data has been taken from: Commissione interministeriale sullo sviluppo e l’impiego delle tecnologie dell’informazione per le categorie deboli, (Interministerial Commission on the development and use of information technology for weak categories) White Paper. Tecnologie per la disabilità. Una società senza esclusi (Technologies for disability, a society where no-one is left out) page 24 Site: www.innovazione.gov.it/librobianco.

75THE CHALLENGE

At the beginning of this book, we recalled that our Constitution considers work the foundation of the Republic. It is thus a political issue in the noblest sense of the word, meaning that it relates to the government of the “polis”, the city where men and women build their existence together.In his 2006 year-end speech, President Napolitano spoke to all Italians saying: “Do not distance yourself from politics. Participate in it, in all possible ways, brin-ging young energy and ideas. Contribute to its renewal, improving it morally and culturally”3.We believe that, among the many possible strategies, our project fully responds to the President’s invitation. In taking on responsibility for public issues, it empowers both able and disabled participants, a clear sign of civilisation.

3 See End of year message of the president of the Italian Republic Giorgio Napolitano, Quirinal Palace, 31 December 2006. Site: www.quirinale.it/Discorsi.

76

For those who wish to accept the challenge and start a job place-ment project after reading these pages, we have also included a list sources of inspiration and information on organisations and experiences related to inclusion of “differently able” persons.

AssociationsA list of addresses and telephone numbers of associations that work towards the elimination of architectural barriers in the Rome area follows.Below this we provide a list of useful texts and Internet sites with information on job placement.

AIAS Associazione italiana per l’assistenza agli spastici (Italian Association for Assistance to Spastics) Via Cipro, 4/H – 00136 Roma Tel. 06.39731704

AISM Associazione italiana sclerosi multipla (Italian Multiple Sclerosis Association) Piazza Giovine Italia, 7 – 00195 Roma Tel. 06.37350087

ANGLAT Associazione nazionale guida legislazione andicappa-ti trasporti (National Association for Guidance for Transportation Legislation for the Handicapped) Via del Podere S. Giusto, 29 – 00166 Roma Tel. 06.6140536

GUIDE TO RESOURCES

77

ANICI Associazione nazionale invalidi civili (National Association of Civil Invalids) Via Macedonia, 63 – 00183 Roma Tel. 06.7848530

ANPVI Associazione nazionale privi della vista e ipovedenti (National Association for Blindness and Hypovision) Via Merulana, 272 – 00185 Roma Tel. 06.48904474

ANTHAI Associazione nazionale tutela handicappati ed invalidi (National Asso-ciation for Protection of Handicapped Persons and Invalids) Via Achille Russo, 18 – 00134 Roma Tel. 06.71350564

ARPA Associazione ricerca psicosi e autismo (Association for Research on Psychosis and Autism) Via del Mascherino, 90 – 00193 Roma Tel. 06.280728

CABA Comitato abbattimento barriere architettoniche (Committee for Elimination of Architectural Barriers) Via Palmiro Togliatti, 981 – 00171 Roma Tel. 06.21893840

ENS Ente nazionale sordomuti (National Association of Deaf and Mute persons) Via Gregorio VII, 120 – 00165 Roma Tel. 06.398051

FAIP Federazione associazioni italiane paraplegici (Federation of Italian Paraplegic Associations c/o A.I.P., Via Cerbara, 20 – 00147 Roma Tel. 06.5122666 (58)

FIABA Fondo italiano abbattimento barriere architettoniche (Italian Fund for Elimination of Architectural Barriers) Via Achille Russo, 18 – 00134 Roma Tel. 06.71353173

78

FISD Federazione italiana sport disabili (Italian Sports Federation for Disabled Persons) Via della Tecnica, 250 – 00144 Roma Tel. 06.5921507

FISH Federazione italiana per il superamento dell’handicap (Italian Federation for Overcoming Handicap) Via Prospero Santacroce, 5 – 00167 Roma Tel. 06.6621702

UIC Unione italiana ciechi (Italian Union for the Blind) Via Borgognona, 38 – 00187 Roma Tel. 06.699881

79

References

Various authors, Diversamente abile, ugualmente lavoro. Manuale di buone prassi per l’inserimento lavorativo e mantenimento occupazionale dei portatori di handi-cap, (Differently able, working all the same. Manual of good practices for job inclu-sion and maintenance procedures for handicapped persons) Ed. Insieme, 2000.

Various authors, ACCES, Integrazione e disabilità. Orientamento, formazione, lavo-ro, progetti area handicap e psichiatria, (Inclusion and disability. Orientation, trai-ning, work, projects In handicap and e psychiatry) Franco Angeli, 2000.

Various authors, La persona disabile verso il lavoro. Osservazione, valutazione e ve-rifica: strumenti per l’inserimento lavorativo, (Work and the disabled. Observation, evaluation and verification: Job inclusion toolkit) Franco Angeli, 1999.

Various authors, sPiNN Notebooks 2000-2006, Cooperazione Sociale e servizi per l’impiego per l’inserimento lavorativo dei disabili (Social cooperation and employ-ment services for job inclusion of disabled persons), No. 13.

Various authors, Progettare per tutti senza barriere architettoniche (Planning for all without architectural barriers), Maggioli Editore, 1997.

CaLkiNs C.,WaLker h., L’adattamento all’ambiente di lavoro nei soggetti deboli. (Modification of the workplace for disabled persons), Ed. Erikson, 2004.

CaNeVaro a., Le logiche del confine e del sentiero. Una pedagogia dell’inclusione (per tutti, disabili inclusi) (The logic of limiting factors and pathways. Pedagogy for inclu-sion (of all people, including disabled ones)), Centro Studi Erickson, 2006.

De aNtoNiis G., (eDitor), Inserimento lavorativo. Dalla teoria alla pratica. (Job in-clusion, from theory to practice) 2006.

D’iMPerio G., La riforma del mercato del lavoro: servizi pubblici e privati per l’im-piego e nuovi contratti di lavoro nel D.Lgs. 10 settembre 2003, n.276, di attuazione della riforma Biagi, (Job market reform: public and private employment services and new job contracts in Legislative decree no. 276 of September 10th,in execution of the Biagi reform) esseLibri siMoNe, 2003.

FoNDaZioNe Labos, asL FrosiNoNe, istisss, Per il lavoro. Network per l’in-serimento dei soggetti deboli, (For work: A network for inclusion of weak parties) Franco Angeli, 2003.

80

FabriZi G., VuLteriNi P., Orientamento e inserimento al lavoro di persone in condizione di svantaggio, (Orientation and job inclusion for disadvantaged persons) Franco Angeli, 2000.

FiNiZio M., La partnership tra cooperative sociali e pubblica amministrazione:quali concetti e quali ruoli, (Partnership between social cooperatives and the Public Admi-nistration: concepts and roles) in “Impresa Sociale”, 1998, no. 39.

LoNGoNi M. (a Cura Di), La riforma del lavoro: come prepararsi alla nuova flessibi-lità, con tutti i testi normativi attuativi della Riforma Biagi, (Job reform: how to pre-pare for the new flexibility, including all the new executive texts of the Biagi reform) itaLia oGGi, 2003 (Guide to legislative reform).

PaLoMar, Le cooperative sociali di tipo B, (Type B Social cooperatives) Fondazione Don Gnocchi, 2003.

riDoLFi, P.(eDitor), I disabili nella Società dell’Informazione, (Disabled persons in the Information society) Franco Angeli, 2002

tirabosChi M., Le politiche nazionali di riforma del mercato del lavoro (National policies for reforming the work market) “Spinn”, 2002, n.4, pp. 30-39.

For part III - The issue of accessibility:

Paesaggio Urbano (Urban Landscape), Maggioli Editore, 1992, no. 1.Paesaggio Urbano (Urban Landscape), Maggioli Editore, 1995, no. 2.Paesaggio Urbano (Urban Landscape), Maggioli Editore, Nov. – Dec. 96.Paesaggio Urbano (Urban Landscape), Maggioli Editore 2000, no. 1.

Web Bibliography

www.welfare.gov.it Institutional site of the Ministry of Welfare. For the national system for

matching supply and demand see www.e-labor.minwelfare.it

www.pariopportunita.gov.it Site of the Ministry of Equal Opportunity

www.politichecomunitarie.gov.it Site of the department of Community Policies

www.innovazione.gov.it Ministry for Innovation and Technology

81

www.governo.it/GovernoInforma/Dossier/fondo_disabili/collo Online page of the Italian Government, dedicated to the fund for disa-

bled persons’ right to work and to other links on the topic.

www. europa.eu.int European Union

europa.eu.int/comm/index_it.htm European Commission

www.edf-feph.org European Disability Forum

www.independentliving.org European Network of Independent Living

www.segretariatosociale.rai.it Rai Social Secretariat

www.italialavoro.it Italia Lavoro website. Inside is the SPINN Servizi per l’impiego network

nazionale (National employment service network) page, an Italia Lavo-ro project for PON A.T.A.S. 2000-2006 of the European Social Fund on behalf of the Ministry of Labour and Social Policies. Networks, services, experiences and project models, for the employment services: spinn.wel-fare.gov.it/ SPINN/home.asp

www.isfol.it Isfol-Istituto per lo sviluppo della formazione professionale dei lavorato-

ri (Institute for the development of professional training for workers). Inside the Institute pages there is an area for the labour market for mo-

nitoring actions and analysis of implementation of the reform of the em-ployment service for public and private sectors.

www.superabile.it Portal with information and documentation on the world of disability,

updated daily and supplemented with a free telephone consultation ser-vice.

www.disabili.com Portal and e-journal completely dedicated to disabled persons and pro-

fessionals working in this sector.

www.handylex.org Collection of current legislation regarding disabled persons, divided

subject wise. There is a specific section dedicated to the right to work.

82

www.handylex.it Data bank containing national regulations, news and articles on legisla-

tive aspects related to disability.

www.handimpresa.it Data bank that promotes inclusion of differently able workers and provi-

des information on incentives for their employers.

www.accacomune.it Site of the Rome Municipality office for handicapped persons.

www.portale.siva.it Web portal of the service for information and evaluation of (handicap)

aids, constructed by the Don Gnocchi Foundation in collaboration with the Ministry of Welfare.

www.romapertutti.it Web portal of the centre for tourism information and mobility services

for disabled persons in Rome.

www.volontariato.lazio.it Site of CESV-SPES, the centre for voluntary services in Lazio.

www.bibciechi.it Italian Library for the blind – on-line catalogues, consultancy services

and assistance.

www.braillenet.it Search engine for the blind.

www.erickson.it The Erickson Study Centre. It publishes books, journals, didactic sof-

tware and online services on topics concerning inclusion of disabled persons, learning difficulties, support, psychology and socially benefi-cial work.

www.accaparlante.it Site of the Associazione Centro Documentazione Handicap (Handicap

Documentation Centre Association), which has been working since 1981 with the support of AIAS of Bologna on topics of handicap, social malai-se, voluntary work and the services sector.

www.hbgroup.it Site of the HBgroup, a structure for planning, research, training and

communication operating in the field of disability and the wider user base.

83

www.aism.it Site of the Associazione Italiana Sclerosi Multipla (Italian Multiple Scle-

rosis Association).

www.lisdhanews.it Information bulletin of the Lega per l’integrazione sociale e la difesa

dei portatori di handicap (League for social inclusion and the defence of handicapped persons).

www.asphi.it Reference site of ASPHI Association. The Association promotes many

computer projects, whose targets are disabled persons, both at school and in industry. The main aim is social and job inclusion through the use of information technology.

www.anffas.net National association of families of intellectually and relationally disa-

bled persons.

www.fand.org Federation of national associations of disabled persons.

www.laboratoriosipuo.net National Laboratory for accessible tourism.

www.uildm.org Unione italiana lotta alla distrofia muscolare (Italian Muscular Dystro-

phy Union). The association has opened “Help Barriere” an experimen-tal help desk service to support and assist association members in the fight against architectural barriers.

Its job is to provide practical information on how to write and lodge re-ports and complaints about violations of the regulations.

www.handiamo.it Interactive portal of the Handiamo association, which promotes sport

for disabled persons.

www.informahandicap.it LEDHA – League for the rights of handicapped people. Site on disability

issues, mainly limited to the Lombardy region.

84

BIOGRAPHIES

Alfredo Sodano graduated from the Università degli studi di Napoli (University of Naples) with a thesis on “Integrated Residences in the Territory: Project for a wider user base”. He has been a volunteer for UILDM (Unione Italiana Lotta alla Distrofia Muscolare – Italian Union for Muscular Dystrophy) and for Telethon. He attended the graduate course “Planning for all without barriers” taught by the architect F. Vescovo. He is a staff member of CLABARC, (Comitato di Lotta per l’Abbattimento delle Barriere Architettoniche e Culturali di Napoli – Committee for the elimina-tion of Architectural and Cultural Barriers in Naples). As an expert on accessibility, he has taught the subject in some schools in Naples for the project “Cacciatori di barriere (Barrier Hunters)”.

Giovanni Bastianini has been involved with civic service issues for many years. He has followed the change from within State institutions and assisted in pre-paring the relevant legislative texts, as conscientious objection became what is known today as voluntary youth civic service. He is a member of the National Civic Service Council.He has been involved in several Study Centres and Foundations, and a number of projects in many fields ranging from sociological research to European Union Fun-ding studies, to the third sector. He has been associated with the Civil Protection Department in the area of communication for several years.

85

CONTENTS

Preface . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I

Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . III

PART I - THE CONTEXT

A cultural revolution towards a more inclusive society . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

The anti-discrimination potential of the ICF model . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2

The role of institutions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

Legislation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9

Agreements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

Disability and Citizenship . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21

PART II - THE MODEL OF JOB INCLUSION AT THE CIVIL PROTECTION DEPARTMENT

Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27

The analysis . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30

The results . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40

The various phases of job inclusion and the role of Europe Consulting Cooperative . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42

The scene: the Civil Protection Department . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42

The type of work . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43

The project idea . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44

Activities and roles of the disabled persons . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45

Recruitment and selection of personnel . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 47

Specific training for the job . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49

The tutor . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49

The model: characteristics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51

The structural elements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51

The Institution . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51

86

The type of work . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 52

The cooperative . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 52

The strategic elements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53

Targeted selection . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53

Training . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 54

The tutor . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 54

Modification of premises . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 54

The human factor . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 55

The model: characteristics for success and conditions for replicability . . . . . 55

Agreement between the Civil Protection Department and the Europe Consulting Cooperative for job inclusion or working age disabled persons with physical, mental or sensorial disabilities or intellectual handicaps . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 57

PART III - THE ISSUE OF ACCESSIBILITY

The concept of accessibility . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 59

The Project for a wider user base . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 62

A new way to consider the environmental system for human beings . . . . . . . . . . 62

Overcoming distances and slopes and use of environmental units . . . . . . . . . . . . 63

The objective of accessibility three study areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 63

Legal and regulatory provisions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 66

Alternative solutions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 66

Work places, usability of spaces and equipment. Planning and modification guidelines . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 69

Modification of heritage buildings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 71

The Challenge . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 73

Conclusions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 73

Guide to resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 76

References . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 79

Biographies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 84

87

Notes

Published by Europe Consulting soc. coop. soc. a r.l.Europe Consulting soc. coop. soc. a r.l.viale dell’Università, 11 - 00185 - Roma PO BOX 2376 Ufficio Postale di Roma 158 Registered offices: P.zza V. Emanuele II, 31 - 00185 - Roma

www.europeconsulting.itricerca@europeconsulting.it

This book is on line at: www.abiliaproteggere.net

Graphic design: Carlo BusiPrinted in Italy by Multiprint