Disability Planning for Local Government

In Australia, disability rights are upheld by the Disability Discrimination Act 1992. This Act must be followed by duty holders, which includes local governments. It applies to services, facilities, premises, and other activities that local governments are responsible for.

Australia’s Disability Strategy 2021-2031 calls on all Australians to ensure people with disability can participate as equal members of society. The Strategy reflects a collective commitment by all levels of government — Australian, state, territory and local — to build an Australia where people with disability are valued, included and empowered to thrive.

Understanding the social and human rights models of disability

Disability has been explained through many models over time. Current best practice centres on the social and human rights models of disability. These models help us understand disability as a matter of rights, fairness and equity, rather than a personal limitation.

What councils can do

These models offer a strong foundation for thinking about rights and inclusion. For councils, they can encourage you to look at where barriers might be unintentionally created for people with disability. This could be in policies, service design, public spaces or communication.

Having a rights-based approach to disability inclusion supports councils to build environments and systems that are fair, welcoming and accessible from the outset.

Using these models helps councils to ask:

“What might make this difficult for someone to access or take part in?”

“What can we change so participation is equitable?”

Inclusion cannot really happen without considering intersectionality. If accessibility and inclusivity are only addressed separately for different groups, then there will be gaps.

What is intersectionality?

Intersectionality recognises that a person or group of people have different experiences and can be affected by multiple forms of marginalisation, discrimination and disadvantage due to different parts of their identity like race, sex, gender identity, sexual orientation, disability, class, religion, culture and linguistic diversity and age.

Intersections can occur between multiple parts of a person’s identity. There can also be intersections within a person’s experiences of disability, as it is common for people to have multiple forms of disability.

These overlapping identities can influence how people move through their community, how they are perceived and the opportunities available to them, in ways that are different from experiencing the identities separately.

What councils can do

When implementing disability inclusion, councils should take an intersectional lens. This will help to make sure that planning, engagement and service design reflects the diversity of people with disability. It includes planning in ways that support different population groups across the community.

Councils should also think about how other plans, such as Reconciliation Action Plans, plans for multicultural services and plans focused on LGBTIQ+ communities, young people and older people integrate with your Disability Action Plan. Reviewing these plans together helps councils identify shared priorities, avoid gaps and design actions that reflect the different experiences of priority populations in the community.

Taking an intersectional lens also means making sure there is a mix of representation on advisory groups and in activities that inform the policies and work of councils. Councils need input from diverse perspectives to get a full picture of what’s needed.

When we use inclusive language, we create more respectful, supportive and accessible communities.

Disability-inclusive language recognises people with disability as experts in their own lives and values the terms they choose for themselves. It avoids deficit-based language that focuses on what a person “can’t do”, outdated or clinical labels, and euphemisms. Inclusive language also acknowledges the diversity of disability without grouping different experiences together. It keeps the focus on rights, dignity and participation rather than diagnosis or limitation.

Being considerate of inclusive language is a simple but powerful part of disability-inclusive practice.

What councils can do

• Use clear and contemporary wording to help people feel represented and welcomed.
• Make sure inclusive language about disability is used in all your communications and events. This helps people with disability feel more comfortable taking part.
• Provide disability awareness training to council staff and elected officials to understand inclusion and give staff confidence in their communication with people with disability.
• Stay open to conversations about different preferences and changes to language. Language about disability and inclusion changes over time.
• Share advice about language. We can all play a role in sharing advice about language with others in local government.

How do I avoid saying the wrong thing?

How we think and talk about disability changes over time, and it can differ between the preferences and experiences of one person with disability and another. Disability inclusion isn’t about always saying or doing the exact right thing at the exact right time. So it is important to:

• Listen to people with disability and following their lead in the things that affect them
• Make sure people with disability help to inform the language your council uses
• Don’t make assumptions about what people want, need or don’t need
• Take the time and making the effort to be informed about best practice

What is universal design?

Universal design is a leading principle for building equitable and accessible communities.

It is an approach to planning, building and communicating that aims to make things usable for as many people as possible, from the outset. It removes barriers before they appear by considering a wide range of access needs early in design. For councils, universal design is both good practice and good governance. It can improve safety, usability and inclusion for the whole community.

While universal design benefits people with disability, the impact extends to many others, including parents with prams, older people, people with temporary injuries and people with lower literacy or limited English.

What councils can do

Universal design encourages councils to look at barriers across physical, digital, sensory and social environments. It supports council teams to ask in the early stages of planning:

“Who might find this difficult to use?”

“What could we do now to make this easier, safer and more comfortable for everyone?”

Councils can also:

• Embed steps to consider the 7 universal design principles in planning and development processes across council areas, including infrastructure, technology, communication and engagement.
• Ensure ongoing engagement with people with disability to make it easier to identify barriers, test ideas and create solutions that genuinely work in practice.

The 7 principles of universal design

Find out more about applying universal design principles in the Infrastructure section.

Centring people with disability means recognising their expertise and leadership in decisions that affect them. It places lived experience at the heart of disability inclusion and shifts inclusion from something done for people with disability to something designed with people with disability.

Representation should also include council staff with disability. Their insights, from both an organisational and community perspective, can strengthen planning, culture and engagement.

What councils can do

Councils can create safe and supportive ways for people with disability to participate in decision-making.

• Direct representation of people with disability. The voices and lived experience of people with disability themselves should be involved in informing and creating policies, planning and service design.

• Employment of people with disability. Employment within councils is a practical way to make sure people with disability are at the centre of decision making. This includes in leadership positions.

• Involvement of people with disability in planning. It is a requirement to consider impacts on people with disability and consult with communities in areas such as planning for infrastructure and service design. This includes rules that are in the Disability Standards.

• Establish and use advisory committees and reference groups/committees led by people with disability to guide strategic planning and specific projects.

• Recognise the expertise of people with disability in the community. This often includes payment for time and supporting travel or access requirements, in the same way other specialist contributions are valued. It is important to recognise that people with disability are diverse. What works for or is preferred by one person or group is not necessarily true for all.

When people with disability help to guide council decision-making, councils build services, spaces and systems that are more inclusive, relevant and effective for everyone.

Many people with disability have experienced discrimination, exclusion, neglect, exploitation, violence and/or abuse, which can cause ongoing trauma. Trauma-informed planning helps councils engage safely and respectfully by being aware of past experiences, creating choice and control, and reducing barriers. This principle supports councils to build trust, foster genuine engagement and design inclusive processes, particularly in areas like emergency management, community engagement and customer service.

A trauma-informed approach promotes safety and upholds the dignity and wellbeing of people with disability. It respects and recognises that people with disability are experts in their own lives. It recognises that experiences of trauma can shape how people feel, communicate and participate. It focuses on creating environments where people feel safe, respected and in control.

What councils can do

For councils, being trauma-informed means paying attention to emotional, cultural and psychological safety in everyday work. This includes:

• How staff interact with community members
• How complaints or compliance matters are handled
• How engagement activities are run
• How staff are supported

Trauma-informed practice encourages councils to slow down, communicate clearly, offer choice, explain processes, and check in respectfully throughout interactions. A trauma-informed approach also recognises that people respond to environments differently. What feels safe and predictable for one person may feel overwhelming or triggering for another. Councils can consider noise, lighting, crowding, sensory needs, clarity of instructions and the tone used in written and verbal communication.

It is important to begin with clear leadership and responsibility for the plan, while also defining governance arrangements and accountability for development, implementation and evaluation.

The development of governance arrangements at this stage of the process — before priorities and actions are decided — encourages a whole-of-council approach. It means that those who will be responsible for implementation can engage in the planning process and be clear on what is expected or how this might impact them when it comes to implementation and reporting. It’s also an opportunity to involve people with disability and advisory committees from the outset in shaping the approach and priorities.

Identifying funding and resources should be done as early as possible in the planning process. Other avenues of funding, such as grants or state government assistance, can also be investigated.

Practical actions councils can take

• Appoint an executive sponsor to champion the planning process and inclusion across council
• Identify a project lead or manager to lead the planning development process
• Develop a cross-council working group, with a multi-disciplinary team to drive consultation, planning, development and communications
• Involve individuals with disability and/or disability representative organisations as experts to provide advice and guidance for planning throughout the process. This could be through forming or using existing disability advisory committees, with careful consideration of representation of the range of disability needs (visible and invisible) across the community.

It is important to understand why the plan is being developed and what it needs to cover.

Early clarity about legislative or policy expectations, local context and expectations of council and the community about what the plan should achieve, is critical to developing an effective plan.

Practical actions councils can take

• Review national responsibilities under the Disability Discrimination Act 1992 (Cth) and identifying any state or territory requirements for DAPs (or equivalent DIAPs/DAIPs)
• Consider how the plan will contribute to Australia’s Disability Strategy 2021–2031
• Review and consider corporate and operational plans and understand how the DAP can link with other council strategies, planning cycles and priorities. This should include other plans such as your Reconciliation Action Plan.

Having a good engagement strategy at the beginning will ensure the DAP reflects lived experience, local priorities and the needs of the community. It helps identify opportunities for consultation, co-design and collaboration throughout the process, rather than asking for feedback at the end.

Community engagement can take time to do well. It may require additional resourcing, such as having alternative formats of information and different ways to engage.

The engagement strategy should also consider future engagement such as how people with disability, other members of the community and staff might continue to be involved in monitoring, evaluating and reporting on the action plan.

Practical actions councils can take

• Develop an engagement strategy for both internal staff (including staff with disability) and the external community, mapping key audience segments for engagement
• Ensure the strategy reflects representation of the local community and supports the participation of the range of people with disability and support needs
• Consider and include the most effective ways to reach and promote engagement opportunities in the community
• Include a range of accessible engagement methods to involve people with disability and local disability organisations, including surveys, workshops, small group conversations or one-on-one discussions
• Include engagement activities for council staff (including staff with disability) to understand how the plan will impact and work in their area
• Make sure the strategy considers individuals and groups who may experience intersectional identities and compounding barriers to participation and/or be under-represented in council processes
• Ask advisory committees and/or disability experts for advice or review of the engagement strategy

Understanding the operating environment is an important step before developing the DAP. It supports a whole-of-council approach and will help identify:

• existing disability inclusion initiatives and practices in council
• barriers affecting people with disability from engaging in services or community life within councils responsibilities
• service providers and community organisations in the local disability ecosystem
• opportunities to improve inclusion across council operations
• what further engagement is needed to inform the plan and its focus areas

Councils should include a profile of the community living within the council area as well as how people with disability outside the council area can access council services (such as tourism or recreational facilities).

Practical actions councils can take

• Map the operating environment to identify key touchpoints within service areas’ operations of facilities, services and programs (including contracted operations)
• Identify typical service user pathways and existing data, including access audits, previous engagement findings, complaints and demographic data
• With input from community members with disability, identify local needs, key barriers and opportunities or ideas for improvements
• Identify clear focus areas that reflect community feedback and lived experience

Your action plan should include specific disability inclusion strategies, initiatives and actions reflecting consultation with the community and the outcomes of the mapping from step 4.

Strategies and actions should align with the goals and objectives identified during step 2. At a minimum, they should also include the action, the goal and expected outcome or objective, a timeframe, and responsibility for action.

Aligning with Australia’s Disability Strategy

This guide’s focus areas were chosen because they represent areas of strong council responsibility, where levers can be used to improve access, participation and safety for people with disability in the community. The table below shows how each focus area aligns with Australia’s Disability Strategy 2021–2031 outcome areas.

Practical actions councils can take

Identify strategies and actions in the plan. Make sure actions are realistic for the size and resources of the council. Strategies and actions in the plan should be supported by:

• a description of the strategy or action
• links to the goals and expected outcome / objective
• the target population or audience
• the timeframe for action
• who is responsible
• resources required for implementation, including any external partnerships
• specific and measurable indicators to assess performance
• any possible risks or challenges in implementation and mitigation strategies
• reporting requirements

Consider and include mitigations for possible risks within the overall design and implementation of the action plan.

A separate evaluation plan or framework may be produced to guide monitoring, evaluation and review of the plan in future years. This is important to consider how council and the community will know if objectives/outcomes by the actions in your plan are achieved.

Once strategies and actions are developed that are supported by the internal project team and governance structure, councils can draft the plan into a clear, accessible document that people can read, understand and respond to.

Input should be collated and presented as needed on sections that introduce and complement the action plan itself, such as an introduction from the Mayor or CEO of council; the importance of disability action planning; information about the community; the goals or objectives of the action planning; how the plan was developed; governance arrangements; and how the plan will be implemented.

Practical actions councils can take

• Collate all relevant information and create a clear and easy-to-read document (or HTML version) with a clear structure
• Prepare the draft in accessible formats such as ensuring language is Plain English, providing accessible Word, HTML (WCAG-compliant), properly tagged PDFs, Auslan and Easy Read summaries, and large print versions, to meet accessibility needs for feedback
• Test the draft with people with disability, advisory committees, disability organisations and staff to check for clarity and feasibility, including offering multiple engagement methods for feedback (e.g. surveys, in-person or online forums, digital tools)
• Refine actions based on feedback, ensuring responsibilities, timeframes and measures are realistic and clearly communicate how feedback has influenced changes to the plan

When the plan is ready for publishing, it should be widely promoted throughout council and in the wider community. It is important the plan is promoted and implemented by leadership, disability champions, the working group, and through governance processes identified in Step 1.

It should be made publicly available and easily found on websites. This includes in accessible formats, such as accessible Word and PDF documents, as well as large print, audio, Easy Read / Easy English, and braille or Auslan as required or requested.

Practical actions councils can take

• Confirm endorsement and approval at all levels of council
• Publish the plan in all accessible formats
• Ensure the plan is integrated into business planning and prioritisation
• Distribute and promote both internally and externally in a range of ways, including:
  • newsletters and social media
  • awards recognising accessibility and inclusion targets or achievements
  • integration of the Action Plan in induction processes for council
  • including disability inclusion KPIs in council performance plans

Evaluation is essential to show progress and accountability of local government towards improving the inclusion of people with disability in its services and community life. It should strengthen the next planning cycle and build council capability over time.

A monitoring, evaluation and reporting framework or plan should be developed to complement the DAP. This will guide monitoring and evaluation in the period that the plan covers. It helps to track progress, keep the plan relevant and support continuous improvement of inclusion planning and delivery.

In some states and territories, reporting on progress is a legislative requirement. It may be supported by specific evaluation frameworks.

Developing indicators and measures to track progress

Develop indicators for each goal/objective that are SMART (Specific, Measurable, Achievable, Relevant, and Time-bound) to track progress over time. These might include:

• activity indicators (e.g. number of accessible events delivered)
• experience-based indicators (e.g. community feedback on accessibility)
• inclusion indicators (e.g. proportion of procurement decisions assessed using accessible procurement criteria)

Where possible design measures that can be tracked using existing systems to reduce reporting burden, especially for small councils.

Use a mix of qualitative and quantitative data as methods of measurement. For example:

• surveys, interviews or feedback sessions with people with disability
• direct input from Disability Advisory Committees
• observations and audits (e.g. accessibility of facilities, digital content checks)
• workforce and procurement data
• Snap Send Solve or customer service requests flagged for accessibility issues

Involving people with disability

Engage regularly with people with disability, advisory committees and staff to understand whether actions are having the intended impact.

Ensure all engagement includes reasonable adjustments, pays people with disability for their expertise, and uses culturally safe methods for First Nations people with disability.

Reporting and continuous improvement

• Create a simple internal cycle for monitoring and reporting which can reduce pressure of larger reporting deadlines while supporting continuous improvement
• Report progress through existing council reporting processes, specific reporting mechanisms for disability inclusion, and via community updates
• Prepare clear, accessible public reporting that fosters trust and aligns with a rights-based approach
• Update or refine actions as circumstances change or new challenges emerge