Key issues
- More than half of people with disabilities live in relative poverty.
- Needs-based social services are still not accessible throughout Estonia to those in need.
- Accessibility to the built environment and services requires more attention.
- The Equal Treatment Act still discriminates against people with disabilities.
Political and institutional developments
In September 2022, the Government of the Republic approved a care reform draft law, which aims to make a place in a care home available for the average pension.[1] This is one of the steps in the long-term care reform. As the reform came into effect in 2023, the impact of the reform is not yet clear.
In 2024, the long-term sheltered employment service funded by the European Social Fund will end, and it is unclear whether alternative services will provide sufficient vocational support for groups with greater support and assistance needse.[2]
In 2023, the Government of the Republic confirmed the Welfare Development Plan 2023–2030, which sets strategic goals for family, social, and labour policies for the coming years and determines the necessary courses of action to achieve them.
Special care services continue to be underfunded, and waiting lists for services are long. According to the Ministry of Social Affairs, there were approximately 1800 people on waiting lists for various special care services. There have been no significant changes in the number of service places or additional funding in the meantime.[3]
Legislative developments
On 30 May 2023, the Parliament adopted the Accessibility of Products and Services Act (enters into force on 28 June 2025), the purpose of which is to increase the accessibility of some products and services.[4]
The Equal Treatment Act is still unchanged.[5] Activities related to amending the law have continued in 2023. From the point of view of people with disabilities, it is important that when amending the law, the scope of application of the law is harmonised in such a way that discrimination on the basis of disability is prohibited to the same extent as in the case of nationality (ethnic origin), race, and skin colour.
In 2022, amendments were made to reduce the application and administrative burden on people with disabilities[6]: the Act on Amendments to the Social Welfare Act and other laws improved the exchange of data between the state and local governments. The purpose of data exchange is to provide preventive and comprehensive assistance to people with disabilities in cooperation between local governments and the state, as well as simpler administration. In addition, the application process for determining disability for pensioners with unchanged or progressive conditions was simplified.
In 2022, the European Commission initiated a public consultation on the European Disability Card. With the card, the status of disability recognised in any EU Member State can be proven in other Member States, allowing the cardholder to benefit from certain advantages across the EU.[7]
The Chancellor of Justice drew the attention of the Government Office to the rights of people with disabilities during the preparation and implementation of the Civil Crisis and National Defence Act draft.[8]
The Gender Equality and Equal Treatment Commissioner asked the Ministry of Social Affairs to analyse § 57 of the Employment Contracts Act, which discriminates against working people with disabilities of retirement age, as the law does not provide for extended annual leave for them, while at the same time, such extended leave is provided for individuals of working age with partial or no work ability.[9]
Case law
People often turn to the Estonian Chamber of Disabled People because they are dissatisfied with or do not understand the decisions of the Unemployment Insurance Fund’s work ability assessment or the Social Insurance Board’s determination/non-determination of disability. In an analysis of case law[10], it is explained that justification is important for the comprehensibility and acceptability of the decision. The principle of good administration imposes a greater obligation on the administrative authority to explain why the decision has changed, the explanations must make it clear to the person why such a decision was made. The case law regarding the principle of investigation demonstrates that, if necessary, the Social Insurance Board must gather data on its own initiative, even outside the health information system.
In the decision of the Administrative Law Chamber of the Supreme Court on 20 June 2022[11], the chamber did not agree with the Unemployment Insurance Fund’s position that the work ability assessment decision and the preceding process are not classical administrative acts and ordinary administrative procedures. According to the Supreme Court, high administrative burden does not relieve the Unemployment Insurance Fund of the obligation to adhere to the requirements arising from laws and regulations when processing applications, including the principles of administrative proceedings: the obligation to investigate and justify, to avoid haste and superficiality, if necessary, to explain to the individual their rights and obligations, and to ensure the right to be heard. Adherence to these principles also helps prevent later appeals and court proceedings.
Statistics and surveys
According to the Social Insurance Board’s data, the number of people with disabilities has decreased from 154,531 to 120,658 in about three years, representing a decrease from 12% to 9% as a ratio to the population.[12]
According to Statistics Estonia[13], the average percentage of people living in relative poverty has not significantly changed compared to ten years ago (2011 – 17.5% vs. 2021 – 22.8%). However, the number of people with disabilities living in relative poverty has doubled during the same period (2011 – 26.1% vs. 2021 – 51.7%).
A comprehensive survey on the caregiving burden of the population conducted in 2022 provided an overview of the situation and needs of those caring for close relatives.[14] The study revealed, among other things, that to alleviate the burden on informal caregivers and cope with the increasing demand for long-term care, public sector spending on long-term care needs to be increased. This includes the development of services that support the coping of people with care needs in their own homes. It is also important to encourage the reconciliation of work and caregiving responsibilities to prevent caregivers from dropping out of employment.[15]
A study commissioned by the Ministry of Social Affairs is promising, aiming to identify the shortcomings of the current adult guardianship system in Estonia and explore possibilities for implementing a supported decision-making model in line with Article 12 of the UN Convention on the Rights of Persons with Disabilities.[16] In 2023, a website (eestkostja.kohus.ee) was launched through the collaboration of the Ministry of Justice and Pärnu County Court, providing information and guidance on the rights and obligations of guardians.[17]
According to a study conducted by the Estonian Qualifications Authority titled “Future outlook on skills and needs of the workforce: social work”[18], the forecast for the period 2023–2030 indicates the greatest need for professions such as care workers, activity coordinators, support personnel, and caregivers for children with special needs, i.e. direct providers of essential personal assistance services for people with disabilities.
Promising practices
In the Government’s Action Programme for 2023–2027[19], an increase in state funding for the treatment of children with rare diseases is highlighted.
After being approached by the ADHD Estonia, the Chancellor of Justice took the position that treating individuals with the same condition differently based solely on the timing of their diagnosis is inconsistent with the principles of solidarity in health insurance and equal treatment. Leaving individuals in similar situations and with the same condition untreated solely due to the timing of their disease diagnosis restricts their fundamental rights significantly.[20]
To enhance accessibility, Estonian Public Broadcasting (ERR) introduced automatic subtitles on 1 March 2022, which were extended to all ETV and ETV2 programmes in September 2023.[21]
In collaboration with the Estonian Chamber of Disabled People, the State Electoral Office created instructional videos to draw more attention to the needs and accessibility of people with disabilities in polling stations.[22]
In partnership with the Ministry of Social Affairs, the Children’s Fund, and the Estonian Chamber of Disabled People, a call was sent to local municipalities urging them to find solutions to improve the working conditions of support persons.[23] The Estonian Chamber of Disabled People initiated a discussion to find solutions during a support person topic and inspiration day.[24]
Noteworthy public discussions
On 19 July 2023, the Ministry of Finance submitted for consultation the legislative intent for introducing a motor vehicle tax, to which the Estonian Chamber of Disabled People also submitted its opinion.[25] Each newly imposed tax further hinders the coping and well-being of people with disabilities. So far, the public has not seen impact assessments on how the simultaneous increase in value-added tax, income tax, and the introduction of a motor vehicle tax will affect the coping of various social groups, including the situation of people with disabilities.[26]
Trends and future outlook
The decrease in the number of people whose disability has been determined by the Social Insurance Board continues to be a concern for the Estonian Chamber of Disabled People. Over approximately three years, the percentage of people officially determined with a level of disability in the population has decreased from 12% to 9%. The Estonian Chamber of Disabled People does not find this trend justified, logical, or understandable in a country with an aging population. This topic has also been discussed in the media in 2023.[27] While it should not be the case, the determination of severity of disability is a prerequisite for accessing many services, benefits, and other forms of assistance.[28] Service provision must be based on needs, and the level of support must be sufficient to enable both the person with a disability and their caregiver to participate in education, work, and community life, as well as to have leisure time for maintaining physical and mental health and spending time with family members. Assistance should be designed in a way that does not constrain individuals in need within the framework of services but offers the components that the person and their family need.[29]
The Estonian Chamber of Disabled People is extremely concerned about the fact that 51.7% of people with disabilities live in relative poverty, while the Estonian average is 22.8%. Against the backdrop of already adopted and planned tax changes, the situation is critical for the coping and well-being of people with disabilities. Social benefits for people with disabilities have remained unchanged for years.[30]
Case description
In 2023, several cases of abuse in care institutions were reported in the media[31], leading to increased discussions on the topic. The case of Lille Kodu received greater attention[32], prompting the Estonian Chamber of Disabled People to approach the Chancellor of Justice seeking an assessment of whether, following the abuse at Rakvere Lille Kodu, there was discrimination against victims with disabilities in the support provided by various institutions, including during criminal and court proceedings, settlement agreements, and when imposing punishments.[33] As a result of the inquiry, the Chancellor of Justice made the following proposals to the Parliament[34]:
- consider whether there is a reason to establish in the Child Protection Act the possibility of applying a lifetime ban on working with children also in cases of physical abuse when it is committed repeatedly or systematically against a minor;
- evaluate whether there is a reason to create a new provision in the Penal Code;
- consider whether actions such as mistreatment or systematic humiliation of people in situations of vulnerability or helplessness should be punishable (e.g., inducing fear, distress, and feelings of inferiority in victims).
Recommendations
- Amend the Equal Treatment Act to ensure that people with disabilities are protected against discrimination in all areas of social life.
- Ensure equal and appropriate social protection for people with disabilities, based on a unified methodology for assessing their support needs. Social protection is of critical importance for people with disabilities and their loved ones to participate in education, work, and community life while maintaining family relationships.
- Work towards the withdrawal of the declaration under Article 12 of the UN Convention on the Rights of Persons with Disabilities and prepare the transition from substituted decision-making to supported decision-making.
- Ensure the implementation of the recommendations in the final report of the accessibility task force.
- Ensure the provision of qualified personnel for personal assistance services.
- Provide the necessary support for people with disabilities in employment, including in sheltered employment conditions.
[1] Sotsiaalministeerium. Hooldereform ja pikaajaline hooldus.
[2] Eesti Puuetega Inimeste Koda. 2023. Eesti Puuetega Inimeste Koja arvamus sotsiaalhoolekande seaduse ja rahvastikuregistri seaduse muutmise seaduse eelnõule, 31.08.2023.
[3] Eelnõude infosüsteem. 2022. Sotsiaalhoolekande seaduse muutmise seaduse väljatöötamise kavatsus (erihoolekandeteenuste korralduse ja rahastuse ajakohastamine), 27.06.2022.
[4] Sotsiaalministeerium. 2023. Üle 150 000 inimese jaoks muutuvad tooted ja teenused paremini ligipääsetavaks, 04.06.2023.
[5] Eesti Puuetega Inimeste Koda. 2018. Puuetega inimeste eluolu Eestis: ÜRO puuetega inimeste õiguste konventsiooni täitmise variraport.
[6] Tervise Arengu Instituut. 2022. Sotsiaalhoolekande seaduse ja teiste seaduste muutmise seadus toob uuendusi, 02.05.2022.
[7] Eesti Puuetega Inimeste Koda. 2022. Jagage oma arvamust ELi puuetega inimeste kaardi kohta – tähtaeg 21. detsember, 14.12.2022.
[8] Õiguskantsler. 2023. Puuetega inimeste õigused kriisis, 26.06.2023.
[9] Eesti Puuetega Inimeste Koda. 2022. Riigikogu võttis 30.05.2022 vastu toodete ja teenuste ligipääsetavuse seaduse, mis aitab tõsta osade toodete ja teenuste ligipääsetavust lähiaastatel, 31.05.2022.
[10] Reisberg, L. 2022. Lapse puude astme tuvastamine halduskohtute praktikas. Kohtupraktika analüüs, Riigikohus.
[11] Riigikohtu halduskolleegiumi 20.06.2022 otsus kohtuasjas 3-20-2474.
[12] Eesti Puuetega Inimeste Koda. 2023. Statistika, 31.06.2023.
[13] Statistikaamet. Statistika andmebaas. THV41: Vaesuse ja materiaalse ilmajäetuse määr vanuserühma, soo ja puudelisuse järgi.
[14] Sotsiaalministeerium. 2022. Uuring: hooldajatele paremat tuge pakkudes on võimalik tööturule tuua pea 20 000 inimest, 01.12.2022.
[15] Vainu, V. 2023. Suure hoolduskoormusega inimesed vajavad täiendavat abi, Tervise Arengu Instituut, 31.01.2023.
[16] Riigi Tugiteenuste Keskus. 2023. Täisealiste eestkostekorralduse uuring Eestis Sotsiaalministeeriumile, Riigihangete Register, 16.02.2023.
[17] Justiitsministeerium. 2023. Uus veebileht pakub eestkostjatele juhiseid ja tuge, 18.10.2023.
[18] Pihl, K., Krusell, S. 2021. Tulevikuvaade tööjõu- ja oskuste vajadusele: sotsiaaltöö. Tallinn: SA Kutsekoda.
[19] Vabariigi Valitsus. 2023. Vabariigi Valitsuse tegevusprogramm 2023–2027, 18.05.2023.
[20] Õiguskantsler. 2022. Eesti Haigekassa ravimite loetelu, 06.07.2022.
[21] ERR. 2023. Kõikidele ETV ja ETV2 omasaadetele saab nüüd valida automaatsubtiitrid, 08.09.2023.
[22] Eesti Puuetega Inimeste Koda. 2023. Riigikogu valimised 2023: valimisplatvormid, debatt ja õppevideod, 27.01.2023.
[23] Eesti Puuetega Inimeste Koda. 2023. Pöördumine seoses tugiisikuteenuse tagamisega, 08.06.2023.
[24] Eesti Puuetega Inimeste Koda. 2022. OTSE: Tugiisikuteenuse teema- ja inspiratsioonipäev 15.11.2022 Eesti Puuetega Inimeste Kojas, Youtube, 15.11.2022.
[25] Eesti Puuetega Inimeste Koda. 2023. Eesti Puuetega Inimeste Koja arvamus mootorsõidukimaksu seaduseelnõu väljatöötamiskavatsusele, 22.08.2023.
[26] Eesti Puuetega Inimeste Koda. 2023. Eesti Puuetega Inimeste Koja pöördumine seoses mootorsõidukimaksu välja töötamisega, 22.09.2023.
[27] ERR. Vikerraadio. 2023. Reporteritund. Puudega inimeste mured, 20.09.2023; ERR. Videoarhiiv. 2023. Oma tõde: 51 | Puuetega inimeste toetused, 18.09.2023; Saarniit, A. 2023. Kuhu kaovad puuetega inimesed? «Tunnen, et sotsiaalkindlustusamet mõnitab mind», Postimees, 09.01.2023.
[28] Sotsiaalministeerium. 2023. Heaolu arengukava 2023–2030.
[29] Eesti Puuetega Inimeste Koda. 2023. Eesti Puuetega Inimeste Koja ettepanekud koalitsioonilepingusse, 17.03.2023.
[30] Riigikogu. 2023. Puuetega inimeste sotsiaaltoetuste seaduse muutmise seadus 8 SE.
[31] Pihlak, A. 2023. Vald pani Lille kodu lastepeksu eest vastutama ka tööandja, Eesti Päevaleht, 03.07.2023; Järva Teataja. 2023. Hooldekodus seksuaalkuritegusid sooritanud mees mõisteti vangi, 06.04.2023; Pihlak, A. 2023. Hoiti rehvi raskuse all kõhuli, peksti plekk-karbiga näkku. Võikad kirjeldused Rakveres väärkoheldud erivajadustega laste kannatustest, Eesti Päevaleht, 22.03.2023.
[32] Viru Maakohtu 01.02.2023 otsus kriminaalasjas nr 1-22-6565 (21740000054).
[33] Eesti Puuetega Inimeste Koda. 2023. EPIKoja pöördumine õiguskantsleri poole seoses Lille Kodus aset leidnud väärkohtlemise juhtumitega, 12.04.2023.
[34] Õiguskantsler. 2023. Vastus Eesti Puuetega Inimeste Koja pöördumisele, 25.04.2023.
