MARCIA RESEARCH FINAL REPORT Research... · bring about enduring and sustainable change to the...

MARCIA RESEARCH

FINAL REPORT

May 2018

Prepared for the City of Bunbury

By Adam Johnson PhD Candidate, Edith Cowan University

mailto:[email protected]

MARCIA Research Full Report 2018

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Table of Contents

Overview of Recommendations ................................................................................................................ 4

INTRODUCTION ......................................................................................................................................... 5

Origins of MARCIA ..................................................................................................................................... 6

Accessible Cities – A Global and National Priority ..................................................................................... 7

Developing the Research Project .............................................................................................................. 8

Introducing the Researchers (Research Group Participants) .................................................................... 9

Principles informing the MARCIA research and recommendations ........................................................ 10

Explanation of the Principles ................................................................................................................... 11

‘Design’ of community as a major barrier and facilitator to disability access and inclusion .................. 13

Inclusive design ....................................................................................................................................... 15

RESEARCH DATA COLLECTION ................................................................................................................. 17

PROGRESS SINCE MARCIA WAS ADOPTED .............................................................................................. 18

FINDINGS FROM THE RESEARCH ............................................................................................................. 20

FINDING 1: Proficiency in inclusive design .......................................................................................... 20

FINDING 2: Technical support for inclusive design ............................................................................. 22

FINDING 3: Systems and accountability for inclusive design .............................................................. 24

FINDING 4: Involvement of people with disabilities in co-design ....................................................... 26

FINDING 5: Best-practice in inclusive design ....................................................................................... 29

FINDING 6: Addressing existing barriers to disability access .............................................................. 30

RECOMMENDATIONS .............................................................................................................................. 31

RECOMMENDATION 1: Train for inclusive design ............................................................................... 32

RECOMMENDATION 2: Increase technical support for inclusive design ............................................ 33

RECOMMENDATION 3: Improve benchmarks, checklists and accountability for inclusive design ..... 34

RECOMMENDATION 4: Involve people with disabilities as partners in co-design .............................. 36

RECOMMENDATION 5: Promote sharing of best practice in inclusive design .................................... 37

RECOMMENDATION 6: Retrofit to remove existing barriers to community access and inclusion ..... 38

Financial Implications for City of Bunbury .............................................................................................. 39

Discussion the Recommendations: suggestions for implementation ..................................................... 40

DISCUSSION 1: CBD Streetscape Guide ............................................................................................... 40

DISCUSSION 2: Public Open Space Strategy ........................................................................................ 43

DISCUSSION 3: Purchasing and tendering ........................................................................................... 46

DISCUSSION 4: Events.......................................................................................................................... 47

DISCUSSION 5: Development Applications ......................................................................................... 50


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DISCUSSION 6: Community Engagement ............................................................................................ 52

DISCUSSION 7: Employment of People with Disabilities ..................................................................... 54

CONCLUSION ........................................................................................................................................... 55

Appendices .............................................................................................................................................. 57


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Overview of Recommendations

RECOMMENDATION 1: Train for inclusive design

That the City of Bunbury considers strategies for increasing the proficiency of staff members and contractors in the inclusive design of facilities, services and events

RECOMMENDATION 2: Increase technical support for inclusive design

That the City of Bunbury considers strategies for increasing the availability of technical support for inclusive design to staff, contractors and external organisations involved in the design of facilities, services and events.

RECOMMENDATION 3: Improve benchmarks, checklists & accountability for inclusive design

That the City of Bunbury considers strategies for improving benchmarks, checklists and other accountability measures related to inclusive design.

RECOMMENDATION 4: Involve people with disabilities as partners in co-design

That businesses, community organisations and the City of Bunbury consider joint strategies for promoting the use of co-design, whereby people with disabilities become actively involved as partners in the design of facilities, services and events.

RECOMMENDATION 5: Promote sharing of best practice in inclusive design

That businesses, community organisations and the City of Bunbury consider joint strategies to promote recognition and sharing of best practice in inclusive design.

RECOMMENDATION 6: Retrofit to remove existing barriers to community access and inclusion

That businesses, community organisations and the City of Bunbury consider joint strategies for addressing existing barriers to disability access and inclusion in Bunbury, created by traditional design practices.

Full details regarding each recommendation are contained in the section titled ‘Recommendations’. Note: a one-page summary of the Research Findings can be found in Appendix 3


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INTRODUCTION MARCIA is a whole-of-community aspiration to make Bunbury the Most Accessible Regional City in Australia, and was adopted by the City of Bunbury in 2014 at the recommendation of their Community Access Committee. The City then partnered with Edith Cowan University to conduct research into the barriers and facilitators to access and inclusion in Bunbury, that could be used to inform the progress of the MARCIA aspiration. This report is the result of a 12-month study conducted by a group of researchers, made up of people with lived experience of disability and facilitated by a PhD student. The researchers spent time analysing the factors impacting on disability access and inclusion in the community, and concluded that most barriers are introduced at the design stage of facilities, services and events. They observed that the product of design was significantly impacted by the quality of the process of design, and the awareness levels of the people responsible for design. The researchers set about identifying key design stakeholders working within one of three types of organisations – Council, businesses and community organisations, and engaged them as participants in the study. The researchers engaged in dialogue with design staff members to gain insight into how the current systems, policies and processes connected to design might allow designers to inadvertently create barriers to access and inclusion, and what safeguards might be embedded into the design process (such as benchmarks, checklists and accountability measures) to improve design outcomes. The researchers also sought to understand how designers might be better supported and equipped to design in ways that eliminate barriers, using principles of ‘inclusive design’. In particular, they looked at what access designers had to training and technical support for inclusive design, and how co-design with people with disabilities might be facilitated to improve the inclusive qualities of design outcomes. This report details the research process and the principles underpinning the research, and outlines the key findings and recommendations. This report also provides some detailed suggestions for how the recommendations might be implemented by the City of Bunbury as the key driver of MARCIA.


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Origins of MARCIA MARCIA was first conceived by the City of Bunbury’s Community Access Committee in 2013 when members of the Committee began to inquire about how Bunbury compared, in terms of disability access and inclusion to other similar-sized regional cities in Western Australia (such as Geraldton, Albany or Kalgoorlie), or Australia more broadly (such as Geelong, Bundaberg and Rockhampton). There appeared to be few indicators by which a local community could make any kind of comparative self-assessment regarding disability access and inclusion. The Community Access Committee explored the idea of developing a ‘friendly competition’ for the title of the Most Accessible Regional City in Australia, as way of promoting action on access and inclusion (similar to the Tidy Towns award concept). The Committee then posed a challenge: What would it take for Bunbury to become the most accessible regional city in Australia?. Council responded by adopting the following resolution: Council Decision 263/14: That Council sets a goal to become the Most Accessible Regional City in Australia by 2020.1 Council included MARCIA as Outcome 1.1 in the Strategic Community Plan2, and a public consultation session was held to develop some award criteria, which were summarised as follows:

Accessible public spaces

Access to public spaces

Assistive technology (provision/ presence)

Access and disability aware community

Uniform guidelines (development and implementation)

It was recognised that MARCIA would require a ‘whole of community’ approach – including businesses, Council, and the broader community – and would require going ‘above and beyond’ compliance with minimum Australian design standards for accessibility. As a regional city, Bunbury faces some significant challenges particularly around resources. However, with approximately one in five Australians experiencing a disability that restricts their functional abilities3 (equal to approximately 14,000 people in the Greater Bunbury region), and an ageing population, directing additional resources towards achieving the standards of access and inclusion that MARCIA implies is critical to its success. This report provides a set of recommendations for how existing and addtional resources can be used to bring about enduring and sustainable change to the design of facilities, services and events in ways that promote social inclusion for all community members.

1 City of Bunbury. (2014). Council Minutes 22 July 2014. Retrieved from www.bunbury.wa.gov.au

2 City of Bunbury (2015). Strategic Community Plan. Retrieved from www.bunbury.wa.gov.au

3 Australian Bureau of Statistics (2015). “Disability”. Retrieved from www.abs.gov.au

Members of the Community Access Committee that

developed the MARCIA concept in 2013

http://cli.re/cob-minutes-2014-07-22

http://cli.re/cob-strat-plan

http://cli.re/abs-disability


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Accessible Cities – A Global and National Priority United Nations Agenda MARCIA is responding to a global challenge through local action. In 2007 the United Nations developed the Convention on the Rights of Persons with a Disability4, to which Australia is a signatory. A recent report by the United Nations (UN) stated that “urbanization is currently one of the most important global trends of the 21st century… urban environments, infrastructures, facilities and services, depending how they are planned and built, can impede or enable access, participation and inclusion of members of society”5.

The United Nations is fostering inclusive cities globally through its Sustainable Development Goals and New Urban Agenda and considers local governments to be one of the key drivers of change when acting in partnership with their communities6. Local governments are well placed as the level of government closest to communities, to address barriers to access and inclusion using their local knowledge, networks and resources.

Australian Agenda Australia’s National Disability Strategy 2010-2020 was developed as a whole of Government plan for addressing the barriers faced by Australians with disabilities, and was informed by a sobering report titled ‘SHUT OUT: The Experience of People with Disabilities and their Families in Australia’7. This report found that many thousands of Australians with disabilities felt shut out from the everyday activities of their communities due to attitudinal and environmental barriers. The National Disability Strategy 2010-2020 identified as an urgent priority the development of “inclusive and accessible communities: the physical environment including public transport; parks, buildings and housing; digital information and communications technologies; [and] civic life including social, sporting, recreational and cultural life8”. The National Disability Insurance Scheme (NDIS) was the first major outcome from the Strategy, which provides individual supports for Australians with disabilities. Though vitally important, individual supports are only part of what makes a good life for people with disabilities. Welcoming communities are equally vital in giving people with disabilities a sense of dignity, belonging and identity, as well as opportunities for inclusion in employment, leisure, sports and culture. MARCIA’s ‘whole-of-community’ approach to improving disability inclusion aligns it with the Australian agenda for creating inclusive communities, and provides local leadership for change.

4 United Nations (2007). Convention on the Rights of Persons with a Disability. Retrieved from https://www.un.org

5 United Nations (2016). Good practices of accessible urban development: Making urban environments inclusive and fully

accessible to all. Retrieved from http://www.un.org/disabilities 6 United Nations (n.d.). Sustainable Cities: Parks Tau on New Urban Agenda one year after adoption [video file].

https://vimeo.com/240671262 7 Commonwealth of Australia (2010). SHUT OUT: The Experience of People with Disabilities and their Families in Australia.

Retrieved from www.dss.gov.au 8 Commonwealth of Australia (2012). National Disability Strategy 2010-2020. Retrieved from www.dss.gov.au

https://www.un.org/development/desa/disabilities/convention-on-the-rights-of-persons-with-disabilities/convention-on-the-rights-of-persons-with-disabilities-2.html

http://cli.re/marcia-ref-un-good-practices-accessible-urban


https://vimeo.com/240671262

http://cli.re/marcia-ref-shut-out

http://cli.re/marcia-ref-nds-2010-2020


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Developing the Research Project The City of Bunbury and Edith Cowan University funded a scholarship for a PhD student to undertake research into the City’s MARCIA aspiration. A suitable candidate was identified with strong links to the disability community and industry experience. The research preparation phase commenced in 2016 and the data collection phase occurred throughout 2017. Further details about the research methodology and a comprehensive literature review can be found in the PhD thesis paper, due for publication at the end of 2018. The research project used a methodology called ‘Participatory Action Research’9, which is an approach to research that emphasises:

Participation – people with disabilities participate as co-researchers, and are empowered by the process;

Action – participants use the knowledge gained and relationships developed through the research process to influence the decisions that affect them;

Research –participants use a planned approach to data collection to ensure that the data has integrity.

The PhD candidate recruited 11 local people with lived experience of disability as co-researchers. Their profiles appear on the next page.

Members of the Research Group updating the Executive Directors, CEO, Mayor and Councillors of

the City of Bunbury on the progress of the research at a Council Briefing.

9 Somerville, M. M. (2014). Participatory Action Research: Improving professional practices and local situations. SAGE Research

Methods Cases. Los Angeles. Retrieved from Scholarly Commons.

http://cli.re/marcia-thesis

https://scholarlycommons.pacific.edu/cgi/viewcontent.cgi?article=1038&context=libraries-articles


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Introducing the Researchers (Research Group Participants)

Adam has worked professionally in the disability and local government sectors since 1999, and he is currently working towards a PhD researching MARCIA. His father developed a severe disability through stroke in his early 40s.

Ann works at Morrissey Homestead in Bunbury. Siouxi her second child has a severe disability which means she uses a wheelchair and is nonverbal. Ann is passionate about making Bunbury more access-friendly for visitors and residents.

Colleen has worked as an education assistant and support worker for the past 17 years, and is a volunteer with WA iSports. She believes in an inclusive community where all can achieve their best, regardless of abilities.

Debbie has an adult daughter who had an accident in 2014 and now uses a wheelchair. Moving back to Bunbury they quickly realised how important access is. Debbie joined the research group to help her daughter’s life and

others.

Jacque has worked in the disability sector for 28 years. She has been a support worker, a Social Trainer and relief EA. She enjoys helping people to find ways to improve their quality of life, and making change happen.

Jenna wants to see younger people have more of an awareness of disability and to be educated about it. She has a 10-year old daughter with autism, and has a passion for people from all sectors of the community working together for inclusion.

Kate has M.S. and while she appreciates that she needs help, she is passionate about getting people to change their way of thinking. She wants people to see the person, not the disability, and to be aware of the need to include others.

Kathryn has low vision and runs her own business as a clinical hypnotherapist and Reiki Practitioner. She was involved in advocacy boards and committees and is passionate about breaking down barriers and adopting a ‘can do’ attitude.

Josef is an advocate for people with intellectual and other disabilities, and has a passion for social inclusion through sport. He helped establish iSports in Bunbury, which has seen many people discover hidden talents and make friends.

Paul sustained a spinal cord injury at 34 years of age and is a wheelchair user. He delivers injury prevention talks in schools, hospitals and workplaces. He wants to see people with disabilities free to integrate with the rest of the community.

Suzanne has cerebral palsy and uses a walker to get around town. She likes to keep active and is involved in a singing group, bootscooting, craft group and more. She wants to see all people with disabilities able to be as active as she is.

Dayle had a unique perspective on community access after experiencing a stroke, and was passionate about seeing greater opportunities for inclusion for others like himself. Dayle contributed a great deal to the Research Group, but

sadly, passed away in March 2018.


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Principles informing the MARCIA research and recommendations Initial principles to underpin the research were identified by means of a literature review. These were then refined through the process of conducting the research itself, including dialogue with the research participants and between the Research Group members. This resulted in the following six key principles that underpin the MARCIA research and recommendations.

Principle 1: HUMAN RIGHTS Living in an accessible city is a matter of human rights; people should be able to participate

equally in society, regardless of ability or disability.

Principle 3: DESIGN FOR ALL Designing an accessible city begins with the premise that the city is for all people regardless of

ability. It draws on the principles and practices of Universal Design, Inclusive Design, Barrier-free Design, and Design For All.

Principle 2: SHARED RESPONSIBILITY Investing in an accessible city is a responsibility shared by all sectors of society, including

government, businesses and the community, and requires a collaborative whole-of-community approach to addressing barriers to access and inclusion.

Principle 5: ACCOUNTABILITY Creating an accessible city requires those responsible for design to be trained and accountable, with appropriate checks and balances in place to ensure a consistent approach to designing for

all.

Principle 4: KNOWLEDGE PARTNERING Planning an accessible city must draw together many different types of expertise, not just

professional expertise, and should involve people with disabilities as knowledge partners in the design of facilities, services and events.

Principle 6: FACILITATIVE LEADERSHIP Developing an accessible city requires leadership from within all organisations to challenge the status quo and bring about culture change. It calls for facilitative approaches by governments -

especially local governments because of their strong links to the community.


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Explanation of the Principles Principle 1 - HUMAN RIGHTS: Living in an accessible city is a matter of human rights; people should be able to participate equally in society, regardless of ability or disability. Urban environments can be designed in ways that facilitate social inclusion by people with disabilities, and to help them to realise their basic human rights such as the opportunity to participate in the life of the community and to contribute to society on an equal basis1,2. Inaccessible urban environments can compound the disabling effects of impairment, and leave people feeling ‘shut out’ of society3 or ‘disabled by design’4,5. Accessible cities are designed to enable individuals with disabilities to live full and meaningful lives as valued citizens by taking their diverse needs and abilities into consideration in the planning stages of development1,2,4.

1. Australian Network on Disability (2015). Design for Dignity: Principles for 'beyond compliance' accessibility in urban regeneration. Retrieved from www.and.org.au

2. United Nations (2016). Good Practices of Accessible Urban Development: Making urban environments inclusive and fully accessible to ALL. Retrieved from www.un.org

3. Commonwealth of Australia (2009). Shut Out: The experiences of people with disabilities and their families in Australia. Retrieved from www.dss.gov.au

4. Imrie, R. (1996). Disability and the City: International perspectives. London: Chapman Publishing 5. Bennett, U. (2002). Disabled by design. Disability & Society, 17(7), 809-823.

Principle 2 - SHARED RESPONSIBILITY: Investing in an accessible city is a responsibility shared by all sectors of society, including government, businesses and the community, and requires a collaborative whole-of-community approach to addressing barriers to access and inclusion. Services and infrastructure for community benefit are delivered by three key sectors – government, businesses and community – with shared responsibility for design, approval and construction. Working in partnership can help build the social capital needed to address barriers to disability access and inclusion1,2. Community engagement, public-private partnerships and community capacity building can also help to create momentum for change and share the burden of responsibility1,2,3.

1. King, C. & Cruickshank, M. (2010). Building capacity to engage: community engagement or government engagement? Community Development Journal, 47(1), 5-28.

2. Eversole, R. (2011). Community agency and community engagement: Re-theorising participation in governance. Journal of Public Policy, 31(1), 51-71.

3. City of Bunbury (2018). Strategic Community Plan 2018-2028. Retrieved from www.bunbury.wa.gov.au

Principle 3 - DESIGN FOR ALL: Designing an accessible city begins with the premise that the city is for all people regardless of ability. It draws on the principles and practices of Universal Design, Inclusive Design, Barrier-free Design, and Design For All. Designing facilities, services and events for use by people of all abilities is both a philosophy and a highly technical discipline, that is only partially regulated by current Australian Design Standards1,2. A traditional design approach based on a ‘compliance mentality’ often results in facilities, services and events that are only partially accessible4. ‘Design for all’ benefits all users through more integrated, intuitive design outcomes3 – for example, preferencing the use of symbols instead of text on signage benefits those who cannot read as well as those who cannot understand English.

1. Null, R. (Ed.). (2013). Universal design : principles and models. Boca Raton: CRC Press. 2. Steinfeld, E., & Maisel, J. (2012). Universal design: Creating inclusive environments. New Jersey: Wiley. 3. Persson, H., Ahman, H., Yngling, A., & Gulliksen, J. (2015). Universal design, inclusive design, accessible

design, design for all: Different concepts—one goal? on the concept of accessibility—historical, methodological and philosophical aspects. Universal Access in the Information Society: International Journal,14(4), 505-526.

4. Imrie, R., Hall, P. (2003). Inclusive design: Designing and developing accessible environments. London: Taylor and Francis.

http://cli.re/marcia-ref-design-for-dignity


http://www.and.org.au/



http://www.un.org/



https://books.google.com.au/books?hl=en&lr=&id=nww5rJLmWdMC&oi=fnd&pg=PP8&ots=JMFY5O-OG_&sig=2Un-Vubw2yHFGj2K7mzwvcq0LAE#v=onepage&q&f=false

http://cli.re/marcia-ref-cob-strat-plan


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Principle 4 - KNOWLEDGE PARTNERING: Planning an accessible city must draw together many different types of expertise, not just professional experts, and should involve people with disabilities as knowledge partners in the design of facilities, services and events. Knowledge partnering challenges traditional views that expertise is the domain of the qualified professional, and advocates that there are many ‘knowledges’ that can be brought to bear when tackling complex social problems (such as disability access and inclusion)1,2,5. Knowledge partnering is about facilitating dialogue between people who hold different yet equally valid perspectives so that innovative solutions can be reached6. People with disabilities should be engaged in co-design to enrich the process through ‘deep participation’4, whilst recognising that they are a ‘hard to reach’ population and respond more readily to relationship-based engagement strategies3.

1. Eversole, R. (2014). Knowledge partnering for community development (The community development research and practice series, volume 5). Abingdon, Oxon: Routledge.

2. Boydell, K., Dew, A., Hodgins, M. et al. (2017). Deliberative dialogues between policy makers and researchers in Canada and Australia. Journal of Disability Policy Studies, 28(1), 13-22.

3. Brackertz, N. Zwart, I., Meredyth, D. & Ralston, L. (2005). Community consultation and the ‘hard to reach’: Concepts and practice in Victorian local government. Retrieved from www.apo.org.au

4. Donnelly Roark, P. (2015). Social justice and deep participation: theory and practice for the 21st century. UK: Palgrave MacMillan

5. Firmstone, J., & Coleman, S. (2015). Public engagement in local government: The voice and influence of citizens in online communicative spaces. Information, Communication & Society, 18(6), 680-695.

6. Sanders, E., & Stappers, P. (2008). Co-creation and the new landscapes of design. Codesign, 4(1), 5-18.

Principle 5 - ACCOUNTABILITY: Creating an accessible city requires those responsible for design to be trained and accountable, with appropriate checks and balances in place to ensure a consistent approach to designing for all. The people responsible for the design of services and facilities are spread throughout government, business and community organisations, and hold portfolios across very different disciplines. They need training, support and systems of accountability around designing for all if the vision of a community that is accessible to all is to be realised2. It is only with these measures that the design culture will change and that actions will align with rhetoric1, which in turn will increase public confidence in the process.

1. McGrath, R. (2008). What do they say they are doing? Thematic analysis of local government Disability Action Plans. Annals of Leisure Research, 11(1-2), 168-186

2. Frauenberger, C., Good, J., Fitzpatrick, G., & Iversen, O. (2015). In pursuit of rigour and accountability in participatory design. International Journal of Human - Computer Studies, 74, 93-106.

Principle 6 - FACILITATIVE LEADERSHIP: Developing an accessible city requires leadership from many sources and levels within all organisations to challenge the status quo and bring about culture change. It calls for facilitative approaches by governments - especially local governments because of their strong links to the community. As civic leaders, local governments play a key role in setting the social agenda for their communities and can operate effectively as enablers of collective action to address local needs2. Local governments can use their extensive community, business and government networks to facilitate social and cultural change1, and their authority over public resources to involve the community in the participatory design of services and facilities3. They can also strongly encourage other sectors to invest more resources into removing barriers to disability access and can promote the value of social and economic participation by people with disabilities1.

1. Hunting, S.A., Pavkovic, I., Alvarez, T, Wortley, L., & Ryan, R. 2017. How local governments can increase the social and economic participation of people with disability: Desktop Review. University of Technology Sydney Institute for Public Policy and Governance, Sydney, NSW.

2. Smyth, P., Reddel, T., & Jones, A. (2005). Community and local governance in Australia. Sydney, NSW: UNSW Press.

3. Bratteteig, T., Wagner, I., 2012. Disentangling power and decision-making in participatory design. In: PDC '12, vol. 1. ACM, New York, pp. 41–50.

http://cli.re/marcia-ref-hard-to-reach


http://www.apo.org.au/


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‘Design’ of community as a major barrier and facilitator to disability access and inclusion A central theme that emerged from this research is the role of design in creating an accessible city. The link between disability and design has been well established through perspectives such as the ‘social model of disability’ in which disability is viewed as more the product of a person’s environment than the product of their physical, sensory or cognitive impairments10. How sensitively a community’s facilities, services and events are designed can increase or decrease the real-world impact that people’s impairments have on their quality of life, and so it is imperative that those involved in their design develop a better understanding of the needs and perspectives of people with disabilities. People can become “disabled by design”11 when facilities, services and events are developed in ways that are not sensitive to those with impairments, and the underlying message is that disabled people are the ones that must adapt to their environment, rather than the other way around. Traditional design practices can introduce unnecessary barriers when designers:

Ignore, overlook, or treat disability as an optional design consideration,

take only some forms of disability into account and not others,

focus on compliance with minimum Australian Design Standards for accessibility rather than striving for best practice.

On the other hand, design practices that view disability access and inclusion as critical success factors and involve people with disabilities as ‘knowledge partners’ can help to eliminate barriers through sensitive design. This approach is referred to as ‘inclusive design’. The infrastructure of a community consists of:

facilities (such as cinemas, restaurants, sports centres, libraries, commercial centres, parks and playgrounds, footpaths, carparks and bus stops);

services (such as retail, hospitality, events, sporting and cultural programs, human resources and electronic information systems); and

events (such as community events, corporate events and theatrical shows). All of these are designed and approved by people working for government, businesses and community organisations. During the design process, decisions are made about cost, quality and functionality. Australian design standards provide a degree of regulation of design in some design scenarios, but are not considered to be ‘best practice’, and often don’t exist for many design scenarios such as services and events. Unfortunately this means that disability access and inclusion is not always explicitly or comprehensively considered in the design process, and all too often barriers are designed in rather than designed out. Fortunately design is a dynamic process that offers continual opportunities for improving community access every time a building, public open space, street crossing, shopping centre, café, sporting facility or event is developed or redeveloped. The challenge is to nurture a design culture in which inclusive design is prioritised and embedded in the same manner that occupational health and safety has become. To illustrate this point, the photographs below depict Bunbury’s transformation in just 30 years from the photo taken in 1985, to the attractive city it is today. These photos show how the incremental process of design transforms a landscape, and how in 30 years from today Bunbury will once again look very different. Will it become MARCIA, the Most Accessible Regional City in Australia? That is in the hands of those who are designing for the future, and their skill at designing for all community members.

10

Oliver, M. (2013). The social model of disability: Thirty years on. Disability & Society, 28(7), 1024-1026. 11

Bennett, U. (2002). Disabled by Design. Disability & Society, 17:7, 809-823


14.

Figure 1: An illustration of how the Bunbury landscape has changed through incremental design, and how inclusive

design methods present an alternative to traditional design methods for creating an accessible future.


15.

Inclusive design Inclusive design assumes that people with disabilities – including physical, sensory, cognitive and social disabilities (see table below) – have the same right as everybody else to the full enjoyment of all facilities, services and events created for the public, and that it is the designer’s duty to understand and anticipate their needs as end-users. According to Shipley (2002) inclusive design is “not a fixed set of design criteria, but a constantly evolving philosophy… the goal of creating beautiful and functional environments that can be used equally by everyone, irrespective of age, gender or disability requires that the design process must be constantly expanding to accommodate a diverse range of users, as we develop greater understanding of their requirements, desires and expectations”12. In viewing MARCIA through the lens of design, the researchers concluded that responsibility for achieving MARCIA rests with those who, through their day-to-day work as employees or contractors, are designing all of the facilities, services and events that are used by the people of Bunbury. It is therefore imperative that a design culture is fostered in which staff members and contractors working for Council, businesses and organisations:

are trained in inclusive design,

are supported with access to technical expertise,

are using checklists, documenting benchmarks and ensuring compliance, and

are committed to involving people with disabilities as partners in the design process. To develop greater sensitivity towards inclusive design, staff members and contractors may require additional training and support in order to develop a working knowledge of how people with all different disabilities are likely to interact with the facility, service or event being designed. Inclusive design is about taking all types of disabilities into account, regardless of whatever ‘label’ of disability people may be given (like cerebral palsy, autism, low vision, hearing impairment, mental disability, Down’s syndrome, muscular dystrophy, stroke, spinal injury, dementia, arthritis, etc). Design can focus instead on the functional impact of disability (see below).

12

Shipley, A (2002). Quoted in Persson, H., Ahman, H., Yngling, A., & Gulliksen, J. (2015). Universal design, inclusive design, accessible design, design for all: Different concepts—one goal? Universal Access in the Information Society, 14(4), 505-526.


16.

The following table13 outlines the range of functional impacts of disability that designers need to take into consideration when developing any kind of facility, service or event. The breadth of knowledge required to design for inclusion calls for ‘knowledge partnering’14 between designers, technical experts, and people with lived experience of disability. Designers should consider how they can avoid working in isolation, and aim to facilitate rather than control the design process.

13

Adapted from Commonwealth of Australia (2014). Nationally Consistent Collection of Data: School Students with Disabilities. Retrieved from www.schooldisabilitydatapl.edu.au 14

Eversole, R. (2015). Knowledge partnering for community development. Australia: Taylor & Francis


17.

RESEARCH DATA COLLECTION Data collection for the MARCIA research project involved in-depth evaluative discussions with participants using a method known as ‘Appreciative Inquiry’15. Appreciative inquiry is a process of facilitating dialogue between stakeholders to identify how current positive practices can be strengthened and further developed. Participants included staff members and Councillors from the City of Bunbury, and a range of community and business representatives including service clubs, sporting clubs, education and training institutions, and small businesses. A complete list of research participants appears in Appendix 1. The findings and recommendations in this report have been developed by a process of:

in-depth discussion and inquiry with Council participants (internal staff members with design responsibilities, and councillors);

a review of current City of Bunbury policies, plans and procedures; and those of other regional and metropolitan Australian local governments;

discussion with people with disabilities, advocacy organisations and state disability services;

a review of relevant global, national and state conventions and legislation relating to human rights and disability discrimination.

a review of other local government disability access and inclusion initiatives nationally and internationally.

The researchers met regularly for 12 months to develop a deeper understanding of how much the social inclusion of people with disabilities in Bunbury is shaped by the physical and social environments that surround them, and the role that local governments, businesses and community organisations play in the design of those environments. They met face-to-face with participants and asked them what they saw as the achievements, barriers and opportunities for improving disability access and inclusion within their roles as designers. The researchers also gathered information about examples of positive practice from other regions in Australia and internationally to help inform the recommendations. The data was analysed and revealed the following key themes:

1. The progress Bunbury has made towards the MARCIA goal, and the championing of MARCIA within workplaces and the wider community.

2. The central importance of inclusive design in bringing about an accessible city, and the challenges and opportunities related to inclusive design – in particular:

a. proficiency in inclusive design by those responsible for the design of facilities, services and events that will be accessed by the public;

b. the knowledge gap between traditional design and inclusive design practices for projects happening now and in the near future;

c. consistency and accountability in design outcomes relating to disability; d. drawing on the knowledge and experience of people with disabilities to inform the design

process; e. embedding inclusive design as the expected norm within the City of Bunbury, and sharing

knowledge of best practice.

3. The multitude of barriers that traditional design practices have introduced into the built environment of Bunbury, and how they can be addressed effectively.

These themes were used to guide further inquiry into what some of the possible responses to the challenges might be, and to inform the findings and recommendations contained within this report.

15 Bushe, G.R. (2011). Appreciative inquiry: Theory and critique. In Boje, D., Burnes, B. and Hassard, J. (eds.). The Routledge Companion To Organizational Change (pp. 87-103). Oxford, UK: Routledge.


18.

PROGRESS SINCE MARCIA WAS ADOPTED It is important to acknowledge the significant progress that has been made since Bunbury first adopted the MARCIA goal in 2014. The researchers found many positive examples of practices by businesses and community organisations in Bunbury that reflect MARCIA, and wish to acknowledge the hard work and commitment of those who champion access and inclusion for the community. The researchers also wish to acknowledge the commitment of the City of Bunbury to the MARCIA aspiration, its significant achievements in this space, and the willingness of the City to open itself up to scrutiny as part of the research process. Below is a selection of the positive initiatives that have been implemented in Bunbury since 2014, by staff and volunteers working in the Council, community and commercial sectors.

POSITIVE COUNCIL PROGRESS INCLUDES:

Training of staff members in conducting accessibility audits using a nationally accredited system.

A commitment of $50,000 p.a. over four years for physical improvements to City of Bunbury infrastructure, such as the universal access change rooms at the South West Sports Centre.

Funding of a PhD research scholarship in partnership with ECU, to research the City’s barriers and facilitators to access and inclusion in Bunbury.

Delivery of an organisation-wide training program that teaches social inclusion, development of a new online disability awareness module, and creation of two induction videos explaining MARCIA and promoting workplace tolerance and acceptance of difference.

Creation of four new part-time positions tailored for employees with disabilities, in partnership with Forrest Personnel.

Ongoing program of installation of accessible facilities as standard replacement items in all public open spaces, such as accessible BBQs and drink fountains.

Development of a highly accessible museum with all exhibits at seated height, and tactile exhibits for people with low vision.

Updating Council’s Disability Access and Inclusion Plan16 to include Outcome 8 which commits Council to supporting commercial entities to improve access to private sector buildings and services.

POSITIVE COMMUNITY AND COMMERCIAL SECTOR PROGRESS INCLUDES:

Retrofitting of six existing retail outlets on the Victoria St cafe strip to allow for wheelchair access.

Commercial centres catering for children with sensory needs (such as autism and hearing impairments) through initiatives like 'Sensitive Santa', 'Auslan Santa', 'Sensitive Cinema', 'Quiet Shopping Hours', and trampolining sessions for families with children with special needs.

Development (or continuation) of community-run sports and leisure initiatives that include people with disabilities such as iSports, Rotary Sail Into Life, Art Partners, and CanDance (in many instances supported by corporate sponsorship, fundraising and grant funding).

16

City of Bunbury (2017). Disability Access and Inclusion Plan 2017-2022. Retrieved from www.bunbury.wa.gov.au

http://cli.re/marcia-ref-cob-daip-2017-2022

http://cli.re/cob-daip


19.

PROGRESS: MORE INCLUSIVE SPORT & RECREATION FACILITIES

These are the new accessible change rooms adjacent to the pool area at the South West Sports Centre. The rooms include an adult change table, an electric roof-mounted hoist system, and self-locking doors.

PROGRESS: CORPORATE SPONSORSHIP FOR INCLUSIVE PROGRAMS

Bunbury Holden supported WA iSports with a $10,000 grant to purchase balls, nets, ramps, modified hoops and portable bocce courts

(i). Josef (right) was one of the

Research Group members and a founding member of WA iSports. (i)

Retrieved from www.thewest.com.au published 18 July 2017

PROGRESS: MORE EMPLOYMENT OPPORTUNITIES FOR PEOPLE WITH DISABILITIES

The City of Bunbury HR Department worked closely with Forrest Personnel to create four new paid positions in the past 12 months for people registered with the service. The initiative was sparked by a Lighthouse grant from the Disability Services Commission, and Bunbury’s efforts were recognised at a Lighthouse Awards ceremony.

EXAMPLES The images below illustrate some of the many positive initiatives in that reflect Bunbury’s MARCIA aspirations.

PROGRESS: MORE INCLUSIVE CITY EVENTS For the past two years, the City of Bunbury Events Team provided AUSLAN interpreters (left in photo) during the Christmas carols at the annual ‘Christmas in the City’ event. Not only was this greatly appreciated by members of the deaf community, it sent a positive message to the whole community that Bunbury is focused on MARCIA

http://www.thewest.com.au/


20.

FINDINGS FROM THE RESEARCH The following findings relate to the research principles and themes that emerged from dialogue with the research participants (see Data Collection above), and each finding informs one of the six recommendations that follow.

FINDING 1: Proficiency in inclusive design All facilities, services and events used by the public are the product of deliberate design created by employees and contractors of Council, commercial or community organisations. The degree of accessibility is affected by how proficient the employees and contractors are at designing for all (inclusive design). Capacity for inclusive design can be increased through targeted training. Participants were asked about their level of training in respect to inclusive design. The researchers found that while most participants had received general disability awareness training, very few had engaged in training specific to inclusive design, meaning they were less likely be fully equipped to design facilities, services, and events in ways that meet the needs of people with diverse types of disabilities. The researchers found there was a tendency towards designing facilities, services and events in accordance with the ‘compliance’ aspects of disability access and inclusion, in the absence of awareness around ‘best practice’ options. Designing in a way that aims only to comply with minimum Australian design standards for disability access rather than exceed them is problematic in that the standards are very limited in scope and considered by some to be outdated17. Best practice standards (such as those developed by IATA18) are far more comprehensive and align more closely with the principles of Bunbury’s MARCIA aspiration, but there appears to be limited awareness of them amongst staff and contractors. The level of detail in the IATA publications reveals just how many desirable design elements are not adequately covered by the Australian design standards for disability access. Most designs of physical spaces achieve basic compliance, but viewed through the lens of the IATA criteria they are likely to contain a plethora of oversights that may introduce unnecessary barriers for people with different disabilities. Often these oversights may result in costly changes ‘down the track’ to meet increasing community expectations. In some instances, traditional compliance-only design approaches have resulted in the total inaccessibility for people with some types of disabilities that could have been easily avoided through more proficient design. There are two issues related to proficiency that affect design outcomes. Firstly, staff members and contractors appear to receive little training specific to inclusive design as part of their tertiary qualification19, and therefore it cannot be assumed that they come equipped with this knowledge because they have a tertiary education. Secondly, staff turnover20 (and/or changes in contractors used) can result in the loss of technical know-how, especially if their replacement has not had access to the same training, and the organisation risks a regression back to traditional design approaches.

17

A document released in 2016 called Design for Dignity Guidelines, regarding the Australian Design Standard AS1428.1, states that “the majority of measurements in the most critical areas are based on data from 1983” (p.9). 18

Institute of Access Training Australia, also known as Access Institute 19

Some training providers are beginning to incorporate disability access and inclusion into their courses, for example, South Regional TAFE Diploma in Design now includes an optional unit on this topic. 20

Currently around 10% per annum according to the City of Bunbury HR Department.

Nick and Amanda from the City of Bunbury were recently trained in

conducting access audits of premises by IATA



21.

These issues can be addressed through the introduction of a structured program of inclusive design training for staff members and contractors involved in design work, and especially if provided on an ongoing basis. Comprehensive training in inclusive design contains the following components:

Knowledge of any compulsory Australian Design Standards that apply. Knowledge of ‘best practice’ design standards or criteria that apply – for example, those

published by IATA. Working knowledge of the organisation’s existing benchmarks, design criteria, processes and

policies relating to the design scenario. Tools and techniques for auditing facilities, services and events to check for compliance with

best-practice benchmarks and standards. Awareness of how people with different disabilities relate to the built environment and the

service environment, which may be gained from involvement in ‘experiential’ learning opportunities (eg. spending time in a wheelchair or blindfolded), or from involving people with disabilities directly in the design process (co-design).

Knowledge of how to engage people with disabilities in co-design, such as developing easy-read drafts, video ‘fly-throughs’ or 3D models.

Knowledge of providing appropriate customer service to customers with different disabilities. Knowledge of contemporary language and ways of thinking and speaking about disability, eg. the

social model of disability. Knowledge of the organisation’s obligations under the Australian Disability Discrimination Act.

The City of Bunbury’s electronic induction package covers some elements, for example, information about the Disability Discrimination Act, and from time to time the City provides one-off disability-related training to staff members. For example, in 2017 all staff members attended a half-day disability awareness workshop, and 13 staff members received training in how to audit buildings and facilities for disability access. However, it is evident that an ongoing commitment may be required from the City of Bunbury to sourcing and resourcing training for staff members and contractors (those specifically involved in the design of facilities, services and events) if they are to be equipped with a proficient knowledge of inclusive design. Options for sharing inclusive design training opportunities with others working outside of local government could also be explored to help build capacity across the community. Some of this training may need to be specific to the type of facility, service or event being designed because, for example, designing an inclusive museum or museum experience is very different to designing an inclusive sports centre or fitness program. The City of Bunbury Museum provides an excellent example of what can be achieved when staff members and contractors are proficient in inclusive design. Completed in 2016 it is notable for its many accessible features including all exhibits viewable at seated height, and sensory-friendly items that can be interpreted through touch (for people with low vision).

The City of Bunbury museum was developed with

disability access as high priority.


22.

FINDING 2: Technical support for inclusive design The researchers found that there is a significant knowledge gap between current traditional design practices and inclusive design practices that may take some years to bridge through training. This is particularly the case for roles that are not typically thought of as ‘design’ roles, such as staff members working in services (like libraries, sports centres, art galleries, museums, shops, cafes and visitor attractions) and in events (including community and commercial events). The presence or absence of features that support disability access is often a reflection of individual staff member levels of awareness of inclusion at the design phase of development, and the disabled-friendly features can be inconsistent from one place to the next. Achieving better disability access and inclusion through design can be a matter of knowing the right questions to ask. There is a growing body of knowledge available online that can provide answers for all manner of inclusive design questions. However, the number of technical considerations can be overwhelming, given the need to analyse in detail how people with each type of impairment will interact with the physical and intangible aspects of the design. Just knowing the right questions to ask may be challenging, let alone finding the answers in a timely and efficient manner. Some participants at the City of Bunbury were asked if and how they accessed technical support related to designing for disability access and inclusion. Participants explained that in some cases limited technical support could be accessed from more experienced team members or managers. Some assistance could also be accessed from Community Development officers, however these roles tend to focus on community engagement rather than technical design and the officers may not be in a position to offer technical advice and support. To address this issue, some local governments have taken one or more of the following actions:

employed a qualified technical officer to provide advice and support to other staff members about inclusive design;

contracted private access consultants to provide advice and support on an ad-hoc basis;

upskilled existing staff members with qualifications such as certificates and diplomas in inclusive design so they can become a resource to others within the organisation.

Technical experts in inclusive design are people with qualifications and experience about how people with diverse disabilities interact with facilities, services and events. They are familiar with the compulsory Australian design standards as well as any ‘desirable’ design criteria that can be applied – such as those published by the Institute for Access Training Australia (IATA). They keep a watching brief on best-practice in inclusive design and can assist design staff members to find and interpret standards and benchmarks correctly, and to accurately document new benchmarks. The researchers noted that people working in commercial and community organisations may also benefit from greater access to technical advice and support in the area of inclusive design. With the MARCIA goal in mind, the City may wish to consider options for providing technical support to internal staff members as well as community and commercial organisations seeking support to achieve a higher standard of inclusion. The City could consider employing a qualified technical officer for inclusive design, or engaging a consultant on an as-needs basis. The City could also consider how internal officers might increase their qualifications and become a resource to colleagues and others seeking support.


23.

EXAMPLE The Bunbury Bowling Club wanted to make their facilities more accessible to people with different disabilities, including people in wheelchairs, with low vision or with dementia. They approached the City of Bunbury for assistance. A MARCIA Research Group member visited the site and provided valuable advice, but did not have the qualifications or technical experience needed to answer all of the questions. The City of Bunbury could play a stronger role in facilitating access to technical expertise for community groups, as well connecting them with people with disabilities.

Members of the Bunbury Bowling Club with researcher Dayle Johns (seated in wheelchair), reviewing plans for

facility upgrades to improve access and inclusion.


24.

FINDING 3: Systems and accountability for inclusive design A major factor in achieving MARCIA is consistency in the provision of access and inclusion features when facilities, services and events are developed. A lack of consistency points to problems in the processes of design and approval. The researchers identified a number of ‘safeguards’ that could be applied to the design process. In particular, the researchers identified the potential for improvements to:

the use of documented benchmarks for achieving best practice in disability access and inclusion in the design of facilities, services and events (that go well above minimum standards);

the use of checklists for inclusive design to ensure details are not missed;

the use of measures for ensuring compliance, such as improvements to policies and procedures. Some local governments and other organisations have adopted benchmarks and checklists based on design criteria developed by IATA or other reputable organisations, and/or in consultation with people with disabilities. To be effective, these need to be documented and embedded within the organisation’s project management systems, strategies and policy documents, and evaluated periodically. Some local governments have introduced design safeguards such as automatically referring certain types of development applications (like retail and hospitality) to their Disability Access and Inclusion Committee for review. The DAIP21 is an important strategic document but does not generally function as a safeguard to inclusive design because it is strategic rather than regulatory. Safeguards should be embedded within the processes of decision-making to help prompt, guide and regulate the decisions of staff members. For example, a reference to the DAIP in the City of Bunbury’s Purchasing Policy does not guarantee that the purchasing officer has to account for whether a purchased item (such as a drink fountain, barbeque or piece of playground equipment) meets any measure of accessibility. Likewise, providing a copy of the DAIP to design contractors does not guarantee that they will incorporate accessible features for disabled people within their designs (other than the minimum required by the Australian standards). It appears that more robust safeguards and accountability measures could be used to help embed inclusive design. In discussion with participants, the researchers identified a number of opportunities for improving safeguards for inclusive design that the City may wish to consider, for example:

referring Development Applications (that meet certain criteria22) for review by a panel of people with disabilities (see section below on co-design);

making greater use of the Development Control Unit23 (DCU) for City of Bunbury major developments,

requirements to consult people with disabilities, an inclusive design technical expert and so forth;

increasing the lead-in time for major internal projects to allow for co-design with people with disabilities;

using the external Events permit application process to require event organisers to demonstrate access and inclusion;

strengthening the Purchasing Policy and/or procedures to require purchasing staff members to demonstrate how the purchase will meet disability access and inclusion requirements;

increasing design benchmarks relating to disability access and inclusion into plans and strategies (such as the Open Space Strategy);

21

DAIPs are Disability Access and Inclusion Plans that most government departments in Australia are required to have by law. 22

Criteria such as the degree to which the building or facility will be used by members of the public, and the complexity of the design. 23

See Discussion 5 below.


25.

These items have been incorporated into Recommendation 3 (below), and the final section of this report offers some suggestions for how they can be implemented. The researchers believe that by introducing more safeguards and accountability measures into the design process, there will be greater assurance that inclusive design will become embedded practice. Furthermore, improved documentation of benchmarks and checklists will help to ensure that technical knowledge is not lost if staff members move on, thereby avoiding the problem of ‘knowledge atrophy’ that can often occur in local governments.

EXAMPLE The City of Bunbury is developing an Open Space Strategy for public open spaces (public parks, bushland and playground areas), which presents a perfect opportunity to include design benchmarks, checklists and compliance measures for specifying the features of an accessible public open space in terms of picnic tables, drink fountains, footpath connectivity, toilets, playground equipment, barbeques, shade and so forth. The City is committed in principle to the provision of accessible public open spaces, but the documentation of specific design criteria would help safeguard this.

EXAMPLE The researchers found that the organisers of commercial and community events are not specifically required to ensure their events are accessible and inclusive. The City of Bunbury could assist by adding disability inclusion criteria to the event permit form and assisting event organisers to develop accessibility checklists. Checklist items such as the provision of shaded wheelchair seating options for viewing entertainment, signposted accessible toilets, accessible parking near the entrance, accessible food van options, inclusive activities for children with sensory needs, and availability of ‘companion card’ tickets for carers would be just some of those included on the list.

Researcher and wheelchair user Kate Gild is pleased with the accessible drink fountains

recently installed around Bunbury, and wants to know that all future facilities will

be designed for accessibility.

Some of the researchers conducting an evaluation

of the Bunbury Show, where they identified a number of challenges and opportunities relating

to access and inclusion.


26.

FINDING 4: Involvement of people with disabilities in co-design Co-design is the practice of involving end-users as ‘partners’ in the process of design24, and is a key component of inclusive design. The design of services and facilities typically involves two parties – the ‘client’ (the purchasing organisation) and the ‘designer’ (an employee or contractor with specific responsibility for the design). ‘End users’25 are a third party to the design but have no contractual part to play. End users are members of the public who will actually use the design product (facility, service or event), but whether and to what extent they become involved as stakeholders in the design process is up to the client and/or the designer. The researchers found that involving end-users with disabilities in co-design could be better promoted and facilitated by the City of Bunbury and other organisations as a key strategy for achieving MARCIA. Co-design is one of the most empowering forms of stakeholder engagement, because it promotes a level of dialogue and shared decision-making not usually achieved with traditional community consultation methods24. A study conducted with Victorian local governments found that, as end-users, people with disabilities and their carers are especially prone to being excluded from traditional engagement processes26. This is because they are considered a ‘hard to reach’ population, and disability is associated with lower rates of civic and community participation than the average population. However they are the most at-risk of becoming excluded from accessing community facilities, services and events if these have not been sensitively designed. This poses a challenge for local governments like Bunbury to find creative ways to not just consult with people with disabilities, but to engage them in co-design. Co-design aims to bring the professional knowledge of designers into dialogue with the lived experience of people with disabilities, in a process called ‘knowledge partnering’.27 Knowledge partnering has been shown to result in more innovative approaches to eliminating barriers to access and inclusion, particularly within the planning and design stages of a project. For co-design to work, staff members and contractors involved in design may need to view their role as being ‘facilitators’ rather than ‘controllers’ of the design process28. This way, design will become something that is done with rather than for end users. Co-design can also bring the passion and energy of people with disabilities into the design process. Involving people with disabilities will help designers to witness first-hand what the potential impacts of design will be on their quality of life, and to better appreciate the importance and urgency of inclusive design. Facilities, services and events that cater well for people with disabilities usually cater better for everyone’s needs14, 15. For example, self-opening doors are appreciated by parents with prams as much as people in wheelchairs. Signage with symbols instead of words make them clearer for people from non-English speaking backgrounds as well as those who can’t read. Adaptable pieces of gym equipment allow people with temporary injuries to use them, as well as people with long-term disabilities. The researchers found that current design practices at the City of Bunbury tend to reflect more traditional models of design than co-design. There appear to be few embedded trigger points for the referral of design projects for input from the Disability Access and Inclusion Reference Group (DAIRG), and that the system relies heavily on staff members’ discretion. There also appears to be confusion about whether a briefing of the DAIRG is for information purposes only, or whether there should be opportunities for input. This may be improved through the development of a clear protocol for referring design proposals to the DAIRG that outlines what mutual expectations should be met in the process.

24

Sanders, E. & Stappers, P. (2008). Co-creation and the new landscapes of design. Co-design, 4(1), 5-18 25

End-users in this context are all members of the public but particularly those with disabilities and their carers who use public, commercial or community facilities, services and events. 26

Brackertz, N. Zwart, I., Meredyth, D. & Ralston, L. (2005). Community consultation and the ‘hard to reach’: Concepts and practice in Victorian local government. Retrieved from www.apo.org.au 27

Eversole, R. (2015). Knowledge partnering for community development. Australia: Taylor & Francis 28

Boyle, D., Slay, J., & Stephens, L. (2010). Public services inside out. Putting co-production into practice. London: NESTA.



http://cli.re/marcia-ref-public-services-inside-out


27.

One option the City of Bunbury may wish to consider is the establishment of an ‘Co-Design Panel’, with the explicit purpose of engaging in the co-design of publically significant facilities, services and events. Such an initiative would need the support of a skilled facilitator. It would also require a ‘capacity-building’ approach in which panel members are given opportunities to expand their knowledge base by attending relevant conferences, forums and training opportunities. The process would also benefit from the use of technologies that assist panel members to engage meaningfully with the design process, such as 3D models, rendered drawings and site visits29. There is a perceived risk that co-design may slow down the design approvals process. This could be addressed through clear protocols and the use of online engagement technologies, supported by the proposed ‘Smart Cities’ strategy.

29

Sanders, E. & Stappers, P. (2008). Co-creation and the new landscapes of design. Co-design, 4(1), 5-18


28.

EXAMPLE

In 2012 the City of Bunbury set out to build the region’s first fully inclusive playground and involved parents of children with disabilities as co-designers. One feature the parents requested was that all the equipment should be selected on the basis of universal design, so that it would be used equally by all children not just those with disabilities. The result was a highly inclusive playground inspired other South West Councils (like Busselton, Dardanup, and Donnybrook) to also invest in inclusive playgrounds.

In 2017 Koombana Foreshore was re-developed and incorporated many accessible features such as a state-of-the-art Changing Places accessible changeroom. A substantial playground was developed and during the planning phase the playground was promoted as Bunbury’s newest ‘accessible playground’. Unfortunately, a lack of consultation and co-design resulted in a landmark playground with absolutely no provision for children with disabilities, especially those who use wheelchairs and other mobility aids. This is ‘out of keeping’ with Bunbury’s MARCIA aspiration, and supports the argument for developing more robust systems of inclusive design and co-design.

Children with disabilities playing on the accessible play equipment at Big Swamp Playground (left), and parents

of children with disabilities Theresa and Carolyn who were involved as co-designers, with the then City of Bunbury Landscape Architect.

10-year-old resident and wheelchair user Kyra is unable to play with any of the equipment at

the new Koombana Bay beachfront development due to a lack of inclusive design.


29.

FINDING 5: Best-practice in inclusive design At a macro level more than 500 local governments around Australia are seeking to improve disability access and inclusion for their communities, which means the bar is being continually raised. At a micro level there are individuals and teams within local governments that are passionate about improving disability access and inclusion within their field of work, who deserve recognition and support for their efforts to embed a culture of inclusive design in the workplace. MARCIA began as an idea to develop a ‘friendly competition’ between regional cities to promote best practice and to reward the efforts of those who advocate for better access and inclusion for their communities30. The City of Bunbury has successfully worked with the Regional Capitals Alliance of WA to introduce the Most Accessible Communities in WA (MACWA) award which will now be held in the second half of 2018, and annually thereafter. The City may wish to consider opportunities for expanding the award nationally by working with the Australian Local Government Association or other similar body. Recognising, supporting, gathering and sharing best practice is critical to embedding a culture of inclusive design within the City of Bunbury and Bunbury more broadly. In speaking to participants, the researchers found that the adoption of MARCIA has created a common goal and shared values that many identify with and ascribe to. In some respects the success of MARCIA depends on their determination to embed inclusive design within their day-to-day work practices, and to ‘lead by example’. Some participants shared how the perceived commitment of the organisation’s leadership to MARCIA significantly influenced their personal views of its importance to their work in terms of the priority it is given. The City of Bunbury may wish to consider strategies for reinvigorating the MARCIA vision within the organisation, and further elevating its status as a shared goal. The City may also wish to consider ideas for further recognising and rewarding positive practices by teams and individuals. For example, the City could consider introducing a staff award that recognises efforts to improve disability access and inclusion, and share positive stories in the internal newsletter. The researchers found that there are a number of ‘champions’ for MARCIA working at different levels within the City of Bunbury. The City may wish to consider strategies for developing the capacity of champions to become a resource to others within the organisation, and to help drive the cultural shift towards inclusive design. For example, champions could be encouraged to attend conferences, forums and training related to inclusive design, and to create or join ‘communities of practice’. Communities of practice are made up of people who are passionate about best practice in their field, and who actively share knowledge and resources within the network.

EXAMPLE In 2016 the City of Bunbury applied for a Lighthouse grant to create a new staff induction video promoting diversity in the workplace, linked to the MARCIA vision. The video featured people dealing with prejudice and stereotyping because of ethnicity or disability. The City won an award for the video, and it is now being used by other local governments around the State as part of their staff induction programs.

30

City of Bunbury (2014). MARCIA Draft Criteria Brochure.

City of Bunbury HR Officer Tina Westrup (right) and

Community Development Officer Ryan Campbell (left) receiving a Lighthouse Award for inclusive

employment practices

http://cli.re/marcia-ref-draft-criteria-brochure


30.

FINDING 6: Addressing existing barriers to disability access The researchers believe that Bunbury still substantially lacks the standard of accessibility that MARCIA implies. The poor condition of footpaths, uneven surfaces, obstacles on footpaths, haphazard directional signage for people with vision impairments, dangerous street crossings, lack of signage, poor amenity and the lack of pedestrian connectivity between some precincts in the CBD are some of the more obvious issues. A group of City staff members have conducted audits of City-owned buildings and facilities and found a number of issues around non-compliance with both mandatory and desirable standards that require urgent attention.

Also problematic is the number of commercial retail and hospitality outlets that lack basic access. For example, just 28% of commercial properties on Victoria St can be entered independently in a ‘dignified’ manner by people using wheelchairs, walking frames and other mobility aids. 22% cannot be entered at all by wheelchair users (see chart opposite).

Addressing these issues requires a coordinated and partnered approach to planning, prioritising, and incentivising action, especially given the current lack of regulatory impetus or funding from State or Federal Governments to address such infrastructure problems. The researchers found that the City would benefit from

regularly gathering and updating audit data about the extent of the infrastructure problem (particularly in the CBD), and developing a system for prioritising needs – in partnership with people with disabilities and the community and commercial sectors. One approach to bringing infrastructure up to an acceptable standard is to create a ‘MARCIA Fund’ to bring Council-owned facilities up to MARCIA standards. The fund could also be used as an incentive for businesses and commercial property owners to improve access to their premises in the form of loans or matched funding (Singapore have used matched funding to great effect for the past 10 years31). Contributions to the fund could also be made by State and/or Federal Governments and corporate partners who share Bunbury’s vision for MARCIA. These initiatives could help to fast-track the removal of physical barriers, and set Bunbury on a path to becoming as accessible and inclusive as possible. The City is currently considering a proposal to commit $100,000 per annum towards MARCIA in its budget forward estimates, which could be used to help establish the proposed MARCIA Fund.

EXAMPLE People who use wheelchairs, walking frames and other mobility devices to move around the city are faced with all kinds of obstacles. Dignified access into the majority of retail shops, cafes and restaurants is not available. Many kerbs and crossings are problematic for wheelchair users, and some are actually dangerous. Tactile markers for people with vision impairment are haphazard.

31

United Nations (2016). Good practices of accessible urban development: Making urban environments inclusive and fully accessible to all. Retrieved from www.un.org/disabilities

The wheelchair entrance to a popular Bunbury restaurant – down a back lane and through the

kitchen storeroom




31.

RECOMMENDATIONS The following six recommendations are based on the findings outlined above. The first five recommendations aim to promote inclusive design through increased provision of staff training and technical support, improvement of quality control mechanisms such as benchmarks and checklists, engagement of people with disabilities in co-design, and sharing of best practice. The sixth recommendation is about taking action to remove the existing barriers in Bunbury brought about by traditional design practices.

Figure 2: Diagram identifying the six research recommendations

PROMOTE INCLUSIVE

DESIGN

1. STAFF

TRAINING

2. TECHNICAL SUPPORT

3. BENCHMARKS & CHECKLISTS

4. CO-DESIGN

5. SHARING BEST

PRACTICE

REMOVE EXISTING BARRIERS


32.

Items in red are highly recommended.

RECOMMENDATION 1: Train for inclusive design That the City of Bunbury considers strategies for increasing the proficiency of staff members and contractors in the inclusive design of facilities, services and events

a. Identify key staff members involved in the design of facilities, services and events and consider options for providing scheduled, ongoing training in inclusive design.

b. Consider options for involving commercial design companies in the inclusive design training opportunities.

c. When contracting out design work, consider requiring contractors to demonstrate their commitment to training staff members in inclusive design, as part of the contract conditions.

d. Consider distributing the attached ‘Inclusive design Toolkit’ to all staff members and contractors, and place a copy on the Council’s website (See Appendix 2). Promote the toolkit.

DAIP Cross Reference:

Recommendation 4.1 Continue to promote access and inclusion within the City and raise awareness amongst staff Recommendation 4.2 Continue to improve customer service to people with a disability


33.

RECOMMENDATION 2: Increase technical support for

inclusive design That the City of Bunbury considers strategies for increasing the availability of technical support for inclusive design to staff, contractors and external organisations involved in the design of facilities, services and events.

a. Consider options for providing technical support for staff members and contractors involved in design projects, such as employing a qualified technical expert, using access consultants on an ad-hoc basis, or upskilling existing staff members who can provide technical support to colleagues and contractors.

b. Consider options for providing technical support to commercial design companies, commercial property owners, business owners and community organisations seeking advice and support.

c. Consider ensuring that officers with technical expertise in inclusive design attend Development Control Unit meetings, and other strategic meetings related to design of services, systems and facilities intended for use by the public.


Recommendation 4.1 Continue to promote access and inclusion within the City and raise awareness amongst staff Recommendation 4.2 Continue to improve customer service to people with a disability


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RECOMMENDATION 3: Improve benchmarks, checklists

and accountability for inclusive design That the City of Bunbury considers strategies for improving benchmarks, checklists and other accountability measures related to inclusive design.

a. Consider options for ensuring that all design work by and for the City of Bunbury will comply with the current IATA ‘best practice design criteria’, in addition to the relevant Australian Standards, wherever possible.

b. Consider conducting a comprehensive review of all procedures and checklists used by staff members when designing or approving new buildings, facilities, programs, events, services or information systems, and introducing benchmarks and checklist items where needed that will ensure consistent outcomes for access and inclusion (based on the IATA material and other best-practice publications).

c. Consider introducing systems for ensuring that design benchmarks are adequately documented and kept updated, for example, by creating or updating ‘levels of service’, plans and strategies (such as the Open Space strategy) and other documents that will be used to guide future design work.

d. Consider referring all significant City of Bunbury led development projects to the Development Control Unit as standard procedure, and including trigger points in the assessment process for obtaining technical advice and/or initiating co-design with people with disabilities.

e. Consider distributing the attached Inclusive Design Toolkit to developers to assist them to meet inclusive design best practice.

f. Consider negotiating with the Institute of Access Training Australia for access to their full suite of design manuals that outline Australian Design Standards as well as comprehensive ‘desirable criteria’ for access and inclusion, and making these available electronically to all staff members via the intranet.

g. Consider contracting IATA to provide an ongoing program of training to City of Bunbury staff members in the application of IATA’s ‘desirable criteria’ and the Australian Standards. Open up the training to commercial design companies.

h. Consider partnering with South West Regional TAFE Certificate of Design program to develop a library of drawings based on IATA’s ‘desirable criteria’ and the Australian Design Standards, to assist designers.

i. Consider requiring event permit applicants to demonstrate how their events will meet a specified minimum level of access and inclusion, as a condition of the permit being granted.

j. Consider amendments to the Purchasing Policy and/or procedures that will require purchasing staff members to demonstrate how the item or service being purchased will cater for disability access and inclusion.


Outcome 1.3 Where the City provides programs and services to the public ensure that there are accessible and inclusive options for people with a disability Outcome 1.5 Ensure all City planning documents and budgetary process are aligned with the


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Disability Access and Inclusion Plan Outcome 2.3 Promote and lobby for better access standards for buildings and facilities in Australia Outcome 2.5 Concentrate on improving accessibility and inclusivity of Public Open spaces and playgrounds in Bunbury


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RECOMMENDATION 4: Involve people with disabilities

as partners in co-design That businesses, community organisations and the City of Bunbury consider joint strategies for promoting the use of co-design, whereby people with disabilities become actively involved as partners in the design of facilities, services and events.

a. Consider establishing an independent Co-Design Panel made up of community members with lived experience of disability who can advise Council, community and commercial organisations on inclusive design, and consider how this can be adequately funded and supported in partnership with the community and commercial sectors.

b. Consider maintaining a budget for paying Co-Design Panel members a sitting fee, reimbursing their out-of-pocket expenses, providing catering, contributing towards training and conference fees, and other means of acknowledging and supporting their input.

c. Consider options for building the capacity of the Co-Design Panel members to provide high quality advice through involvement in training opportunities, study tours, and leadership development opportunities.

d. Consider establishing a clear protocol for referring design projects to the Co-Design Panel and facilitating a mix of quick-response and more in-depth feedback options.

e. Consider options for encouraging or requiring staff members, contractors and external organisations refer their design projects to the Co-Design Panel for review.

f. Consider increasing project planning lead times to allow for more effective stakeholder engagement, especially for major projects that are forecast in the budget.

g. Consider promoting the Snap Send Solve app to the Bunbury community, and ensuring that that all submissions are responded to within an appropriate timeframe.


Outcome 2.2 Ensure that the design of all new City infrastructure projects involves consultation with people with a disability

Outcome 3.3 Improve on-line communication through website and social media platforms Outcome 6.1 Inform and engage people with disability in public consultation Outcome 6.2 Build capacity and confidence of people with a disability to engage with Council Outcome 6.3 Explore assistive technology and other modes to increase opportunities for people with a disability to participate in consultation Outcome 6.4 Provide a variety of options that enable submissions to be received in a variety of ways which are accessible for people with varying needs


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RECOMMENDATION 5: Promote sharing of best practice

in inclusive design That businesses, community organisations and the City of Bunbury consider joint strategies to promote recognition and sharing of best practice in inclusive design.

h. Consider options for encouraging staff members who are passionate about inclusive design to create or join a ‘community of practice’, develop their skills further, and disseminate their knowledge throughout the organisation, to contractors and to the wider community.

i. Consider working with Business South West and the BGCCI to introduce an Inclusive Business award category as part of their annual business awards program. (Note, at the time of publication Business South West have just introduced this award category).

j. Consider working with the BGCCI to investigate the development of an access-friendly star rating or accreditation system for businesses, and to provide resources that assist businesses that will improve access and inclusion for customers.

k. Consider how the Smart Cities strategy can facilitate community engagement in co-design, feedback and setting of priorities for Council.

l. Consider working with the Australian Local Government Association (ALGA) to develop a national award program and/or accreditation program for local governments, that outlines benchmarks and quality standards that local governments must meet in order to become accredited.


Outcome 4.1 Continue to promote access and inclusion within the City and raise awareness amongst staff Outcome 4.3 Create an organisational culture of access and inclusion Outcome 7.2 Create an environment within the City that supports and encourages the employment of people with disability Outcome 8.2 Educate and raise awareness of community about access and inclusion


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RECOMMENDATION 6: Retrofit to remove existing

barriers to community access and inclusion That businesses, community organisations and the City of Bunbury consider joint strategies for addressing existing barriers to disability access and inclusion in Bunbury, created by traditional design practices.

a. Consider auditing the City of Bunbury’s existing buildings and facilities for compliance with disability access and inclusion at set intervals, and incorporating the data into the asset management register.

b. Consider options for gathering data about the current accessibility status of Bunbury’s commercial buildings and facilities used by the public, for example, the percentage of retail shops and restaurants in Bunbury with accessible entrances, shop floors and toilet facilities. Consider enlisting the assistance of community members with disabilities to achieve this.

c. Consider establishing a ‘MARCIA fund’ specifically for retrofitting buildings and facilities to remove or reducing barriers to access, as identified in the audits. Consider maintaining this fund for a period of 10 years (between 2019 and 2029).

d. Consider options for introducing a ‘participatory budgeting’ process that people with a disability to become involved in prioritising the allocation of the MARCIA funds.

e. Consider engaging with commercial property owners to encourage the development of solutions to access problems in their premises.

f. Consider approaching State and Federal Governments to increase the level of investment in the MARCIA fund.

g. Consider strategies for removing barriers to participation of people with disabilities in community programs and events, such as the sports centre, cultural programs and the like.


Outcome 2.4 Develop strategies to make the Bunbury CBD more pedestrian friendly Outcome 2.6 Improve the experience in the CBD and across Bunbury for people with disability Outcome 6.4 Ensure that workshops and City functions held in Bunbury are accessible for people with a disability Outcome 7.1 Continue to create specific employment opportunities for people with disability Outcome 8.1 Encourage private sector to make improvements to the accessibility and inclusivity of their buildings and services


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Financial Implications for City of Bunbury The following table outlines some of the costs associated with meeting the Recommendations, and is an estimate only.

Item Calculation Amount Time frame

1. Strategies to increase the provision of technical support for inclusive design

Based on 0.6 FTE.

$40,000 per annum

2018 - Ongoing

2. Provision of additional training in inclusive design for key staff members

$2,000 per staff member x 10 staff members/year

$20,000 per annum

2018 - Ongoing

4. Community stakeholder engagement / panel costs

Sufficient to cover expenses associated with engagement of people with disabilities – sitting fees, meeting costs, travel costs, training costs, attendance at forums/conferences, etc.

$10,000 per annum

2018 - Ongoing

TOTAL $80,000 PA Ongoing 5. MARCIA Fund to

address existing barriers to access and participation

A contribution towards establishing the fund (suggestion only)

$100,000 per annum

2018-2030

TOTAL $100,000 PA 2019-2029


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Discussion the Recommendations: suggestions for implementation

DISCUSSION 1: CBD Streetscape Guide

This discussion illustrates how design guides might be amended to reflect inclusive design principles, using the CBD Streetscape Guide as an example. During the research period the City of Bunbury was in the process of developing a new CBD Streetscape Guide for the future design of CBD streetscapes, covering items such as the choice of pavement materials, seating, drink fountains, planter boxes, and so forth. The City has developed similar such guides in the past, and this was the latest iteration. The officer assigned responsibility recognised the need to include information about accessibility in the guide in keeping with the City’s MARCIA aspiration, and had reserved a page for this purpose. Having limited knowledge of design for disability access and inclusion, the design officer sought advice from the Community Development Officer (CDO) for Access and Inclusion. The CDO provided some assistance but, not being a technical officer, was unable to provide the level of detail that the design officer needed to inform the guide. A review of previous CBD Streetscape Guides did not provide much information to assist the design officer in respect to disability access and inclusion, and the officer had not been requested consult with people with disabilities at that time. In effect, this meant it was up to the design officer to source the information needed to develop what would likely become a key guiding document with the potential to shape many aspects of accessibility of Bunbury’s CBD streetscapes for the foreseeable future. The interplay between disability and the built environment such as a streetscape is complex and requires a high level of sensitivity to different needs if it is to be successful. For example, people with low vision or blindness find navigating Bunbury’s streetscapes incredibly challenging from a design point of view, and yet a few simple changes to the way they are designed could make a substantial difference to their experience. For example, the use of certain paving surfaces are preferred over others because they are less of trip or slip hazard, increase contrast, and provide the right type of feedback through a cane. The challenge for the City in achieving MARCIA is to capture this level of detail and include it in the appropriate plans, guides and other documents that regulate design, such as the CBD Streetscape Guide. Recommendations 1-4 contained in this report could help to align the City’s guiding documents with its MARCIA goal by:

equipping the responsible officer with comprehensive training in inclusive design,

providing access to technical expertise and support in inclusive design for the built environment,

facilitating the involvement of people with disabilities as partners in the design of key guiding documents such as the CBD Streetscape Guide,

documenting design benchmarks and checklists and embedding them within strategic documents such as the CBD Streetscape Guide,

ensuring that such documents are periodically reviewed and updated with newer benchmarks as they become available (for example, changes published by IATA), and

sourcing best practice examples and guidelines from other local governments.

Some Councils such as the City of Greater Shepparton have developed checklists specifically for the design of streetscapes (see image overleaf). Others have developed broader strategies based on


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‘Walkability'. A Walkability report was developed for the City of Bunbury CBD in 201032 and this led to some positive changes, especially with the installation of wayfinding signage around the CBD, but there is scope to better integrate the study’s recommendations into the City’s other planning strategies. Links to this and more resources including Australian design standards and desirable design standards, as well as examples from other Councils can be found in the toolkit produced as part of this research project: Design for All - A Toolkit for Inclusive Design.

32

Grant, J. & Herbes, B. (2010). City of Bunbury CBD Walkability Report. Retrieved from www.swdc.wa.gov.au

http://cli.re/marcia-inclusive-design-toolkit

http://cli.re/marcia-ref-walkability

http://www.swdc.wa.gov.au/


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Figure 3: Checklist for Streetscapes and Footpaths used by the City of Greater Shepparton. Retrieved from http://greatershepparton.com.au/

http://greatershepparton.com.au/


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DISCUSSION 2: Public Open Space Strategy

This discussion illustrates how strategic documents such as the City of Bunbury’s Open Space Strategy can be used to facilitate inclusive design outcomes. During the research period the City of Bunbury was in the process of developing a public open space strategy (the Open Space Strategy). The final draft contained some references to the DAIP but little other detail or specifications around how public open spaces could be made more disability-friendly (this was not necessarily considered to be the scope or intention of the document). One of the functions of the Open Space Strategy is to distinguish different types of public open space depending on regional significance, for example, large ‘Neighbourhood’ or ‘District’ parks versus smaller ‘Local’ parks found spread around the suburbs. The more significant parks (such as Big Swamp, Koombana Foreshore, Maidens Reserve and Kelly Park) are high use and typically contain more facilities and therefore require more planning and resources to meet community expectations. The Open Space Strategy identifies the current facilities and equipment within each park but does not specify the what levels of facilities and services should be guaranteed depending on the regional significance of the space. It appears that there are no specific guidelines for the provision of minimum levels of facilities and services within each open space, which is problematic for people with disabilities because they do not know what to expect when they visit parks, playgrounds, beachfronts and other types of open space. Will they find accessible toilets, parking, footpaths and shaded seating areas, for example? Will their child with a disability be able to play on the playground equipment? The Open Space Strategy presents an opportunity to specify minimum expected levels of accessible facilities and services depending on the regional significance of the park, so that each open space can be made consistent. This would also allow the development of new public open spaces to be designed and costed accordingly, avoiding uncertainty over whether shading and accessible toilets should be provided as part of the development for example. By way of illustration, District parks could be designed or retrofitted to comply with the highest level of specification through the installation of a complete suite of accessible facilities including toilets, play equipment, barbeques, drink fountains and picnic tables, as well as shade, fencing, signage, lighting, and a network of footpaths that connect the space with bus stops and ACROD parking. By contrast, a Local park might contain only a minimum set of accessible features such as footpaths, kerb ramps, shaded seating area and an accessible drink fountain so that a parent/carer using a wheelchair can accompany their child to the local park. Another important design consideration in public open space is how the different elements contained within the space will function in relation to each other for a seamless experience from the perspective of disabled people. For example, if the beach wheelchair storage is located too far away from the accessible changerooms, this can be problematic. Likewise, bins, bike racks and drink fountains can create hazards for people with low vision, especially if they are painted in low-contrast colours (such as the grey bike racks at Koombana Bay). Preventing such issues requires the active participation of people with a range of disabilities as design partners. The researchers observed that there are currently no Australian design standards that provide accessibility specifications for public open space facilities (other than those covered by the Building Code), and so the City and/or its contractors must make their own determinations, which can result in inconsistent outcomes. However, there are many free guidelines for designing public open space


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facilities that could be referenced in the Open Space Strategy, and links to some of these have been provided in the document: Design for All - A Toolkit for Inclusive Design. Our research noted that the current designers responsible for public open space have demonstrated a commitment to enhancing accessibility through the careful selection of facilities such as accessible drink fountains and BBQs. Such momentum is extremely positive but can be lost if staff move on and take that knowledge with them. The systematic documentation of benchmarks for accessibility within the Open Space Strategy (or other appropriate document/s that are referenced within the Strategy) is crucial to safeguarding the organisation against this potential loss of corporate knowledge. The discussion above reflects the value of implementing Recommendations 1-4 contained within this report, specifically,

training staff members in inclusive design,

improving access to technical support from suitably qualified individual/s,

improving benchmarks and checklists, and

involving people with disabilities as partners in the development of strategies and guides.

Researcher Paul D’Vorak in discussion with City of Bunbury’s Manager Landscape & Open Space Kristy Tillet



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Figure 4: Samples of IATA’s comprehensive ‘good practice’ specifications for accessible outdoor recreation spaces, in

which the Australian Standards are referenced and provided in normal font, and IATA’s desirable specifications are

provided in italics. These resources are available for purchase from the IATA website in booklet form.


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DISCUSSION 3: Purchasing and tendering

This discussion illustrates how inclusive design principles can be applied to the City of Bunbury’s purchasing practices to increase accountability for disability access and inclusion. The purchasing of goods and services is integral to design. If the design of a facility, service or event is highly detailed and specific with regard to the accessibility of components within it, then there may be little need for the purchasing process to be more tightly governed. However, there may be a number of reasons why this is not always the case. For example, sometimes items being purchased are not part of a planned design or redesign, but are replacement items such as when drink fountains, barbeques and playground equipment are replaced. The default position may be to replace like with like, but this can result in missed opportunities to enhance disability access and inclusion through more considered purchasing practices. Where plans exist, it may be that they do not specify the exact type of equipment to be installed, which then leaves it to the discretion of the purchasing officer. Supplier catalogues can present an wide range of options for the purchasing officer to choose from, with different choices available in aesthetics, functionality, price and quality. How will the purchasing officer know that preference should be given to items that increase accessibility for all, in keeping with the MARCIA aspiration? How will they be held accountable for their purchasing decisions in this regard? The City of Bunbury’s Purchasing Policy currently requires purchasing officers to account for things like value for money, total cost of ownership, technical merits, safety and sustainability33. There is no specific mention of how a product or service will meet expectations around accessibility, or requirements for accountability in this regard. The City may wish to consider how the Purchasing Policy could be more strongly worded so that purchasing officers are explicitly required to demonstrate their consideration for how accessibility might be increased through their purchase. Another option may be to review and strengthen any documented procedures related to the purchase of goods and services. Sometimes the design process itself is procured through a tendering process rather than conducted in-house, and this is common practice. This presents a challenge for the City in ensuring that design contractors are sufficiently equipped for inclusive design, and that those with a demonstrated commitment to inclusive design are given preference (as part of a wider selection matrix). Tendering is also governed by the Purchasing Policy, and there appears to be no specific requirement for tenderers to demonstrate experience in inclusive design as part of their tender documentation. Also, officers responsible for procurement may not be required to evaluate an organisation’s inclusive design credentials as part of the selection process. The City of Bunbury may wish to consider how the Purchasing Policy and/or procurement procedures could be strengthened to make inclusive design a more explicit expectation, and how contractors could be made more accountable for such outcomes. It is noted that contractors are supplied with a copy of the City’s DAIP, which is very positive. However, this measure may not be sufficiently robust, because the DAIP is a strategic document rather than a regulatory document that governs decision-making. One option may be to supply design contractors with a copy of the document Design for All - A Toolkit for Inclusive Design which could be useful for guiding their work. Another might be to adopt design standards for contracted work based on the IATA manuals and require contractors to comply with them as part of the contract conditions. The above relates to Recommendation 4 contained in this report, which recommends improving checks and balances such as policies, benchmarks and checklists that safeguard inclusive design.

33

City of Bunbury (n.d.). Policy Manual. Retrieved from www.bunbury.wa.gov.au


http://www.bunbury.wa.gov.au/


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DISCUSSION 4: Events This discussion illustrates how City-run and community-run events can be made more inclusive through the application of Recommendations 1-4 contained within this report. Each year the City of Bunbury runs a series of major and minor community events. During the research period it was evident that the Events team were being proactive in making the City’s events more accessible. Many incremental improvements had already been implemented including the provision of accessible facilities such as toilets and signage, and services such as a sign-language interpreter at selected events. Some infrastructure improvements had also been implemented such as ramp access to the Graham Bricknell Shell. However, the researchers found that consistency between events may be an issue in that different events provide different levels of accessibility for people with disabilities. Increasing the use of accessibility checklists and documented benchmarks is one measure that could help to guarantee that a minimum specified level of disability access is provided at all City events. Stallholders (such as food vendors and sideshow attractions) could also be required to demonstrate how they will cater for people with disabilities as part of the stallholder application process – and preference given to those that can provide a greater degree of accessibility. Each major event could be regularly audited to check for compliance with accessibility specifications, and accessibility benchmarks carefully documented based on best practice available from other local governments and from published guidelines. Examples of benchmarks, checklists and policies developed by other Councils and organisations to foster inclusive events can be found in the document: Design for All - A Toolkit for Inclusive Design. Events staff could also benefit from participating in a ‘fact-finding tour’ of events in other regions. To help them to design events that are sensitive to different types of disabilities, awareness of different types of disability (such as low vision and autism) could be enhanced through involvement in experiential training, and through engaging people with disabilities in the co-design of events. The provision of technical support for events staff could also assist in delivering inclusive events to the highest standard, as they currently do not appear to have access to technical support of this nature. In summary recommendations 1-4 from this report will help the events team to deliver events that cater well for all types of disability, by

sourcing inclusive design training specific to the delivery of accessible public events;

providing access to qualified technical support for inclusive design of events;

developing mandatory benchmarks and checklists for access and inclusion related to events; and

involving people with disabilities in the co-design of major events. The Events team also play an important role in approving permits for events run by community or commercial organisations that are held on Council-managed properties. This gives the Council a strategic role that can be used to promote greater access and inclusion for the community. Currently the Event Application Guidelines reference the need for event organisers to think about disability access and inclusion, and provide a link to a set of Accessible Events Guidelines, which is very positive. However, this would have greater impact if community and commercial events were audited to ensure compliance. There may be a role for the City’s events team to conduct such audits, perhaps with the assistance of people with disabilities. Event organisers are encouraged to contact the Community Development Team if they require assistance with making their event more accessible. However, there are a number of issues. The take-up of the offer of support is evidently very low. Perhaps more strategically, the Event Application Form could require the event organiser to demonstrate how the event will be made accessible and inclusive for all members of the public, and the event permit made conditional upon satisfying basic levels of accessibility, like the provision of accessible toilet facilities and accessible parking. Recently a


http://www.bunbury.wa.gov.au/pdf/Events/CoB%20-%20Event%20Application%20Guidelines.pdf

http://www.bunbury.wa.gov.au/pdf/Events/CoB%20-%20Event%20Application%20Guidelines.pdf

http://www.bunbury.wa.gov.au/pdf/Events/CoB%20-%20Event%20Application%20Form%20-%20Interactive.pdf

http://www.bunbury.wa.gov.au/pdf/Events/CoB%20-%20Event%20Application%20Form%20-%20Interactive.pdf


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major community event in Bunbury failed to provide any accessible toilet facilities, which suggests the lack of use of checklists for accessibility. Event organisers could be supported in other proactive ways. Currently the Events team runs workshops for event organisers, and these could be expanded to include components related to the inclusive design of events. The researchers noted that the Events Team is currently in the process of developing an Accessible Events Site Plan for external event organisers using City-owned venues such as Graham Bricknell Shell and Koombana Bay, and are consulting people with disabilities in the process. For MARCIA to be reflected in Bunbury’s community and commercial events, the City of Bunbury may need to consider how it can work more closely with external event organisers to build their capacity to provide accessible events, and strengthen compliance by using recommendations 1-4 from this report:

provide training opportunities in inclusive design of events for external event organisers;

provide technical support around access and inclusion for external event organisers;

provide more stringent requirements around the use of checklists and benchmarks to ensure compliance as part of the permit process; and

facilitate co-design of major community or commercial events with people with disabilities.


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Figure 5: A sample of an accessible events checklist from Shire of Greater Dandenong (top), and reference to an Accessible Public Events policy and checklist that the City of Moreno Valley in Canada expects all organisers of “City-sponsored public meetings and events” to comply with (bottom).


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DISCUSSION 5: Development Applications

This discussion illustrates how the process of managing development applications might better support the City’s MARCIA aspiration, through the implementation of Recommendations 1-4 contained within this report. The City of Bunbury has regulatory authority to approve development applications worth up to $2,000,000 and is frequently involved in assessing development applications worth up to $10,000,000. The City’s regulatory role in development applications at first glance appears to be the perfect opportunity to ‘raise the bar’ by requiring of developers a higher standard of accessibility in keeping with the MARCIA principle. However under current legislation the City is not permitted to require developers to comply with any criteria over and above the minimum specifications in the Building Code. One option is to consider ways to encourage developers to commit to higher design standards (such as those specified by IATA). The researchers were informed that developers are generally reluctant commit to anything that may incur additional costs. However, better design in terms of accessibility doesn’t necessarily mean additional cost, and even if it did, developers may in fact be willing to invest more if they can see the social and economic benefits of achieving greater accessibility within their premises. A more strategic move may be to focus on engaging the design contractors that developers use. It appears that contractors tend to design according to minimum Building Code specifications when it comes to accessibility, but through a program of engagement and awareness-raising, the quality of their designs might better reflect MARCIA over time. Three strategies could be employed in this regard that relate to Recommendations 1 and 2:

educate developers by providing them with a copy of the Design for All - A Toolkit for Inclusive Design;

provide local training opportunities and workshops in inclusive design for design contractors; and

Provide technical support to design contractors and developers seeking to make their designs more inclusive.

Another strategy is to consider ways of connecting developers (and/or their design contractors) with people with disabilities to help build greater awareness and to encourage co-design. This is especially important for those involved in the development of retail and commercial spaces. As per Recommendation 3:

the establishment of a Co-Design Panel along with a clear set of protocols could be used to connect developers and design contractors with people with disabilities for the purposes of co-design.

The City of Bunbury is also a developer in its own right. Given the complex nature of assessing development applications, the City regularly convenes Development Control Unit (DCU) meetings involving officers from across different disciplines within the organisation. However, it appears that developments by the City of Bunbury (including City-owned buildings, streetscape developments and public open space developments such as foreshores and parks) are not necessarily referred to the DCU in the same way as private developments are. This is problematic because the projects are not subjected to the same level of scrutiny as private development applications, and therefore opportunities for detecting problems with accessibility can be missed. Requiring City of Bunbury development projects to be referred to the DCU could provide an additional safeguard in the process of design, especially if there is at least one officer with specific expertise in disability access and inclusion represented on the DCU. The DCU process could also be used to determine which projects (private or City of Bunbury) may require input from people with disabilities and trigger a referral to the proposed Co-Design Panel. Currently it appears that there are few trigger points for determining when internal developments




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should be referred for consultation with people with disabilities. The only mechanism available is the Disability Access and Inclusion Committee and/or Reference Group, but its format does not lend itself well to co-design and is rarely used for this purpose. The current process also relies on the Committee’s Executive Officer to invite presentations about developments from the staff members involved, rather than a more robust system with trigger points built in to the approvals process. Furthermore, when presentations are made to the Reference Group they are sometimes presented as a fait-accompli – for information purposes only, rather than for gathering input from the members. The proposed Co-Design Panel process would be more overt in its purpose and intention of engaging in co-design. One mechanism currently used for gaining stakeholder input into major development projects is the public consultation process. However, as discussed earlier, people with disabilities do not readily engage in traditional forms of public consultation, and require more targeted approaches. Also, their concerns are not usually with the overall concept of the proposal (which is commonly the focus of public consultations), but with the many details contained within it that will make the design accessible to all. This requires a more tailored approach to consultation that amounts to co-design. Another opportunity relates to project lead-time for major City of Bunbury developments. It appears that major developments are sometimes rushed through the design phase in order to meet financial year constraints, not allowing sufficient time for co-design to occur. Extending the lead-in time by allowing detailed planning and consultation to begin earlier (prior to the financial year in which the project will actually be developed) may help to improve the quality of the design in terms of disability inclusion. Finally, the design work of major projects is often outsourced to design contractors rather than designed in-house, so there may be an assumption made that the contractor will consult with people with disabilities and/or meet certain levels of accessibility. However, it appears that most design contractors are not trained in inclusive design, or in the practice of co-design. This can result in design flaws that are expensive to fix once the facility has been built, or in having to adapt drawings ‘on-the-go’ to meet community expectations around accessibility. For example, quite a number of accessibility oversights had to be corrected ‘on-the-go’ in relation to the Koombana foreshore development, that could have been identified much earlier in the process if better design safeguards were in place. Again, these issues can be addressed by implementing Recommendations 1-4 from this report including:

the provision of inclusive design training for contractors;

introducing design control measures by requiring design contractors to demonstrate their accessibility credentials as part of the tendering process;

referring major City of Bunbury projects to the Development Control Unit;

increasing the lead-in time of major projects to allow sufficient time for co-design to occur.


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DISCUSSION 6: Community Engagement

This discussion illustrates how the process of Community Engagement can be enhanced to support inclusive design. Local governments are key drivers of public engagement and are developing more sophisticated means of engagement that may facilitate wider stakeholder input into the process of inclusive design than is currently possible. At the time the research was being conducted, the Community Relations Team was in the process of developing a Community Engagement Strategy for the City of Bunbury in conjunction with a consultant. Work is also currently being done by the City to develop a Smart Cities plan that will introduce more sophisticated forms of electronic engagement with members of the public. This idea has great potential for engaging people with different types of disability who may interact more readily using electronic means than face-to-face, and can reduce the feedback time substantially. Local governments moving beyond one-way information sharing and basic consultation measures towards a two-way dialogue and collaboration with the community is a principle expressed in the IAP2 Public Participation Spectrum. This spectrum encourages organisations to increase the public’s impact on the decision-making process by moving up the spectrum from Inform and Consult to Involve, Collaborate and Empower.

Figure 6: A framework for increasing levels of public engagement

34

The City’s Disability Access and Inclusion Committee and associated Reference Group offer one form of consultation and information sharing. However, for collaboration and empowerment to occur, whereby people with disabilities become valued partners in the process of design, resources also need to be invested in their ‘professional development'. As design partners, people with disabilities require additional knowledge and training so that they can develop their capacity as co-designers and add greater value to the design process. Very few people with disabilities are equipped with the technical knowledge that would allow them to participate meaningfully in a co-design process, though they bring a wealth of lived experience. By investing in their knowledge development, the City can profit further from their experience, and their increased ability to connect their lived experience with public design. The establishment of a Co-Design Panel made up of representatives of different types of disability (physical, sensory and cognitive) is an idea that would provide a focused forum for co-design to occur. It would require the development of a clear protocol to guide the referral of projects for co-design, and the involvement of a skilled facilitator who can bring staff members and contractors into productive dialogue with the Co-Design Panel members – a process known as ‘knowledge partnering’35. Skilled facilitation is an essential role in co-design, without which it will fail. The existing role of Community Development

34

Bang the Table (2017). What is community engagement. Retrieved from Hunting, S. How local governments can increase the social and economic participation of people with disability. Sydney: University of Technology Institute for Public Policy and Governance. 35

Eversole, R. (2015). Knowledge partnering for community development. Australia: Taylor & Francis

https://www.iap2.org.au/Tenant/C0000004/00000001/files/IAP2_Public_Participation_Spectrum.pdf

https://www.iap2.org.au/Tenant/C0000004/00000001/files/IAP2_Public_Participation_Spectrum.pdf


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Officer for Access and Inclusion would seem a natural fit for this facilitation role but may benefit from further training in advanced group facilitation and co-design techniques in order to achieve effective collaboration36. These and other strategies for engaging people with disabilities could be included as part of the City’s new Community Engagement Strategy. Recommendations 1-4 from the MARCIA report relate to each of the suggestions above, in regard to

the provision of training and support to both the facilitator and the Co-Design Panel members;

the establishment of a protocol for referring design projects to the Co-Design Panel;

the embedding of disability-specific strategies within the Community Engagement Strategy; and

the endorsement of ‘Involve, Collaborate and Empower’ as key principles within the Community Engagement Strategy.

36

Mobility, Mood and Place (2016) The A-Z of Co-Design: A brief introduction to participatory design. Retrieved from www.eca.ed.ac.uk

https://sites.eca.ed.ac.uk/mmp/files/2016/06/WEBSITE-PDF-VERSION.pdf

http://www.eca.ed.ac.uk/


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DISCUSSION 7: Employment of People with Disabilities

This discussion illustrates how best practice in disability access and inclusion has many champions who can be encouraged to promote inclusive design within the corporate culture, as per Recommendation 5. The researchers found that the City of Bunbury’s human resources (HR) department have taken significant steps to promote inclusive employment over the past three years. Two key elements helped pave the way. Firstly, the City developed an additional DAIP Outcome 7 - People with disabilities have the same opportunities as other people to access employment, volunteering and work experience opportunities at the City of Bunbury37. This prompted a partnership with local Disability Employment Service (DES) provider Forrest Personnel to achieve better employment outcomes for people with disabilities; and secondly the City applied for a ‘Lighthouse’ grant from the State Government to produce an induction video about DAIP Outcome 7. These initiatives reflected a personal demonstration of commitment to MARCIA from the HR team that led to the creation of four new permanent positions for people with disabilities at the City. The HR department led by example and created the first new position. HR worked collaboratively with other departments and the executive team to develop and support these opportunities, and to create further positions for volunteer work by people with disabilities. They also removed barriers to employment by simplifying the employment application process, modifying interviews for people with disabilities to make them less threatening, and responding proactively to any workplace issues that arose for workers with disabilities. The challenge for the City of Bunbury is how to continue supporting and nurturing those who champion MARCIA within the organisation, so that they can positively influence their co-workers and the workplace culture. Another challenge is how to promote the sharing of best practice between organisations. For example, how can Bunbury’s HR department share their knowledge of the partnerships and systems they have developed with HR officers working for other organisations, and in turn learn about best practice happening within other organisations? One option is to encourage for MARCIA champions to expand their leadership in the field by giving presentations at professional development workshops, forums and conferences. Another would be to encourage the formation of communities of practice related to inclusive design so that staff members from different disciplines can share ideas and practice knowledge. Recommendation 5 of this report also proposes working in partnership to promote best practice and information sharing by developing industry awards (such as the MACWA award and the Inclusive Business Award, both currently in progress), which will help to promote information sharing and celebration of significant achievements in the field of disability access and inclusion by local governments and other community and commercial organisations.

37

City of Bunbury (2017). Disability Access and Inclusion Plan 2017-2022. Retrieved from www.bunbury.wa.gov.au

http://cli.re/marcia-ref-cob-daip-2017-2022

http://www.bunbury.wa.gov.au/


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CONCLUSION Across the globe, disability has become much less stigmatised thanks to the tireless advocacy of people with disabilities and their supporters. The sense of shame and personal tragedy that was once associated with disability has diminished and people with disabilities are staying socially connected with their communities.

Australians are living longer, and age-related disability means that far greater numbers of people will be living with physical, sensory, cognitive and social impairments; yet they will not accept being shut out of society. Instead they will expect to live in cities and communities where they can continue to actively participate in all facets of life, including going to work, engaging in cultural and sporting activities, visiting the local library or art gallery, shopping, eating out at restaurants and cafes, going to the cinema with friends, enjoying a day at the beach with their family, going to the pool or gym, and getting actively involved in all that Bunbury has offer.

Removing the barriers to full participation in community is a challenge that can be met through inclusive design. From the master planners and architects to the people designing services, events, sporting and cultural facilities, shops, restaurants, public open spaces, streetscapes and public transport – there is a diverse workforce of people who need support, training and encouragement to know how to design for all.

Perhaps the most potent strategy identified in this report for achieving this is to bring together people with disabilities with the people who design facilities, services and events in Bunbury, to begin the work of co-design. The empathy, innovation and energy for change that will emerge from effective co-design can help set new standards of inclusive urban design, and set Bunbury firmly on the path to becoming the Most Accessible Regional City in Australia.

Cr Betty McCleary and Silvana Garwood from the City of Bunbury

participating in a wheelchair challenge to raise community

awareness as part of the International Day of People with a Disability.


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Inclusion doesn’t happen by accident, it happens by design - Dayle Johns

Members of the MARCIA Research Group at an end-of-year function, with guests Prof Kathy Boxall (research supervisor, 5th from right) and Cr Brendan Kelly (right)


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Appendices Appendix 1 - List of research participants This is the list of participants who took part in the MARCIA research project. The Research Group wishes to thank all those who contributed their time and expertise.

City of Bunbury City of Bunbury Community & Commercial

Tina Westrup (HR) Odetta Robertson (HR) re: employment of people with disabilities Sally Wright (HR) re: staff training and awareness of access and inclusion Jamie Tatham (Communications) re: Engagement with and Consultation of people with disabilities John Kowal (SWSC) (SWSC) re: inclusive recreation options and accessible recreation facilities Greg Golinski (Governance) Dave Russell (Procurement) Cr Brendan Kelly (Policy Ctee Chair) re: policy development and review Deanna Sullivan (Community Development) re: social inclusion Cr Murray Cook re: social inclusion

Stephanie Addison-Brown (Community & Corporate) Sharon Chapman Gary Thomson Martin Roberts re: inclusion, IT, sport & recreation Gavin Harris (Works & Services) re: public open space Kristy Tillet (Public Open Space) re: public open space Mal Osborne (A/CEO) re: Planning Thor Farnworth (Planning) Matthew Young (Building) 9 staff members from Building & Planning re: planning & building, development approvals (included a CBD wheelchair tour). Jade Evans Juaini Taylor (Events) re: events

Bunbury Short on Sight Group Bunbury Bowling Club Rotary Club of Bunbury Leschenault Baptist Seniors Bunbury Geographe Chamber of Commerce and Industries Shire of Dardanup City of Melville South West Regional College of TAFE Bunbury Show


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Appendix 2 – Inclusive Design Toolkit This toolkit has been developed to provide access best practice design guidelines, benchmarks and examples related to any type of facility, service or event being developed. The toolkit is intended to be a ‘living’ document that is continually updated with new information as it comes to hand. The toolkit can be accessed here: Design for All - A Toolkit for Inclusive Design




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Appendix 3 – One-page Summary of Research Findings

http://cli.re/marcia-research-report

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