挪威：面向残疾人的社会保障和社会服务

挪威残联顾部Stian Oen
Hanne Erdal Witsee

摘要

FFO

FFO（挪威残疾人组织联合会）是挪威的残疾伞式组织。与中国相比，挪威很小很透明，只有450万居民。FFO 包括70个成员组织，总共有350 000名个人会员。按照挪威的标准，FFO是是个比较大的，并且在其领域内比较有影响的倡导型非政府组织。

FFO的工作的基础是是其的这样一种信念，即基于团结的社会——一个确保所有自由、社会保障和参与权利的社会。FFO的理想是这样一个社会，在那里残疾人享有平等的机会参与社会的所有领域，在那里残疾人在一切方面都是平等的。差不多60 年以来，FFO一直在游说为残疾人改善生活条件、社会保障和社会服务。

FFO是挪威官方承认的残疾人组织的协调机构。挪威政府和FFO通过协议成立了一个联络委员会。当前的问题和难题都要经过这委员会讨论，例如，FFO对年度政府预算提案发表看法。FFO连同挪威退休者协会和挪威工会联合会（LO）一道，参加和政府进行的年度社会保障谈判。

许多公共机构和当局将FFO作为一个咨询机构。在所有三个政府层面（国家、县级和市级层面），FFO在各个管理委员会、代表会和委员会都有代表。FFO 鼓吹其成员组织 的共同意见，比如健康问题、康复、教育、可融入性、技术辅助设备、养老金、社会福利和劳务市场问题等领域。

FFO和中国残疾人联合会（CDPF）之间的合作

FFO已经与中国残疾人联合会（CDPF）合作多年。去年的主要焦点是强化组织和人权层面的基于社区的服务，其立足点是联合国残疾人权利公约。

北欧福利制度一瞥

挪威福利制度与其他北欧国家的制度密切相关。北欧福利国家的基础是一个共同的政治目标，即倡导强大的社会凝聚力。北欧社会模式因其福利服务的普遍性而闻名，而这种福利的基础是机会平等、面向所有人的社会团结和保障的核心价值观。该模式提倡社会权利和人人有权平等享受社会和健康服务、教育和文化的原则。

该模式的目的也在于保护不被社会接纳的弱势群体，例如残疾人。一个中心目标是为所有人创造机会，使之参与市民生活和社会决策过程。北欧模式是的特点还包括福利和劳务市场政策之间的牢固联系。该福利制度主要是靠通过税收进行收入再分配而获得资助的。挪威的税相对比较高。高收入群体比低收入群体交更多的税（渐进式的）。

社会保障

人人都应当享有平等的机会、权利和义务，以融入社会和利用他们的资源，无论其经济或者社会背景如何。挪威政府压倒一切的长期目标是摆脱贫困社会，并且希望改善那些收入最低和生活条件最贫困的社会成员所能获得的生活条件和机会。

残疾人应当有和其他公民一样机会来实现 个人发展、参与和自我实现。人人都应当享有平等的权利，并且能够尽可能地决定他或者她自己的生活。这是FFO的目标。要实现这一目标，对 残疾人进行补偿是必要的。这里的补偿意思是通过诸如服务或者技术辅助设备这类手段，尽可能地减轻残疾的后果。社会的可融入性越差，是需要的补偿就越多。

挪威的残疾问题不仅仅关系到社会保障。社会的每个部门都对它自己的残疾问题负有责任（主流化）。例如，教育部对承担着教育所有人的责任——也包括残疾的小学生和学生。

劳务市场——一项挑战

挪威劳务市场的参与水平很高；是世界上工业化国家之中水平最高的之一。但是，这对残疾人而言就不是一回事了，因为在一般情况下，残疾人面临着找到工作和维持工作的双重挑战。这是FFO最重要的辩护议题之一，因为受雇用对收入水平和社会生活水平而言都意义重大。许多雇主将残疾人视为“有生产力的”劳动力。在结合雇佣和福利方面，挪威也有一个十分严格的制度。

挪威政府的中国策略

挪威政府制订了一项策略，确定了挪威针对中国的目标和优先事项。该政府的目标之一是推广挪威的社会福利政策。这是也在我们与中国残疾人联合会（CDPF）的合作 过程之中， FFO 所做的事情，目的是提升残疾人的权利和服务。

Norway: Social security and social services for people with
disabilities

Abstract

FFO

FFO (The Norwegian Federation of Organisations of Disabled People) is the disability umbrella organisation in Norway. Compared to China, Norway is very small and transparent with only 4.5 million inhabitants. FFO consists of 70 member organisations with all together 350 000 individual members.
By Norwegian standards, FFO is a large and, in its field, influential advocacy NGO.
Fundamental to FFO’s work is its belief in a society based on solidarity – a society that ensures to all the right to freedom, social security and participation. FFO envisions a society where disabled people have equal opportunity to take part in all aspects of society, where disabled people are equal in all respects.
FFO has been lobbying for improved living conditions, social security and social services for people with disabilities for almost 60 years.
FFO is officially recognised in Norway as the co-ordinating body for organisations of disabled people. The Norwegian government and FFO have by agreement established a Contact Committee.
Current questions and problems are discussed in this Committee, e.g. FFO’s comments on the annual governmental budget proposals. FFO, along with the Norwegian retired persons association and the Trade Union Congress (LO) in Norway, participate in the annual social security negotiations with the government.
A great many public agencies and authorities use FFO as a consultation body. FFO is represented in boards, councils and committees, on all three government levels (state, county and municipal levels).
FFO advocates the mutual opinions of its member organisations e.g. in the fields of health issues, rehabilitation, education, accessibility, technical aids, pensions, social benefits and labour market issues.

FFO-CDPF cooperation
FFO has been collaborating with CDPF for many years. During the last years, the main focus has been on organisation strengthening and Community Based Services in a human rights perspective, with basis in the UN Convention on the Rights of People with Disabilities.

The Nordic Welfare System – short overview
The Norwegian Welfare system is closely linked to the systems of the other Nordic countries. The
Nordic welfare states are based on a shared political goal of encouraging strong social cohesion.
The Nordic social model is renowned for the universal nature of its welfare provision, which is based on the core values of equal opportunities, social solidarity and security for all. The model promotes social rights and the principle that everybody is entitled to equal access to social and health services, education and culture.
The model also aims to protect socially excluded and vulnerable groups, e.g. people with disabilities.
A central objective is to create opportunities for all to take part in civic life and in society’s decision-making processes. The Nordic model is also characterised by strong ties between welfare and labour-market policy. The welfare system is mainly funded by redistribution of income by taxation. Taxes are relatively high in Norway. People with high income pay more tax than people with lower income (progressive).

Social Security
Everyone shall have equal opportunities, rights and obligations to take part in society and make use of their resources, irrespective of economic or social background. The Norwegiangovernment’s overriding long-term goal is to rid society of poverty, and it wishes to improve the living conditions and opportunities available to those members of society who have the lowest income and the poorest living conditions.
Persons with disabilities shall have opportunities for personal development, participation and selfrealisation on a par with other citizens. Everyone shall have equal rights and be able, as far as possible, to decide over his or her own life. This is FFO’s objective. To reach this objective, compensation for people with disabilities is necessary. Compensation in this connection means reducing the consequences of disability as much as possible, by e.g. services or technical aids. The less accessible society is, the more compensation is needed.
Disability issues in Norway are not only about social security. Each sector of society has the responsibility of its own disability issues (mainstreaming). As an example, the Ministry of Education has the responsibility of education for all – also pupils and students with disabilities.

The Labour Market – a Challenge
The Norwegian labour market has a very high level of participation; one of the highest levels in the world amongst industrialized countries. However, this is not the case for persons with disabilities, who in general face challenges both entering into and staying in work. This is one of FFO’s most important advocacy issues, since being employed means a lot both to the level of income and level of social life.
Many employers view disabled people as “non-productive” work force. Norway also has quite a rigid system when it comes to combining employment and benefits.

The Norwegian Government’s China Strategy
The Norwegian Government has developed a strategy that sets out Norway’s aims and priorities vis-á-vis China. The Government’s aim is, among several others, to promote Norway’s social welfare policy.
This is also what FFO does in our cooperation with CDPF, in order to promote the rights and services for people with disabilities.

--(本文摘自《残疾人社会保障与服务国际论坛暨第三届中国残疾人事业发展论坛论文集》)