Advocacy brief · August 2026
Advancing Inclusive Higher Education for Persons with Disabilities in Zambia
Closing the gap between policy and practice
Thrive Aid · Lusaka, Zambia
Executive summary
Zambia has built a robust legal and policy foundation for disability rights, anchored in the Persons with Disabilities Act No. 6 of 2012 and reinforced in May 2025 by the launch of the National Policy on Persons with Disabilities and the National Disability Mainstreaming Guidelines, developed with the United Nations Development Programme. Yet for many Zambians with disabilities, this foundation has not translated into real access to higher education.
Inaccessible campuses, a shortage of trained educators and adapted learning materials, persistent stigma, financial barriers, restricted course choices and discriminatory admissions practices continue to shut students with disabilities out of tertiary education, undermining both their right to education and Zambia’s broader development and employment goals.
This brief examines these gaps against Zambia’s obligations under the Persons with Disabilities Act and the Convention on the Rights of Persons with Disabilities (CRPD), draws lessons from international good practice, and sets out concrete recommendations for government, higher education institutions and civil society.
Recommendations at a glance
Eight priority actions for government, institutions and civil society.
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01
Infrastructure
Fund and enforce universal-design standards so that all higher education campuses, new and existing, are physically accessible.
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02
Educators
Resource and mandate inclusive-education training for lecturers and support staff, including Braille, Easy Read and sign language skills.
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03
Learning materials
Budget for accessible formats (Braille, audio, captioning, Easy Read and assistive technology) across all programmes.
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04
Stigma
Adopt anti-discrimination policies and run sustained awareness and peer-education campaigns on campuses.
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05
Finance
Establish scholarships and subsidies to cover the additional costs of disability-inclusive study.
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06
Admissions
End discriminatory admissions practices and create accessible complaints and redress mechanisms.
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07
Data
Collect and publish disaggregated data on disability in higher education to guide planning and funding.
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08
Awareness
Sustain national campaigns on the rights, capabilities and contributions of persons with disabilities.
1. Introduction
Since ratifying the CRPD in 2010, Zambia has taken significant legislative, administrative and policy steps to promote the rights of persons with disabilities. These frameworks establish a solid foundation. The extent to which they translate into practical, inclusive learning environments remains uneven.
- 2012 Enactment of the Persons with Disabilities Act No. 6 of 2012, under which the Zambia Agency for Persons with Disabilities (ZAPD), first created in 1996, was continued.
- 2014 Adoption of the Social Protection Policy, which includes a disability stream.
- 2015 Adoption of the National Disability Policy and the National Implementation Plan on Disability.
- 2019 Enactment of the Mental Health Act No. 6 of 2019, repealing the Mental Disorders Act of 1949.
- 2022 Adoption of the Eighth National Development Plan (8NDP) 2022–2026, anchored on inclusion and participation.
- 2025 Launch, in May 2025, of the National Policy on Persons with Disabilities and the National Disability Mainstreaming Guidelines, developed with UNDP.
This brief calls for the reinforcement of current policies and the adoption of specific regulations on inclusive education to support full implementation of the Persons with Disabilities Act, 2012. It calls for the elimination of discriminatory practices and an inclusive educational environment in which individuals with disabilities can access any academic programme for which they qualify, in facilities that are physically accessible to them.
2. Problem statement
Despite Zambia’s policy commitments and international obligations, inclusive education for persons with disabilities remains poorly implemented in practice, especially at tertiary level. Inaccessible infrastructure, limited assistive technologies and inclusive learning materials, and inadequate training among educators constrain meaningful participation. These challenges are compounded by persistent social stigma, limited awareness of disability and weak implementation of existing policies.
Financial constraints and under-resourced institutions further restrict access to necessary support services. Low levels of education and poor skills training are established barriers to employment for persons with disabilities. Addressing these barriers in higher education is essential if individuals with disabilities are to pursue tertiary study and thrive.
3. Scope and the legal framework
The CRPD defines discrimination on the basis of disability as any distinction, exclusion or restriction on the basis of disability which has the purpose or effect of impairing or nullifying the recognition, enjoyment or exercise, on an equal basis with others, of all human rights and fundamental freedoms. This includes denial of reasonable accommodation: the necessary and appropriate modification and adjustment, not imposing a disproportionate or undue burden, required to ensure that persons with disabilities enjoy all human rights on an equal basis with others.
The Persons with Disabilities Act, 2012 is Zambia’s cornerstone legislation. Sections 22–26 require public institutions, including higher learning institutions, to accommodate the needs of persons with disabilities. In summary, the Act requires that:
- Education is inclusive at all levels and directed at the full development of human potential, dignity, talents and abilities (s. 22(1)–(2)(b)).
- Persons with disabilities are not excluded from primary, secondary, higher or vocational education on the basis of disability, and can access it on an equal, free and quality basis with others.
- Reasonable accommodation and effective, individualised support measures are provided within the general education system (s. 22(2)(c)–(e)).
- Braille, augmentative and alternative communication, sign language, and orientation and mobility skills are facilitated, together with peer support and mentoring (s. 22(2)(f)–(g)).
- Instruction for learners with visual, hearing or intellectual disabilities is delivered in the most appropriate language and format for the individual (s. 22(2)(h)).
- An allowance is paid to learners with disabilities to cover the extra costs of learning, and pre-vocational and vocational training is available for persons with intellectual disabilities (s. 22(2)(i)–(j)).
- Physical facilities at public institutions are made accessible, with designated institutions equipped accordingly, special schools established where inclusive placement is not practicable, and public libraries fitted for accessibility (ss. 22(3), 23, 26).
- Parents and guardians enrol children with disabilities in school, and admission is not refused on the basis of disability except through formal assessment by the Agency (ss. 24–25).
These provisions are reinforced by Article 24 of the CRPD, which obliges States Parties to ensure an inclusive education system at all levels and lifelong learning; to prevent exclusion from general education; to provide reasonable accommodation and individualised support; to facilitate Braille, sign language and augmentative communication together with peer support; to train qualified teachers, including teachers with disabilities; and to extend these guarantees to tertiary education, vocational training, adult education and lifelong learning without discrimination.
4. Discussion of gaps
Drawing on key informant interviews, focus group discussions, a desk review and observation of prevailing trends, this section outlines the main challenges facing persons with disabilities in accessing higher education, together with recommendations to address them.
4.1
Inaccessible infrastructure
Schools and universities often lack ramps, elevators and accessible restrooms, hindering mobility for students who use wheelchairs or have other physical disabilities. Sections 22 and 26 of the Persons with Disabilities Act mandate accessible facilities at public educational institutions, yet 14 years after its enactment, implementation remains slow. Article 9 of the CRPD requires States Parties to identify and eliminate barriers to buildings, transport, information and communication technologies and other public facilities and services.
Recommendation
Higher education institutions should modify existing infrastructure and ensure that new buildings meet universal-design standards, with reasonable accommodation provided as required. Government should prioritise investment to upgrade existing buildings and enforce compliance, including accessibility training, Braille and Easy Read signage, and live assistance such as guides, readers and sign language interpreters.
4.2
Lack of trained educators and support staff
Many schools and universities lack teachers and staff trained to accommodate the diverse needs of students with disabilities. Inadequate teacher training in inclusive education widens the gap between policy and practice. Section 22(2)(d) of the Act calls for individualised support measures, and Article 4 of the CRPD requires States Parties to promote the training of professionals and staff working with persons with disabilities.
Recommendation
Higher learning institutions should fund the training of professionals in tactile, Braille and Easy Read formats and build a pool of qualified sign language interpreters. Ongoing training for educators and support staff should equip them to support students with different types of disabilities.
4.3
Limited adapted learning materials
Students who are blind or visually impaired often struggle to access Braille or audio formats, while deaf students may lack sign language interpretation. Section 22(2)(f)–(g) of the Act mandates accessible learning resources. The insufficient provision of Easy Read, plain language, captioning, sign language, Braille, audio description and other accessible formats impedes learning.
Recommendation
Students with disabilities should be provided with assistive and compensatory aids and with learning materials in accessible formats, including inclusive digital access, Easy Read and communication aids. Institutions should allocate adequate funding for accessible communication formats and assistive technology across all programmes.
4.4
Stigma and discrimination
Stigma and discriminatory attitudes from both peers and educators remain pervasive, affecting the mental health, academic progress and participation of students with disabilities. Sections 22(1)(c) and 25 of the Act emphasise a respectful, inclusive environment, and Article 5 of the CRPD requires States Parties to prohibit all discrimination on the basis of disability, including through reasonable accommodation.
Recommendation
Educational institutions should foster an inclusive culture through awareness campaigns, anti-discrimination policies and peer-education programmes that promote diversity and the rights of persons with disabilities.
4.5
Financial barriers
The cost of assistive devices, specialised learning materials and transportation can make attending school unaffordable for many families. Section 22(2)(i) of the Act recognises the need for allowances to cover these extra costs, but the practical availability of such support remains limited.
Recommendation
Government and educational institutions should provide targeted scholarships and financial assistance for students with disabilities, including subsidies for assistive devices, transportation and other necessary expenses.
4.6
Limited course options and support services
Students with disabilities are often directed toward programmes deemed suitable for them, restricting fields aligned with their own interests and potential. The gap is compounded by the absence of guidance and mechanisms to give effect to the duty to provide reasonable accommodation, and by the lack of an accessible complaints mechanism for reporting discrimination.
Recommendation
Higher education institutions should broaden the range of courses available and ensure adequate support across all academic disciplines. Regulations and guidelines should be developed in close consultation with persons with disabilities and their representative organisations, establishing mechanisms to guarantee reasonable accommodation under sections 2 and 6 of the Act and accessible remedies where accommodation is denied.
4.7
Discrimination in admissions
Discriminatory practices during admissions prevent many students with disabilities from enrolling in their preferred programmes. Although the Act prohibits exclusion on the basis of disability (s. 25), and despite Target 4.5 of the Sustainable Development Goals, these practices persist in both primary and higher education.
Recommendation
Implement the national inclusive education policy in full, with a clear timeframe for quality inclusive education across all higher education programmes. Enforce anti-discrimination measures in admissions, adopt a zero-tolerance stance on bias, and put in place an accessible complaints mechanism that provides redress, compensation and rehabilitation, with sanctions for perpetrators.
4.8
Data gaps
Information on persons with disabilities in higher education, particularly completion rates, is far weaker than at primary and secondary level. There is no systematic data, disaggregated by sex and type of impairment, on learners receiving individualised support or on their enrolment and dropout rates, nor is there a multi-sector evaluation system.
Recommendation
Provide disaggregated data on the number of students with disabilities mainstreamed into fields of study, with adequate teaching support measures. Put in place measures, including affirmative action, so that persons with disabilities have full access to education, empowerment programmes and social services on an equal basis with others.
4.9
Awareness raising
Article 8 of the CRPD requires immediate, effective measures to raise awareness of persons with disabilities, foster respect for their rights and dignity, combat stereotypes, and promote awareness of their capabilities and contributions. Discriminatory attitudes and the lack of sustained campaigns in society, in the media and among decision-makers remain a significant concern in both rural and urban areas.
Recommendation
Raise awareness of rights and policies relating to education access, in order to combat discrimination in enrolment and learning conditions and to promote reasonable accommodation. This should include sustained public campaigns, recognition of the skills and contributions of persons with disabilities, respect for their rights from early childhood through the education system, and responsible media portrayal.
5. International good practice
Universal Design for Learning
Designing curricula that accommodate the needs of all students from the outset.
Disability support services
Dedicated services within institutions, as seen in the United Kingdom and Australia.
Legislation and enforcement
Laws such as the Americans with Disabilities Act, which require institutions to provide reasonable accommodation.
Community awareness
Sustained campaigns, as in Sweden and Finland, which have reduced stigma and promoted disability rights.
Lessons for Zambia
- Adopt Universal Design for Learning for curricula and learning materials, reducing reliance on individualised accommodation.
- Establish dedicated disability support services in higher learning institutions.
- Strengthen enforcement of inclusive education policy to ensure compliance and accountability.
- Promote national awareness campaigns to reduce stigma and advance inclusion.
6. Summary of recommendations
Zambia’s Persons with Disabilities Act, 2012 provides a comprehensive legal framework for inclusive education. The priority now is implementation.
- 1. Invest in accessible infrastructure, ensuring that buildings, classrooms and facilities are fully accessible.
- 2. Train educators and support staff to support students with disabilities effectively.
- 3. Adapt learning materials and resources, including Braille, audio and sign language interpretation.
- 4. Promote an inclusive culture through sustained awareness raising, including among the judiciary, the justice sector, policymakers, teachers, and health and social workers.
- 5. Offer financial assistance and scholarships to ease the additional costs of disability-inclusive education.
- 6. Develop the outstanding regulations and guidelines needed to fully implement the Persons with Disabilities Act, 2012.
- 7. Establish effective sanctions for non-compliance with accessibility guidelines and regulations.
7. Conclusion
While Zambia’s Persons with Disabilities Act, 2012 provides a comprehensive legal framework for promoting inclusive education, significant gaps remain in its implementation. Inaccessible infrastructure, inadequate teacher training, a shortage of adapted learning materials, persistent stigma and financial constraints remain the primary barriers preventing students with disabilities from fully benefiting from the education system.
Closing these gaps requires a coordinated effort by government institutions, educational facilities and civil society organisations. Financial support, investment in accessible infrastructure, and a sustained focus on inclusivity in both policy and practice will be essential to ensuring that all individuals, regardless of disability, have equal opportunity to pursue education and develop to their fullest potential.
Acknowledgements
This brief was made possible by the generosity of individuals and organisations who shared their time, knowledge and lived experience.
We are especially grateful to the Deaf community under the Teresa Heart Foundation, whose insights first informed the conceptualisation of this brief and grounded it in the lived experience of the barriers persons with disabilities face in accessing higher education.
We also acknowledge Ms Winnie Nakachinda for her contribution and continued advocacy on behalf of persons with disabilities in Zambia.
We extend our sincere gratitude to Human Rights Commissioner Ms Christine Chama, who offered valuable insights and resources that greatly enriched this brief.
Our thanks go to the Thrive Aid team, under the leadership of Chief Executive Officer Ms Melody Chisanga, and in particular to Mr Kenny Saka, who co-authored this brief.
Finally, we thank the key informants and persons with disabilities who generously shared their experiences and perspectives during the research that underpins this brief.
References
- Ministry of Finance and National Planning. (2022). Eighth National Development Plan (8NDP) 2022–2026: Socio-economic transformation for improved livelihoods.
- Ndibalema, P., & Kambona, W. (2025). Impediments to assistive technology accessibility for students with disabilities in higher education institutions: A systematic review. ECNU Review of Education. https://doi.org/10.1177/20965311251355657
- TEAL Center Staff. (2010). Universal design for learning [Fact sheet]. U.S. Department of Education.
- UNICEF Zambia. (2018). Disability and education study in Zambia. unicef.org/zambia/reports/disability-and-education-study-zambia-2018
- United Nations. (2006). Convention on the Rights of Persons with Disabilities. United Nations Treaty Series, 2515, 3.
- United Nations Development Programme. (2025). Breaking barriers: Zambia unveils landmark policy and guidelines for disability inclusion in national development [Press release]. undp.org/zambia
- United Nations General Assembly. (2015). Transforming our world: The 2030 Agenda for Sustainable Development (A/RES/70/1).
Legislation
- Mental Health Act No. 6 of 2019 (Zambia).
- Persons with Disabilities Act No. 6 of 2012 (Zambia).
Further reading
- Alcain, E., et al. (2017). Towards an inclusive university education: Reality and challenges. Laureate International Universities.
- Central Statistical Office. (2018). Disability and education: Qualitative study from Zambia on barriers to and facilitators of life-long learning. SINTEF Digital, Department of Health Research.
- Chaputula, A. H., & Mapulanga, P. (2016). Provision of library services to people with disabilities in Malawi. South African Journal of Libraries and Information Science, 82(2), 1–10. https://doi.org/10.7553/82-2-1619
- Eide, A. H., & Loeb, M. (2006). Living conditions among people with activity limitations in Zambia. SINTEF Health Research.
- Miles, S. (2011). Exploring understandings of inclusion in schools in Zambia and Tanzania using reflective writing and photography. International Journal of Inclusive Education, 15(10), 1087–1102.
- Ministry of Education. (1996). Educating our future: National policy on education. Ministry of Education.
