A comprehensive guide to Germany's Federal Disability Equality Act - the foundational law establishing equality rights for persons with disabilities and prohibiting discrimination in federal public administration
The Behindertengleichstellungsgesetz (BGG), or Federal Disability Equality Act, is Germany's comprehensive federal law establishing equality rights for persons with disabilities. Adopted on April 27, 2002, and entering into force on May 1, 2002, the BGG marked a paradigm shift in German disability policy from a purely welfare-based approach to a rights-based approach grounded in principles of equality, self-determination, and full participation in society.
The BGG applies to federal public administration (Bundesverwaltung), creating binding obligations for federal ministries, agencies, and public bodies. It establishes that persons with disabilities must not be disadvantaged (Menschen mit Behinderungen dürfen nicht benachteiligt werden) and requires the removal of barriers that prevent equal participation in society.
With approximately 10.4 million people with recognized disabilities in Germany—about 13% of the population—the BGG is one of the most socially significant pieces of federal legislation. It affects not just those with permanent disabilities but also people with temporary impairments, age-related limitations, and chronic conditions.
The BGG exists within a multi-layered constitutional and international legal framework:
Article 3, Paragraph 3, Sentence 2 of Germany's Basic Law (Grundgesetz) was amended in 1994 to state: "Niemand darf wegen seiner Behinderung benachteiligt werden" (No person shall be disadvantaged because of disability). This constitutional provision:
Germany ratified the UN Convention on the Rights of Persons with Disabilities (UN-Behindertenrechtskonvention) on February 24, 2009. The UNCRPD:
The 2016 amendments to the BGG explicitly aligned German law with UNCRPD requirements, incorporating concepts like reasonable accommodation and strengthening participation rights.
The Allgemeines Gleichbehandlungsgesetz (AGG), Germany's anti-discrimination law adopted in 2006, prohibits discrimination in employment and civil law transactions based on various grounds including disability. The BGG and AGG are complementary:
The original BGG established fundamental principles: prohibition of disadvantage, accessibility requirements for buildings and information technology, participation rights for disability organizations, and the concept of target agreements (Zielvereinbarungen) as an alternative to regulation.
The BGGWeiterentwicklungsgesetz (BGG Development Act) of July 19, 2016, brought substantial changes:
Implementation of the EU Web Accessibility Directive (2016/2102) through amendments to the BGG:
§ 3 BGG defines persons with disabilities (Menschen mit Behinderungen) broadly:
"Menschen mit Behinderungen [...] sind Menschen, die körperliche, seelische, geistige oder Sinnesbeeinträchtigungen haben, die sie in Wechselwirkung mit einstellungs- und umweltbedingten Barrieren an der gleichberechtigten Teilhabe an der Gesellschaft mit hoher Wahrscheinlichkeit länger als sechs Monate hindern können."
This definition includes persons who have:
Importantly, the definition adopts the social model of disability: disability results from the interaction between individual impairments and environmental barriers. This shifts focus from "fixing" individuals to removing societal barriers.
The BGG applies to Träger öffentlicher Gewalt des Bundes (federal public authorities), defined in § 1 as:
Private organizations fulfilling federal public tasks (Beliehene) are subject to BGG requirements when exercising public authority functions.
§ 7 BGG establishes the central prohibition of disadvantage (Benachteiligungsverbot):
"Ein Verstoß gegen das Benachteiligungsverbot liegt vor, wenn Menschen mit und ohne Behinderungen ohne zwingenden Grund unterschiedlich behandelt werden und dadurch Menschen mit Behinderungen in der gleichberechtigten Teilhabe am Leben in der Gesellschaft unmittelbar oder mittelbar beeinträchtigt werden."
This prohibition encompasses both:
§ 7 Paragraph 2 BGG, added in 2016 to align with the UNCRPD, establishes that failure to provide reasonable accommodation constitutes discrimination:
"Eine Benachteiligung liegt auch vor, wenn eine Person, Institution oder Einrichtung die Verwendung von Hilfsmitteln verweigert oder behindert oder eine Begleitperson zurückweist."
Reasonable accommodation means necessary and appropriate modifications and adjustments to ensure persons with disabilities can exercise their rights on an equal basis, unless this would impose a disproportionate or undue burden (unverhältnismäßige Belastung).
Examples of reasonable accommodation include:
§ 4 BGG defines barrier-free design (barrierefreie Gestaltung):
"Barrierefrei sind bauliche und sonstige Anlagen, Verkehrsmittel, technische Gebrauchsgegenstände, Systeme der Informationsverarbeitung, akustische und visuelle Informationsquellen und Kommunikationseinrichtungen sowie andere gestaltete Lebensbereiche, wenn sie für Menschen mit Behinderungen in der allgemein üblichen Weise, ohne besondere Erschwernis und grundsätzlich ohne fremde Hilfe auffindbar, zugänglich und nutzbar sind."
Barrier-free means accessible in the customary manner, without particular difficulty, and generally without outside help. This high standard requires that:
§ 8 BGG requires that buildings of federal public authorities be designed barrier-free. This encompasses:
New federal buildings and major renovations must be designed barrier-free according to applicable technical standards, particularly:
Requirements include accessible entrances, elevators, doorways of sufficient width, accessible toilets, appropriate signage, acoustic and visual alarm systems, and wayfinding systems.
§ 8 Paragraph 2 requires that existing federal buildings be made accessible "as far as possible" (soweit möglich). While recognizing that full accessibility may not always be immediately achievable, federal bodies must:
§ 12a BGG, inserted in 2018, establishes comprehensive requirements for digital accessibility:
Implementation details are specified in BITV 2.0, which is authorized by § 12 BGG.
Every federal website and mobile app must publish a detailed accessibility statement including conformance status, known issues, feedback mechanism, and enforcement procedure information.
The Federal Monitoring Body (Überwachungsstelle des Bundes für Barrierefreiheit von Informationstechnik) conducts regular monitoring, publishes reports, and supports federal bodies in achieving digital accessibility.
Deaf and hard-of-hearing persons have the right to use German Sign Language (Deutsche Gebärdensprache - DGS), International Sign Language, and other communication aids when interacting with federal authorities. Federal bodies must:
§ 11 Paragraph 2 requires federal authorities to provide information in Easy Language (Leichte Sprache) for persons with cognitive or learning disabilities. Easy Language uses:
Federal websites must provide summaries of key information in Easy Language.
Beyond Easy Language, the BGG encourages use of Plain Language (Einfache Sprache) for general communication. Plain Language is less simplified than Easy Language but still prioritizes clarity, avoiding bureaucratic jargon, complex sentence structures, and specialized terminology where simpler alternatives exist.
The BGG recognizes that persons with disabilities and their representative organizations must be meaningfully involved in decisions affecting them, following the principle "Nichts über uns ohne uns" (Nothing about us without us).
§ 14 BGG grants recognized disability organizations (anerkannte Verbände) participation rights in legislative and regulatory processes affecting persons with disabilities. Organizations that meet statutory criteria can:
The Federal Government Disability Commissioner, established under a related provision, serves as an advocate for disability rights at the federal level, promoting implementation of the BGG, advising ministries, and representing disability perspectives in federal policymaking.
Each federal ministry appoints a disability representative (Behindertenbeauftragte) responsible for promoting accessibility and disability equality within that ministry's jurisdiction.
The Bundesfachstelle Barrierefreiheit (Federal Competence Center for Accessibility), established by the 2016 BGG amendments, provides:
§ 16 BGG establishes a Schlichtungsstelle (mediation office) providing free, informal dispute resolution for disability discrimination claims against federal public authorities.
Mediation is voluntary, confidential, and does not preclude subsequent legal action. No costs are charged to complainants.
Persons with disabilities can challenge federal administrative actions through administrative court proceedings (Verwaltungsgerichtsverfahren) when:
Administrative courts (Verwaltungsgerichte) can order federal authorities to take specific actions, cease discrimination, or provide accommodations.
§ 15 BGG grants recognized disability organizations the right to bring lawsuits in their own name (Verbandsklagerecht) when:
This collective action mechanism allows disability organizations to challenge systemic barriers even without individual plaintiffs.
As a last resort, persons with disabilities can file constitutional complaints (Verfassungsbeschwerden) with the Federal Constitutional Court (Bundesverfassungsgericht) alleging violations of Article 3 Paragraph 3 Sentence 2 of the Basic Law (prohibition of disability discrimination).
While the BGG does not impose direct administrative fines on federal authorities (they cannot fine themselves), non-compliance can result in:
Does the BGG apply to private businesses?
No, the BGG applies only to federal public authorities. Private businesses are subject to other laws: the AGG (General Equal Treatment Act) for employment and civil law transactions, and the BFSG (Accessibility Strengthening Act) for products and services. However, private entities performing federal public tasks are subject to BGG when exercising those functions.
Does the BGG apply to state and local government?
No, the BGG applies only to federal (Bundes-) public authorities. Each federal state has its own disability equality law (Landes-BGG) for state and local government. These state laws typically mirror BGG structure and principles.
Do I need to officially register my disability to invoke BGG rights?
No. BGG rights apply to anyone meeting the functional definition of disability in § 3, regardless of whether they have formally registered their disability or possess a Schwerbehindertenausweis. However, for certain benefits under other laws (like employment protections under SGB IX), formal recognition may be required.
What is the difference between BGG and the UN CRPD?
The UN CRPD is an international human rights treaty that Germany ratified in 2009, creating binding international obligations. The BGG is German federal law implementing CRPD principles for federal public administration. The CRPD has broader scope (covering all areas of life) while the BGG focuses on federal public authorities. Both are directly applicable German law.
What is reasonable accommodation and when must it be provided?
Reasonable accommodation (angemessene Vorkehrungen) means necessary modifications and adjustments to ensure persons with disabilities can exercise their rights on an equal basis. Federal authorities must provide reasonable accommodation unless it would impose a disproportionate or undue burden. Examples include providing documents in alternative formats, allowing assistive technologies, or modifying procedures. Refusing reasonable accommodation without justification constitutes discrimination under § 7 Paragraph 2 BGG.
Can I use sign language when dealing with federal authorities?
Yes. § 11 BGG grants deaf and hard-of-hearing persons the right to use German Sign Language (DGS) or International Sign Language. Federal authorities must provide qualified sign language interpreters upon request, at the authority's expense. You should notify the authority in advance when possible to allow time for interpreter arrangements.
Can I bring my assistance dog to federal buildings?
Yes. Refusing entry to assistance animals (Assistenzhunde) constitutes discrimination under § 7 Paragraph 2 BGG. This applies to guide dogs for blind persons, hearing dogs for deaf persons, service dogs for persons with mobility impairments, and psychiatric service dogs. The only exceptions are areas where animals are prohibited for compelling hygiene or safety reasons (e.g., sterile medical environments, food preparation areas).
Must federal websites work with my screen reader?
Yes. § 12a BGG requires federal websites to meet WCAG 2.1 Level AA standards (detailed in BITV 2.0), which includes full screen reader compatibility. If you encounter accessibility barriers on a federal website, you can report them through the website's accessibility statement feedback mechanism, contact the Federal Monitoring Body, or initiate the mediation procedure.
How do I file a complaint under the BGG?
First, try to resolve the issue directly with the federal authority. If unsuccessful, you can initiate the mediation procedure (Schlichtungsverfahren) by submitting a written complaint to the Schlichtungsstelle BGG. The process is free, informal, and doesn't require legal representation. If mediation doesn't resolve the issue, you can pursue legal action through administrative courts.
How long does the mediation procedure take?
The Schlichtungsstelle aims to complete mediation within three months. Complex cases may take longer. The process is confidential and voluntary. Even if mediation is unsuccessful, you retain all legal remedies.
Can disability organizations sue on my behalf?
Recognized disability organizations can bring lawsuits in their own name under § 15 BGG when issues affect many persons with disabilities or involve systemic barriers. You don't need to be personally named as a plaintiff. Organizations can also support your individual case through information, advice, and sometimes legal representation.
What happens if a federal authority doesn't comply with a court order?
Federal authorities are legally obligated to comply with final court orders. If an authority fails to comply, additional enforcement mechanisms can be invoked, including supervisory oversight (Dienstaufsicht), contempt proceedings, and ultimately executive enforcement. Persistent non-compliance can result in disciplinary action against responsible officials.
