8.4 Vulnerable groups An important issue in the consideration of priorities is the human rights situation of vulnerable groups, given the need to incorporate fundamental norms of equality and non-discrimination effectively in the plan. The human rights problems facing such groups are often significant in a country’s overall human rights picture. Yet because of the disadvantaged position of vulnerable groups, they may have a disproportionately low profile. In determining priorities special attention should be given to the needs of such groups and a particular effort should be made to bring them into the process as participants. Some vulnerable groups are apparent to those working regularly in the human rights field. Indigenous peoples, ethnic, linguistic or religious minorities, persons with disabilities and refugees are examples that appear in most of the plans that have been prepared to date. Women and children are also always mentioned as groups requiring specific attention, though whether they should be classed as “vulnerable” groups is a matter for debate. Other groups that may not always spring to mind also demand serious attention. They include people living with HIV/AIDS, the mentally ill, the elderly and sexual-orientation minorities. Vulnerable groups may also be viewed from a slightly different perspective, that is to say not as organic or cohesive groups but as economic or social groups deserving special attention. The Philippines plan refers, for example, to the urban poor and rural workers. Another consideration is that some categories of vulnerable groups are relevant to some countries and not to others. 8.5 Issues for special focus It is up to each country to identify the issues on which it wishes to focus. However, most countries share the need to strengthen the legal and institutional framework for the protection and promotion of human rights and programmes for human rights education. For that reason, national action plans often recommend the establishment of a human rights commission, where one does not already exist. 8.6 Drafting the plan Each country will have its own practices for drafting a plan such as this. Whatever approach is adopted, there are some factors that will contribute to the success of the exercise. First, as outlined in section 8.1, the national coordinating committee should determine the structure of the plan. This should flow from the initial discussions of the most appropriate way to incorporate both international norms and features of the local situation. Content Members of the committee will wish to make specific proposals regarding the content. Many of these proposals will represent the views of the organizations that committee 66