Speech by Rafael Benitez, Director of Social Rights, Health and Environment
Minister Ceban,
Excellencies, distinguished guests, colleagues, ladies and gentlemen,
It is an honour to open this timely and important event. Today we gather to explore the fundamentals of health literacy, human rights, and the vital pathways that connect our institutions with the people they serve.
The theme of this event – strengthening the relationship between institutions and people – could not be more relevant. Across our societies, we are facing unprecedented challenges to our democracies and to the protection of human rights.
Health protection is a fundamental human right and a cornerstone of democracy and social justice. It is not merely a policy choice, but a shared societal responsibility that requires political will and innovative, rights-based solutions.
This conviction was at the heart of the recent Council of Europe Conference on the Protection of Health, held in Strasbourg on 15 October 2025. The conference reaffirmed the collective commitment to protecting health on the basis of solidarity, equality and human dignity.
The protection of health is grounded in longstanding legal standards, none more central than Article 11 of the Revised European Social Charter. This provision firmly anchors the right of every person to health protection and calls on states to remove the causes of ill-health, develop health advisory and educational services, and promote individual responsibility for health. It also highlights a particular duty to protect those in vulnerable situations.
These obligations are complemented by the European Convention on Human Rights and the Oviedo Convention, which together provide a comprehensive framework to safeguard the health and dignity of everyone on an equal basis.
However, legal guarantees are only as strong as the actions they inspire. This is where health literacy becomes essential.
Health literacy goes far beyond the ability to read health information. As defined in the Guide to Health Literacy, it encompasses the knowledge, motivation and competencies needed to access, understand, assess and apply health information in order to make informed decisions about healthcare, disease prevention and health promotion.
Health literacy is therefore not a static skill. It is a dynamic process that enables people to learn, adapt and critically assess information — including identifying outdated or misleading content – thereby strengthening autonomy, participation and trust in public institutions.
At the same time, health literacy cannot be viewed solely as an individual responsibility. Nearly half of Europe’s population struggles to navigate health information and healthcare systems. The consequences are particularly severe for those already in vulnerable situations – including older persons, migrants, persons with disabilities, LGBTI+ individuals, Roma communities, people experiencing homelessness and persons in detention.
These groups may face multiple barriers: language obstacles, inaccessible information, culturally insensitive care, systemic discrimination or even denial of services. All of these barriers hinder the effective exercise of their right to health.
Low health literacy can therefore be understood as a structural barrier that limits participation in health systems and obstructs the realisation of the right to health protection.
It also has significant economic consequences. It is estimated that low health literacy costs economies between 3 and 5% of annual healthcare expenditure. In Germany, for example, this represents approximately €24 billion annually. In the United Kingdom the cost is estimated at £2–4 billion, while in the United States it exceeds $73 billion.
Low health literacy is also closely intertwined with stigma and discrimination in healthcare, a topic that our expert Kristine Sørensen will address later today. Discrimination based on identity, age, gender, migration status or social position can manifest in stereotypes, exclusion and unequal access to services. The result is poorer health outcomes, higher costs and diminished trust in both healthcare systems and democratic institutions.
This is why strengthening health literacy must remain a priority. We must move from commitments to concrete action.
This can be achieved, among other things, by:
- raising awareness and reaching people in vulnerable situations through culturally adapted and community-informed communication;
- combating misinformation and disinformation by promoting reliable sources of information, particularly in a context marked by digital divides;
- ensuring that health information is clear, accessible and culturally sensitive, including for persons with disabilities, older persons and those with limited digital literacy;
- strengthening the cultural competence of health professionals and integrating local and national strategies to address the needs of communities that face structural exclusion, including Roma, LGBTI+ people and migrants.
Health literacy represents an opportunity for institutions and governments to strengthen their connection with those most affected. By doing so, we reinforce trust between institutions and people – and such trust can only flourish when individuals feel listened to, respected and meaningfully empowered.
Looking ahead, I would like to highlight how the Council of Europe is prioritising health literacy and human rights across the Organisation.
First, we are implementing a co-operation project to develop and support health literacy pathways in Council of Europe member States, with the support of Italy and in the context of the Coalition for Health Literacy and Human Rights, launched in December 2025 and open to all member States.
This project will:
- establish multi-sectoral health literacy pathways, with particular attention to vulnerable groups across Europe;
- identify needs, develop solutions and facilitate the exchange of knowledge across borders;
- develop practical tools and resources for different populations and contexts;
- organise capacity-building activities to foster peer learning and strengthen the skills of practitioners and policymakers at all levels.
Second, the Council of Europe will hold a High-Level Conference on Health Literacy in Rome in December 2026.
Building on the outcomes of the Strasbourg Conference on Health Protection, where health literacy was identified as a priority area for action, this event will bring together a wide range of actors who are both affected by and responsible for advancing health literacy.
Ministers and senior officials will discuss health literacy as a prerequisite for individuals to effectively exercise their health-related human rights, as a means to reduce inequalities and to rebuild trust between institutions and people, in line with the New Democratic Pact for Europe.
The conference will provide an important opportunity to strengthen political commitment and partnerships in this field, and may culminate in the adoption of a final declaration on health literacy and human rights.
Ladies and gentlemen,
Let us seize this opportunity to ensure that health literacy becomes a reality for everyone – and in doing so, to strengthen the relationship between institutions and the people they serve.
Thank you for your commitment. I look forward to building this future together.