The term was apparently coined in a report cowritten by an official in the Finnish Ministry of Education, Science and Culture, and published by the International Federation of Arts Councils and Culture Agencies:

Fair culture means the realisation of cultural rights and the inclusion of everyone in cultural signification, irrespective of their age, gender, ability, or ethnic, religious and cultural background.

And, yes, "fair culture" does seem to refer to cultural production -- "Participation in cultural supply" and "Opportunities for, inclusion in and capability for cultural self-expression and signification" -- as well as cultural consumption. And here I thought that participation in cultural supply ought not be irrespective of ability.

Incidentally, I found this report because I saw it quoted favorably in a draft of what promises to be a prominent book; so it can't, I think, be lightly dismissed as some sort of outlier.