ࡱ>  gi^_`abcdefg (bjbjVV r<r<DL2%2%2%&+&+&+&+2&+$n66666555LNNNNNN$ Vr-2%5.555r66mUuuu5B8 62%6Lu5LuuL 6`Nnw\Z80Zu2%(55u55555rru5555555555555555 : DISABILITY ADVISORY COUNCIL OF AUSTRALIA National Disability Discrimination Legislation REPORT OF THE NATIONAL CONSULTATIONS WITH PEOPLE WITH A DISABILITY MAUREEN SHELLEY Bedoni Bold P.L. FOREWORD On 11 June 1991, Brian Howe, the Deputy Prime Minister and Minister Assisting the Prime Minister for Social Justice, and Michael Duffy, the Attorney-General, announced that they were to jointly address the issue of discrimination against people with a disability. The Disability Anti-Discrimination Legislation Committee was. - established and has representation from the Disability Advisory Council of Australia, the Department of Health, Housing and Community Services, the Attorney-General's Department, and the Human Rights and Equal Opportunity Commission. The Disability Advisory Council of Australia was asked by the Committee to conduct public consultations with people with disabilities. The Council asked four consultants to undertake this project. The consultants are Graeme Innes and Maureen Shelley from Western Australia, John Nothdurft from Queensland, and John Simpson from Victoria. National consultations were held in July and August 1991. This report examines the results of those consultations and submissions from private individuals, consumer bodies and service providers, and presents the views and experiences of the participants and their responses to the Discussion Paper prepared by the Commonwealth Disability Anti-Discrimination Legislation Committee. CONTENTS INTRODUCTION 1.1 Overview 1.2 Consultations 1.3 Content of Report CONSULTATION PROCESSES 2.1 Overview 2.2 Objectives 2.3 Locations 2.4 Profile of Participants 2.5 Session Design 2.5.1 Workshops for People with an Intellectual Disability 2.5.2 Workshops for People with Other Disabilities 2.5.3 Special Resources 2.6 Number of Participants 2.7 Conclusion THE NEED FOR COMMONWEALTH DISABILITY DISCRIMINATION LEGISLATION 3.1 Overview 3.2 Existing Legislation 3.2.1 - State 3.2.2 - Commonwealth 3.2.3 - International 3.3 Previous Consultations 3.4 Support for Legislation 3.5 Conclusion DEFINITION OF DISABILITY 4.1 Overview 4.2 Existing Definitions 4.3 Prescriptive or General Definition 4.4 Imputed Impairment 4.5 Record of Impairment 4.6 Discrimination, Against Relatives or Associates 4.7 Stigma 4.8 Hidden Disabilities 4.9 Conclusion DEFINITION OF DISCRIMINATION 5.1 Overview 5.2 Direct Discrimination 5.3 Indirect Discrimination 5.4 Comparability 5.5 Conclusion AREAS OF COVERAGE 6.1 Overview 6.2 Employment 6.3 Trade Union Membership 6.4 Education 6.5 Goods, Services and Facilities 6.6 Accommodation 6.7 Land and Housing 6.8 Clubs 6.9 Access and Transport 6.10 Commonwealth Programs 6.11 Application Forms 6.12 Areas of Private Life 6.13 Conclusion REASONABLE ACCOMMODATION  7.1 Overview 7.2 Definition 7.3 Onus of Proof 7.4 Compliance Timetable 7.5 Conclusion HARASSMENT 8.1 Overview 8.2 Types of Harassment 8.3 Workplace 8.4 Education 8.5 Place of Residence 8.6 Public Places (including public transport) 8.7 Vilification 8.8 Conclusion EXCEPTIONS 9.1 Overview 9.2 Superannuation 9.3 Insurance 9.4 Charitable Benefits 9.5 Affirmative Action Programs 9.6 Conclusion CONCILIATION AND ENFORCEMENT PROCEDURES 10.1 Overview 10.2 Conciliation Process 10.3 Enforcement Procedures 10.4 Current Procedures in Commonwealth Legislation 10.5 Direct Referral to Court 10.6 Vesting Tribunals with Court Powers 10.7 Advocacy 10.8 Class Actions 10.9 Conclusion OTHER ISSUES 11.1 Overview 11.2 Community Education Focus 11.3 Effect on Other Legislation 11.3.1 Other Discrimination Legislation 11.3.2 Precedence Over Other Legislation 11.4 Taxation and Other Incentives 11.5 Administration of the Legislation 11.6 Victimisation 11.7 Conclusion Recommendations National Disability Discrimination Legislation Discussion Paper Easy-to-Read Version of Discussion Paper Consultation Itinerary and Number of Participants Content of Sessions for People with an Intellectual Disability Content of Sessions for People with Other Disabilities List of Some Existing Definitions of Disability List of Submissions Received Profile of Consultants Assistance During Consultations CHAPTER 1 BACKGROUND 1.1 Overview In July 1991 the Discussion Paper 'National Disability Discrimination Legislation' was published by the Disability Anti- Discrimination Legislation Committee and made available throughout Australia through the Human Rights and Equal Opportunity Commission and their State Offices; the Anti- Discrimination Board of New South Wales; the Equal Opportunity Commission of Victoria; the Equal Opportunity Commission of Western Australia; the Equal Opportunity Commission of South Australia; the State Disability Service Advisory Committees, and the Disability Advisory Council of Australia Secretariat. This paper stated that the issues for consideration during the consultations with people with a disability should be: the need for national anti-discrimination legislation for people with a disability the scope of the Legislation, including the definition of disability and discrimination, the exceptions including 'a reasonable accommodation test', and the areas of discrimination the model for conciliation and for redress. 1.2 Consultations Public meetings were held throughout Australia in July and August 1991 and submissions were invited from interested individuals and organisations. 1.3 Content of Report This Report uses the format established by Chris Ronalds in the Report of the 'National Employment Initiatives for People with Disabilities'. Chapter 2 examines the form and content of the National Consultations- and broadly describes the relevant characteristics of the participants. Chapter 3 examines the necessity for Commonwealth Disability Discrimination Legislation. Chapter 4 examines the views of the participants in regard to the definition of disability. Chapter 5 examines the views of the participants in regard to the definition of discrimination. Chapter 6 examines the areas that such legislation should cover. Chapter 7 covers the concept of reasonable accommodation and Chapter 8 looks at the area of harassment. Chapter 9 considers what exceptions should be included in the Legislation and Chapter 10 looks at the conciliation and enforcement procedures. Chapter 11 looks at other issues which were raised during the consultations but were not covered by the Discussion Paper. There are ten appendices.  CHAPTER 2 CONSULTATION PROCESSES 2.1 Overview A schedule of consultations was arranged in each State with people with disabilities. The schedule was designed by the Disability Advisory Council of Australia, relying on the previous experience of Chris Ronalds and Officers of the Disability Services Program of the Department of Health, Housing and Community Services. 2.2 Objectives The major objectives of the consultations were to provide a forum for people with a disability to have direct input into the development of the Disability Discrimination Legislation with specific reference to the Discussion Paper prepared by the Commonwealth Disability Anti-Discrimination Legislation Committee. Public meetings were held with people with a disability and submissions were invited from individuals and organisations with an interest in the subject. 2.3 Locations To ensure that views from people from all States and Territories were represented, consultations were held in each capital city and several regional centres. Meetings were held in Alice Springs (NT), Albury-Wodonga (NSW/Vic), Rockhampton (Qld) and Launceston (Tas). (For a complete list of locations and dates, see Appendix D.) 2.4 Profile of Participants Possible participants were identified in consultation with relevant disability consumer organisations. Advertisements were placed in the major newspapers detailing public meetings in each State where they were held, flyers were distributed with DACA's magazine, 'Breakthrough' and were also distributed to organisations involved in the area. The Discussion Paper was sent out to organisations and several thousand individuals throughout Australia. Approximately 20 percent of people attending the sessions had an intellectual disability. A similar proportion had a mobility disability. A wide range of other disabilities were represented. These included hearing and vision impairment, para- and quadriplegia, cerebral palsy, head injury, psychiatric disability, double or multiple disability, diabetes, heart conditions, severe allergic reaction, back injury, epilepsy and post-polio related disabilities. In Darwin and Alice Springs, one third of the people were from Aboriginal or non-English speaking backgrounds. Approximately 15 percent were people with a hearing impairment and ten percent vision impaired. Five percent were people with psychiatric disabilities. In all sessions participants came from a wide range of experiences and backgrounds in education and employment. Many came from non-English speaking backgrounds, Aboriginal communities, or lived in isolated situations. More than half of the participants were women. Those who lived in isolated communities expressed concern regarding their double disadvantage. The majority of participants were employed, or had been employed, in a variety of situations from sheltered workshops to open market employment. Some participants were still at school and some had received very little schooling. A bioad cross-section of the community of people with a disability were represented, including parents of very young children with disabilities to people who were disabled through frail-aged. This range of backgrounds and views ensured lively discussion throughout. Participants were represented from all socio-economic groups and it was confirmed that people with disabilities who had higher financial resources and support networks achieved greater participation in community life, and were able to deal with discrimination more effectively than those without these supports. 2.5 Session Design To meet the needs of each group, separate workshops were held for people with intellectual disabilities. All sessions were conducted by the consultants and workshops were chaired by experienced local facilitators who had knowledge of discrimination legislation and issues concerning the participants of their workshops. The facilitators produced a short written report on each session which was used in compiling this report. 2.5.1 Workshops with People with an Intellectual Disability The issues in the Discussion Paper are complex and are difficult to understand without appropriate background information. Consequently, assistance from Jenny Klause of the Intellectual Disability Rights Service at the Redfern Legal Centre in Sydney, was sought to ensure that the material and the sessions would be appropriate to the needs of the group. Jenny also wrote the Easy-to-Read version of the Discussion Paper. This paper was clear and accessible and provided a useful tool for participants. Further copies of this leaflet were distributed to interested people who were unable to attend the public meetings (see Appendix C for a copy of the Paper). The workshops for people with intellectual disabilities ran for the same length of time as for people with other disabilities, between an hour and an hour and a half. The major elements of the Discussion Paper were identified and a series of story cards were used to enable the participants to relate their own views, opinions and experiences. All of the sessions for people with intellectual disability provided stimulating and positive discussion. These sessions were extremely productive and demonstrated the advantages of designing material specifically to meet the needs of people with varying comprehension levels. 2.5.2 Workshops for People with Other Disabilities The workshops for people with other disabilities addressed the issues in the main Discussion Paper and were structured and conducted in a different manner. The Discussion Paper formed the basis for a series of questions which were asked of participants. For a copy of these questions, see Appendix F. 2.5.3 Special Resources The consultants used a variety of equipment and resources to ensure equality of access for all participants. This included physical access to the buildings where meetings were held, the use of an audio loop and interpreters for people with hearing impairments, and the use of overhead projection slides in written and cartoon format, which were also read for people with print disabilities. The Discussion Paper was made available in audio and Braille formats, as well as Easy-to-Read and print versions. All the facilitators for the workshops for people with an intellectual disability were experienced advocates or worked in related fields. 2.6 Number of Participants A total of 502 people participated directly in the consultations and a further 48 written submissions were received. These submissions were provided by individuals as well as organisations of and for people with disabilities, and one submission was signed by 54 people. The organisational side of the consultations required a considerable resource commitment from the DACA Liaison Unit, the State/Territory Disability Services Advisory Committees, the Human Rights and Equal Opportunity Commission and its State Offices, and the State Equal Opportunity Commissions. Many other bodies provided additional support through mailing Discussion Papers or providing workshop facilitators. The mechanism was an effective one for enabling people with a disability to have a direct input into the development of this Legislation. Many people felt empowered sufficiently to write submissions and have their views incorporated through general discussion and specific input. The consultations provided the avenue to reach a wide audience throughout Australia and to all areas of the disability field. The introductory material and remarks from the consultants provided an overview of the many complex issues under discussion. The consultations were held in an informal atmosphere which enabled people to discuss their experiences and to contribute significantly to the development of the Legislation. The discussions demonstrated the willingness of participants to provide experiences from their own lives in order to assist other people. The broad section of participants' experiences meant there was wide ranging discussion and a useful exchange of information and ideas. The consultation process was successful and enabled the collection of a range of views from people with different disabilities. Many of the people who participated would not have been involved had they not attended these sessions. Their views form the basis of the remainder of this report. The consultations demonstrated the Government's commitment to listen to the views of people with a disability in the formation of such important Legislation. CHAPTER 3 THE NEED FOR COMMONWEALTH DISABILITY DISCRIMINATION LEGISLATION 3.1 Overview The Discussion Paper examined recent reforms in the area and the need for this Legislation. Previous consultations by the Human Rights and Equal Opportunity Commission, and the Labour and Disability Workforce Consultancy, had indicated there was strong support for further Federal Legislation to provide enforceable protection for people with disabilities against discrimination in a range of areas. 3.2 Existing Legislation There is a considerable body of existing legislation at Commonwealth, State and international levels in regard to discrimination against people with disabilities. This is examined in detail in the Discussion Paper (see Appendix B for text of the Paper). 3.2.1 State Legislation Four States have Disabilities Discrimination Legislation provisions. They are New South Wales, Victoria, South Australia and Western Australia. There are proposals for similar legislation in Queensland, Tasmania, the ACT and the Northern Territory. 3.2.2 Commonwealth Legislation The Human Rights and Equal Opportunity Commission has had jurisdiction over discrimination in employment since January 1990. As well as other areas, this includes impairment, mental, intellectual or psychiatric disability, physical disability, medical record or the former imputed existence on these grounds. However, the Human Rights and Equal Opportunity Commission Act does not make discrimination on the grounds of disability or on related grounds unlawful, and does not give the Commission power to make enforceable orders to provide remedies, even against Commonwealth authorities. 3.2.3 International Legislation or Instructions There are a number of international conventions and declarations which cover the ground of disability in particular, or human rights generally. These include the International Covenant on Civil and Political Rights, the Declaration of the Rights of The Child, the Declaration of the Rights of Disabled Persons, and the Declaration on the Rights of Mentally Retarded Persons. (For more details regarding these covenants and declarations, refer to sections 30 and 31 of the Discussion Paper in Appendix B.) Further, the Americans with Disabilities Act 1990 covers a number of areas of discrimination, including employment and accessibility. (See sections 33, 34 and 35 of the Discussion Paper at Appendix B.) 3.3 Previous Consultations The Human Rights and Equal Opportunity Commission and the Labour & Disability Workforce Consultancy have carried out consultancies over a number of years with people with disabilities and their organisational representatives. These consultations have indicated strong support for Federal Legislation to provide enforceable protection against discrimination in a range of areas. These areas include employment and occupation, education and training47-Atcommodation,:-provision of -goods and services, - in particular transport, communications, and access to premises and facilities. The consultations also emphasised the importance of addressing equal enjoyment of human rights in these areas in a co-ordinated manner. They indicated that legislation is an essential element in removing barriers to equal enjoyment of human rights by people with disabilities in a range of areas of life. 3.4 Support for Legislation There was an overwhelming majority of support from participants for Federal Legislation. Some of the findings were that: there is a need for uniformity so that people's ability to obtain redress when their rights are infringed does not vary from State to State present Legislation in the States does not cover the Commonwealth as an employer or service provider, nor is there Legislation in Tasmania, Queensland, in the Northern Territory nor the ACT there should be national support for the rights of people with disabilities this type of Legislation would show Commonwealth commitment to people with disabilities this type of Legislation would ensure public education in regard to people with disabilities. In a submission received from Maureen McInroy, Equal Employment Opportunity Officer at the Australian National University, she says: 'I support the proposal to introduce antidiscrimination legislation for people with disabilities. Obviously there is good will within the community towards those who are differently abled, but good will alone does not provide enforceable protection against discrimination.' 3.5 Conclusion Ninety five percent of participants supported the concept of Federal Legislation. Some people felt there should not be separate legislation for people with disabilities but changes should be made to include disability in all areas of life under the Human Rights and Equal Opportunity Commission Act. However most people felt it was important for there to be separate Federal Legislation and for the Commonwealth to be seen to be supporting the concept of rights for people with disabilities. CHAPTER 4 DEFINITION OF DISABILITY 4.1 Overview A definition that would cover all people with disabilities was one which participants found difficult to put into words. However, participants made it clear that they wanted everyone with a disability to be covered by the definition without loopholes and without people 'falling through the gaps'. The participants expressed the view that any definition of impairment should be positive and not marginalise people with disabilities from the community. It was repeatedly stated that the definition should be a positive rather than a negative one, and should be used as a standard across government bodies, services and other legislation. It was also reiterated that the definition should be in plain English, gender neutral and should cover palliative devices (eg guide and hearing dogs) used by people with disabilities. 4.2 Existing Definitions There are a number of existing definitions of disabilities and/or impairment. Some of these definitions, are contained within anti-discrimination legislation and others exist in the Disability Services Act, are prescribed by the World Health Organisation, Disabled Peoples' International and the Americans with Disabilities Act 1990. Some of these definitions are included in detail in Appendix G. For further discussion regarding definitions contained within the Disability Services Act and the Americans with Disabilities Act 1990, refer to sections 37, 38, 39 and 40 of the Discussion Paper at Appendix B. 4.3 Prescriptive or-General Definition It was constantly repeated throughout the consultations and reiterated in the submissions, that the definition should as broad as possible to include all people with disabilities. It was stated that rather than using a 'shopping list' of disabilities, it was preferable that the definition should be a general one to include all existing recognised disabilities as well as hidden disabilities, imputed disability, past, present and future disabilities, temporary and episodic impairment and neurological impairment or dysfunction.It was also stated that the definition should make a statement of rights covering all people with disabilities. In the submission from Irrabeena, the Authority for Intellectually Handicapped Persons of WA, it was stated: "A nationally accepted definition of disability, whilst requiring considerable negotiation to achieve, would provide a sense of clarity and a standardised perspective, which would assist in not only developing this legislation, but also: in clarifying eligibility criteria across the nation to provide clarity and consistency to people with disabilities and their families provide a nationally accepted benchmark for occupational groups working in the field of disability." 4.4 Imputed Impairment Examples were given where people with cerebral palsy were treated as if they had an intellectual impairment as well. Other examples were given by people who were related to people with genetic impairments and as a result treated less favourably than others. In the submission from the Australian Federation of AIDS Organisations (AFAO), it is stated that: "The Americans with Disabilities Act 1990 and some Australian Legislation covers imputed impairment. The AFAO notes the National Strategy recommendations in this regard and recommends that the definition of 'impairment' include imputed impairment. This would obviate the need for a potential complainant proving his or her seropositivity before attracting the protection of the Legislation." (1) 4.5 Record of Impairment Many participants gave evidence of discrimination based on record of impairment. This particularly related to people with episodic impairment, psychiatric disability and people of perceived social disadvantage such as alcoholism and other substance addictions. (1) The National Strategy referred to is the National HIV/ AIDS Strategy of August 1989. In his submission, one correspondent from Queensland says: "I don't represent any body, organisation or group, but do suffer psychiatric bipolar (mania) disorder, self-managed without medication. If I am honest with potential employers, I fail to get an offer of employment and if I conceal my disability and am later found out, I am dismissed unfairly without appeal." 4.6 Discrimination Against Relatives or Associates Many participants quoted examples where family or friends have been discriminated against due to their association with a person with a disability. These included parents denied employment because they had,children with physical disabilities. The potential employers considered that the parent would take more time off work to look after a child with a physical disability than a parent of children without disabilities. Other examples included denial by landlords of rental accommodation to parents of children with physical or intellectual impairments, and the denial of entry to night-clubs of friends of people using wheelchairs. In the submission from the Australian Federation of AIDS Organisations, it is stated that: "the Bill should also include the concept of latent impairment to cover relatives, carers and intimates of a person with HIV infectio12cr AIDS. However, the definition in the ACT Bill' ' was insufficiently broad. It would not extend to protect a business or corporation which faces discrimination because it provides goods or services to people with HIV or AIDS. In Melbourne recently, a tenancy application by the Victorian AIDS Council (VAC) was refused on these grounds. It appears that the VAC has no redress under the Equal Opportunity Act 1984." Similar examples were given by organisations who provided services for people with disabilities who were denied accommodation in 'upmarket' office rental facilities. 4.7 Stigma A number of participants related that their particular disabilities were stigmatised by the community more than others. These include people with intellectual or psychiatric disability, mental disturbance, HIV or AIDS, (2) Discrimination Bill 1990 Legislation drafted in the ACT. and physical disabilities such as leprosy. The comment was made that the definition of disability should in some way take into account the special circumstances of these people. 4.8 Hidden Disabilities People with hidden disabilities such as diabetes, epilepsy, hearing impairments, neurological dysfunction, asthma and over-use syndrome, all stated that they were discriminated against because their disabilities were hidden rather than visible. People in these areas constantly referred to discrimination that they experienced when they provided details of their disability, particularly in employment. The Asthma Foundation of Victoria in its submission stated: "Asthma can be disabling and some individuals are permanently disabled due to asthma. Fortunately, the majority of people who suffer from asthma in Australia experience 'episodic asthma' which can vary from mild to complete disability. Between the attacks, these asthmatics appear perfectly normal and can hold down responsible positions. The Foundation is very aware of the many times people with asthma are discriminated against by employers, particularly with hiring new workers." Further examples were given by people with hearing impairments where co-workers became angry or annoyed with them due to their hearing impairment. 4.9 Conclusion A constant theme of the participants to the consultations was that any definition of disability should be clear and easily understood, and should be all encompassing. It was stated that the definition should be a positive one and should be a broad-based definition rather than a prescriptive one. CHAPTER 5 DEFINITION OF DISCRIMINATION 5.1 Overview A,definition of discrimination was again a major issue for participants. They expressed the view that words used could be drafted by others but the sentiments of the participants should be included as the corner stone of any definition. Apart from the matters detailed in this chapter, the participants felt that the definition should include the notion that discrimination against people with disabilities need only be one of a number of reasons for an act. Reference was made to Section 5 of the West Australian Equal Opportunity Act. Participants also stated that it should not be necessary to show that an intention to discriminate had been formed by the employer or service provider. 5.2 Direct There was consensus that direct discrimination in overt, blatant forms is still very common. People with intellectual disabilities and psychiatric disabilities particularly made references to acts of discrimination. In Queensland at one workshop, a couple described how they had been forcibly removed from premises by security staff. Glen Shepherd, from Darwin, quoted examples of discrimination against people with intellectual disabilities in his submission: "Jackie has Down Syndrome and some people teased her at school. Rae said some people think you should not be treated like an adult. Anthony said some people don't get enough pay in what they do at work." At one of the Perth workshops, an incident was described where a football coach had not allowed some men with hearing impairments to play in the Grand Final side, although they had been part of the team all season. Another case was quoted where a person with specific learning disabilities 'but otherwise highly articulate' had been charged by a bank because the bank had to fill out a form for him to withdraw money from his own account.  5.3 Indirect Many participants expressed views that indirect or systemic discrimination should be covered by the Legislation. John Nothdurft, the consultant for Queensland and NSW, quoted from the Brisbane workshops saying: "All agreed that indirect discrimination should be definitely covered and many believed that this constitutes a 'growth area' in anti-discrimination law." In the submission from J E Southwell of Victoria, it is stated: "the Legislation should include means of outlawing practices which present utilities can use to prevent the employment of disabled people. For example, to obtain a position as a tram driver one must be a tram conductor first. To be a tram conductor one must have good oral communication skills, hence people with speech difficulties cannot become tram drivers, although motor skills needed for control of a tram are not related to speech skills." 5.4 Comparability The Discussion Paper highlights the difficulty with the area of direct comparability: "It needs to be recognised that discrimination on the grounds of disability raises a different set of threshold and practical issues compared to discrimination on the ground of sex, and so it may be more appropriate to explore new avenues of definition. There may be difficulties using the existing models of legislation which require that persons be in the same or similar (not materially different) circumstances. These difficulties are particularly relevant given the range of-disabilities to be covered." Many workshop participants stated that the Legislation should be based on the right of fair treatment rather than the need to make comparisons with others. There was general agreement that the model of comparability does not sit easily in the disability arena and there was considerable support for the definition from the Americans with Disabilities Act 1990 in this regard. One group from Queensland stated in the workshops that: "Bearing in mind the problems with a model of comparability that has arisen in States like NSW, it would seem there is much merit in the formulation used in the United States Act." 5.5 Conclusion Based on the views expressed by the participants, there are some clear needs established for the definition of discrimination: that it include direct and indirect discrimination, including systemic discrimination, and that the definition should be written based on a statement of rights to fair treatment, rather than comparability with others. that the definition should include a provision similar to Section 5 of the WA Equal Opportunity Act (1984) regarding an del dune for one or more reasons. that proof of the formation of an intention to discriminate should not be required. It was felt that issues raised by different ranges and types of disabilities made the issue much more complex than that of gender discrimination. CHAPTER 6 AREAS OF COVERAGE 6.1 Overview The Discussion Paper put the position that this Legislation could cover employment and employment-related activities, such as trade union membership, superannuation, training, and activities of employment agencies only, or that it could cover the wider areas based on the model of the Sex Discrimination Act. This would mean that it would cover discrimination in employment, education, provision of goods, services and facilities, accommodation, land, clubs, the administration of Commonwealth laws and programs, and application forms. Almost unanimously the participants and people and organisations who lodged submissions stated that the second option of employment and all of these areas should be covered, as well as additional areas which are outlined later in this report. 6.2 Employment Employment was one area where participants felt they were discriminated in all facets. They stated they experienced discrimination in the advertisements for positions, the application forms in relation to vacancies; and if they gained employment they experienced discrimination by their employers and their co-workers. They also stated that: they were not given access to the same training programs as other staff they were paid less money than staff doing equivalent jobs they were treated less favourably if they lodged workers' compensation claims if they had qualifications for jobs, the nature of their disabilities often meant that others were given promotion over them, and they were not entitled to the same benefits in regard to superannuation so that even at the end of their working lives, they continued to experience discrimination in this area. A young woman in Victoria successfully participated in work experience with the Army. On completion of her schooling, she applied for a position with the Army, passed all of the required tests but was denied recruitment due to her controlled episodic asthma condition. In their submission the Asthma Foundation of Victoria stated that where people with asthma disclose this when applying for positions with the Armed Services, they were denied recruitment. However, if this information was withheld, many were recruited and: "the frustration is heightened when some Services publicises some of the extraordinary physical feats attained by their employees who have asthma and who obviously did not declare it at recruitment." People with intellectual disabilities repeatedly stated that they experienced significant discrimination and this included marginalisation in sheltered workshops where they were doing the same or similar tasks to people in open employment. At the workshops in Brisbane, it was stated that in paid employment it was important to recognise the need for opportunities for advancement. The participants stated that it is not sufficient to recruit people and to then keep them at base level. They also expressed the need for voluntary workers to be covered. Many people with disabilities were working as volunteers and this work is not recognised. They expressed the view that they came away from this voluntary work with nothing at the end, no recognition of their skills, and no references. 6.3 Trade Union Membership Many participants stated that they had not been able to join trade unions. Where trade union membership was mentioned, the majority of people stated that they wished to have the opportunity to join the union of their choice. 6.4 Education Education was an area which was mentioned continually in workshops as one in which people with disabilities had been denied full access in the past. Michael Stone from Tasmania stated in his submission: "that people with disabilities have missed out on basic education because of discrimination." The ACT Downe Syndrome Association in its submission stated: "that the issue of primary concern to the Association at the present time is the lack integration opportunities available in the ACT education system to children with an intellectual impairment. Any parent who chooses the integration option for their child faces a constant battle with the Department of Education." In the submission from the Aboriginal and Torres Strait Islanders Commission, it is stated that: "the special needs of the Aboriginal and Torres Strait Islander community have not been adequately met by mainstream services." and went on to state: "the failure of mainstream services to take into account cultural factors in service delivery, the principles of access and equity and the geographic isolation of this group has led to Aboriginal and Torres Strait Islander people emerging as the most disadvantaged group in Australia, particular in areas such as education. Many Aboriginal and Torres Strait Islander people have low levels of access to higher levels of formal education and a low level of educational achievement and job related skills." In the submission from Alstonville High School, NSW, 54 interested staff submitted that learning disability or neurological impairment should be included in the definition of disability and that the Commonwealth should make provision for disabled students, including the learning disabled. SPELD Queensland stated: "the key issues are that the specific learning difficulty affected person is indistinguishable in appearance or behaviour from 'ordinary' people, but has this form of learning problem which if not supported, leads usually to poor self esteem, poor literacy/numeracy skills, and therefore to an increased degree of 'invisibility'." They go on to say that students are labelled as lazy and lacking in concentration. The Dyslexia Research Foundation of Australia from WA stated: "it is essential that any legislation ensures the right of persons with disabilities to an appropriate education. Lack of existing provisions and/or services should not be an acceptable reason for governments to avoid their responsibilities to provide adequately for all persons who require additional support. At present parents of specific learning disabled children are forced to seek assistance privately (if they can afford it) because these children are not catered for adequately in government services." 6.5 Goods, Services and Facilities All consultants recorded the view of participants throughout Australia that people with disabilities were often denied access to goods, services and facilities. Many participants told stories of shop owners who consistently provided them with inferior services or no services. People particularly mentioned entertainment venues and sporting organisations as being areas of concern. One participant in Queensland stated that as a person with a vision impairment, they had tried to obtain service from a government organisation related to disability awareness and development. When they asked for material in a format that they could read, they were told to go to the public library and use the optical character recognition scanner. When they explained that they had difficulty in accessing the library and that the magazine concerned was not produced for such translation, they were advised to use a volunteer service to read the magazine for them. In Tasmania some workshop participants described the lack of services and facilities as poor and stated that this, coupled with isolation, meant family hardship when people with disabilities were required to travel interstate to obtain services. 6.6 Accommodation Many participants expressed difficulties in obtaining rental accommodation in the community. Where accommodation was provided by organisations working with people with disabilities, participants were often denied the right to choose where they live or to have room to themselves. Many organisations providing institutional care for people with disabilities were stated to have policies which precluded them from having privacy through the lack of locks on doors and through staff members entering their rooms without knocking. Some participants stated that in community housing ..where carers were employed, the house became not a home but a workplace. As such, the workplace carers then had control of the people who lived there. A participant from Sydney stated that extra costs involved in modifying a house for his special needs meant that he was unable to move out of institutionalised care and into the community. Living in an institution gave him little control or privacy and as a consequence, he used his accommodation not as a home but only as a place to sleep. Many examples were given where organisations running community homes were denied zoning permission by local Councils due to complaints of other residents in the area and participants argued that such Local Government services should be specifically covered by the Legislation. Organisations which provided services for people with disabilities often had difficulty in obtaining office accommodation for their service. This was particularly the case for organisations working with people with AIDS, intellectual or psychiatric impairment. 6.7 Land and Housing There is some funding available under the Commonwealth/ State Housing Agreement for housing for people with disabilities. However participants stated that it was insufficient to meet the demand for people with disabilities to live in the community, that they had difficulty with the organisations who administered these programs, and that they experience difficulties in obtaining the funding to modify new or existing homes to meet the needs created by their disabilities. Participants stated that this area should be included, particularly in more dense living situations where coresidents had control of who is permitted to purchase and live in the development (eg company title units). 6.8 Clubs The membership of clubs or the right to enter clubs was an issue that was raised repeatedly throughout the consultations. People with intellectual impairments and those using wheelchairs cited many examples of being refused admission to night or social clubs as they did not 'fit the image' of the club to which they wished to gain access. Sporting clubs were reported to often deny membership to people with disabilities and where membership was provided, it was often provided on a conditional basis, or they were precluded from entering activities that the club conducted due to their disabilities. It was stated that when people with disabilities were offered access to clubs, it was often on the basis that they should come on a special night, which was usually during the week when not many other club members were present. People using wheelchairs or other mobility devices were often denied access to clubs on safety grounds. They quoted examples where they were told they would create a hazard should a fire break out in the club. 6.9 Access and Transport Access and transport were areas of significant concern to the majority of people who attended consultations and was the subject of many submissions. A majority of participants expressed the view that there should be some National Standard for physical access to buildings and this should be documented in Legislation and enforced. People with disabilities referred to building codes which stated that access must be given through the main door, or any other door. This meant that many buildings provided rear access to people with disabilities, which often involved going through kitchens, back corridors, staff workrooms or storerooms. Repeated examples were given where accessible toilets were non-existent, were located down corridors too narrow for access by a wheelchair, where steps were placed in front of accessible toilets, where accessible toilets were locked and the key needed to be obtained from a caretaker or office worker, and where the doorways to accessible toilets were too narrow to allow people with wheelchairs to enter the facility. People using other mobility devices such as scooters, often found that toilets which were accessible to people in wheelchairs were not accessible to them. For people with other mobility disabilities, access to buildings, programs or workplaces were denied by the lack of suitable support material, for example, the lack of facilities for people with sensory impairment often meant the inability to use a service or the reduced enjoyment of that service. Examples quoted included the lack of supertext on television programs, audio loops in theatres, and a lack of material in alternative formats for people with vision impairment. Many workshops reported that the Legislation should incorporate a Statement of Principles outlining peoples' access to equal opportunities in the area of access and transport. People reported that their lack of access to programs, services, facilities, public places and transport often provided a greater limitation to their enjoyment of an acceptable life-style than the effects of their actual disability. Participants stated that the requirements to provide access should cover private and public sector organisations. There was a need for increased community awareness of these issues which should be achieved through community education. Transport provided the subject for vigorous debate and it was stated that the whole transport system Australia-wide needs to encompass changes to ensure that both public and private transport is accessible to people with disabilities. Specific issues raised included: the expense of using taxis the limited number of vouchers provided (where these were provided) the lack of accessible taxis in some States the total inability of some people to use public transport the use of disabled persons seats on public transport paid only lip service to real needs there should be a co-ordinated program to ensure that all buses and trains are accessible, and that future planning for all buses and trains throughout Australia should ensure access to people with disabilities. It was mentioned that some States are currently planning for the replacement of rolling stocks, railway stations, or establishing new electric -train services. When organisations representing people with disabilities approached the instrumentalities involved, they were advised that as there was no current disability legislation, they could not be said to be discriminating against people with disabilities. When the people with disabilities pointed out that legislation was proposed in this area, and that they may well be required to make such transport accessible after it had been put into place, they were informed that it could be claimed by the organisation as constituting undue hardship and they could seek exemption from any disability discrimination legislation, should such exemption be provided. It was a strongly held view of the majority of the participants that access to facilities, programs and transport should be a right of all people with disabilities, that the needs of people with disabilities should be taken into account when planning major public transport facilities, that the Legislation should have a standard code of access which was specific, National, and enforceable. 6.10 Commonwealth Programs Participants expressed the view that Commonwealth programs or services often precluded people with a disability from those programs or services. Comments made were that it was often in Commonwealth programs that people experienced most discrimination, either in the provision of services or in the employment of people with disabilities. The area of Commonwealth/State housing agreements was repeatedly mentioned as was the delivery of services of the Departments of Social Security, Employment, Education and Training, and Health, Housing and Community Services. Participants stated that if the Commonwealth expected general community support for this Legislation then it would need to lead by example. 6.11 Application Forms Many participants expressed the view that application forms often requested information which was used in a discriminatory way to treat people with disabilities less fairly than others. This was particularly the case in employment but also extended to education, housing, superannuation and life insurance, access to Commonwealth programs and the membership of clubs or other sporting and recreational bodies. The participants stated that application forms should be covered by the Legislation, and the Legislation should ensure that not only should application forms be non-discriminatory in the questions that are asked but that the information provided on application forms should not be used to discriminate against people with disabilities. It was also stated that this should not be limited to application forms but also to all other forms where information is elicited. 6.12 Areas of Private Life The Discussion Paper covers areas of public life modelled on those outlined in the Sex Discrimination Act. However the majority of participants stated that it was in areas of private life that many people with disabilities faced the harshest discrimination. Due the nature of people's disabilities and the way in which services have been developed in the community, many people felt that their private life is under the control of an organisation which is designed to provide services for people with disabilities. This is particularly the case where housing is provided in an institutionalised or community home. It was a strongly held view of many participants that a Statement of Rights should be included in this Legislation and should cover such areas as the right to privacy, the right to have and maintain personal relationships, the right to determine one's own sexuality, the right to operate one's own bank account, the right to choose one's religion, the right to freedom of cultural expression, and the right to freedom from harassment. Participants felt that they should have equal opportunity to enjoy their private lives in the same way as people without disabilities. However, due to the history related to some issues regarding disabilities, this was not the case. For example, people living in institutions provided by religious organisations stated that they were not allowed to have sexual relations in the privacy of their own home as this was precluded by the rules of the organisation where they lived. Many people stated that they were advised that they cannot have locks on their doors due to fire safety regulations. Others commented that: "At present in government and non-government services, people live in houses with six people with disabilities. People do not choose who they live with, don't choose their care workers and other service providers, don't choose where they live, live in isolation in institutions, and even in community houses. Homes became work places and workers have control. This must cease." In the submission from Villamanta Legal Service, Victoria, it was stated: "Failure of a specialised service to meet the needs of people with disabilities to a standard considered acceptable in the general community could be, and should be, considered discrimination. For example, some accommodation services solely meeting the needs of people with a specific disability do not provide individual bedrooms or do not provide residents with any choice as to whom they live with. These rights (among others) are taken for granted by people without disabilities." It was reported that community homes provided by organisations for people with disabilities were often used as examples of how progressive the organisation was in regard to the provision of services. This meant that groups of visitors would be taken through the community homes with the permission of the workers at these homes, but without the permission of the people who lived there. There were other examples of discrimination in private lives and many of these are contained in the submissions. It can be concluded that people with disabilities feel that their situation is different in regard to discrimination to that experienced by people faced with race or gender discrimination. Therefore any disability discrimination legislation should include areas of private life, where services are provided by an organisation or group other than the person's immediate family. Another topic covered was the provision of medical services. Participants were of the view that they should be able to have access to their own medical records. They also felt that they were discriminated against by the carrying out of medical procedures without their consent. It was argued that where the person with a disability could not consent themselves, such consent should be provided by guardianship boards or similar organisations rather than by doctors or parents. 6.13 Conclusion It can be concluded from the consultations and from the submissions since received, that people with disabilities feel very strongly that as many areas of public life as possible should be covered by this Legislation, that some areas of private life should be covered, and that legislation should be drafted to ensure that people with disabilities have equal opportunities to experience quality of life similar to people without disabilities. It was generally felt that the scope of areas subject to the operation of any Disability DiscrimindLion Legislation should be as broad as possible.  CHAPTER 7 REASONABLE AC COMMODAT I ON 7.1 Overview The concept of 'reasonable accommodation' was one which was discussed at the consultations with the balancing aspect of undue hardship and the responsibility of onus of proof being considered by the participants. This chapter examines the responses to the definition quoted in the Discussion Paper and the views of people as stated during the consultations. 7.2 Definition The Discussion Paper states that: "Ensuring equal treatment in practice for people for disabilities in many situations requires some accommodation by the other paLty (eg, an employer or person offering services). This may include, in different situations, modification of a premises to allow access or modification to equipment or practices. Existing antidiscrimination laws in Australia -and overseas use the -concept of 'reasonable accommodation'. One model of this is provided by the Americans with Disabilities Act 1990. This Act includes two different sets of considerations in this area: making existing facilities accessible and usable, and job restructuring and the acquisition or modification of equipment and devices. Requirements to provide reasonable accommodation are limited by reference to the concept of 'undue hardship', which is defined to require 'significant difficulty or expense', and also to relate to other factors including the nature and cost of the accommodation, the overall financial resources of the facility or employer and the type of operation concerned." The majority of participants accepted the definition as outlined in the Discussion Paper, but expressed concerns regarding onus of proof and the concept of undue hardship. In the submission from the Spastic Welfare Association of WA, Ruth Shean states: "1 feel very strongly about onus of proof having spent many years dealing with big business, who were not required to show onus of proof when misdemeanours occurred, I saw how difficult it was for the 'little guy' to ever prove this misdemeanour. Inevitably, it is the more powerful organisations and structures which are the more enabled. This position means that the less powerful and less enabled are never able to sustain their case against such odds. Having said that, it is important to consider the problems of 'ratbaggery' in which institution and corporation bashing becomes a sport of a few people with little else to do. If onus of proof is to be reversed, then it would be essential to specify some way in which the bonafides of the complainant could be established." 7.3 Onus of Proof During the workshops it was recognised that the person with a disability was faced with a major task in making out their complaint. On this basis participants felt that the onus of proof for demonstrating undue hardship should fall with the employer or service provider. Given this situation, it was felt by many that allowances for time to make changes should be given to the service provider. Participants felt that tax incentives could be used to ensure that people make reasonable accommodation to allow access to facilities for people with disabilities. It was the consensus of participants that there must be forward planning to allow reasonable accommodation to give access to people with disabilities in all aspects of life. It was felt by many people that undue hardship should be tied to the size of the organisation involved and that even small organisations such as local shops should not be allowed to use undue hardship as a loophole to avoid giving access to people with disabilities. It was stated that it was often the small organisations like the corner store that had the most direct impact on people's enjoyment of their everyday life. Participants believed that reasonable accommodation should extend to the private and public sector, that the decisions should be arrived at in a conciliatory manner and that input should be taken from both the consumer and the provider. In the submission from Disabled Peoples International (Australia), it is stated: "that reasonable accommodation will need to be balanced against undue hardship. Obviously an employer with limited resources cannot be expected to outlay funds to provide access or special equipment to the same extent as a large organisation. The Americans with Disabilities Act model is outlined in the Discussion Paper with two different sets of consideration: making existing facilities accessible and usable, and job restructuring and the acquisition or modification of equipment or devices is logical. The concept of 'undue hardship' being defined to require 'significant difficulty or expense' relating to other factors such as cost of accommodation, overall financial resources of the facility or employer and the type of operation, also seems adequate. However, if the American model is adopted, it may be necessary to give attention to defining 'significant difficulty or expense'. Just as there must be care that the definition of disability does not exclude anybody, so must there be care that the criterion for undue hardship does not include everybody, thereby negating the Legislation." 7.4 Compliance Timetable It was the consensus of the participants that reasonable accommodation should be made and that compliance with the Disability Discrimination Legislation should be phased in over a reasonable period of time. It was stated that this reasonable period should be included in the Legislation. Many examples were given and the following included in the submission from Karen Starling of Queensland is one which summarises the views of many people: "1. All activities of local and State Governments from July 1992. Some forms of public transportation to be accessible, including all orders for purchases, and leases of new vehicles, to be for accessible vehicles from July 1992, new stations after January 1992, and key stations fitted from January 1993. Employment discrimination by employers with 25 or more employees from July 1992. Employment discrimination by employers with 15 or more employees from July 1994. Phase-in dates for business and service providers in public accommodation, and new constructions of public accommodation and new constructions of commercial facilities, to be accessible by January 1994, and alternatives by July 1993. By January 1993, telecommunications relay services for people with hearing disabilities to operate 24 hours a day." Although this example is not exhaustive it demonstrates an attitude that people with disabilities showed throughout the consultations that they felt reasonable action should and could be met, that it should take place over a reasonable period of time for both the people with disabilities and the service providers, and that it should be a realistic one which actually could be achieved by people being required to make the adjustments. Other participants felt that organisations with less than 15 employees should be covered and other yet again felt that the list should be an explicitly non-comprehensive list of specific examples. 7.5 Conclusion It can be concluded from the public sessions and the submissions received that people with disabilities felt that reasonable accommodation should be made by organisations, that there should be a balancing concept of undue hardship, that the service provider should demonstrate that there is undue hardship, that the service providers should be required to show that they have made some attempts at reasonable accommodation, that a non-comprehensive list of specific examples should be included within the body of the Legislation, and that where possible, a conciliatory approach should be used in resolving these issues. CHAPTER 8 HARASSMENT 8.1 Overview This chapter deals with harassment. The Discussion Paper stated that one form of discrimination which had been raised frequently in the research leading to the proposal for Disability Discrimination Legislation was that of harassment, particularly in respect to co-workers and public transport passengers. 8.2 Types of Harassment It was reported by participants that they experienced harassment in the form of verbal abuse, hectoring, the use of gestures or signs through to physical abuse, the use of behaviour controlling drugs and deprivation of rights. 8.3 Workplace Many people with disabilities reported harassment by co-workers, supervisors, employers and from the clients where they worked. People with intellectual disabilities particularly, reported this behaviour as being directed towards them. In the submission from the Spastic Welfare Association of WA it is stated that - "Concerns with the existing State Legislation are that harassment is only deemed harassment when it is from a person in a position of power to one in a position of lesser power. In other words it is an offence for a boss to harass an employee, but not the other way round. This has unfortunate implications for people with disabilities who employ their own staff. In other words, they can be deemed to have unlawfully harassed their staff, but staff cannot be deemed to have unlawfully harassed their employer. I think this is an anomaly and 'power and position' should not come into it." The consensus was that there was a need to clearly cover harassment in the work-setting based on disability. many believed that this was a problem that has not received adequate attention. It was stated that the general community believes that there is an attitude of charity or good-will towards people with disabilities and that consequently offensive or harassing behaviour doesn't occur. This was stated not to be the case. There were also several women who reported experiencing acts of sexual harassment and they said that the men involved saw them as easy targets and unlikely to make "a fuss".  8.4 Education The consensus of people with disabilities who attended the workshop was that as they moved into main stream education and employment they experienced more harassment from a few insensitive people. In the area of education they reported being teased at school as well as at technical and further education colleges and at university. In the submission from the Australian National University it was stated that - "another limitation of the Sex Discrimination Act is that it is silent on issues of harassment of students by other students and of staff by students. In tertiary institutions most staff and students are above majority age. I am aware of incidents of student - staff and student - student harassment and believe this to be unacceptable in an adult population. Therefore I would recommend that disability legislation specifically proscribes such behaviour both in employment and tertiary education". This raises the issue of the harassment of people with disabilities by minors. The Sex Discrimination Act does not specifically state that the harasser must be of majority age. This matter will need to be given careful consideration in the formulation of legislation as much harassment appears to be perpetrated by teenagers. This is reported tobe the case, particularly in high schools, and in the areas of public transport. 8.5 Place of Residence People attending the consultations reported that people living in community or institutionalised homes frequently experienced harassment by client and direct care workers. This ranges from verbal abuse, deprivation of freedom and rights and the abuse of behaviour controlling drugs to outright rape and assault. Submissions were received from people who had experienced these situations but did not wish to have their personal particulars disclosed. 8.6 Public Places Many people reported being verbally harassed or having gestures or signs made to them whilst using public transport. This was the case particularly with people with intellectual disability. In one submission a person with a head injury said that - "People who laugh at the disabled people who look very funny with their eyes, voices, walking, crippled with faces and mind and it must be very cruel to them and the normal people must stop laughing at them." Many people with disabilities told stories of harassment as far as shop owners were concerned including being forcibly ejected from shop premises. 8.7 Vilification Many participants and people who wrote submissions stated that there needed for the Legislation to address disability vilification. "There seems to be an understanding that disabled people living in the community are fair game to be harassed, assaulted, victimised or bashed. This pattern of behaviour should not be allowed to continue. The limits of tolerance have been exceeded and there needs to be shown in the Legislation that this type of behaviour will not be tolerated, to give confidence back to disabled people so that they can live in the community with some degree of safety". said Karen Starling, of Queensland, in her submission. John Nothdurft stated that - "Several people indicated that vilification based on race should not be special or unique. This unfortunate practice seems to have occurred, particularly in both Brisbane and Rockhampton where community housing, particularly for people with intellectual disability, has resulted in orchestrated and manipulative campaigns by community residents to force such proposals from being implemented. Practices such as bill-posting, advertisements in local newspapers and graffiti writing were reported". Many submissions were received like that from the Disability Complaints Service in New South Wales which stated - "The Act must include direct and indirect cases of discrimination including harassment and vilification". 8.8 Conclusion Reports of harassment came from all over Australia and from people with a number of different disabilities which were said to have occurred in the areas of employment, education, the provision of goods, services and facilities including public transport and in the provision of care in places of residence. It would appear that any Disability Discrimination Legislation would need to consider the issues of harassment and vilification and their inclusion within the proposed Legislation. CHAPTER 9 EXCEPTIONS 9.1 Overview The Discussion Paper stated that all anti-discrimination legislation has a series of exceptions and disability legislation encompasses the concept of discrimination which is permitted because it is "reasonable" in the circumstances of the disability. This then gives a balance between the interests of the person with the disability and the interests of other parties. Further detail in this area is contained in Sections 60-64 in the Discussion Paper. This chapter deals with exceptions related to superannuation, insurance, charitable benefits and affirmative action. 9.2 Superannuation It was the majority view of participants that superannuation per se should not be an exception under the Act. In the submission from Mike Taggart from South Australia he states - "I oppose the exemption of superannuation from the proposed Commonwealth Legislation to prevent discrimination on the grounds of disability. Disability, however severe in appearance is no basis for determining access to superannuation once the person is in the workforce. Once a person is employed there should be full superannuation entitlements regardless of disability. This should also apply in supported (non-award wage) employment. Further, as people with disabilities participate more in employment the community needs to accept that they are part of the normal workforce. They are not to be seen as a high risk group which can be excluded as a category from superannuation schemes. The range of people who will be in the workforce will be wider than in the past. The main issue here is that having a disability provides no guide to impact on a superannuation fund and it should be unlawful to discriminate on this ground. The need for superannuation is urgent as more people with disabilities are earning a wage and saving for their retirement. They would face eligibility difficulties for income support which is available to aged people who have not been in the workforce and they would also have received non of the tax benefits to which contributors of superannuation schemes are entitled. Such an exception from the Legislation will undermine the trend towards normalisation as these employees would have - no tax advantages from saving for retirement; and a correspondingly worse living standard." This view was echoed by many people throughout the consultations. 9.3 Insurance The majority of participants also expressed a view that insurance should not be an exception to the Legislation. People with disabilities should be entitled to have the same benefits and protection of insurance as others and only where there is actuarial data showing higher risk should such insurance cost more or be provided on different terms. Where such data existed providers of insurance should be required to make it available to support their decisions. One example was given where a person with a vision impairment was denied access to a rental property on the first floor of a building. The reason given by the letting agent was that the insurance would not cover her if she fell down the stairs. As this person was physically fit (having competed to Olympic standard in international athletic events) and did not experience dizziness or lack of balance she felt that this was discrimination and was not reasonable in the circumstances. 9.4 Charitable Benefits There was mixed opinion as to whether charitable benefits should be an exception under the Act. Some people felt that there should be no exceptions whatsoever and many others felt that the only exceptions should be for affirmative action programs. However, there was a strong group of opinion which stated that charitable benefits should provide the basis for an exception so that organisations providing services for a specific disability could not be charged with discrimination by a person or a group of people with another disability. 9.5 Affirmative Action Programs The majority of participants in the consultations and people who lodged written submissions concurred to state that affirmative action programs should be a legitimate exception in any Disability Discrimination Legislation. In the submission from the National Federation of Blind Citizens of Australia it was stated - "We fully support the concept of the Legislation allowing for affirmative action programs and other measures specifically implemented for the purpose of promoting the welfare of people with disabilities in general or a specific class thereof. Such affirmative action measures are in accordance with both the spirit and intent of the Legislation". 9.6 Conclusion It was the general consensus of the people who attended the consultations that exceptions and exemptions from the operation of the proposed Disability Discrimination Legislation should be carefully limited to prevent the Legislation from becoming meaningless. It was felt that any exemption from the operation of the Legislation on the grounds that compliance would require expenditure, or difficulty beyond what would be considered reasonable, should be strictly limited as should health, safety or emergency requirement exceptions. The view was expressed that it would be very easy for such exceptions or exemptions to become a means of by-passing the spirit of the Legislation. People felt that it would be easy to claim that providing goods, services, access to facilities or employment to a person with a disability would require more effort or expense than to a person without a disability. In using the test of reasonableness the general belief was that it must be clearly limited to situations where the effort and expenditure required to meet the needs of people with a disability would be significantly and unreasonably greater than to provide the same services or facilities for a person without a disability. There was a consensus that the burden of proving undue hardship should rest with the person claiming that hardship and that this exception or exemption should apply to other actions. It was also stated during the consultations that discrimination should not be allowed by statutory authority. It was stated that where legislation is discriminatory it should be overridden by the proposed Disability Discrimination Act rather than the other way round. CHAPTER 10 CONCILIATION AND ENFORCEMENT PROCEDURES 10.1 Overview The Discussion Paper examined a range of possible options for redress and enforcement for Disability Discrimination Legislation. These options were examined in detail during the consultations and the view of participants was that a conciliation process should be used. Enforcement should be available in case conciliation was not successful. This chapter examines the conciliation process and the options of courts and tribunals. 10.2 Conciliation Process It was generally agreed that a conciliatory rather than adversarial process was preferred when dealing with complaints of discrimination. People reported that the informality of such processes in preference to adjudication make them generally more accessible, particularly for some people with disabilities. However, concern was expressed that people with disabilities often have less power than the employer or service provider against whom they are lodging a complaint. It was also stated that by having enforcement options, if conciliation did not succeed, the parties often had greater motivation to seek a mutually desirable outcome rather than resorting to court procedures. It was expressed by participants that complaints should be able to be lodged in writing or by other means if the person with the disability was unable to use a written form. It was emphasised that it should be easy for people with disabilities to lodge complaints and that they should be able to have the option of support and education by the administering body of the Legislation when lodging their complaints. It was repeatedly stated that the procedures relating to conciliation, redress and enforcement should be "user friendly", simple, and cheap. In the submission from the Sunraysia mallee Self Help Group support was expressed for the notion of Disability Discrimination Legislation and for the use of a conciliation process in achieving settlements of complaints - "providing there is access and affordability to the courts for people with disabilities if conciliation doesn't work". In the submission from the Villamanta Legal Service of Geelong, Michael D'Argaville writes - "There is a great need to ensure that people with disabilities are adequately assisted to use any complaints process - it would be important for any complaints process to remain as accessible as possible. many tribunals, for example, have a regrettable tendency to become more legalistic and less accessible over the years once they have been established. To avoid this, a number of steps can and should be taken. # An "in-principle" statement in the Legislation setting up any conciliation/adjudication mechanism, requiring it to be prompt, efficient, informal, accessible and cheap. This sort of statement exists for example in the Legislation setting up the Social Security Appeals Tribunal. # Parents and legal guardians, and advocacy groups, should be entitled to use the complaints process on behalf of people with a disability. # There should be no fee to apply for redress. Costs should not be available against somebody who complains of discrimination. The potential for costs to discourage genuine complaints is greater than the likelihood that the absence of costs will lead to a large number of unjustified and vexatious complaints. # People with disabilities should be entitled to advocates through the complaints process. This should include the ability of an advocate or third person to lodge a complaint on behalf of a person with a disability, with the consent of that person or (where they do not have the capacity to make such decisions on such matters) the consent of the person authorised to make such decisions. # The process for dealing with complaints should be flexible enough to accommodate group actions # The adjudicative body should have the power to instigate investigations into potentially discriminatory practices of its own motion. # Any person using or seeking to use the complaints process, or assisting the conciliation/adjudication body in any way (e.g. giving evidence) should be protected against retaliation. # Redress available under the complaints procedure should include monetary compensation, and the power to order action to overcome discrimination. # Complainants should have the right to choose whether to seek conciliation or adjudication of their complaints. if Resources will be needed to ensure wide familiarity with the Legislation and the avenues of redress against discrimination. The body entrusted with the adjudicative/conciliation function(s) should also have community education as an important part of its role." 10.3 Enforcement Procedures The Discussion Paper explains the procedures which currently operate under the Sex and Racial Discrimination Acts if the conciliation process is unsuccessful. These procedures provide for a person lodging a complaint to have the matter heard by the Human Rights and Equal Opportunity Commission sitting as a Tribunal. This Tribunal provides an informal, quick and cheap method of resolving the complaint, but the Tribunal's determination is not binding. If the employer or service ptovider will not comply with the determination it is necessary for the person lodging the complaint to go through the whole hearing process again in a Federal Court. The second option, proposed by the Discussion Paper, is for complaints which cannot be conciliated to be referred directly to the Federal Court. This removes the need for two hearings. It also means that the person lodging the complaint must go through a far more formal process where the rules relating to evidence are more strict and there is potential for large legal costs. The third option canvassed was to provide the Tribunal with some of the powers of the Federal Court. Whilst this option would resolve the problems of expense, formality and proof there could be major constitutional difficulties in its implementation. 10.4 Current Procedures in Commonwealth Legislation. Many people felt that the current procedures with existing Commonwealth Legislation, particularly concerning the Human Rights and Equal Opportunity Commission Act were lacking in "teeth" or affordable ways of enforcing the outcomes of conciliation. It was repeatedly expressed that the need for the person lodging the complaint to have the declaration of a tribunal enforced, as is the case in the Sex and Racial Discrimination Acts, by a Federal Court, was onerous. 10.5 Direct Referral to Court Direct referral to the courts was considered by the participants to the consultation process. This was not a preferred option as people felt the courts were inaccessible to many people with disabilities due to the way in which hearings are held or in the perceptions that people have about courts and court procedures. Many people stated that as people with disabilities tended to have low incomes they would not be able to afford to take their complaints through a court system. 10.6 Vesting Tribunals With Court Powers It was the view of the majority of participants, and of the people lodging submissions, that the preferred option was a conciliation process supported by a tribunal which had some court powers so that it could make enforceable orders. Comments were made, such as those given at a workshop in Alice Springs, when considering the conciliation and enforcement procedures - "There should be a tribunal with the powers of the court following a complaint procedure. The process should be quick and simple with advocacy available at a local level." Some people felt that lawyers should be excluded altogether due to the language used by people in the legal profession and to keep the costs down. The process should be appropriate to the needs of the participants and the tribunal should be familiar with the special needs of people in isolated areas. In the Sydney consultations there was uniform lobbying for the need to have a tribunal or board which has the power of a court to hear proceedings. There was also support for such a tribunal or board to genuinely be run on the basis of an inquisitorial hearing and not to simply fall back on traditional adversarial methods. The Discussion Paper raises the question as to whether there is a constitutional basis to vesting tribunals with the powers of the courts. In one submission it was stated - "The Discussion Paper raises (at least by implication) the issue of Constitutional limitations upon the ability of a conciliation/adjudication body. Long standing decisions of the High Court of Australia and of the Privy Council have held that the Courts that the Commonwealth could establish to adjudicate in Commonwealth matters were limited to those which were provided for in Chapter III of the Constitution and thus could not exercise any non-judicial powers. Since the judgements in this case were handed out in the 1950's there has been considerable change in the law and policy and it is quite likely that the concept of separation of powers would not be applied as rigorously to prevent the same body having both administrative and judicial functions. The complaints procedure should not be constrained by an unduly cautious attitude towards this judgement and presumed restriction; it should include a body able to make determinations as well as to conciliate. These should ideally be part of the same body; however, if it is considered to likely be unconstitutional then at the very least the Federal Court should be granted jurisdiction to make determinations alongside a body such as the HREOC which would have the conciliation and community education research functions." It was the view of the participants that even if it was difficult to vest tribunals with court powers then every effort should be made to achieve this because it was clearly what was desired by people with disabilities. 10.7 Advocacy The concept of advocacy was one which was repeated throughout all consultations and almost all submissions. It was repeatedly stated that people should be able to appoint an advocate to act for them or with them. In one workshop session for people with intellectual disabilities in Perth the group made it clear that they should be able to ask a friend or advocacy officer to make the complaint on their behalf, and if it was necessary to make it in writing, then they should have assistance in this process. They also felt the place where they went to lodge the complaint should be one where they felt comfortable. They stressed that whatever process was chosen that people should be taught how to use it, that they should be able to talk about their difficulties with the conciliator, and they thought it was very important that there should be a person to whom they could go to first. It was reported by many that the ability to use an advocate would help to redress some of the power imbalances that people with disabilities perceived to be in place when dealing with an employer or service provider. In the submission of the Australian Federation of AIDS Organisations it was written - "It is of particular importance for people with HIV related illnesses or AIDS to have the option of representation by a body such as the AIDS Council or a Trade Union". This view was repeated by many consumer organisations. Concerns were raised by some people lodging submissions that - "The difficulty arises once again with people with high support needs where advocacy services are limited individuals are forced to have their parents as advocates or no advocates at all. The advocate who chooses to be an advocate on behalf of the individual is defeating the whole purpose of the individual's freedom of choice". 10.8 Class Actions The participants in the consultations felt that class actions were an essential part of this proposed legislation. This was particularly the case where people, due to the nature of their disability, were lacking in power to proceed with the matter on their own behalf or where due to illness they were unable to continue with their complaint. This was the view put forward by the Australian Federation of AIDS Organisations - "For complaints regarding racial discrimination provision for such representation exists under the Racial Discrimination Act 1975 Section 22ID. Under this provision a complaint can be made by a trade union in its own right with respect to discrimination faced by one or more members. The action can be pursued by the trade union even in the event of death of the member or members. The Australian Federation of AIDS Organisations recommends that a similar provision be incorporated in this legislation". In the submission from the United Trades & Labour Council of South Australia class actions are targeted as activities which will lead to discrimination in the future. It is stated - "The Legislation needs to stem these forward planning activities which build future discrimination into the workforce. For example the decision by an employer to modify a building in 1991 has an impact on the accessibility of those premises for a person in a wheelchair in 1993. Once the building has been modified and still has no ramps then an employer can say that a person in a wheelchair cannot work under those terms because there is no access and special provision for this would be an unreasonable expense, but this modification could have been incorporated into building changes at a much lower cost prior to the situation arising where a person in a wheelchair needed access. The law could provide the means to prevent discrimination in such cases by enabling a complaint to be initiated by a tribunal or a complaint lodged by any person on the grounds that corporate plans, building proposals, staff training provisions and other issues would deny future access and equal opportunity". 10.9 Conclusion The consensus of the consultation participants was that: a conciliation model should be adopted with the preferred option for enforcement to be the use of a tribunal with the powers of a court; that people lodging complaints could use an advocate to assist them or lodge the complaint on their behalf; that class actions should be allowed under the Legislation so that organisations could lodge complaints on behalf of their members; and that overall the whole process should use simplicity, clarity and low cost so that it was as accessible as possible for people with disabilities. The participants felt that it was important to educate people with disabilities on how to use the process and that the education should take place by way of advertising schemes and the provision of Easy-to-Read leaflets and other measures designed to empower individuals so they felt comfortable in using the conciliation and enforcement process. Participants continually expressed the view that lawyers and courts were intimidating and they expressed their concerns of the high cost associated with the use of lawyers. The view was expressed that if the Legislation was formulated in such a way that enforcement processes involved courts and legal advisors then provision should be made within the Legislation for the costs of this action to be met by the administering body. This is summed up in one submission where it was stated - "It should be noted that many people with disabilities are not used to asserting themselves. It will therefore be important that there be access to advocacy and that procedures relating to consultation redress and enforcement be 'user friendly, simple and cheap'. It is recommended that the Legislation should also contain provisions for financial assistance for legal costs." CHAPTER 11 OTHER ISSUES 11.1 Overview The Discussion Paper raised a number of issues which were discussed in detail. There were however, several issues which were not covered in the Discussion Paper but which were raised consistently throughout the consultations. The issues regarding advocacy and class actions were such matters and these have been discussed in earlier chapters. This chapter will deal with community education, the affect on other legislation, victimisation and taxation. 11.2 Community Education Focus In many existing State and Commonwealth Anti-Discrimination Acts there is specific mention of community education as being of significant importance in the effective administration of those acts. People who attended the consultations repeatedly stated the need for community education. "the Legislation should also require that steps be taken to change community attitudes to and viewpoints on disabled people. There is no positive presentation of people with physical disabilities. There would need to be substantial promotion of the Legislation within Australian Society if it is to be effective" was how J E Southwell of Victoria wrote of the matter in submission to the Committee. In the submission from Disabled Peoples' International (Australia) it was stated - "It is believed that an education program will be desirable to make people aware of the Legislation. The education could be directed at employers, trade unions, three levels of government and the general public. Importantly, it should also be directed specifically at people with disabilities to ensure that they are made aware of their rights and of redress and enforcement procedures". In a workshop attended by people with intellectual disability in Perth the group expressed the view that they say the proposed Disability Discrimination Act as a means of giving people with disability "a fair go". They were all supportive of the concept of such legislation. They made the point that there are some people in the community "who do not want to know about disability" and with the development of such legislation they "should know about it now". There was support stated for community education about people with disabilities in general, the education of people with disabilities on their rights and how to use the proposed Legislation when it is proclaimed. 11.3 Effect On Other Legislation A recurring theme of the workshops and the submissions received was the effect of the proposed Disability Discrimination Legislation on other Acts. The issue was expressed in two ways: the need for the Legislation to work in a complementary way with other State and Territory Discrimination Acts, and the need for this Legislation to override other Acts where they affect people with disabilities. 11.3.1 Other Discrimination Legislation The consensus of opinion was that people should be given the choice of using either this Act or the State Legislation (where it existed) when lodging complaints. Reference was made to the situation where people can lodge a complaint under the State Act or under the Sex or Racial Discrimination Acts where appropriate and the person lodging the complaint has this choice. It was stated that this was needed in Disability Discrimination Legislation as well. 11.3.2 Precedence Over Other Legislation People expressed the view that the proposed legislation should take precedence over existing Acts should such Acts discriminate against people with disabilities. It was expressed that the Legislation should proscribe discriminatory activities by the Commonwealth or the Administration of a Territory or a body or authority established under Commonwealth or Territory Law. In regard to State Legislation, it was stated that the provision of Commonwealth grants of financial assistance to States could be made on the condition that the programmes funded with such assistance be implemented under an agreed scheme for the proscription of discrimination on the ground of disability. 11.4 Taxation and Other Incentives The majority of people attending the consultations said that taxation and other incentives could be used to assist organisations to make reasonable accommodation for people with disabilities. "Incentives (through taxation) to businesses would assist in the implementation of the concept of reasonable accommodation" - commented the Consumer Unit of the Spastic Centre of New South Wales in their submission. Another suggestion from the workshops was that employers or service providers could be encouraged to implement non-discriminatory practices by this being a requirement when tendering for government contracts or providing goods and services to the Commonwealth. Further suggestions included campaigns highlighting organisations which did provide goods, services facilities or employment for people with disabilities. 11.5 Administration of the Legislation Many participants commented that the proposed Disability Discrimination Act should be administered by the Human Rights and Equal Opportunity Commission as are the Sex and Racial Discrimination Acts. Satisfaction was expressed in the way these existing Acts were administered. Particular reference was made to the fact that in most States where legislation exists people could "one stop shop" by going to their local Equal Opportunity Commission and discuss complaints under State or Commonwealth Legislation. 11.6 Victimisation Participants expressed concern that they or their relatives or associates could be victimised as a result of taking or proposing to take action under this legislation. They stated that many people with disabilities were in powerless situations and would not be able to take the risk of making use of this legislation if they were not protected in this way. Provisions similar to those in the Western Australian and New South Wales Acts were supported. 11.7 Conclusion People who attended the consultations raised a number of issues which were not covered by the Discussion Paper but which they felt should be included. These were community education, administration of the Act, victimisation, taxation and other incentives. The participants from all the workshops showed a clear understanding of the problems that they faced and demonstrated a willingness to provide suggestions for workable solutions. Community education, in particular, was considered to be of equal importance as the process of conciliation or other redress options. APPENDIX A RECOMMENDATIONS TO THE DISABILITY ANTIDISCRIMINATION LEGISLATION COMMITTEE FROM THE REPORT ON CONSULTATIONS WITH PEOPLE WITH DISABILITIES CONDUCTED ON BEHALF OF THE DISABILITY ADVISORY COUNCIL OF AUSTRALIA The following recommendations have been compiled by the consultants and are taken from the reports of workshops and the submissions lodged by individuals and organisations in regard to the proposed Disability Discrimination Legislation. This report should be published and made available to the participants, those who lodged submissions, and all other interested parties. After the Draft Bill is prepared, it should be made available to people with disabilities and other interested individuals and organisations inthe community with reasonable time allowed for comments. There should be comprehensive Federal Disability Discrimination Legislation. The proposed Act should be separate legislation and the Commonwealth be seen to be supportive of the rights of people with disabilities. The definition of disability should be clear and easily understood. It  HYPERLINK "http://should.be" \h should.be a general all encompassing definition rather than a prescriptive one and should include past, present and future disabilities, imputed disability and temporary and episodic impairment. Discrimination against relatives and associates, and associated organisations should also be covered. The definition also should be gender neutral and cover discrimination resulting from the use of palliative devices. The definition of discrimination should include direct and indirect discrimination, including systemic discrimination and it should be written based on a statement of rights to fair treatment. Due to the range and types of disabilities, the comparability concept employed in the Sex Discrimination Act is unworkable. That the definition should include a provision similar to Section 5 of the WA Equal Opportunity Act (1984) regarding an act done for one or more reasons. That the proof of the formation of an intention to discriminate should not be required. The Legislation should cover the areas of employment (including advertisements, appointments, promotions, access to training, terms and conditions and trade union membership), education, goods services and facilities,(including Local Government planning and zoning services), accommodation, land and housing, clubs, access (including transport), Commonwealth Programs, application and other forms and areas of private life. Proposed future discrimination should be specifically precluded under the Act. The proposed Act should include the concept of reasonable accommodation, which should be balanced by that of undue hardship. The service provider should demonstrate that undue hardship exists and should be required to show that they had made some attempts at reasonable accommodation. the Legislation should include a non-comprehensive list of specific examples and a conciliatory approach should be used involving both service provider and the person lodging the complaint in the resolution of issues. Any proposed Disability Discrimination Legislation should cover the issues of harassment and vilification in the areas of employment, education, in the provision of goods, services and facilities (including transport), in places of residence and public places. The only exception to the Legislation should be for affirmative action programs. Participants did not want an exception for superannuation and insurance but rather that protection for service providers should be based on actuarial data. There were mixed views on the issue of charitable benefits and in this area no clear recommendation can be made. Health, safety and emergency exceptions should not be included because they could become a means of by-passing the effect and spirit of the Legislation. The Legislation should use a similar conciliation process to the Commonwealth Sex and Racial Discrimination Acts. If conciliation is unsuccessful, people who lodge complaints should be able to obtain enforceable orders from a tribunal. If this is not viable, complaints should be heard by a tribunal prior to referral to a court. Provision should also be made for financial assistance for legal costs incurred by people lodging complaints. Provision should be made for class actions and the use of advocates. The Disability Commissioner should be able to self initiate investigations into areas of discrimination. 11. The Legislation should cover the following issues: community education, administration of the Act, victimisation, taxation and other incentives. Community education, in particular, was considered to be of equal importance as the process of conciliation or other redress options. APPENDIX B 4=We NATIONAL DISABILITY DISCRIMINATION LEGISLATION A DISCUSSION PAPER Prepared by the: Commonwealth Disability Anti-discrimination Legislation Committee PREFACE On 11 June 1991, Brian Howe, the Deputy Prime Minister and Minister Assisting the Prime Minister for Social Justice, and Michael Duffy, the Attorney-General, announced that they were to jointly address the issue of discrimination against people with a disability. They established the Disability Anti-Discrimination Legislation Committee which consists of representatives from the Disability Advisory Council of Australia, the Department of Health, Housing and Community Services, the Attorney-General's Department and the Human Rights and Equal Opportunity Commission. This Issues Paper which has been produced by the Committee is designed to provide further information on the proposals for anti-discrimination legislation on the ground of disability which are being developed. It is to be used as a basis for consultations with the community on the development of anti-discrimination legislation for people with disabilities. Further information on the issues outlined in the paper can be obtained upon request. Submissions made in response to the options canvassed in this paper should be sent by 30 August 1991 to: Disability Anti-Discrimination Legislation Committee C/- Disability Advisory Council of Australia GPO Box 9848 CANBERRA ACT 2601 ANTI-DISCRIMINATION LEGISLATION ON THE GROUND 00 DISABILITY ISSUES PAPER INTRODUCTION The purpose of this paper is to form a focus for discussion and comment on the need for anti-discrimination legislation for people with disabilities. Recent Reforms The Government has committed itself to a number of international instruments on human rights. Some legislative effect has been given to these commitments in relation to the rights of people with disabilities in the Human Rights and Equal Opportunity Commission Act 1986 (although this is limited in a number of respects as outlined later in this paper). The Commonwealth has legislated to provide specific protection against, and enforceable remedies for, discrimination on certain other grounds, in the Racial Discrimination Act 1975 and the Sex Discrimination Act 1984. In August 1990, Brian Howe released a Discussion Paper, National Employment Initiatives for People with Disabilities, which was a report of the Labour and Disability Workforce Consultancy. One recommendation was that there be national, comprehensive legislation to provide enforceable rights in employment and other areas for people with a disability. National consultations on the Discussion Paper were held with a range of people with a disability in late 1990 and these indicated that there was broad and strong support for the passage of such legislation. The Human Rights and Equal Opportunity Commission has also . conducted national consultations, over a number of years, with people with disabilities and organisations representing them, on areas of need for increased protection of human rights for people with disabilities and means by which these needs should be addressed. These consultations have indicated strong support for further Federal legislation to provide enforceable protection against discrimination in a range of areas. These areas include employment and occupation; education and training; accommodation; provision of'goods and services (in particular, transport and . communications); and access to premises and facilities. These consultations have also emphasised the importance of addressing barriers to equal enjoyment of human rights in these areas in a co-ordinated manner. Identified Barriers Consultations and research have identified a number of barriers to equal enjoyment of human rights by people with disabilities in a range of areas of life. They indicate that anti-discrimination legislation is an essential element in removing these barriers. They also indicate that other 3 legislative and programmatic strategies and measures, in addition to anti-discrimination legislation, are required to address these barriers. One particular issue which has been identified is that of discrimination on the ground of disability by employers, potential employers and co-workers. Major Proposal It is proposed that the Commonwealth Government enact national legislation which prohibits discrimination on the ground of disability and which provides rights and avenues for redress for any person with a disability subjected to discrimination. Further Consultations A further series of consultations on the principles and content of the proposed anti-discrimination legislation will be held by the Disability Advisory Council of Australia in co-operation with HREOC. These consultations will be held nationally in mid-July to mid-August 1991. This Issues Paper provides some background information and canvasses some issues, which is intended to serve as the basis for these consultations. For further information about these consultations, contact Bev Whitworth on 008 020103 (toll free). BACKGROUND Is It Anti-discrimination Legislation ? Anti-discrimination legislation promotes equal opportunity and equality of rights by making discrimination (on the grounds, and in the areas, specified) unlawful, and by providing for redress for persons subjected to such discrimination. In general, such legislation provides for civil remedies (such as damages, or an order to take or refrain from certain actions) rather than criminal penalties. A person or organisation who considers that they have been discriminated against makes a COMPLAINT to an independent statutory body which investigates and tries to conciliate the complaint. Under existing Federal legislation, the statutory officer responsible may also institute an investigation. If conciliation is not possible, then there is access to a tribunal or a court for the issues to be resolved. The GROUND of discrimination refers to the characteristic on the basis of which a person is discriminated against. For example, the Racial Discrimination Act makes discrimination on the ground of race unlawful and the Sex Discrimination Act makes discrimination on the ground of sex, marital status and pregnancy unlawful. The proposal being canvassed in this Issues Paper concerns anti-discrimination legislation on the ground of disability. The AREA of discrimination is the type of actions which are covered, for example, employment. Existing Commonwealth Legislation on Disability 4 17. Since January 1990, the Human Rights and Equal Opportunity Commission has had jurisdiction in relation to discrimination in employment on a number of grounds relevant to people with disabilities including: impairment, mental, intellectual or psychiatric disability, physical disability, medical record; or the former imputed existence on these grounds. The Commission also has jurisdiction in relation to acts and practices of Commonwealth authorities, or under Commonwealth law, affecting human rights as recognised in the International Covenant on Civil and Political Rights (ICCPR), the Declaration on the Rights of Mentally Retarded Persons and the Declaration of the Rights of the Child. The Human Rights and Equal Opportunity Commission Act does not make discrimination on the grounds of disability or on related grounds unlawful, and does not give the Commission power to make enforceable orders to provide remedies, even against Commonwealth authorities. The Commission's experience is that conciliation is highly effective in achieving a settlement in many cases. A process providing for settlement by conciliation has a number of advantages over a system relying purely on the courts. These advantages include increased accessibility, reduced costs (to parties and to public funds), and flexibility in the process and in the remedies available. It is also clear, however, that the effectiveness of conciliation and the other processes available under the Sex Discrimination Act and the Racial Discrimination Act results in part from the fact that enforceable remedies are available, and that in some cases the lack of enforcement provisions under the Human Rights and Equal Opportunity Commission Act limits the effectiveness of the present provisions in protecting the rights of people with disabilities. Protection provided by the Human Rights and Equal Opportunity Commission Act is also limited by the fact that at present the Commission has jurisdiction to inquire into actions only of Commonwealth authorities or under Commonwealth law, or in relation to employment and occupation. Existing State Legislation on Disability Four States have legislated to provide protection against discrimination on the basis of disability, namely, New South Wales (Anti-Discrimination Act 1977), Victoria (Equal Opportunity Act 1984), South Australia (Equal Opportunity Act 1984) and Western Australia (Equal Opportunity Act 1984 which covers discrimination on grounds of disability following the Equal Opportunity Amendment Act 1988). 5 Although there is considerable variation between the States in the scope and nature of the provisions, all provide for individuals aggrieved by discrimination in certain specified areas to make a complaint. In all States there is provision for conciliation of the complaint. All States cover discrimination on the ground of physical disability, with New South Wales, Victoria, South Australia and Western Australia also covering intellectual disability, and Victoria and Western Australia mental disorder. In all States discrimination in relation to employment, education, the provision of goods and services and accommodation is proscribed. Other areas, such as discrimination by clubs and in sport, are included by some States. Proposed State and Territory Legislation on Disability 26. There are proposals for similar legislation in Queensland, Tasmania, the Australian Capital Territory and the Northern Territory. The Bills are in different stages of development and the final wording is unavailable. Current National Position The right to be protected against discrimination on the ground of disability and the provision of avenues for redress for any such discrimination depends on the state of Australia in which a person lives. This means that a person residing in one state may be denied the protection which would be given to a person residing in a different state, even if both were confronted with an identical situation. The Commonwealth also holds international responsibility for human rights. There are a number of difficulties with the existing anti-discrimination legislation for people with disabilities. Legislation in some States remains absent or contains inadequacies not found elsewhere. Moreover, State legislation alone does not give comprehensive coverage due to the limited ability of States to regulate discriminatory practices against Commonwealth authorities. It is proposed that there should be NATIONAL LEGISLATION, so that a person with a disability will not be further disadvantaged by the place of residence. Federal legislation, however, would not be intended to invalidate State anti-discrimination legislation which promotes the same purposes and is capable of co-operating consistently with the Federal legislation. International Instruments A number of international conventions and declarations address the issue of discrimination on the ground of disability in particular or human rights generally. Five of these are scheduled to the Human Rights and Equal Opportunity Commission Act. 'Human Rights' for the purposes of the Act are defined as the rights recognised in the International Covenant on Civil and Political Rights (ICCPR), the Declaration of the Rights of the Child, the Declaration on the Rights of Disabled Persons, and the Declaration on the Rights of Mentally Retarded Persons. The Human Rights and Equal Opportunity Commission Act 6 gives these rights only limited effect. The Commonwealth Parliament clearly, however, has power to given broader effect to the ICCPR, as a binding international treaty containing legal obligations, by reference to the external affairs power under the Federal Constitution. (The power to give stronger effect to the Declarations is less certain.) 31. The five international instruments sheduled to the Human Rights and Equal Opportunities Act are as follows: The United Nations International Covenant on Civil and Political Rights (ICCPR) includes that 'all persons are equal before the law and are entitled without any discrimination to the equal protection of the law. In this respect, the law shall prohibit any discrimination and guarantee to all persons equal and effective protection against discrimination on any ground such as race, colour, language, religion, political or other opinion, national or social origin, property, birth or other status' (Article 26). The ICCPR contains a number of provisions relevant to discrimination, however, there are different views on the extent of the obligations under these provisions. Protection, and implementation in practice, of the rights recognised by IC= involves many areas of Commonwealth, State, and Territory legislation and practice. Not all needs in these areas can be effectively addressed by national anti-discrimination legislation alone. National legislation would, however, assist in addressing these needs. The ICCPR recognises rights including those to life (Article . 6); freedom from cruel, inhuman or degrading treatment or punishment (Article 7); liberty and security of the person (Article (9); the right to be treated with respect for dignity and humanity if deprived of liberty (Article 10); freedom of movement and choice of residence (Article 12); rights to fair and equal treatment in the legal system (Article 14); freedom from arbitrary interference with privacy or family life (Article 17); freedom of conscience and religion (Article 18); freedom of opinion, expression and information (Article 19); freedom of association including the right to form and join trade unions (Article 22); the right to marry and found a family (Article 23); the right of children to special protection (Article 24); the right to take part in public affairs, to vote and be elected, and to have access on equal terms to the public service (Article 25); and the right of people belonging to ethnic, religious or linguistic minorities to enjoy their own culture, practice their religion or use their own language, in community with other members of their group (Article 27). The United Nations Declaration of the Rights of the Child sets out a series of rights, and provides that 'the child shall enjoy all the rights set for in this Declaration. Every child, without any exception whatsoever, shall be entitled to these rights, without distinction or discrimination on account of race, colour, sex... or other status, whether of himself or of his family' (Principle 1). The rights established include social security, health, adequate nutrition, housing, recreation, medical services and education which promotes general culture. The Declaration 7 further provides that 'the child who is physically, mentally, or socially handicapped shall be given the special treatment, education and care required by his particular condition' (Principle 5). 3) The Declaration on the Rights of Disabled Persons recognises that disabled persons are entitled to: the inherent right to respect for their human dignity and the same fundamental human rights as their fellow citizens, including the right to a decent life, as normal and full as possible (Principle 2); the right to legal safeguards against abuse of any limitation of rights made necessary by the severity of a person's handicap, including necessary review and the right of appeal (Principle 4); the right to any necessary treatment, rehabilitation, education, training and other services to develop their skills and capabilities to the maximum (Principle 7); the right to economic and social security and the right, according to their capabilities, to secure and retain productive employmenL and Lo join trade unions (Principle 7);. the right to have their needs considered in economic and social planning (Principle 8); the right to family life, the right to participate in all social, recreational and creative activities, and the right not to be subjected to more restrictive conditions of residence than necessary (Principle 9); the right to protection against exploitation or discriminatory, abusive or degrading treatment (Principle 10); and the right to qualified legal assistance to protect their rights, and for legal procedures to take their condition fully into account (Principle 11). 4) The Declaration on the Rights of Mentally Retarded Persons was adopted by the United Nations in 1971, before the Declaration on the Rights of Disabled Persons and before it was accepted internationally that the term 'mentally retarded' could be offensive and inappropriate. It does not imply that the Declaration on the Rights of Disabled Persons does not apply equally to people with intellectual disabilities. The Declaration on the Rights of Mentally Retarded Persons confirms that a person with an intellectual disability has the same rights 'to the maximum degree of feasibility' as other human beings (Principle 1); the right to medical care, therapy, and such education, training, rehabilitation and guidance as will enable him or her to develop his or her ability and maximum potential (Principle 2); the right to economic security, a decent standard of living and to perform productive work or to engage in any other meaningful occupation to the fullest possible extent of his or her 8 capabilities (Principle 3); the right to live with his or her own family wherever possible, and for the family to receive assistance, or, if institutional care is necessary, for the circumstances and surroundings to be as close as possible to normal life (Principle 4). This Declaration also provides that a person with an intellectual disability has a right to a qualified guardian when necessary to protect his or her well-being and interests (Principle 5); the right to protection from exploitation, abuse and degrading treatment; the right, if prosecuted for any offence, to due process of law with full recognition being given to his or her degree of mental responsibility (Principle 6); and the right that any procedure for restriction of rights due to the severity of a person's handicap must include proper legal safeguards against abuse, including periodic review and a right of appeal. 5) The Discrimination (Employment and Occupation) Convention defines discrimination as including any distinction, exclusion or preference which has the effect of nullifying or impairing equality of opportunity or treatment in employment or occupation' (Article 1). Under the Convention, Australia through the Human Rights and Equal Opportunity Commission Act, has an obligation to promote equality of opportunity and LLeaLment with a view to-eliminating 'DISCRIMINATION' as defined by the Convention. . 32. There are a number of other international instruments which are relevant. These include the International Covenant on Economic, Social and Cultural Rights (ICESCR) which recognises rights concerning employment, housing, health, education and .a range of other areas, and the Convention on the Rights of the Child which deals with a much wider range of rights than the Declaration of the Rights of the Child and specifically includes reference to disability. United States Legislation 33. On 26 July 1990, the President of the United States of America signed the Americans with Disabilities Act. The purpose of the Act is stated to be: to provide a clear and comprehensive national mandate for the elimination of discrimination against, individuals With disabilities; to provide clear, strong, consistent, enforceable standards addressing discrimination against individuals with disabilities; to ensure that the Federal Government plays a central role in enforcing the standards established in this Act on behalf of individuals with disabilities; and to invoke the sweep of congressional authority; including the power to enforce the fourteenth amendment and to regulated commerce, in order to address difficulties experienced by people with disabilities (section 2(b)). 34. This Act covers a number of areas of discrimination some of 9 which are not addressed in any Australian legislation. Some parts of the Act are to be phased in over different periods. Generally, the major provisions will cover: employment discrimination by employers with 25 or more employees from July 1992, employment discrimination by employers with 15 or more employees from July 1994, all activities of local and state governments from January 1992, some forms of public transportation to be accessible, including all orders for purchases or leases of new vehicles must be for accessible vehicles from August 1990, new stations after January 1992, key station fitted from July 1993, public transportation by intercity Amtrak and commuter rail must have the same number of accessible seats as if the vehicle had been built accessible, half of those seats to be available by July 1995 and the remainder by July 2000, all existing Amtrak stations to be refitted by July 2010, and key commuter stations to be refitted by July 1993, with some extensions for up to 20 years, phase-in dates for business and service providers in public accommodations, and new constructions of public accommodations and commercial facilities to be accessible by January 1993 and alterations by January 1992, and by July 1993, telecommunications relay services (services for people with hearing disabilities) to operate 24 hours a day. Several different agencies are involved in the enforcement of the rights provided under the Act, including the Equal Employment Opportunity Commission in relation to employment discrimination complaints and the Attorney General for some of the access matters. ISSUES FOR LEGISLATION There are a number of separate components to anti-discrimination legislation, and these are discussed below. Definition of 'Disability' Existing anti-discrimination legislation has a variety of definition of disability and/or impairment. There are some recognised difficulties with some of these definitions. The Disability Services Act has a definition of the target group of persons with a disability covered by that Act. This definition includes that the disability is attributable to an intellectual, psychiatric, sensory or physical impairment or a combination of impairments, is permanent or likely to be permanent and results in a substantially reduced capacity of the person for communication, learning or mobility. The definition of disability in the Disability Services Act may be seen as 10 performing different functions to a definition in anti-discrimination legislation. Definitions in these two types of legislation need not, therefore, be identical. 39. It is important to ensure that no-one needing protection against discrimination on the basis of disability is excluded by technical problems of definition. At the same time, it is important that the definition be as clear as possible so that all interested parties can interpret the legislation with reasonable certainty and be in a position to know what their rights and obligations are. 40. The Americans with Disabilities Act defines 'disability' as meaning, with respect to an individual - a physical or mental impairment that substantially limits one or more of the major activities of such an individual; a record of such an impairment; or being regarded as having such an impairment. This definition provides another possible model. It may be appropriate, however, to consideL an alLeinaLive to the term 'impairment'. Definition of 'Discrimination' 41. In the Australian anti-discrimination legislation there are two 'forms' or 'definitions' of 'discrimination', and these are usually referred to as 'direct' and 'indirect' discrimination. The proposed legislation could follow the format of the Sex Discrimination Act for these two definitions, with some minor alterations due to the different ground of discrimination to be covered. 42. Two advantages of following the existing format would be that judicial interpretation by bodies such as the High Court and the Federal Court could be applicable and that there would be greater commonalty between the Acts. Some disadvantages would be that it would not be possible to further develop these definitions to incorporate changes to reflect progress in related areas and judicial .commenton the existing provisions. Also, the two major pieces of anti-discrimination legislation, the Racial Discrimination Act and the Sex Discrimination Act are not identical, while addressing some of the same issues. 43. Direct discrimination: If the existing format was to be followed, then the definition of DIRECT DISCRIMINATION would cover the following parameters as set out in section 5(1) of the Sex Discrimination Act: A person ('the discriminator') discriminates against another person ('the aggrieved person') on the ground of disability, if by reason of - * the disability of the aggrieved person, a characteristic that appertains generally to persons with the disability of the aggrieved person, or 11 a characteristic that is generally imputed to persons with the disability of the aggrieved person, the discriminator treats the aggrieved person less favourably than, in circumstances that are the same or not materially different, the discriminator treats or would treat a person without that disability. Therefore, the direct discrimination definition is based on the reason for the decision being disability or a stereotyped assumption about the affects of the disability and there being a detrimental result for the person with a disability in comparison with a person without that disability. An alternate approach would be to specifically provide that the person with a disability has the right to be treated without discrimination based on that person's disability or any stereotyped assumptions about that disability in the employment relationship. This would change the focus of the definition so that the provision of the legislative rights is clearly stated. This right, however, would not qualify or be inconsistent with the merit principle. Further examination of how such an approach would operate, and in particular what definition of discrimination is implicit in 'the right to be treated without discrimination', would however be necessary before such a model could be recommended. It needs to be recognised that discrimination on the ground of disability raises a different set of threshold and practical issues compared to discrimination on the ground of sex, and so it may be more appropriate to explore new avenues of definition. There may be difficulties using the existing models of legislation which require that persons be in the same or similar (not materially different) circumstances. These difficulties are particularly relevant given the range of disabilities to be covered. The Americans with Disabilities Act defines 'discrimination' generally as meaning an employer shall not: discriminate against a qualified individual with a disability because of the disability of such individual in regard to job application procedures, the hiring, advancement, or discharge of employees, employee compensation, job training, and other terms, conditions, and privileges of employment. In a further definition, there are seven criteria which are included covering such matters as limiting, segregating or classifying a job applicant or an employee; utilising standards, criteria, or methods of administration that perpetuate discrimination; excluding or otherwise denying equal jobs or benefits and using qualification standards, employment tests or other selection criteria that screen out an individual with a disability. Indirect discrimination: If the existing format of most Australian anti-discrimination legislation was followed, then the definition of indirect discrimination would cover the parameters as set out in section 5(2) of the Sex Discrimination Act: 12 A person ('the discriminator') discriminates against another person ('the aggrieved person') on the ground of disability, if the discriminator requires the aggrieved person to comply with a requirement or condition - with which a substantially higher proportion of persons without the disability of the aggrieved person comply or are able to comply, which is not reasonable in the circumstances of the case, and with which the aggrieved person does not or is not able to comply. This definition provides one model. Another model is provided by the indirect discrimination provisions inserted into section 9 of the Racial Discrimination Act 1975 in 1990 to confirm that this Act applied to indirect discrimination. 'Reasonable Accommodation' Ensuring equal treatment in practice for people with disabilities in many situations requires some accommodation by the other party (e.g. an employer or person offering services). This may include, in different circumstances, modification to premises to allow access, or modification to equipment or practices. Existing anti-discrimination law in Australia and overseas uses the concept of 'reasonable accommodation'. One model of this is provided by the Americans with Disabilities Act. This Act includes two different sets of considerations in this area: making existing facilities accessible and usable; and job restructuring and the acquisition or modification of equipment or devices. Requirements to provide reasonable accommodation are limited by reference to the concept of 'undue hardship', which is defined to require 'significant difficulty or expense', and also to relate to other factors including the nature and cost of the accommodation, the overall financial resources of the facility or employer and the type of operation concerned. Harassment One form of discrimination which has been raised frequently in the research leading to these proposals is the harassment of people with a disability by other people, including coworkers and public transport passengers. There is a provision in the Sex Discrimination Act which addresses the same type of issue and which could be adapted to cover harassment on the ground of disability. This proposal would incorporate the same concepts of section 28 of that Act, that is, that there be some specified conduct by an individual or a group of individuals which causes certain results which disadvantage or are detrimental to the person being harassed. This could include employment discrimination where certain actions resulted in a hostile work environment or some other detriment or disadvantage for the person with a disability. 13 Scope of Areas of Discrimination There are a number of possible options in relation to the areas which anti-discrimination legislation should cover. One is that the legislation cover discrimination in employment and employment-related activities such as trade union membership, superannuation, training, and activities of employment agencies. A second option is that the legislation cover as wider range of areas as possible, based on the model of the Sex Discrimination Act. This would mean that it would cover discrimination not only in employment, but also in education, provision of goods, services and facilities, accommodation, land, clubs, the administration of Commonwealth laws and programs and application forms. Other legislative models would include additional areas such as access to public transport and other vehicles. Like the Sex Discrimination Act the legislation could include other general provisions covering areas such as advertisements, the liability and acts of other persons, vicarious liability, acts done on behalf of other people. Victimisation of any person involved in the complaint process should be made an area of the legislation which can be investigated and conciliated by the conciliating agency, and not by any other agency. Ultimately, the decision in relation to coverage may depend on Constitutional law issues (see below). Exceptions All anti-discrimination legislation has a series of exceptions, and disability legislation encompasses the concept of discrimination which is permitted because it is 'reasonable' in the circumstances of the disability. This test of 'reasonableness' is a balance between the interests of the person with a disability and the interests of other persons or parties. Exceptions based on reasonableness will limit the protection afforded in practice by the legislation if the onus is on complainants to prove that requirements are not reasonable. In relation to employment, for example, the onus might be placed on the employer to demonstrate that requirements which have a disparate impact on people with disabilities are reasonable by reference to the inherent requirements of the particular job in question. Apart from the test of 'reasonableness' discussed above, there may need to be some general exceptions relating to superannuation and insurance, and charitable benefits. One important exception is to enable equal opportunity or affirmative action programs for people with a disability to be conducted and not form the basis of a complaint by another person, especially if the program is directed towards people with a particular disability. Redress and Enforcement 14 There are a range of possible options for effective redress and enforcement of anti-discrimination legislation for people with disabilities. If the conciliation process breaks down or can not proceed for some reason, there needs to be a further avenue for a person to pursue redress under the legislation. There are a number of methods of achieving the enforcement of the complainant's rights. These include inquiries conducted by the Human Rights and Equal Opportunities Commission to determine whether there has been any discrimination in breach of the legislation; direct and immediate access to the Federal Court; or the registering of determinations by the Commission with the Federal Court. The determination of this issue may depend on other factors such as the provision of Commonwealth-funded legal services and the outcome of current Parliamentary inquiries into the existing mechanisms provided by the Commission and the Federal Court. Constitutional Law Considerations The Commonwealth Parliament can only pass laws for which it has power under the Australian Constitution, or which the Constitution authorises. There are a range of powers (listed in the, following) which could be used to support anti discrimination legislation on the ground of disability. The power in relation to employment discrimination is clearer than for other areas, as it would include the 'corporations' power, including foreign corporations and trading or financial corporations. Territories (Constitution, section 122) - under this power the Commonwealth Parliament could enact anti-discrimination legislation in relation to each of the Commonwealth's Territories. Commonwealth and Defence Force Personnel -'the Commonwealth Parliament could legislate to prevent discrimination against Commonwealth and Defence Force personnel in connection with their employment as such and of persons seeking to become Commonwealth and Defence Force personnel. Commonwealth Activities - legislation could be enacted proscribing discriminatory activities by the Commonwealth or the Administration of a Territory or a body or authority established under Commonwealth or Territory law in the exercise of a power conferred by such a law. Corporations (Constitution, section 51(xx)) - legislation could prohibit discrimination by a foreign corporation or a trading of financial corporation formed within the limits of the Commonwealth or by a person in the course of the person's duties or purported duties as an officer or employee of such a corporation. Banking .ind Insurance (Constitution, sections 51(xiii) and (xiv)) - legislation could be enacted proscribing discrimination in the course of, or in relation to, the carrying on of the business of banking or insurance, other than State banking or insurance, as the case requires, not extending beyond the limits of the State concerned. 15 Trade and Commerce (Constitution, section 51(i) and 122) - legislation could be enacted prohibiting discrimination in the course of, or in relation to, trade or commerce between Australia and a place outside Australia, among the States, between a State and a Territory, or between two Territories. External Affairs (Constitution, section 51(xxix) - the 'geographical' aspect of the power could be relied on to support legislation prohibiting discrimination within Australia involving persons or things, or matters arising, outside Australia. there may be scope for more general anti-discrimination legislation to the extent that it would fulfil Australia's international obligations - these would need to be further considered before expressing a concluded view as to whether there are any relevant obligations. States Grants (Constitution, section 96) - legislation could be enacted making grants of financial assistant to the States on condition that they implement an agreed scheme for the proscription of discrimination. Reference of power (Constitution, section 51(xxxvii)) - the State Parliaments could refer the matter of discriminatsion to the Commonwealth Parliament to enable it to enact national legislation prohibiting discrimination. CONCLUSION As this Issues Paper indicates, there are a number of in-principle issues which have to be decided before the legislation can be developed any further. That is the rationale for this paper and for the further consultations being held around the publication of this Issues Paper. SUMMARY Therefore, the issues for consideration during the consultations are: the need for national anti-discrimination legislation with people with a disability, the scope of the legislation - including the definition of disability and discrimination, the exceptions including the 'reasonable accommodation' test, and the areas of discrimination, and the model for conciliation and for redress. APPENDIX C A FAIR GO FOR PEOPLE WITH A " DISABILITY Should there be a law about it? In 1990, people with a disability were asked to have a say about their right to get a good job, like everyone else in the community. People said lots of things. One of them was: "We need a law that makes sure people, with a disability, are treated fairly at work and in getting a job, as well as in other areas in the community. " TELL US WHAT YOU THINK !!   Nei  The government agrees that Australia needs these new laws and are talking about them now. This new law will stop people from treating you in a way that is less fair than others, because you have a disability, by making a law against it. 2 This new law will be called: Disability Discrimination Act. What is discrimination? Discrimination means being treated in a way that is less fair than other people are treated, because of your disability. For example; When your boss puts you down in front of other workers because you have a disability. When someone says they will not let you in a restaurant because you have a disability. The words need to be clear so that people using the law know exactly who the law is trying to protect or help. The words must cover all disabilities. What words could be used to explain disability, so that the group is clearly described and not put people with a disability down? The word "impairment" is often used. Is this OK? Can you think of something better? 3 How should people be made to be fair? If you have been treated unfairly and want to do something about it you can make a complaint. You can do this at the Human Rights and Equal Opportunity Commission (HREOC). If you need help, an advocate, self advocate or friend could go with you or do it for you. The HREOC can help you talk with the person who is being unfair, to try and work it out together. If this works-GREAT!  If this talk does not work there are three ideas of what could idea would you choose? 1 A tribunal decides what is fair and then tell the person who is being unfair what to do and what they owe you. If this does not work you then need to go to court. This way: it may mean taking two steps it may also take extra time OR 2 You go straight to court. The court could force the person to treat you fairly and/or give you what you are owed. This may cost you a lot of money. is one less step to take. OR 3 You go to a tribunal but the law gives them more power so the tribunal can force the person to treat you fairly and give you what you are owe d.This way: the decision is not only up to lawyers no cost to the person making the complaint 4 What areas should this anti-discrimination law cover? Should the law cover: 1 Being treated like everyone else where you work. For example:-getting a job, job training, promotions, work conditions like health and safety, leave, wages, as well as unions and employment services? OR 2 Being treated like everyone else in lots of areas in the community. For example:-where you work, education, where you live, getting and using services like shops, restaurants, clubs, local swimming pools, public transport? What areas should this law cover? WORK or WORK AND COMMUNITY  For more information: You can talk about these questions at a meeting. soon to be held in your state. If you would like to know more about these: Phone: Helen Heaney on (008) 020103 Disability Advisory Council of Australia Liason Unit in Canberra Strip cartoons were made by Streetwise Comics APPENDIX G LIST OF SOME EXISTING DEFINITIONS OF DISABILITY In his submission, Michael D'Argaville of the Villamanta Legal Service in Victoria stated: "1. Definition of 'Disability' For the purposes of the discussion below, please note that when I use the terms 'impairment', 'disability' and 'handicap', I am using them in the manner prescribed by the World Health Organisation. Impairment: lack or restriction in the movement or functioning of a part of the body as compared to that of a 'normal' person. Disability: a restriction in the capacity of a person to perform certain actions by reason of the impairment. Handicap: a restriction in the capacity of a person to engage in activities in society by reason of the interaction of their disability and social resources, attitudes, etc. As an example, damage to the spinal cord would be an impairment, inability to walk or use the lower part of the body would be a disability, and inability to take part in certain activities because they were not wheelchair accessible would be a handicap. The Disability Services Act (Commonwealth) does not define disability as such but s.8(1) defines the people the Act is intended to cover as: 'people with a disability that: is attributable to an intellectual, psychiatric, sensory or physical impairment or a combination of such impairments; is permanent or likely to be permanent; and results in: a substantially reduced capacity for communication, learning or mobility and a need for ongoing services.' This definition is unduly restrictive, as many people might suffer from a disability that was not likely to be permanent (injury or illness from which recovery was likely) or would not need ongoing services, and would nevertheless be subject to discriminatory treatment. The Victorian Equal Opportunity Act (which outlaws discrimination on the grounds of impairment) defines impairment as the total or partial loss of a bodily function, the presence in the body of organisms causing disease, the total or partial loss of a part of the body, the malfunction of a part of the body (including mental or psychological disease or disorder and a condition or malfunction which results in learning difficulties), or the malformation or disfigurement of a part of the body (see s.4(1)). This definition concentrates on impairment (including, to some extent, disability as defined) rather than handicap. This is appropriate as handicap is a function of the relationship between a persons impairment and social factors including attitudes toward people with that impairment/disability. Outlawing discrimination of the basis of handicap would be likely to be insufficiently clear and to result in a circular and unworkable definition of who was protected. The advantages of consistency with this definition (or one along similar lines) are that it would make it easier to support the Legislation by reference to the external affairs, powers and the various treaties and covenants to which Australia is a signatory (eg, Declaration on the Rights of Disabled Persons). It would be important to avoid a definition of 'disability' which provides rigid categories through which people with disabilities might fall. It would also be important to cover people who are discriminated against because someone assumes they have a disability. This is done under, for example, the Victorian Equal Opportunity Act in the definition of 'impairment', which includes 'an impairment which is imputed to a person' (s.4(1)). However it is probably preferable to incorporate this into the proposed legislation as part of the definition of discrimination rather than attempting to stretch a definition of disability to cover this situation. As the Discussion Paper points out (paragraph 39), it is important to ensure that nobody who may need protection against discrimination should be excluded by technical problems of definition. Not only should the definition of disability/ impairment ensure a broad coverage, it should be made clear that the fact of an impairment/disability is enough to establish protection. Apparently, in some states, the process for complaining against discrimination on the grounds of disability has been interpreted to require the complainant to correctly identify the nature of their disability (or the nature of the disability by reason of which they have been discriminated against; it should be remembered that some people have multiple disabilities), and failure to do so has resulted in the complaint not being heard even though the person had a disability, and even thought there may have been discrimination. This is unacceptable and anti-discrimination should be drafted to avoid this happening." In their submission, Disabled Peoples International (Australia), has defined disability and handicap as follows: "Disability is a functional limitation within the individual caused by physical, intellectual, mental or sensory impairment. Handicap is a loss or limitation of opportunity to take part in the life of the community on an equal level with others due to physical and social barriers. In offering the above definition, it is recognised that the Legislation definition must ensure that no particular disability is legally excluded and that disabilities such as physical, sensory, intellectual, mental or psychiatric, multiple disabilities, medical, record or the former imputed existence on these grounds are all covered." APPENDIX H LIST OF SUBMISSIONS RECEIVED Aboriginal & Torres Strait Islander Commission Abrahams N, Qld ACT Down Syndrome Association Alstonville High School, NSW - 54 signatures Assoc of Relatives & Friends of the Mentally Ill, NSW. Asthma Foundation of Victoria Australian Federation of AIDS Organisations, ACT Australian Federation of Deaf Societies, WA Australian National Council of and for the Blind, SA Australian National University, ACT Board of Management for Action for Citizens with Disabilities and Citizens Advocacy, NSW COMEPASS, Queensland Disabled Peoples International Australia, ACT Disabled Peoples International, NSW Disabled Peoples International, Tasmania Disability Complaints Service, NSW Disability Council of NSW Dover, Mr Kevin Dyslexia Research Foundation of Australia, WA Goodwin, Ms Kathy - DEET NSW Handicapped Persons Association, NT Head Injured Society, WA Hoare, Mr & Mrs G, VIC Hocking, Mr A, VIC Irrabeena, WA McMahon, Mr Greg, QLD Mott, Mr G, NSW NFBCA, Victoria New Horizons Enterprises Ltd, NSW O'Connor, Mr D. QLD Persons with Physical and Sight Impairment Advocacy, SA Ridley, Ms Wendy NSW Royal Society for the Blind - SA Shoalhaven City Council, Nowra, NSW SOSS Learning Difficulty Support Group, NSW Southwell, J E, VIC Spastic Centre of NSW Consumer Unit, NSW Spastic Welfare Association of Western Australia, WA SPELD, QLD Starling, Ms K, QLD Sunraysia Valley Disabled Self Help Group Inc, VIC Taringa Resource Centre, QLD United Trades & Labour Council of South Australia, SA University College of Central Queensland University College of Southern Queensland Victorian Speak Easy Association, Victoria Villamanta Legal Service, Victoria Western Region Ethnic Disability Services, VIC Disabled Peoples International Australia, ACT There were three submissions received from people who wish to remain anonymous and they came from the ACT, WA and SA. ii v  3 4 5 2.7 Conclusion 7 8 9 10 11 12 13 15 16 17 18 19 20 21 22 23 24 25 26 27 28 29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46 47 48 49 50 51     i.  )11)), Amarreia . OM. They want more ideas about what you think, to help them cover everything that is important.  .714F-115-,." ocAmi 17":- No, you cannot have ihe job! We do not want people who cannot write here. But I can clean! How to describe disability? (Then we can go to the shop and talk to-the man with you. "fts. 0.  I want to complain! We can help. Come to see me so we can write down your complaint. happen next. Which -TRAgut%ulL C-0 RT TRieut-trIL eoLozr cooc-T   You got -the job ! fhe H.R.E.0 C. says  HYPERLINK "http://mu5t.be" \h mu5t. be fair!  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