ࡱ> M L^bjbj== %WW2ZlJJJJJJJ^...8fl\^ك|:"vp!4"d.000000$U uTJ"""T %JJi4 % % %".JJ. %". % %.f{HJJ.. G^."J~D.<ك~l#. %^^JJJJ Submission to Human Rights and Equal Opportunity Commission In reply to the Revision of the Guidelines for Providers of Insurance and Superannuation, issued under the Disability Discrimination Act 22 November 2004 People with Disability Australia Incorporated  Introduction to People with Disability Australia Incorporated People with Disability Australia Incorporated (PWD) is a national disability rights and advocacy organisation. We provide representation for people with disability at the New South Wales and national levels. We also provide a range of disability rights services for people with disability and their associates, at either the New South Wales or national levels. Individuals with disability and organisations of people with disability are our primary voting membership. We also have a large associate membership of people and organisations committed to the disability rights movement. PWD was founded in 1980, in the lead up to the International Year of Disabled Persons (1981), to provide people with disability with a voice of our own. We have a fundamental commitment to self-help and self-representation for people with disability, by people with disability. PWD has a cross-disability focus membership is open to people with all types of disability. Our services are also available to people with all types of disability, and their associates. We are governed by a Board of directors, drawn from across Australia, all of whom are people with disability. We employ a professional staff to manage the organisation and operate our various projects. A majority of our staff are also people with disability. We are part of an international network of disabled peoples organisations through Disabled Peoples International. We are a non-political, non-profit, non-governmental organisation incorporated under the Associations Incorporation Act, 1984 (NSW). Our activities are supported by substantial grants of financial assistance from the Commonwealth and New South Wales Governments, as well as a growing number of corporate and individual donors. This financial assistance is acknowledged with great appreciation. People with Disability Australia PO Box 666 Strawberry Hills NSW 2012 Phone: 02 9319 6622 Toll free: 1800 422 015 TTY: 02 9318 2138 TTY toll free: 1800 422 016 Fax: 02 9318 1372 Email:  HYPERLINK "mailto:pwd@pwd.org.au" pwd@pwd.org.au Website:  HYPERLINK "http://www.pwd.org.au" www.pwd.org.au Table of Contents  TOC \o "1-3" \h \z  HYPERLINK \l "_Toc89480767" 1. Introduction  PAGEREF _Toc89480767 \h 4  HYPERLINK \l "_Toc89480768" 2. Overarching issues  PAGEREF _Toc89480768 \h 5  HYPERLINK \l "_Toc89480769" 2.1 Flow chart  PAGEREF _Toc89480769 \h 5  HYPERLINK \l "_Toc89480770" 2.2 Case studies  PAGEREF _Toc89480770 \h 5  HYPERLINK \l "_Toc89480771" 2.3 Highlighting non-standard provision  PAGEREF _Toc89480771 \h 6  HYPERLINK \l "_Toc89480772" 3. Comments on introduction section  PAGEREF _Toc89480772 \h 7  HYPERLINK \l "_Toc89480773" 4. Comments on Who is protected by the DDA? section  PAGEREF _Toc89480773 \h 7  HYPERLINK \l "_Toc89480774" 4.1 Defining disability  PAGEREF _Toc89480774 \h 7  HYPERLINK \l "_Toc89480775" 4.2 Document readability  PAGEREF _Toc89480775 \h 8  HYPERLINK \l "_Toc89480776" 5. Comments on Unlawful discrimination section  PAGEREF _Toc89480776 \h 8  HYPERLINK \l "_Toc89480777" 5.1 Specific comment  PAGEREF _Toc89480777 \h 8  HYPERLINK \l "_Toc89480778" 5.2 Comments on Types of unlawful discrimination  PAGEREF _Toc89480778 \h 8  HYPERLINK \l "_Toc89480779" 5.3 Comments on Does the DDA apply to pre 1993 policies?  PAGEREF _Toc89480779 \h 9  HYPERLINK \l "_Toc89480780" 6. Comments on sections 4 8 of the Guidelines  PAGEREF _Toc89480780 \h 9  HYPERLINK \l "_Toc89480781" 6.1 Comments on sections 4 4.5 (inclusive) of the Guidelines  PAGEREF _Toc89480781 \h 9  HYPERLINK \l "_Toc89480782" 6.2 Comments on Sections 4.6 5.1 of the Guidelines  PAGEREF _Toc89480782 \h 10  HYPERLINK \l "_Toc89480783" 7. Conclusion  PAGEREF _Toc89480783 \h 11  1. Introduction People with Disability Australia Incorporated (PWD) welcomes the opportunity to comment on the draft revision of the Human Rights and Equal Opportunity Commission's (HREOC) Guidelines for Providers of Insurance and Superannuation (Guidelines) issued under the Disability Discrimination Act, 1992 (DDA). PWD acknowledges the considerable efforts of HREOC to address the issue of disability discrimination in the area of superannuation and insurance over many years. Discrimination in these areas of public life has been a long-standing concern of PWD. We welcome positive measures to undertake policy initiatives to address this important issue. In developing this submission, PWD has endeavoured to make assessments of the Guidelines against two principles that we believe must be addressed if the Guidelines are to add value over and above already existing statements of the relevant law. The principles are that the Guidelines must be: as accessible as possible for people with disability and staff of insurance and superannuation providers; and a practical tool clearly identifying an approach or approaches to solving a practical problem. Using these principles, this submission addresses each section of the Guidelines. Firstly, this submission considers overarching issues of the Guidelines. This includes the need for a visual representation of the decision making process. Comments on sections include suggestions for improving clarity of concepts and matters of law. Further discussion, or clarification regarding this submission may be addressed to Mr Matthew Keeley, Senior Legal Officer, PWD. 2. Overarching issues Drawing on the principles informing the content of this submission, PWD wishes to make comments on three overarching issues related to the Guidelines. PWD believes that these three issues present as barriers to the Guidelines fulfilling HREOCs intentions of assisting in decision making consistent with the legislation, assisting people with disability to understand their rights and assisting insurance and superannuation providers in understanding their responsibilities. 2.1 Flow chart PWD believes that the Guidelines could better assist in decision making if they were supported by a check-list or flow-chart, identifying in step-by-step form the questions arising within a decision making process (directed to practical compliance with the DDA) and the information necessary to answer those questions. PWD believes that such a flow-chart, cross-referenced to material within the Guidelines, would be of great assistance to providers of insurance and superannuation as well as to self advocates and advocates for people with disability. More importantly, we believe that by providing such a visual and summary schematisation, the accessibility of the document for people with a broad range of disabilities would be greatly enhanced. Flow charts and similar visual representations can often provide important proofs of the internal logic and structure of a document, and can thereby sometimes suggest slight alterations to a documents content, emphasis or structure. For this reason also, we believe that inclusion of an appropriate check-list or flow-chart would enhance the documents effectiveness. We wish to refer HREOC to the approach adopted by Villamanta Publishing Service in the first edition of A User Guide to the Disability Discrimination Act (1995). The sections of that Guide entitled How to Use this Guide and Checklists 1 and 2 are, in our experience, some of the most accessible entrees and links to complex legal information that we have seen. 2.2 Case studies PWD believes that select case studies from HREOCs conciliated outcomes should be incorporated throughout the text of the Guidelines where they illustrate a point made in the text. We believe that by restricting the use of the conciliated outcomes to their inclusion towards the end of the document, at section 7, that many readers, particularly some readers with disability, will not obtain maximum benefit from reading them (in isolation from the points of law or insurance practice that they relate to). In particular, conciliated outcomes that demonstrate the benefits of parties acting reasonably would be well placed throughout the body of the text as a counterpoint to those readers of the Guidelines, either people with disability or insurance and superannuation providers, who may be considering acting unreasonably. 2.3 Highlighting non-standard provision PWD believes that, in the area of insurance and superannuation provision, it is fundamental to the issue of compliance with the DDA to determine whether a proposed act (to not provide insurance cover, or to provide cover at higher premiums, or to restrict cover) is an act of discrimination that is either lawful and permitted, or unlawful and prohibited. Clearly there is no direct discrimination that can arise when a person with disability is treated exactly the same as people without the disability, and provided with cover on standard terms and in the standard fashion. In our view, therefore, the Guidelines greatest utility is in its application to the practical situations where a person with disability may not be offered a product on standard terms or in the standard fashion. We believe that it is at this point in the decision making process that people with disability and insurance and superannuation providers most need practical guidance about their respective legal rights and obligations. It is at this point that they require a practical tool clearly identifying an approach or approaches to solving this practical problem is the act/intended act of the insurance company lawful and permitted, or unlawful and prohibited? This suggests to us that the structure of the document must be looked at again, as currently the issue of non-standard provision is not discussed until section 5 of the Guidelines. Regarding the documents structure, PWD considers that it could be more practical to start with the situation where a provider is proposing to provide cover on non standard terms, or to not provide cover, or to process an application for cover in a non standard manner because it has decided (correctly or incorrectly) that the disability carries additional risk that warrants a non-standard approach. This could be followed with guidance to the insurance or superannuation provider and the person with disability about the approach to determining whether to do so would be either unlawful or lawful. If approached in this way, the Guidelines might be viewed as providing more concrete and practical assistance to decision makers and people with disability, as they would proceed from a problem-solving perspective rather than the interpretive or educational perspective that appears to be the documents current emphasis. 3. Comments on introduction section This section of this submission provides comments on the section 1 of the Guidelines "introduction to these insurance and superannuation guidelines". These comments make specific comment on the text. The second paragraph of section 1 should be amended to establish that annuities and provident funds and schemes are intended to be included within the broad description of superannuation (section 46, DDA). The fourth paragraph should be deleted, as it is tautologous. The same point is made in the last sentence of the first paragraph, and it amounts to an unnecessary over-emphasis on the insurance and superannuation exemption (section 46) to repeat it at this point. The second bullet point of the seventh paragraph should be amended to include reference to informing organisational risk management and compliance programs. 4. Comments on Who is protected by the DDA? section This section of the submission provides comments on section 2 of the Guidelines, "who is protected by the DDA". 4.1 Defining disability PWD is of the view that the high relevance of DDA compliance to providers of superannuation and insurance products needs to be clearly spelt out. The DDAs broad and inclusive definition of disability is not necessarily clearly understood by such providers, who have often examined disability through a number of different prisms including, pre-existing medical condition, total and permanent disability, catastrophic injury and other phrases and concepts coined by insurance providers and the medical and legal professions. It may well be that the scope of the DDAs coverage of their customer base is not well understood by staff of insurance and superannuation providers. Accordingly, PWD believes that a further, final paragraph is required, to the following effect: Generally, whenever a person has or may have a health condition that is relevant to a particular insurance or superannuation product, that person may also have a disability as defined by the DDA, and the DDA may apply to protect that person from unlawful discrimination in the provision of that insurance or superannuation product. In addition, the Australian Bureau of Statistics figure of 18% of the population having one or more disabilities, as cited in the Guidelines, is incorrect. The most recent figure is 19.3% (Productivity Commission, Review of the Disability Discrimination Act 1992, p.29, 30 April 2004). 4.2 Document readability Section 2 of the Guidelines also provides a useful platform to discuss one of the documents attributes that we believe poses a barrier to its accessibility and ready utilisation. The inclusion of references within the body of the text at paragraph 5 makes the text unnecessarily dense and reduces readability. PWD recommends that all references, sources, citations and quotations (post.) be either deleted if possible or footnoted at the end of the document. 5. Comments on Unlawful discrimination section This section of the submission provides comments on section 3 of the Guidelines, "unlawful discrimination". 5.1 Specific comment PWD believes that the heading of section 3 of the Guidelines should be Unlawful discrimination and lawful discrimination. This would better highlight the importance of identifying whether a proposed act, eg. to not provide cover, or to provide cover at higher premiums, or to restrict cover, is an act of discrimination that is either lawful and permitted, or unlawful and prohibited. The second bullet point (commencing "discriminating in terms or ) should be amended to delete the words subject as noted to the defences of unjustifiable hardship under section 24 and reasonableness under section 46 as they are tautologous. The same point is made in the introduction to the second paragraph, and it amounts to an unnecessary over-emphasis on the insurance and superannuation exemption (section 46) to repeat it at this point. The last paragraph appears to us to be somewhat misplaced in section 3, and we would suggest that consideration be given to placing that paragraph within the context of section 1, Introduction to these insurance and superannuation guidelines. 5.2 Comments on Types of unlawful discrimination PWD would like to see this section expanded to incorporate a clear exposition of the role of section 30, DDA regarding requests for information, in the context of information sought by the providers of insurance and superannuation products, and in particular as that section relates to section 24(1) (c ), DDA. PWD also considers that this part of the Guidelines could be expanded to briefly and clearly describe how it is that an otherwise unlawful and therefore prohibited discriminatory act can become lawful and permissible by the operation of the section 46 exemption. This is a conceptual link that is not as clearly described in this part of the Guidelines as PWD believes it needs to be. (It would also provide a useful introduction to the more detailed discussion of the exemption found at section 4 of the Guidelines). 5.3 Comments on Does the DDA apply to pre- 1993 policies? This paragraph appears to be somewhat misplaced in section 3, and we would suggest that consideration be given to placing that paragraph within the context of section 1, Introduction to these insurance and superannuation guidelines or in a new Miscellaneous section of the Guidelines. 6. Comments on sections 4 8 of the Guidelines 6.1 Comments on sections 4 4.5 (inclusive) of the Guidelines In its request for comments, HREOC states that the Guidelines are intended to assist in decision-making consistent with the legislation and that people and organisations in the disability community recommended additional guidance on the determination of reasonableness under section 46. PWD considers that for many people with disability, and quite likely for staff of insurance and superannuation providers, sections 4 4.5 of the Guidelines (inclusive) may not assist in decision making consistent with the DDA, nor clarify decision making about reasonableness under section 46 to the extent possible. Sections 4 4.5 are not as accessible as possible for people with disability and staff of insurance and superannuation providers, nor are they a practical tool clearly identifying an approach or approaches to solving a practical problem. Rather, sections 4 4.5 are mostly interpretive in nature, interpreting and quoting the DDA and cases without necessarily connecting with the issue of how to apply the law to the problem of non-standard provision. It is acknowledged that sections 4.6 6 inclusive seek to make that connection, however, for reasons discussed below we do not consider that the practical application of the law to the problem of a non standard provision is greatly enhanced by those sections. PWD also believes that the Guidelines should be an authoritative, stand-alone guide to practice. We do not consider it important that there be quotations from any court decisions in the body of the document. Judges or Magistrates rarely have readability in mind when writing their judgments, and the inclusion of such material in the text rather than as a footnote simply reduces the readability of the document and suggests the necessity to look to primary sources, thereby eroding both the practicality and authority of the Guidelines. The challenge in presenting a more readable document is to ensure that the law, and most importantly its application in the superannuation and insurance context, is described and applied accurately without falling into the trap of writing the Guidelines as a lawyer would. In saying this, PWD acknowledges the difficulty that is faced whenever one seeks to translate or paraphrase difficult material for a readership that requires that information to be presented in a mediated form. This is a challenge, which like HREOC, PWD is regularly confronted with, and to be honest cannot always rise to. In the matter of the Guidelines, also, we believe that the challenge has yet to be fully met. PWD believes that the Guidelines could be presented in a relatively plain or easy English format at the same time as improving its utility and effectiveness. We believe that it would be valuable for a review of the Guidelines by a plain or easy English expert/consultancy to be conducted. PWD, through the Disability Studies and Research Institute (DSaRI) has had recent involvement with a large-scale project involving the reformulation of a very large service providers policies and procedures into easy English. The subject matter of the policies and procedures were every bit as complex as the law relating to disability discrimination in the area of insurance and superannuation, and yet the project has progressed satisfactorily with readability of the documents greatly enhanced for all stakeholders, but especially for people with disability. We believe that the Guidelines could be similarly re-framed. 6.2 Comments on Sections 4.6 5.1 of the Guidelines Sections 4.6 5.1 of the Guidelines are generally very readable and informative. Section 5 Denying cover and alternative means of managing risk clearly stands apart from section 4 The insurance and superannuation exemption, and yet the material in section 5 relates very clearly to the issue of the reasonableness of any discrimination discussed in section 4. It is not immediately apparent to a reader that the issues are in fact connected, namely, would it be unreasonable and unlawful, or reasonable and permissible to do anything other than provide the insurance sought on the standard terms and in the standard manner? As noted previously, the issues discussed in section 5 are central to the problem being addressed by the Guidelines. PWD considers that these issues need somehow to be made more central to the Guidelines structure and content. 6.3 Comments on sections 6 8 of the Guidelines In the interests of readability and brevity, PWD questions whether all of the case examples are necessary, or whether perhaps fewer case examples would do with a link to the HREOC web-site for further examples. We also question whether section 8 is necessary. PWD believes that the information contained within section 8 about responding to complaints can be obtained from a number of other resources, and that the emphasis of the Guidelines should be on reasonable conduct and eliminating the need for complaints. In other words, this document should be aimed at prevention of complaints and not about responding to them. 7. Conclusion In conclusion, PWD considers that the efficacy of the Guidelines and its value to people with disability and insurance and superannuation providers could be substantially enhanced by a further revision along the lines suggested in this submission. In particular, PWD believes that the Guidelines would be substantially enhanced by the: inclusion of a section describing How to Use this Guide; inclusion of a flow-chart or check-list, both as a visual and conceptual aid and as a guide to the structure of the Guidelines itself; re-formulating of the document along the lines of a guide to practice (specifically incorporating a practical, problem-solving approach); inclusion within the body of the document of appropriate case studies; and review of the document for readability, and action to reduce the documents density including through footnoting and removing unnecessary referencing and quotations. PWD understands that there is considerable further work suggested by the above, and to that end we wish to indicate our willingness to contribute further to the development of the Guidelines in any way that we reasonably can. PWD thanks HREOC and the Disability Rights Unit for this opportunity to comment, and for their long-standing commitment to this issue. 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