ࡱ> %` uqbjbj"x"x C'@@Z ZZZ`BBBVZ)Z)Z)8)*LVYn*n*n*:**---XXXXXXX$S[h]XB-,"---XBB**6 YP000000-B*B*X00-X0000vUBBbX*b* @7 Z).fV"XD]YHYV?^ 0?^DbX?^BbX,--00-----XX 0---Y----VVVZ)VVVZ)VVVBBBBBB  LGBTI Discrimination Consultation 鱨վ GPO Box 5218 Sydney NSW 2001 Dear 鱨վ Please find below a submission of The {also} Foundation ({also}) regarding the possible inclusion of protections against discrimination and vilification on the basis of sexual orientation and sex and/or gender identity in federal anti-discrimination law. 鱨վ {also} Established in 1980, {also} works to enhance the lives of Victoria's diverse gay, lesbian, bisexual, transgender, intersex and queer (GLBTIQ) communities. The {also} vision is the creation and celebration of a diverse, strong, safe and inclusive GLBTIQ community that contributes to and is respected by broader communities. We aim to realise this vision and improve the lives of GLBTIQ people by celebrating and acknowledging our communities' strengths and those of our supporters; advocating to secure equitable access to rights, entitlements and services; leading through building relationships and partnerships within and beyond our community; and investing in growing and developing individuals and groups within our diverse community. As a peak body that advocates for the rights of GLBTIQ people in Victoria, {also} is in a unique position to offer a GLBTIQ perspective to this consultation regarding the possible inclusion of protections against discrimination and vilification on the basis of sexual orientation and sex and/or gender identity in federal anti-discrimination law. We hope that this submission will assist the 鱨վ in its current inquiry, and the Australian Government in its efforts to harmonise and consolidate federal anti-discrimination laws. Questions 1, 3 and 4: The need for federal anti-discrimination laws prohibiting discrimination on the basis of sexual orientation and sex and/or gender identity GLBTIQ people face widespread discrimination on the basis of their sexual orientation and gender identity, and as outlined in the background papers to this consultation, current laws provide limited protection. The lack of federal anti-discrimination law covering sexual orientation and gender identity has left the GLBTIQ community with very limited recourse in cases involving discrimination in the federal sphere. The singular exception is the Fair Work Act 2009 that protects against discrimination in employment on the grounds of sexual preference. The Act provides no such protection on the grounds of gender identity or intersex status. The result is that GLB people in the vast majority of circumstances where discrimination may apply, and transgender and intersex people in all circumstances, are currently without any meaningful recourse to assert their basic human rights at the federal level. GLBTIQ people are exposed to an increased vulnerability to discrimination and other human rights violations, which is not faced by their non-GLTBIQ counterparts, and this vulnerability is borne out by a range of research findings. At the state and territory level, significant variance exists in the protection from discrimination, harassment and vilification afforded to GLBTIQ people. New South Wales for example is the only state to offer protection from vilification on the basis of sexual orientation or gender identity, while Tasmania is currently the only state in which there are no religious exemptions on these grounds. Recent surveys by the Australian Research Centre in Sex, Health and Society (ARCSHS) at La Trobe University and the Australia Institute show that GLBTIQ people continue to be subject to high levels of discrimination on the basis of their sexual orientation and gender identity, and a study by the VGLRL revealed that over 80 per cent of GBLTIQ people had felt insulted by negative public statements about same-sex relationships or families. The same study revealed that the majority of respondents (77.9 per cent) had felt unsafe to hold hands in public with their same-sex partner. Research undertaken by the Victorian Ministerial Advisory Council on Gay and Lesbian Health, ARCSHS and VicHealth demonstrates a link between higher levels of self-reported discrimination and poorer health outcomes. The ARCSHS study, for example, demonstrates that same-sex attracted and transgender young people (SSATYP) who are open about their sexuality or gender identity are subject to higher levels of discrimination and abuse than those who are not, are more likely to suffer from a range of mental health problems, and are at increased risk of drug and alcohol abuse and unsafe sex. Similarly, a recent study into the health and wellbeing of transgender people in Australian and new Zealand found that 87.4% of respondents had experienced discrimination, and the more frequent the experience, the greater the incidence of depression and other risk factors.  The introduction of federal anti-discrimination laws covering sexual orientation and gender identity would provide the GLBTIQ community with additional legal recourse in cases involving discrimination in the federal sphere, and would reflect and promote increased acceptance of GLBTIQ Australians more broadly, thereby going some way towards reducing some of the vulnerabilities outlined above. GLBTIQ people seek adequate protection from, and remedies for, experiences of discrimination on the basis of their sexual orientation and gender identity. On 27 April 2009, {also} co-hosted a forum to help inform a GLBTIQ perspective on the National Human Rights Consultation. The forum provided an opportunity for community members to discuss their views on the need for changes to human rights protections. One of the key themes identified by GLBTIQ community members at that forum was the need for federal anti-discrimination laws to prohibit discrimination on the basis of sexual orientation and gender identity. The GLBTIQ community has been calling for federal anti-discrimination protection for many years, first comprehensively documented in the Inquiry into Sexuality Discrimination in 1997 and more recently by inquiries undertaken by the then-鱨վ.  Further, the broader community supports equality for GLBITIQ people. For example, a Galaxy Poll commissioned by the Australian Coalition for Equality in June 2009 revealed 85 per cent of Australian voters supported federal laws protecting Australians from discrimination on the grounds of sexual orientation or gender identity, including 83 per cent of Coalition voters.  Even if this were not the case, or if it could not be said to extend to the protection of all GLBTIQ rights, such opposition would not provide an adequate reason to exclude such protection. Indeed, it would be a further reason to include such protection, as it indicates that GLBTIQ people are subject to continuing and widespread discrimination. The current absence of comprehensive federal protection from discrimination on the grounds of sexual orientation and gender identity is at odds with existing protections at state and territory level. This inconsistency, as well as creating gaps in legal recourse, leads to confusion in both the GLBTIQ and broader communities as to the rights of GLBTIQ people, and a lack of federal jurisprudence regarding anti-discrimination laws as they apply to GLBTIQ people. The current absence of comprehensive federal protection from discrimination on the grounds of sexual orientation and gender identity is also at odds with existing protections in human rights instruments at the international level. The United Nations Human Rights Committee has been very clear that the principle of non-discrimination and equality before the law protects GLBTIQ people under international law.  Non-discrimination provisions are contained in the International Covenant on Civil and Political Rights, the International Covenant on Economic, Social and Cultural Rights, the Convention on the Rights of the Child, the International Convention on the Elimination of All Forms of Racial Discrimination, the Convention on the Elimination of All Forms of Discrimination against Women and the Convention on the Rights of People with a Disability. The inclusion of sexual orientation and sex and/or gender identity as grounds upon which discrimination is prohibited at the federal level would be consistent with these international human rights laws. Such a development would also assist the domestic realisation of the Yogyakarta Principles and to give effect to the recommendations contained within the Principles The {also} Foundation further draws the Commissions attention to the UN General Assembly Declaration on Sexual Orientation and Gender Identity, which Australia signed in December 2008. In signing this Declaration, Australia expressed its deep concern regarding violations of human rights and fundamental freedoms based on sexual orientation and gender identity; committed to promoting and protecting the human rights of all persons, regardless of sexual orientation and gender identity; and committed to ensuring that human rights violations based on sexual orientation or gender identity are investigated and that perpetrators of such violations are held accountable. The inclusion of sexual orientation and sex and/or gender identity as grounds upon which discrimination is prohibited at federal level would be consistent with this Declaration. Question 2 and 5: The need for federal law prohibiting vilification and harassment on the basis of sexual orientation and sex and/or gender identity In Victoria, the Equal Opportunity Act (1995) makes it unlawful, in areas of public life such as employment, education, accommodation, the provision of goods or services, clubs and others to treat someone unfavourably, and in particular to harass someone, on the basis of a listed attribute, which includes gender identity and sexual orientation. For a complaint of harassment to proceed it is necessary that the alleged harassment and the distress it has caused must not be frivolous, or lacking in substance, and must involve actions, including written or spoken words, gestures and the like, that cause a person distress that was objectively foreseeable.  The motive of the harasser is irrelevant. Homophobic harassment therefore, is unlawful in Victoria where it relates to the limited areas of public life covered by the EOA. Harassment of a person can also involve violation of some or many of the other human rights protected in the Victorian Charter of Human Rights and Responsibilities Act (2006), including for example sections 9 (Right to life), 10 (Protection from torture and cruel, inhuman or degrading treatment), 12 (Freedom of movement), 13 (Privacy and reputation), 14 (Freedom of thought, conscience, religion and belief), 15 (Freedom of expression), 16 (Peaceful assembly and freedom of association), 17 (Protection of families and children), 18 (Taking part in public life), 21 (Right to liberty and security of person). Protection against vilification in Victoria is only afforded on the basis of race and religious belief, in the Racial and Religious Tolerance Act (2001). For the purposes of this Act, vilification is defined as conduct that incites hatred against, serious contempt for, or revulsion or severe ridicule of a person or group on the basis of race or religion. The prevalence of homophobic harassment has been well documented over the past decade with a plethora of well-researched, evidence-based reports demonstrating that GLBT individuals and communities experience unacceptably high levels of harassment and violence on a daily basis.    Many of these reports also provide substantial evidence linking the lived experience of homophobic harassment with poor social and health outcomes such as substance abuse, homelessness, self-esteem problems, suicidal ideation, increase in smoking, relationship difficulties, poor self-image and diminished opportunities to participate in the workforce, in education, and in the life of the community.  Homophobic harassment can take many forms, ranging from silencethe cold shoulderto spreading rumours, outing, words of abuse, denigration or contempt, spoken or written, whether on toilet walls or tabloid newspapers or Facebook and SMS, in schoolyard taunts or calculated sermons, through to violence, ranging from pushing and shoving at school to beatings and murder. In 2009 {also} was engaged by the Victorian Department of Justice to further two pieces of work, With Respect and Coming Forward, to develop a social marketing framework for responding to harassment and violence motivated by homophobia, the With Respect Awareness Project. In the same year the Sentencing Amendment Act 2009 was enacted, which requires that hatred and prejudice be taken into account as an aggravating factor when sentencing and later, the Eames Review of Identity-motivated Hates Crimes was initiated. Although still underway, this review is notable for the specific inclusion in its terms of reference of GLBTIQ-related harassment and violence as highlighted in the first With Respect report. Within the federal context {also} supports similar changes to the Criminal Code Act 1995 to enable prejudice to be considered as an aggravating factor in relevant offences, and that this factor be publicly named and acknowledged for its serious and unacceptable nature. As within Victoria, {also} does not support the explicit naming of particular attributes or characteristics in the Criminal Code Act but rather, urges that examples of hate or prejudice-motivated crime be included in a note in the Act (including the example of homophobic crime). Similarly, {also} does not support the quantification of hatred or prejudice as an aggravating factor in any given offence, nor the imposition of additional criminal sanctions or the creation of separate hate provisions within existing legislation. Within any future federal civil law protecting GLBTIQ people from unlawful discrimination, {also} urges that acts of homophobic and transphobic harassment be detached from any prescribed areas of public life, to focus instead on the reasonable foreseeability of harm or distress as the feature that defines what is to be held unlawful. To this end, provisions against homophobic and transphobic harassment should be contained within a separate part any new law, and should extend to cover public acts, where the majority of incidents of homophobic harassment occur. Section18C of the Racial Discrimination Act 1975 may be one such way to achieve this aim, however {also} would further recommend that the doing of harm be included as an element within the definition of harassment (or offensive behaviour). That is, to offend, insult, humiliate or intimidate, should become to harm, offend, insult, humiliate or intimidate where the harm is defined as of the kinds of behaviour described above. Question 6, 7 and 8: Terminology Sexual orientation In the research paper provided by way of background to the Commissions consultation, the term sexuality is used as a generic term to describe a persons sexuality, sexual preference, or sexual orientation. This is also the term used in anti-discrimination legislation in Queensland, South Australia, the Australian Capital Territory and the Northern Territory to prohibit discrimination on the basis of a persons sexual orientation. {also} considers the term sexuality preferable to other terms used in state and territory legislation to prohibit discrimination on the basis of sexual orientation (namely, homosexuality and sexual orientation), as it is the broadest and most inclusive term. However, {also} suggests that any definition of this term should not be restricted to gay, lesbian and bisexual orientations but rather, it should seek to encompass all kinds of (lawful) sexualities and the ways in which they are experienced and expressed including for example, heterosexuality, polyamory, etc. All people should be protected from discrimination on the basis of sexuality, whether they are known to hold or have a particular sexuality, are assumed to, or are associated with a person with or assumed to have a particular sexuality. Gender identity and intersex As discussed previously, one of the issues arising from the absence of federal anti-discrimination laws is the significant variance between the legislation of individual states and territories, and this is particularly problematic when seeking to protect people from discrimination across a broad range of gender expressions. {also} supports the submission of the National LGBTI Alliance which has argued that discrimination on the grounds of gender can relate to any one or more of: Gender expression (behaviour and appearance) Diversity of sex characteristics. This may include chromosomal sex, endocrine activity, genitals and reproductive organs, menstruation, secondary sex characteristics (e.g. facial and body hair, musculature and bone structure, size of larynx and depth of voice, breasts, fat distribution, skin texture, stature, body proportions, etc) Gender identity (eg someone discriminated against because they are known, or thought to be, Transgender, Transsexual, Genderqueer, etc). Many of the terms derived from existing state and territory law (chosen gender; gender history; a gender reassigned person; a recognised transgender person; or transexuality) are problematic for their tendency to limit and/or define people in ways they themselves do not identify, for the assumptions they convey about personal choices and/or decisions made in the past or possibly into the future, their relationship to other laws restricting definitions of gender and/or sex in equally limiting ways, and ultimately for their reinforcement of binary constructions of gender to which many people may not subscribe. Similarly, a broad definition of intersex should be used in which the full range of biological variations in sex development are protected, without a person having to rely on an intersex identity in order to be protected. It is vital that any new legislation provides protection from discrimination across the full spectrum of gender possibilities, without reverting to labels of a particular kind, and should apply to those known to have, or are assumed to have a particular gender identity or intersex status. Question 9: Special measures and exemptions {also} considers it appropriate that (otherwise unlawfully discriminatory) measures that are taken for the purposes of assisting or advancing persons or groups of persons disadvantaged because of discrimination, should be considered lawful. {also} thereby supports what are often referred to as special measures exceptions in anti-discrimination legislation. It is not possible to individually list each and every kind of special measure that might be captured by such an exception in federal anti-discrimination legislation. However, some examples could include providing a housing service specifically for gay men; and restricting an employment position to transgender candidates if the role to be performed involved delivering a service designed to support transgender youth. Any exception provision should be drafted broadly so that each case must be considered on its merits. {also} does not support the inclusion of religious exemptions and exceptions in any future anti-discrimination act covering sexual orientation and gender identity. Question 10: Other actions required {also} believes that additional legal protections are an essential step in affording GLBTIQ people protection from harassment, violence and discrimination. We ackowledge however that legislation alone is unlikely to achieve deep and lasting changes in social attitudes. Rather, legislative reforms need to be supported by social interventions, including broad-based education campaigns. Only then can we realise the vision of an open, just and diverse society in which discrimination in all its forms, including the ongoing, day-to-day discrimination and harassment experienced by GLBTIQ people, is consigned to the past. As noted in the background documents to this consultation, the development of a National Action Plan on Human Rights offers an opportunity to develop concrete actions to further the promotion and protection the human rights of GLBTIQ people in Australia. For example, such actions could include: community education programs that aim to reduce homophobia and transphobia in our community public sector human rights education and training that includes consideration of LGBTI rights ensuring that all Commonwealth agencies have appropriate policies regarding support for people who are transitioning from one sex to another. {also} supports the implementation of such actions but considers it appropriate that resources be developed to assist GLBTIQ people themselves to better understand their rights, and the avenues available to them to have those rights realised. Examples may include publications and access to specialised community legal resources. {also} supports provision of resources and jurisdiction to enable the 鱨վ to fulfil its functions in relation to a new act, which we would regard as including an education role, provision of advice and the ability to conduct both referred and own-motion inquiries into instances of systemic and / or otherwise serious instances of discrimination and harassment. Conclusion {also} welcomes the opportunity to contribute to the 鱨վs inquiry into the possible inclusion of protections against discrimination and vilification on the basis of sexual orientation and sex and/or gender identity in federal anti-discrimination law, and strongly supports action in this area. Indeed, {also} believes action is long overdue. The current absence of federal protection from discrimination for GLBTIQ people is in breach of Australias international human rights obligations and contrary to majority public support for equality for all people. For GLBTIQ communities, inclusion in federal anti-discrimination law will have many tangible benefits. These will derive from the symbolism of inclusion, that in itself will send a strong message that discrimination on the grounds of sexual orientation and gender identity is not acceptable or tolerated. Beyond symbolism, inclusion in federal anti-discrimination law will ensure GLBTIQ people can access remedy in the event that discrimination is experienced access that in all but a small number of circumstances is currently denied. If we as a nation are to give real meaning and effect to the oft-stated belief that Australia is committed to notions of equality, a fair go, and respect for the right to freedom from dicsrcimination for all people, then anti-discrimination laws protecting people on the basis of their sexual orientation, gender identity and intersex status must be passed as a priority. Yours Sincerely Jason Rostant President {also} Foundation  Hillier et al (2010), Writing Themselves In 3: The Third National Study on the Sexual Health and Well-being of Same Sex Attracted and Gender Questioning Young People.  Flood and Hamilton (2005), Mapping Homophobia in Australia, Australia Institute Webpaper 79  McNair and Thomacos (2005) Not Yet Equal: Report on the VGLRL Same Sex Relationships Survey.  Leonard (ed) (2002), Whats the difference? Health Issues of Major Concern to Gay, Lesbian, Bisexual, Transgender and Intersex (GLBTI) Victorians.  Hillier et al, above n 1.  Victorian Health Promotion Foundation (2005), A Plan for Action 200507: Promoting Mental Health and Wellbeing.  Couch, Pitts, Mulcare, Cory, Mitchell and Patel (2007) transZnation: a report on the health and wellbeing of transgender people in Australia and New Zealand. Monograph Series Number 65. Australian Research Centre in Sex, Health and Society [ARCSHS].  Senate Legal and Constitutional References Committee (1997), Inquiry into Sexuality Discrimination.  Human Rights and Equal Opportunity Commission (2009), Sex Files: The Legal Recognition of Sex in Documents and Government Records.  Human Rights and Equal Opportunity Commission (2007), Same Sex, Same Entitlements: National Inquiry into Discrimination Against People in Same Sex Relationships.  Galaxy Research (2009), Community Attitudes to Discrimination Legislation Report. Commissioned by the Australian Coalition for Equality, available at  HYPERLINK "http://www.coalitionforequality.org.au/GalaxyPoll-AntiDiscrimination.pdf" http://www.coalitionforequality.org.au/GalaxyPoll-AntiDiscrimination.pdf  For example Toonen v Australia, Communication, No 488/1992, UN Doc CCPR/C/50/D/488/1992 (4 April 1994), available at  HYPERLINK "http://www1.umn.edu/humanrts/undocs/html/vws488.htm" http://www1.umn.edu/humanrts/undocs/html/vws488.htm  For example Young v Australia, Communication No 941/2000, UN Doc CCPR/C/78/D/941/2000 (12 August 2003), available at  HYPERLINK "http://www.bayefsky.com/./html/australia_t5_iccpr_941_2000.php" http://www.bayefsky.com/./html/australia_t5_iccpr_941_2000.php  Yogyakarta Principles on the Application of International Human Rights Law in relation to Sexual Orientation and Gender Identity (March 2007), available at .  UN General Assembly, 70th and 71st Plenary Meeting (18 December 2008).  s.108(1)(a) of the Equal Opportunity Act 1995, EOA s.85(1) [Sexual harassment is] unwelcome conduct in circumstances in which a reasonable person, having regard to all the circumstances, would have anticipated that the other person would be offended, humiliated or intimidated  Leonard, Mitchell, Pitts and Patel (2008) Coming Forward: The underreporting of heterosexist violence and same sex partner abuse in Victoria. Australian Research Centre in Sex, Health and Society [ARCSHS] La Trobe University: Melbourne  Couch, Pitts, Mulcare, Cory, Mitchell and Patel (2007) transZnation: a report on the health and wellbeing of transgender people in Australia and New Zealand. Monograph Series Number 65. Australian Research Centre in Sex, Health and Society [ARCSHS]. La Trobe University  Hillier et al (2010), Writing Themselves In 3: The Third National Study on the Sexual Health and Well-being of Same Sex Attracted and Gender Questioning Young People.  Gray, Leonard and Jack (2006) With Respect: A strategy for reducing homophobic harassment in Victoria. Joint Working Group of the Attorney Generals and Health Ministers Advisory Committees on GLBT issues [unpublished].  Pitts, Smith, Mitchell, Pater (2006) Private Lives: A Report on the Health and Wellbeing of GLBT Australians. Australian Research Centre in Sex, Health and Society [ARCSHS]. 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