ࡱ> %` jbjbj"x"x @@]g%.$***4^&D&D&DhDlDd^C8jEjE"EEE-G-G-G${hhʠ*3L G"-G3L3Lʠ**EEߠ(NNN3Lv*E*EN3LNN**E^E M!&DL>,<CKCM*K|2K* X-GHNIJx-G-G-GʠʠmNj-G-G-GC3L3L3L3L^^^d,d^^^,^^^****** Victorian Equal Opportunity and Human Rights Commission Submission to the 鱨վs consultation on protection from discrimination on the basis of sexual orientation and sex and/or gender identity November 2010 鱨վ the Commission The Victorian Equal Opportunity and Human Rights Commission is an independent statutory body with responsibilities under three laws: Equal Opportunity Act 1995 Racial and Religious Tolerance Act 2001 The Charter of Human Rights and Responsibilities 2006 The Equal Opportunity Act makes it against the law to discriminate against people on the basis of a number of different personal characteristics. The Racial and Religious Tolerance Act makes it against the law to vilify people because of their race or religion. Under the Equal Opportunity Act and the Racial and Religious Tolerance Act, the Commission helps people resolve complaints of discrimination, sexual harassment and racial or religious vilification through a free and impartial complaint resolution service with the aim of reaching a mutual agreement. The Charter of Human Rights and Responsibilities means that government and public bodies must consider human rights when making laws and providing services. The Commissions role is to educate people about the rights and responsibilities contained in the Charter and to report annually to the Victorian Government about the operation of the Charter. The Commission does not handle complaints related to the Charter. Services provided by the Commission include: a free telephone advice line a free and impartial complaint resolution service information and education about equal opportunity, racial and religious vilification and the Charter of Human Rights and Responsibilities education, training and consultancy services. Introduction The Victorian Equal Opportunity and Human Rights Commission welcomes the opportunity to provide comments on the 鱨վs consultation about protection from discrimination on the basis of sexual orientation and sex and/or gender identity and strongly supports the introduction of new federal laws in this area. The introduction of anti-discrimination laws at the federal level to protect the attributes of sexual orientation and genderidentity would send an important message, help set community standards, and from a very practical perspective, would cover areas of federal concern such as Medicare and Centrelink that are not addressed by state anti-discrimination law. These are areas that have an important impact on the experiences of many people in the Australian community, particularly vulnerable groups. Federal laws in this area are also important because the Australian Government plays a crucial role in ensuring that Australia meets its obligations under international human rights law, including protecting the fundamental rights of non-discrimination and equality before the law in articles 2 and26 of the International Covenant on Civil and Political Rights. With this in mind, it is vital that the AustralianParliament seeks to draw on the best from state and territory laws. New federallaws should not result in a lowest common denominator approach as the national standard. Victoria is undergoing its own changes to anti-discrimination law at the state level with a new Equal Opportunity Act coming into force on 1 August 2011. This Act will require a more proactive approach to addressing discrimination and may help inform the federal processes. The Victorian Government has also asked the Hon Geoffrey Eames AM QC to review existing hate crime legislation in Victoria to see if they adequately deal with offences motivated by hatred or prejudice. The review has not yet concluded, however, a number of the submissions into this process may help to inform consideration of the federal framework. The law in Victoria Victorias anti-discrimination legislation has evolved since it was first introduced in 1977. Many attributes that were not protected in the first version of the Act are now included. Sexual orientation and gender identity were added as protected attributes in 2000 with the passage of the Equal Opportunity (Gender Identity and Sexual Orientation) Act 2000 (Vic). This Act was passed in Victoria in recognition of the need to provide equal opportunity for all Victorians and that all Victorians have a right to live free from unjustified discrimination. Without such protection, the very objectives of equal opportunity legislation are undermined those objectives being to promote recognition and acceptance of everyones right to equality of opportunity and to eliminate, as far as possible, discrimination against all people. There is also an identified need for this protection in the community. The effects of discrimination on the grounds of sexual orientation and gender identity are serious. Discrimination limits participation in public life and can lead to increased stress, depression, illness, loss of self-confidence, substance abuse, and in very serious cases, suicidal behaviour. This takes its toll on victims, on employers, and the community as a whole. As one example of this impact, when introducing the changes to the Victorian legislation, the Attorney-General, the Hon Rob Hulls MP, noted that [a]n estimate of 95 per cent of people who make the transition from one sex to the other lose their job because of that transition. As Justice Michael Kirby said in 2008: If you have never tasted discrimination, unequal treatment or perceived injustice, you might wonder what the fuss is about. If you control the levels of power, you may think that action is unnecessary, or a low priority ... Popular majorities can look after themselves. Protective laws are commonly needed for minorities, and especially unpopular minorities. The Commission would therefore strongly support a proposal to introduce new laws to provide the same rights and protections from discrimination on the basis of sexual orientation and gender identity as federal anti-discrimination law currently does for race, sex, disability and age. Discrimination The current law in Victoria (the Equal Opportunity Act 1995 (Vic)), makes it unlawful to discriminate against someone on the basis of a number of protected attributes. The meaning of discrimination includes harassment when it is based on a protected attributed (ie sexual orientation and gender identity) and it occurs in one of the areas of public life protected under the Act (eg employment, accommodation, the provision of goods and services etc). The Act also covers discrimination that is based on an attribute, whether or not that person actually has that attribute. The focus is on the discriminatory behaviour. Section 7(2) of the current Act makes clear that: Discrimination on the basis of an attribute includes discrimination on the basis that a person has that attribute or had it at any time, whether or not he or she had it at the time of the discrimination; of a characteristic that a person with that attribute generally has; of a characteristic that is generally imputed to a person with that attribute; that a person is presumed to have that attribute or to have had it at any time. Protected attributes definitions and terminology The protected attributesare set out in section 6 and relevantly include: (ac) gender identity; (d) lawful sexual activity; (e) marital status; (f) physical features; (k) sex; (l) sexual orientation; and (m) personal association (whether as a relative or otherwise) with a person who is identified by reference to any of the above attributes. The following of these attributes are defined in section 4 of the Act: Gender identity means: (a) the identification on a bona fide basis by a person of one sex as a member of the other sex (whether or not the person is recognised as such) (i) by assuming characteristics of the other sex, whether by means of medical intervention, style of dressing or otherwise; or (ii) by living, or seeking to live, as a member of the other sex; or (b) the identification on a bona fide basis by a person of indeterminate sex as a member of a particular sex (whether or not the person is recognised as such) (i) by assuming characteristics of that sex, whether by means of medical intervention, style of dressing or otherwise; or (ii) by living, or seeking to live, as a member of that sex; Lawful sexual activity means engaging in, not engaging in or refusing to engage in a lawful sexual activity. Marital status means a persons status of being single; married; a domestic partner (a person who is in a registered relationship with the person; or a person to whom the person is not married but with whom the person is living as a couple on a genuine domestic basis (irrespective of gender)); married but living separately and apart from his or her spouse; divorced; widowed; Physical features means a persons height, weight, size or other bodily characteristics; Sexual orientation means homosexuality (including lesbianism), bisexuality or heterosexuality. Previous Victorian legislation provided protection against discrimination on the basis of lawful sexual activity. It was made clear when this attribute was introduced that the provision was intended to prohibit discrimination against homosexuals and lesbians. However, the term lawful sexual activity was limited in that it focused on sexual practices it did not provide protection for broader identity characteristics, rather focusing on active sexual activity, and was offensive to many homosexual, lesbian and bisexual Victorians who saw it as implying that they were more likely to be involved in immoral or unlawful sexual activity. The term sexual orientation was introduced as a more appropriate attribute descriptor. The use of overarching descriptors such as sexual orientation and gender identity have been useful in Victoria and we recommend that broad terms such as these be used in federal legislation. This will appropriately capture diverse sex and gender identities and will focus the provisions around the act of discrimination rather than whether people fit into certain categories we protect everyone from discrimination on the basis of sexual orientation and everyone on the basis of gender identity, just as we protect everyone from discrimination on the basis of their race or religious belief. However, further thought should be given to the relationship between the attributes of sex and gender identity for the avoidance of doubt as they relate to people who are transgender, transsexual, of indeterminate sex or are intersex. For example, attempts to exclude transgender or transsexual women from women-only services or roles has presented a challenge for the interpretation of the Act. Exceptions and exemptions To clarify the research paper on the Protection from discrimination on the basis of sexual orientation or sex and/or gender identity in Australia prepared for the 鱨վ in October 2010, the Victorian Act contains both exemptions and exceptions to the prohibitions of discrimination. Exceptions are set out in the Act and are recognised as providing a balance between the rights and freedoms of individuals by providing limited exceptions where discrimination otherwise prohibited by the Equal Opportunity Act in specific circumstances will not be unlawful. Exemptions provide a mechanism for individuals and entities to seek permission from the Victorian Civil and Administrative Tribunal (VCAT) to discriminate in specified circumstances and for a specified period of time. Exceptions and exemptions can operate to clarify that some forms of discrimination are necessary and appropriate in pursuit of the objects of the Act (for example, the special measures-related exceptions). They also highlight forms of discrimination that were considered as reasonable and acceptable by community standards at the time (those that respect personal privacy, safety, personal choice and association, and permit actions considered of economic and legal necessity). Different Australian jurisdictions have drawn different lines about what these standards are. Where exceptions and exemptions apply, they also need to be reviewed from time to time. During the consultation process for the new Equal Opportunity Act 2010 (Vic), the VictorianCommission noted our view that the following exceptions needed to be further examined and discussed with the community, particularly in relation to the impact of these exceptions on the prohibition of discrimination on the basis of sexual orientation and gender identity: gender identity in employment (s 27B) genuine occupational requirements (s 17) competitive sporting activities (s 66) religious bodies and religious schools (ss 75 and 76), and religious beliefs or principles (s 77). The Australian Commissions discussion paper notes that the: Victorian Act also has a very broad religious belief exemption that applies outside the context of religious institutions such as religious schools. It exonerates discrimination where the reason for the discriminatory decision relates to the respondents religious beliefs and principles. It is important to note in this context that exceptions and exemptions are interpreted narrowly, and for Victoria, our reading of exceptions and exemptions is now guided by the Charter of Human Rights and Responsibilities Act 2006 (Vic) and its general limitations clause. Any limitations on human rights in the Charter must be reasonable, justified, proportionate, rational and balanced. In the recent case of Cobaw Community Health Services Limited v Christian Youth Camps Limited & Anor [2010] VCAT 1613 (8 October 2010), VCAT found that a Christian adventure resort had discriminated against a same sex attracted youth group by denying them access to its camping facilities because of their sexual orientation. Justice Hampel noted that when interpreting the religious exemptions under the Equal Opportunity Act, she must have regard to the purpose and object of the underlying Act which in this case is to promote recognition and acceptance of everyones right to equality of opportunity; to eliminate, as far as possible, discrimination against people; and to provide redress for people who have been discriminated against. Justice Hampel noted at paragraph 221 that: A construction that advances the purposes or objects of the EO Act would favour a narrow, not broad, large or liberal interpretation of the exceptions. The inclusion of the exceptions in the EO Act evidences Parliaments intention to strike a balance between the right to be free from discrimination, and the right to freedom of religious belief, and the point at which the balance is struck. In construing the exceptions, the right to freedom from discrimination must not be curtailed unless clearly manifested by unmistakeable and unambiguous language. I must therefore interpret sections 75(2) and 77, having regard to the purpose of those exceptions, namely to protect religious freedoms, and in a manner consistent with the rights to freedom of thought, conscience, religion and belief in s 14 of the Charter, and freedom of expression in s 15 of the Charter but also, so far as is possible, in a manner which is compatible with the rights to equality and freedom from discrimination in s 8 of the Charter. I must do so in a way which does not privilege one right over another, but recognises their co-existence. Justice Hampel also found on the facts presented in this case that the respondents had not demonstrated that the refusal of the booking conformed with the doctrines of the religion or that it was necessary to avoid injury to the religious sensitivities of adherents to the religion. New obligations in Victoria under the Equal Opportunity Act 2010 In Victoria, we are also in the process of building on our current anti-discrimination law. A modernised anti-discrimination law requires a range of provisions that seek to provide substantive equality rather than mere formal equality to ensure that discrimination is eliminated to the greatest possible extent. Substantive equality recognises that equal or the same application of rules and processes to unequal groups can have unequal results. It recognises that access to opportunities is not equitably distributed throughout society, and equality in terms of outcomes as well as equal opportunity is required to address the social and economic costs of discrimination. The Commission believes that a major shift in attitude towards the elimination of discrimination can only be brought about by recasting the debate as a responsibility on everyone to actively eliminate discrimination rather than, as currently, a passive obligation not to discriminate. The Commission is therefore pleased that the new Equal Opportunity Act 2010 imposes a positive duty on organisations to be proactive in eliminating discrimination. In this way, the new Act shifts the burden of compliance away from individual complainants. This is a general issue across all areas of discrimination: bringing a complaint of discrimination of any sort takes a lot of time, courage, energy and resilience. However, it is particularly important to consider in relation to sexual orientation and transgender issues. This is an area where people have historically found it difficult to raise complaints for safety and privacy reasons. It is also an area where discrimination is still lawful in a number of Australian laws. Vilification and hate crime The Commission supports strengthening both civil and criminal provisions protecting people from vilification and hate conduct. In the Commissions view, such remedies are necessary because hate crime and hate conduct have a disproportionate impact on particular groups and their ability to realise other human rights. This should apply to attributes that include sex, sexual orientation and gender identity. The Commission believes that a legislative framework recognising that hate conduct and crime are part of a continuum of behaviour will be the most effective in both providing redress for victims and sending a strong message about acceptable conduct in an inclusive community. In a submission to the Victorian review of identity-motivated hate crime in May 2010, the Commission recommended that there be a provision in the Equal Opportunity Act prohibiting offensive, insulting, humiliating or intimidating conduct against people, or a group of people, based on sex, sexual orientation and gender identity (among other attributes). In Victoria, specific legislation protects people from racial and religious vilification. The extension of these protections to a broader range of groups would appropriately reflect their experiences. Research indicates that a high frequency of vilification or hate speech against a particular group has a profound affect on the individual and group members, but can also lead to more serious behaviours including discrimination and violence against those group members (which is criminal behaviour and should be treated as such). Sending a clear message to the Australian community that hate conduct is unacceptable by specifically making it unlawful should have an important preventative effect. The VictorianCommission initiated a hate crime survey earlier in 2010 to learn more about hate crime and conduct from the community. A number of the examples coming out of this survey related to the issues raised in this consultation, including: A transgender person being hit in the face in a pub and being abused for being a wannabe woman. When walking home, a man and his boyfriend were jumped by three teenage boys who called them faggots and punched them in the stomachs, chests and heads. One woman reported: I was abused and screamed at by a group of men who called me a f**king dyke [and said] that I should be stabbed or raped. I had an encounter last week where I was referred to as a faggot for wearing a rainbow scarf. [He] just kept going off to his friends saying that Im sick and perverted and should be stoned to death. My partner and I received a letter at our home enclosing a photocopied extract describing homosexuality as a psychiatric aberration. In Victoria, the Coming Forward report produced by Gay and Lesbian Health Victoria and the discussion paper With Respect: a strategy for reducing homophobic harassment in Victoria further detail the experiences of members of the gay, lesbian, bisexual, transgender and intersex communities. Protection from vilification is needed and it should apply both where the offender believed the victim was a member of a group, and where the victim is associated with a member of such a group. Protection for people imputed to have a characteristic and associates of people with a particular characteristic are already well-recognised in anti-discrimination law. The strengthening of civil protections in this area would also provide those groups with less formal and more accessible means of redress through the dispute resolution services offered by the 鱨վ. In our experience, such service can provide a quick and appropriate remedy for victims of hate conduct, but can also have a broader, educative effect on all parties involved in the dispute. We would be happy to elaborate further on some of the issues around the use and accessibility of current vilification laws in Victoria. Legislative protection is only part of the story Laws to prohibit discrimination on the basis of sexual orientation and gender identity in areas of public life are an important step towards equality. They set standards, make the legal position clear and provide the framework within which other compliance activity can occur. In addition to this, it is necessary to pursue a broader range of activities to support the legislative framework. We would therefore like to reinforce the importance of the Australian Commissions question in the discussion paper about what other actions would you like to see the Australian Government take to better protect and promote the rights of LGBTI people in Australia. In particular, the Commission highlights the need for: Victim support. Education and advocacy related functions including specific compliance advice to the public. Community education programs that aim to reduce homophobia and transphobia in the community. We have some excellent experience of cooperation in this area with sporting programs around the State. Training to support people in asserting their rights. For example, we have had good experience with sessions on making your workplace GLBTI friendly which were designed to equip participants with the knowledge and skills to assert their rights at work to: safety, dignity, courtesy and respect carers leave, parental leave and any other benefits related to their domestic partnership freedom from harassment and sexual harassment. Programs to assist employers, education providers and the providers of services to better meet their obligations and to move toward good practice in diversity and inclusion. Education and training programs for Commonwealth officers (and we note that this should be considered as part of the broader human rights approach in the Australian Governments Human Rights Framework). Support for appropriate research and data-collection to ensure evidence-based policy and programs. For example, we would encourage consideration of how the national census is used to do this, particularly around sexual orientation and gender identity, beyond the data on relationships already collected. The Australian Commission could also play a useful role in identifying and promoting best practice approaches, both from across Australia and internationally.  The Hon Rob Hulls MP, Attorney-General, Second Reading Speech, Hansard, 13 April 2000.  Justice Michael Kirby, An Australian charter of rights answering the critics, 2008, 31 Australian Bar Review, pp 149 158.  The Hon Rob Hulls MP, Attorney-General, Second Reading Speech, Hansard, 13 April 2000.  Section 12 of the new Equal Opportunity Act 2010 (Vic) clarifies that special measures are not unlawful discrimination. The new Act comes into force in August 2011.  鱨վ, Protection from discrimination on the basis of sexual orientation and sex and/or gender identity: Discussion paper, October 2010, p 13.  A notice of appeal has been lodged in this case.  W Leonard, A Mitchell, S Patel, C Fox, Coming Forward: The under-reporting of heterosexist violence and same sex partner abuse in Victoria, 2008; Bronwen Gray, William Leonard and Marissa Jack, With respect: A strategy for reducing homophobic harassment in Victoria, Joint Working Group of the Attorney-Generals and Health Ministers Advisory Committees on Gay, Lesbian, Bisexual, Transgender and Intersex (GLBTI) issues.     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