ࡱ> ` lbjbjss b8\ \ \ x   ,,,8-,,-l ;--(-( . .///; ; ; ; ; ; ;$=?hAN.; 5/"/55.; . .}C;7775 . .;75;77VL:@ : .- ו,6:(:$Y;0;: A6A:A :$/E1&7k2W37///.;.;7v///;5555 $, ,   Equality For Australia's Lesbian, Gay, Bisexual, Transgender & Intersex People Website: www.coalitionforequality.org.au Email: media@coalitionforequality.org.au Post: PO Box 666, Mount Lawley WA 6929 14th June 2006 Same-Sex Relationships Inquiry Human Rights Unit Human Rights and Equal Opportunity Commission GPO Box 5218 Sydney NSW 2001 Via email:  HYPERLINK "mailto:samesex@humanrights.gov.au"samesex@humanrights.gov.au Dear Sir/Madam Re: National Inquiry into Discrimination against People in Same-Sex Relationships: Financial and Work-Related Entitlements and Benefits Australian Coalition for Equality Inc. submission In recent weeks, the Prime Minister has made statements claiming his government had remedied much of the discrimination affecting same-sex couples. As demonstrated below, discrimination against same-sex couples is still found in many areas of national financial laws and regulations governing the lives of all Australians. In reality, the Australian government has removed this discrimination in only one area relating to financial matters - private superannuation lump-sum death benefits. In this light, the inquiry is both timely and of very real importance. We thank you for the opportunity to participate in the process. The Australian Coalition for Equality (ACE) is dedicated to achieving equality for lesbian, gay, bisexual, transgender and intersex (LGBTI) people in Australian national law and policy. ACE is a new and exciting LGBTI action group with a focus on outcomes. Its mandate is international human rights law and it is made up of LGBTI advocates with a proven track record in achieving equality in their respective fields. Currently ACE is the only LGBTI human rights organisation working across a wide range of national issues including equality for same-sex couples in areas like superannuation, workplace benefits and marriage, national sexuality and gender identity anti-discrimination laws, and equality for families headed by same-sex couples. The Inquiry seeks to ensure that Australia is in compliance with three particular United Nations conventions the International Covenant on Civil and Political Rights; the Convention on the Rights of the Child; and the Discrimination (Employment and Occupation) Convention 1958; Each of these conventions takes its mandate from the Universal Declaration of Human Rights, wherein the preamble state Whereas recognition of the inherent dignity and of the equal and inalienable rights of all members of the human family is the foundation of freedom, justice and peace in the world,. It can only be drawn from this that any Australian law not ensuring equal access and treatment to same-sex couples breaches the Universal Declaration of Human Rights and those conventions relating to this inquiry. This principle has been extended to recognise the human rights of people discriminated against on the basis of their sexual orientation by the UN Human Rights Committee in its findings involving violations of the ICCPR. Significantly, the case in which the UNHRC found international human rights guarantees to protect human rights regardless of sexual orientation was against Tasmanias former anti-gay laws. Equally significantly, the case in which this finding was confirmed was against discrimination in Australian federal spousal entitlements. The above principles and jurisprudence make it clear that any Australian law not ensuring equal access and treatment to same-sex couples is in breach of Australias international human rights obligations. For example, the 2004 passage of an amendment to the Marriage Act 1961, specifically defining marriage as between a man and a woman. This is in serious breach of Australias obligations since it acts to legislatively deny same-sex attracted individuals equality, on the basis of their sexuality. Similarly, the failure of successive federal governments to provide any formal or presumptive recognition of same-sex couples has ensured continuation of this breach through a raft of legislation, which discriminates against these couples. This issue is discussed in more detail below. While not claiming to provide an exhaustive audit of Australian legislation discriminating against same-sex couples, ACE offers that there are a number of areas in which discrimination clearly occurs and affects the financial circumstances and employment of thousands of same-sex couples. These are Superannuation, Defence and Veterans Affairs, Medical and Aged Care and Taxation. Social Security also creates problems for same-sex couples. These issues are dealt with under separate headings below. Superannuation The Australian Government amended a number of superannuation laws during 2005, providing some equality of treatment for same-sex couples and other close interdependent relationships. These amendments recognised such close personal relationships, allowing a surviving dependent person to receive a deceased person's superannuation (the so-called 'death benefit') and access the same tax exemption received by heterosexual de facto or married couples. However, this has not provided treatment for same-sex couples and other interdependent relationships equal to that granted to heterosexual couples, for the following reasons. Definition of interdependency in current legislation The definition of interdependent relationship added to the legislation by the Superannuation Legislation Amendment (Choice of Superannuation Funds) Act 2005 is at odds with other federal legislation (e.g., section 238 of the Migration Act 1958) and broader definitions in state-based laws. The superannuation law definition requires cohabitation by the same-sex couples, directly discriminating against same-sex couples who are forced to live apart for bona fide reasons - work relocation, sickness and frailty, military or national service, institutionalisation or other such reasons. A number of states do not require cohabitation as a compulsory requirement to be recognised as an interdependent or same-sex de facto relationship under state law. Federal public sector employees The 2005 legislation only relates to taxation treatment for death benefit payouts in private industry superannuation schemes, those controlled by the Superannuation Industry (Supervision) Act 1993. As a result, same-sex couples still pay a 30 per cent rate of taxation for benefits in federal government superannuation schemes. This affects not Commonwealth Government employees, employees of the ACT government and members of a range of Defence Forces superannuation schemes. Superannuation splitting rules on relationship dissolution The Federal Government's Superannuation Legislation Amendment (Family Law and Other Matters) Act 2005 enables the Family Court to divide superannuation funds when relationships break down. This legislation ignores same-sex couples, as the Federal Government did not amend relevant parts of the Family Law Act 1975 (and specifically Part VIIIB) to allow the Family Court to resolve property disputes among same-sex couples - despite the government being given a referral of powers from the states in 2003-2004 to allow the Federal Government to grant access to the Family Court for same-sex couples. This includes tax rebates for a spouse making a superannuation contribution on behalf of a low-income or non-working partner, pursuant to the Income Tax Assessment Act 1936. Superannuation co-contribution rules The Government's introduction of the Tax Laws Amendment (Superannuation Contributions Splitting) Act 2005 offers partners of heterosexual relationships the ability to make superannuation co-contributions into each other's funds, attracting a taxation rebate in the process. This beneficial taxation treatment for opposite-sex couples is not available to same-sex couples. Defence and Veterans Affairs In 2005, a number of internal Australian Defence Force policies were amended, granting a degree of equal treatment for same-sex couples and other close interdependent relationships. These changes recognised same-sex couples and other close personal relationships in relation to a number of ADF-related benefits, with these relationships gaining the same benefits provided to heterosexual de facto or married couples. Because these benefits are those controlled by ADF policy, this has not provided treatment for same-sex couples and other interdependent relationships equal to that received by heterosexual couples. Other benefits granted to serving ADF personnel and veterans are derived from legislation, which remains unchanged. Definition of interdependency in ADF policy While applauding the ADF's policy developments in this area, the definition of interdependent relationship in the policy is problematic for serving personnel separated from partners by relocation. The definition used by the ADF policy requires individuals to be in a close personal relationship, where there are both financial and domestic support commitments. This directly discriminates against same-sex couples forced to live apart for bona fide reasons such as separation by the ADF due to military relocation or service, illness and frailty, institutionalisation or any other reason. The majority of states do not define cohabitation as a compulsory requirement for recognition of interdependent or same-sex de facto relationships. Legislative restrictions on ADF benefits Because the ADF can only change policies it directly administers, it is unable to extend all benefits to same-sex couples. A range of other benefits, determined by legislation, require legislative change to ensure equality. These include superannuation, housing loans, retirement benefits and death benefits for current and former ADF personnel - as well as rehabilitation and compensation schemes. The result the ADF now recognises same-sex couples under operational ADF policies, but the Commonwealth Government does not recognise these same relationships for ADF benefits pursuant to legislation. In addition, ADF superannuation schemes discriminate in a similar way to other Federal government schemes, with same-sex partners not recognised for taxation relief relating to death benefit payouts. Benefits for former service personnel and veterans The above issue also occurs in relation to benefits granted veterans and their dependants same-sex couples are not treated equally for legislatively-determined entitlements, resulting in them being recognised in some areas during active service and not recognised once their service ends. The UN Human Rights Committee (in the case of Young v Australia, UN Document CCPR/C/78/D/941/2000), in August 2003, determined Australia was in breach of article 26 of the Optional Protocol to the International Covenant on Civil and Political Rights - by denying both a pension and a bereavement payment to Edward Young. Mr Young had been in a 38-year relationship with veteran Larry Cairns, who died in 1998. The UNHRC ruling found broadly that Australian law discriminated against same-sex couples, violating the right of all citizens to equal treatment before the law. The granting of veterans' benefits to non-heterosexual couples will ensure Australia complies with international human rights obligations, as well as removing anomalies within law. Medical and Aged Care Changes to the way the Medicare and PBS safety nets work, made in 2003-2004, grant greater concessions to families and couples. There are two Medicare safety nets one for out-of-pocket medical expenses and one for the gap between the cost of a medical service and the Medicare Schedule fee. The PBS safety net exists to help individuals and families, by heavily discounting PBS prescription medicines once a threshold has been reached. As part of this legislation, both the Medicare and PBS safety nets contain definitions of couples and family groups for registration under each safety net scheme. Again, the definitions contained in these sections of the legislation do not recognise same-sex couples for the safety net systems. This creates an anomaly where a couple, with or without children, cannot register as complete family unit, treating one partner of the same-sex couple as an individual. Application of two safety net thresholds to same-sex couples Since the National Health Act 1953 and Health Insurance Act 1973 both contain definitions of family for the safety net schemes - excluding same-sex couples - it creates discriminatory circumstances for these couples and their families. The legislative anomaly creates two separate problems. Firstly, a same-sex couple has two separate safety net thresholds in each safety net system, as neither system allows them to jointly register as a family unit. And, Medicare and PBS expenses incurred by the same-sex couple are split between the two separated thresholds in each system, making it harder to reach each of the two separate thresholds. This is an additional financial burden for same-sex couples that heterosexual couples do not face - due to their unitary thresholds with every family members expenses counting towards one threshold in each safety net system. Aged and nursing home care subsidies Several other anomalies affect aged care access and provision for same-sex couples. Primarily, the Aged Care Act 1997 does not recognise same-sex couples as couples or partners under the legislation, resulting in a person in a same-sex relationship having 100 per cent of their individual assets being assessed - rather than 50% of the joint assets of the relationship. This is a real difficulty where a same-sex couple jointly owns assets, invariably resulting in a partner in a same-sex relationship receiving for less financial assistance under the residential care subsidy scheme than a partner in a heterosexual relationship. Recognition of same-sex couples under the Act would ensure consistent assets assessment for all couples, remove the additional financial hardship experienced by elderly same-sex couples. Residential aged care codes of practice The Councils on the Ageing and National Seniors Associations recommended the Australian Government incorporate, into the Code of Practice for Residential Aged Care, that facilities be provided for couples - including same sex couples - requiring different levels of nursing care to enable them to remain together and care for each other in the same establishment should they so choose. Provision of this supportive care to elderly same-sex couples allows them the same dignity and respect as heterosexual couples in comparable situations, while a failure to amend Federal Government codes of practice will ensure continuation of negative outcomes for elderly same-sex couples in comparison to their heterosexual counterparts. Taxation Australia's taxation laws provide deductions and offsets, assisting taxpayers in their individual and family situations. Families receive tax offsets and benefits to alleviate some of the financial strain of raising a family or having a dependant. A dependant of an individual includes their spouse, legislatively defined as a heterosexual partner. Other dependants may include children under 16 (under 25 for a full-time student), the parents of the individual or their spouse, an invalid sibling or child. Since partners in a same-sex relationship are not recognised as each other's spouse, one partner cannot treat the children or parents of their same-sex partner as their dependents. As a result, they are denied various taxation benefits and concessions heterosexuals can access to defray the costs of dependent partners, children, parents and family members. For the same reason, they are denied various taxation benefits and concessions heterosexuals take for granted. - since an individual cannot treat the children or parents of their same-sex partner as their dependants. A partner in a same-sex relationship cannot claim the proposed 30% Child Care tax rebate if they are paying child care costs relating to their partner's children, or the Spouse's Parent tax offset for their same-sex partner's dependent parents currently up to $1,414 per parent per year. Nor can an individual claim their same-sex partner under the Dependent Spouse tax offset worth up to $1,572 per year. If caring for an invalid child of their same-sex partner, they aren't able to claim the Invalid Relative tax offset worth up to $708 per dependent invalid child. And, if the child of their same-sex partner keeps house, the individual is not eligible to claim for the Child-Housekeeper tax offset up to $1,885 per year. Social Security In identical fashion to the above, Centrelink legislation defines a couple as heterosexual and same-sex relationships are not recognised in determining eligibility for any benefits from that agency. This results in some financial advantages for same-sex couples, but also some very significant and discriminatory disadvantages. For some benefits, individuals in same-sex relationships don't have their partner's income or assets tested. As a partner's situation may reduce or eliminate the benefit, this can result in increased benefits compared with a similar heterosexual couple. However, the apparent advantage is offset by the fact heterosexual couples are assessed on higher combined asset test limits. This can enable heterosexual couples with an unequal distribution of assets to still qualify for payments. Since same-sex relationships are not treated this way, it may disadvantage or disqualify a same-sex partner with large assets from a benefit. A partners death provides evidence of the greatest discrimination for same-sex couples in this area. For many Centrelink payments, a surviving heterosexual partner can be paid a lump sum or continuing bereavement payment of up to 14 weeks of benefit payments. In addition, because their relationships are not recognised, the surviving member of a same-sex couple does not qualify for a widows pension or payments. The pain suffered from the loss of a same-sex partner is the same as that of a lost heterosexual partner and bereavement benefits should be equal to those available to heterosexuals. Marriage The Howard government passed an amendment to the Marriage Act 1961 in 2004, defining marriage as a union specifically between a man and a woman; in doing so, they cemented discrimination against same-sex couples into both legislation and Australian society. This amendment was aimed at short-circuiting planned legal challenges by several same-sex couples legally married in overseas jurisdictions. The amendment is clearly discriminatory, excluding same-sex couples from equal treatment and access to a valued societal institution - and contravening the inalienable rights guaranteed all citizens by the Universal Declaration of Human Rights. As noted in relation to several issues above, the failure to recognise same-sex relationships results in financial problems for these couples in many areas - difficulties not faced by heterosexual couples. Marriage provides heterosexual couples with an opportunity to prove their relationship's existence in order to qualify for benefits and entitlements - including such employment-related entitlements as carer's leave and bereavement leave when these relate to a partner. For same-sex couples, however, even this option is not available. Marriage both validates a relationship in the eyes of the wider community and provides formal recognition of that relationship. This certification of the relationship's existence provides immediate access by married couples to all benefits and entitlements discussed above. The government's amendment of the Marriage Act 1961 not only denies partners in same-sex relationships all such benefits, but also actively discriminates against them by deliberately denying their human rights and their full and equal status as citizens. Anomalies relating to State-based recognition of same-sex relationships Today, all states excepting South Australia grant some degree of recognition to same-sex couples, ranging from provision of an equal status to de-facto heterosexual relationships (as in NSW) to provision of rights equal to those of a married couple (Tasmanias Relationship Act 2003 and the ACTs Civil Unions Bill 2006). However, this recognition at State and territory level is of no value in relation to national law. Because the Australian government remains out of step with almost all its member states, same-sex couples find themselves being accepted at a State level and their relationships denied existence federally. Thus, while treated as a couple for State taxation purposes and other business regulated by State legislation, they remain non-existent for the purpose of almost every benefit and entitlement controlled by Commonwealth law. One glaring example of this particular problem relates to Tasmanias Relationship Act 2003, which provides for the adoption of an individuals child, a child related to that person or cared for by that individual, by the individuals same-sex partner. While this provides the partner with legal recognition as the childs parent for the purpose of Tasmanian laws, it does not do so for any of the various areas and legislation controlled by the Australian government. Hence, for the purpose of taxation, Medicare, Centrelink, ADF benefits and Family Law, the same-sex partner is not recognised as a parent. This can only be financially, emotionally and socially damaging for the parents and any child treated in this manner by Federal law. The above must be considered not only in the light of the Universal Declaration of Human Rights, but also within the discussion of a childs inalienable rights, as set down in the Convention on the Rights of the Child. The preamble of this convention states - Convinced that the family, as the fundamental group of society and the natural environment for the growth and well-being of all its members and particularly children, should be afforded the necessary protection and assistance so that it can fully assume its responsibilities within the community, The failure of the Australian government to recognise the legal status of these same-sex adoptive parents places the government in breach of its obligations under this convention as there are obvious legal and financial obstacles created for the parent in providing optimal care and developmental opportunity for the child. Legislation requiring attention The following provides details of legislation requiring some amendment to eliminate its existing discrimination against same-sex couples. The list is not exhaustive, but may be of assistance to the Inquiry. AGED CARE Aged Care Act 1997 BANKRUPTCY Bankruptcy Act 1966 CHILD SUPPORT Child Support (Assessment) Act 1989 CRIMINAL Crimes Act 1914 DEFENCE/VETERANS AFFAIRS Defence Force Retirement and Death Benefits Act 1973 Defence Act 1903 Military Rehabilitation and Compensation Act 2004 Defence Force (Home Loans Assistance) Act 1990 Defence Force Retirement Benefit Act 1948 Defence Housing Authority Act 1987 Defence Service Homes Act 1918 War Gratuity Act 1945 Military Superannuation and Benefits Act 1991 Veterans Entitlements Act 1986 FAMILY LAW Family Law Act 1975 HUMAN RIGHTS & EQUAL OPPORTUNITY Human Rights and Equal Opportunity Commission Act 1986 INDIGENOUS Aboriginal and Torres Strait Islander Act 2005 INSURANCE Health Insurance Act 1973 Life Insurance Act 1995 Private Health Insurance Incentives Act 1998 MEDICARE/NATIONAL HEALTH Medicare Surcharge Act 1986 National Health Act 1953 MIGRATION Migration Act 1958 SEX DISCRIMINATION Sex Discrimination Act 1984 SUPERANNUATION Parliamentary Contributory Superannuation Act 1976 Superannuation Act 1976 Superannuation Act 1990 Superannuation Act 2005 Superannuation Contributions Tax (Assessment and Collection) Act 1997 Superannuation (Government Co-Contribution for Low Income Earners) Act 2003 Superannuation Act 1922 TAXATION A New Tax System (Medicare Levy SurchargeFringe Benefits) Act 1999 A New Tax System (Goods & Services Tax) Act 1999 A New Tax System (Family Assistance) Act 1999 Income Tax Assessment Act 1936 Income Tax Assessment Act 1997 Medicare Levy Act 1986 Tax Law Improvement Act 1997 WELFARE Social Security Act 1991 Social Security (Administration) Act 1999 Student Assistance Act 1973 (definition partner) WORKPLACE RELATIONS Workplace Relations Act 1996 OTHER Commonwealth Electoral Act 1918 Disability Discrimination Act 1992 Evidence Act 1995 Judicial and Statutory Officers (Remuneration and Allowances) Act 1984 Judges Pension Act 1968 Marriage Act 1961 Parliamentary Entitlements Act 1990 Privacy Act 1988 Retirement Savings Accounts Act 1997 Safety, Rehabilitation and Compensation Act 1988 Governor-General Act 1974 Witness Protection Act 1994 Youth Allowance Consolidation Act 2000 It is sincerely hoped that all of the above is of value to the Inquiry. Should any further discussion be required in relation to this submission, please contact the Australian Coalition for Equality on the email address provided. Yours, Rod Swift Secretary Australian Coalition for Equality, Inc.  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