ࡱ> %` 9_bjbjNN f,,GU[ZZZZ[[[$X]dPԄ|dvxxxjۆ $hV[WWW[[0___W[[_W__m[[l 0FIdEiHTF0vӎv[D_ NIvWWWWddd`v$ddd`v\\Z[r[[[ Anti-Discrimination TRIBUNAL Queensland  CITATION:Exemption application re: Auto & General Insurance Company Limited & Ors [2009] QADT 2PARTIES:AUTO & GENERAL INSURANCE COMPANY LIMITED AND INSURERS HOTLINE PTY LTD AND THEIR EMPLOYEES, OFFICERS AND AGENTS Applicant FILE NO/S:EXE07/10PROCEEDING:Application for ExemptionDELIVERED ON:27 January 2009DELIVERED AT:BrisbaneBEFORE:Member Philp SCHEARING DATES:29 October 2007ORDER:1. Pursuant to section 113 of the Anti Discrimination Act 1991 (Qld) (the Act), the Queensland Anti Discrimination Tribunal grants an exemption to the Applicants from the operation of sections 67(b), 122, 124 and 127 in relation to the attribute described in section 7(b) of the Act so that it is not unlawful for the Applicants to discriminate on the basis of relationship status if the discrimination - is based on reasonable actuarial or statistical data from a source on which it is reasonable for the Applicants to rely; and is reasonable having regard to the data and any other relevant factors. 2. The exemption is granted on the following further conditions - The Applicants will not decline a claim made under an insureds motor vehicle insurance policy on the basis that the insured failed to disclose his or her relationship status or any change in the relationship status; and The Applicants will not refuse any application for insurance or insurance renewal on the grounds of the information a person provides about their relationship status. 3. The exemption is to remain in force for a period of five (5) years from the date of this judgment.CATCHWORDS:Exemption application relationship status insuranceCASES CITEDBoeing Australia Holdings Pty Ltd [2003] QADT 21 Boeing Australia Holdings Pty Ltd [2007] VCAT 532 (3 May 2007) Exemption application re Raytheon Australia Pty Ltd & Ors [2008] QADT 1 (25 January 2008);LEGISLATION CITED:Anti Discrimination Act 1991 ss.7(b), 67(b), 73, 74, 75, 113, 122, 124 and 127.REPRESENTATION:Mr D Williams, solicitor of Minter Ellison appeared for the Applicant. Mr A Horneman-Wren of Counsel, instructed by the Anti Discrimination Commissioner, appeared for the Anti-Discrimination Commission Queensland. By application filed 9February 2007, Auto & General Insurance Company Limited, Insurers Hotline Pty Ltd and its employees officers and agents (the Applicants) applied pursuant to s.113 of the AntiDiscrimination Act 1991 (the Act) for exemption from the operation of ss.67(b), 122, 124 and 127 in relation to the attribute described in s.7(b) for a period of five (5) years. The exemption is sought so that it would not be unlawful for the Applicants to discriminate on the basis of relationship status - In the terms on which insurance is supplied (s.67(b)); In requesting or encouraging another person to contravene the Act (s.122); In asking another person to supply information on which unlawful discrimination might be based (s.124); In publishing or displaying, or authorising the publication and display, of an advertisement which indicates that a person intends to act in a way that contravenes the Act (s.127). At a directions hearing on 19July 2007, I directed the Applicants to publish in the public notice section of the Courier Mail newspaper and the Australian newspaper on or before 3August 2007, notice of the application advising that anyone wishing to make submissions on the application is to provide the Anti Discrimination Tribunal Queensland with submissions in writing on or before 31August 2007. That was duly done. The only response was from a MrHelmut Pfeffer of Brisbane whose complaints did not relate to the introduction of relationship status having an effect on premium levels for motor vehicle insurance. However the Anti Discrimination Commissioner elected to oppose the application and provided written submissions and appeared by Counsel on the hearing of the application. The basis of the application is set out in the two affidavits of Ray Edwards, filed 9February 2007 and 12October 2007, and an affidavit of Tim Andrews filed 9February 2007. Mr Edwards was cross examined by Mr Horneman-Wren, Counsel for the Commissioner. The Applicants also provided written submissions dated 9February 2007 and supplementary written submissions dated 12October 2007. As this material contained commercially sensitive information confidential to the business of the Applicants, I had ordered that it was not available for disclosure to the public. At the end of the hearing I extended those orders to also include the transcript of the proceedings. In setting out my reasons it will be necessary to refer to some of the material relied upon by the Applicants but I will attempt to do so in a manner which preserves its confidentiality. It is not necessary for me to find on this application that the actuarial data collected and/or relied upon by the Applicants is, ultimately, of such a nature to meet criteria that would be in place if the exemption were to be granted relating to the reasonableness of the data, and/or its source and the reasonableness of reliance upon it having regard to all other relevant factors. A general description of the effect of the data relied upon by the Applicants ought to be sufficient to properly determine this application. The Applicant companies form part of the Budget group of companies which operates in South Africa, the United Kingdom and Australia. The international associates of the Applicants have identified a material statistical difference in the claims experience of their insured drivers, depending on their relationship status. As a result, relationship status is commonly used as a rating factor to calculate motor vehicle insurance premiums. The Applicants have been collecting statistical data about the relationship status of their customers since September 2000. That data identifies similar trends in the Australian motor vehicle insurance market. Mr Edwards, who is the General Manager, underwriting for Auto & General Insurance Company Limited, sets out the details of a Marital Status Report which has been generated from the data collected between 1September 2000 and 30June 2006. It involves almost half a million car insurance customers. One of the key performance indicators for the Applicants business is the claims ratio. This ratio is an indication of the value of the claims that are made by the customers compared to the premium income earned from those customers. This ratio is the primary measure in determining pricing equitability across portfolio segments. The goal is for each segment of the portfolio to perform at the same level. Mr Edwards analysis of the claims ratio data indicates that both male and female drivers with separated status perform less profitably than most other categories of customers, based on relationship status. Cohabitating males and females perform significantly more profitably than the average. To demonstrate that the analysis was not distorted by an interaction of relationship status with the age of the driver, the Applicants investigated the claims ratio after excluding all drivers under 40years of age. Although the differences by relationship status were lessened, they were still very material. The Applicants wish to use relationship status as a rating factor. This would allow them to more accurately and commercially price their products and offer increased discounts to their customers who perform more profitably. Mr Tim Andrews is an Actuary and Director of Finity Consulting Pty Ltd (Finity). Finity provides actuarial and consultant services to stakeholders in the general insurance industry. He has specialised in general insurance work since 1986 and has been a fellow of the Institute of Actuaries of Australia since 1987. He was retained by the Applicants to provide an expert report on whether it is feasible, based on data collected by the Applicants, to introduce relationship status as a rating factor for the Applicants private motor vehicle insurance portfolio. Mr Andrews concluded that it was reasonable to assume that marital status was explaining differences in the claims experience. He regarded it as reasonable to use the differences observed between categories for establishing rating factor relativities in the same way that insurers would normally in assessing the level of other rating factor relativities (such as gender, for example). Mr Andrews recognised that some actuaries may argue that an opinion as to the validity of marital status as a rating factor could only be formed following more substantive statistical analysis using individual claim and policy data. This would ensure that apparent differences in performance were actually due to marital status rather than due to interactions across a number of other variables. He concluded, however, that the loss ratios should provide a sufficiently reasonable proxy of these interaction effects and the data provides sufficient basis for pricing differentiation. Mr Andrews was not required for cross examination and in that respect his expert report and the conclusions contained therein was not directly challenged. Mr Edwards was cross examined. There was some attack on the data collected by the Applicants as being sufficient to justify a differentiation in premium pricing on the basis of difference in relationship status. The attack was centred on the lack of any awareness of a reason for the difference in contrast to well known and statistically proven differences between young drivers and older drivers, and more particularly young male drivers and other drivers. As I said earlier, however, it is not necessary for any final conclusion to be made on this hearing as to whether the actuarial data would meet the necessary criteria for discriminatory assessment of premiums based on relationship status. Iam satisfied that the material before me establishes a prima facie differential in claims ratio based upon a relationship status. The real question is whether the exemption should be granted so that the Applicants can use relationship status as a ratings factor. To determine that question requires an examination of the test that ought to be applied and the factors that ought to be taken into account when considering applications under section113 of the Act. The section itself provides no guidance. This probably reflects the fact that the circumstances in which exemptions may be sought will be wide and varied. Different factors will have more weight in different factual situations. It appears that there is a very general overriding test that the Tribunal must be satisfied that it would be appropriate and reasonable to grant the exemption. Similarly, Justice Morris in Boeing Australia Holdings Pty Ltd preferred a test of whether the proposed exemption is necessary or desirable to avoid an unreasonable outcome. His analysis for coming to that conclusion is worth setting out - When a discretion is contained in a statutory instrument and the instrument is silent as to the basis upon which the discretion is to be exercised, the usual approach is to acknowledge a discretion unlimited by anything but the scope and object of the instrument conferring it. Clearly enough the object of the Act is to promote the right to equality of opportunity and to eliminate discrimination. But it does not follow that a discretion to grant an exemption from the prohibition on discrimination can only be exercised if this would advance the objects of the Act. Such an approach is anomalous if the discretion in question allows an exemption from provisions of the act prohibiting discrimination. Rather it would seem that Parliaments intent was that an exemption may be granted by the tribunal where, in the circumstances, it is necessary or desirable to avoid an unreasonable outcome. I also agree with the observations of Member Boddice SC in Exemption application re Raytheon Australia Pty Ltd & Ors where he noted The objects of the Act are to prevent unfair discrimination. This indicates, as do provisions within the Act itself which provide for specific exemptions, that there are occasions when discrimination may occur, notwithstanding that the discrimination would be a breach of the Act. The purpose of the Act is to prevent unfair discrimination. The existence of a power to exempt a person from the application of the Act to certain specified conduct is entirely consistent with such a purpose. In applying these tests in the three cases referred to above various tribunals were able to come to the conclusion that exemptions should be granted against discrimination on the basis of race as a result of the requirements of the legislation of a foreign country because of the effect it would have on each applicants commercial position and the deleterious effect of the reduction in each applicants commercial position would have on the community in general. Exemptions, therefore, ought not be limited as a rule to circumstances where the promotion of the objects of the Act are reflected solely by some positive discrimination in favour of one or other particular group in society. In the present case it is conceded that the exemption is necessary to avoid offending the identified provisions of the Act. Other relevant factors that I take into account are as follows - The opposition to the exemption by the Commissioner; The fact that there is no non-discriminatory way of achieving the objects or purposes for which the exemption is sought; The very nature of insurance and the existence of statutory exemptions in respect of the attributes of sex, age and impairment; The fact that many other jurisdictions in Australia provide an exemption for relationship status in setting the rates of insurance premiums; Whether the exemption would be in the community interests. I place considerable weight on the opposition to the exemption by the Commissioner. It is always helpful to have a contradictor in circumstances where there are good reasons for both allowing and rejecting the exemption. The Commissioners opposition focuses on the likelihood that many members of the classes of people that may pay higher premiums for motor vehicle insurance if the exemption is allowed comprise disadvantaged groups that the Act seeks to protect. It is said that the exemption is not consistent with the purpose of the Act to promote equality of opportunity and is generally not consistent with the purpose and scheme of the Act. Whilst there is some force in the factors identified by the Commissioner I have come to the conclusion that based upon the general test outlined above other relevant factors outweigh the former. One has to be very careful in applying very general statistics in determining how the actions that will be permitted by the exemption will affect whom. The Act does not seek to protect economically disadvantaged people. The Act seeks to protect every person from unfair discrimination. By concentrating on the possible deleterious effects of the exemption on some disadvantaged people, we ignore the positive effects of the exemption on a much larger class of people which will undoubtedly contain many similarly economically disadvantaged people. The very nature of insurance is relevant in assessing the application. Car insurance is necessarily discriminatory as insurance companies to be commercially viable rate their premiums on the assessment of statistical information which will obviously not be true of every individual in a particular class. For example, not every young male driver under25 will be a higher risk than an older female driver. However every young male driver under25 will pay a higher premium than every older female driver. The legislature recognised this necessary discrimination in insurance by specifically exempting discrimination on the basis of certain attributes. Those attributes that were recognised in 1991 are central to the Act. Section73 provides that it is not unlawful to discriminate in the insurance area on the basis of sex. Section74 provides it is not unlawful to discriminate in the insurance area on the basis of age or impairment as long as the discrimination is based on reasonable actuarial or statistical data. Section75 provides it is not unlawful to discriminate in the insurance area on the basis of age or impairment even where there is no reasonable actuarial or statistical data as long as the discrimination is reasonable having regard to any other relevant factors. It is difficult to make any real distinction between those central attributes and the attribute of relationship status in the insurance area. As long as the proposed discrimination is based upon the same considerations as referred to in section74 of the Act, it is difficult to ascertain any good reason why the Applicants should not be able to rate their premiums so as to reflect the true risk in accepting the insurance contract. In the second reading speech of the AntiDiscrimination Bill, the Attorney-General referred to exemptions in the Act as follows - In order to balance the complex needs of society and to ensure that certain behaviour can continue, certain types of activity are exempt under each area of the legislation and, in addition, there are a number of general exemptions to the entire Act. For example, a person may do an act to promote equal opportunity as long as the purpose is not inconsistent with the anti-discrimination legislation. A person may also do an act that is reasonably necessary to protect the health and safety of people at the workplace or to protect public health. Finally, the Anti-Discrimination Tribunal is empowered to grant exemptions in specific circumstances. The existing exemptions in the area of insurance were clearly inserted to balance the complex needs of society and to ensure that certain behaviour can continue .... They are a recognition of the necessary discrimination inherent in this type of insurance. They contain criteria that ensures the exemption is based on reasonable data and only in reasonable circumstances. It is difficult to see why the exemption sought on this application does not fall within the same class. I take into account that in almost every other jurisdiction in Australia insurers are permitted to discriminate lawfully in the setting of their premiums by taking into account relationship status. It would be an odd result if the Applicants had restrictions in writing insurance contracts in Queensland that it, and its competitors, would not have in Victoria (for instance). The interests of the community is a nebulous concept. Whilst the exemption is likely to cause some already disadvantaged people to pay more in premiums for car insurance if they wish to remain insured by the Applicants, many more of the Applicants customers will be paying less. As a more general concept, I think that the interests of the community are better served by insurers being able to rate their premiums on all relevant factors so that one class of people being insured is not in effect subsidising another class of people. As pointed out earlier in these reasons the granting of the exemption does not prevent any person from testing the reasonableness of the Applicants data and application of same in the setting of its premiums. I will also impose further conditions on the exemption reflecting the Applicants position in relation to any insured that failed to disclose his or her relationship status. Those conditions are as follows: The exemption is granted on the following further conditions - The Applicants will not decline a claim made under an insureds motor vehicle insurance policy on the basis that the insured failed to disclose his or her relationship status or any change in the relationship status; and The Applicants will not refuse any application for insurance or insurance renewal on the grounds of the information a person provides about their relationship status. In all the circumstances I am satisfied that it would be appropriate and reasonable to grant the exemption. I see no reason why the exemption should not be granted for a period of five (5) years. Having considered the matters set out in section 213 of the Act, I would not be inclined to make any costs order. However I give the parties twenty eight (28) days within which to make written submissions in relation to costs or any further orders. I order as follows: 1. Pursuant to section 113 of the Anti Discrimination Act 1991 (Qld) (the Act), the Queensland Anti Discrimination Tribunal grants an exemption to the Applicants from the operation of sections 67(b), 122, 124 and 127 in relation to the attribute described in section 7(b) of the Act so that it is not unlawful for the Applicants to discriminate on the basis of relationship status if the discrimination - is based on reasonable actuarial or statistical data from a source on which it is reasonable for the Applicants to rely; and is reasonable having regard to the data and any other relevant factors. 2. The exemption is granted on the following further conditions - (a) The Applicants will not decline a claim made under an insureds motor vehicle insurance policy on the basis that the insured failed to disclose his or her relationship status or any change in the relationship status; and (b) The Applicants will not refuse any application for insurance or insurance renewal on the grounds of the information a person provides about their relationship status. 3. The exemption is to remain in force for a period of five (5) years from the date of this judgment. Andrew Philp SC Member Anti-Discrimination Tribunal Queensland  See President Sofronoff QC in Boeing Australia Holdings Pty Ltd [2003] QADT 21.  [2007] VCAT 532 (3 May 2007).  [2008] QADT 1 (25 January 2008).     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