ࡱ> ` 1bjbj bL'O&$vP" <^ , `2    !<!" :`<`<`<`<`<`<`$ahUd``A%!!A%A%`` u`&&&A%  :`&A%:`&&Yl] Pn%^&[*_D`0`P[d-&dT]d]""^&"L=#"""````&"""`A%A%A%A% N NT<6r:T6   The University of Sydney Faculty of LawBelinda Smith Lecturer Direct Line: +61 2 9351 0229 173 175 Phillip Street Sydney NSW 2000 Australia DX 983, Sydney Facsimile: + 61 2 9351 0200 Email: belindas@law.usyd.edu.au Paid Work and Family Responsibilities Submission Sex Discrimination Unit Human Rights and Equal Opportunity Commission Introduction I welcome the opportunity provided by the Human Rights and Equal Opportunity Commission (HREOC) to respond to its discussion paper Striking the Balance: Women, men, work and family. I also commend HREOC for producing such a comprehensive and thought provoking paper to promote public debate on this important issue. Chapter 7 of Striking the Balance, entitled Anti-discrimination Legislation and family responsibilities, sets out particular questions relating to the potential and effectiveness of anti-discrimination laws to address family responsibilities discrimination. These questions are: 23 Can anti-discrimination systems assist men and women better balance their paid work and family responsibilities? Why or why not? 24 Why do men with family responsibilities not make more use of the family responsibilities provisions of the Sex Discrimination Act? 25 Should the Sex Discrimination Act be amended to give greater assistance to men and women to address any workplace disadvantage they may face on the basis of their family responsibilities? If so, what particular amendments are necessary? 26 Can an individual complaints mechanism adequately deal with discrimination on the basis of family responsibilities? If not, what other changes must be necessary? In response to these questions I attach two articles: Belinda Smith & Joellen Riley, Family-friendly Work Practices and The Law  HYPERLINK "http://www.law.usyd.edu.au/~slr/v26/n3/SydLR26_3Text.pdf" (2004) 26 Sydney Law Review 395-426; and Belinda Smith, A regulatory analysis of the Sex Discrimination Act 1984 (Cth): Can it effect equality or only redress harm? (2005) (accepted for publication). I will not try to summarise all of the points in these articles, but wish to draw out a few key features and then make some specific recommendations for ways in which the Sex Discrimination Act should be amended. Key points of Submission Anti-discrimination laws can play an important role in enabling men and women to better balance their paid work and family responsibilities through highlighting and addressing policies and practices that impede equality between those who have family responsibilities and those who do not. These laws operate in two primary ways: by providing a legal right of redress for behaviour and practices that impede equality, and by promoting non-discrimination through the persuasive, normative power of a legislated, public policy statement of the right to equality. In the first article noted above Family-friendly Work Practices and the Law Joellen Riley and I have explored how some women have used the right of action under the Sex Discrimination Act to promote family-friendly policies in workplaces (or seek redress for family un-friendly policies). We note however some of the difficulties faced by applicants in bringing these cases and the limited and conflicting jurisprudence that is emerging. We also note that by restricting the prohibition on family responsibilities discrimination to direct discrimination the Act fails to address the primary forms of family responsibilities discrimination which are structural and systemic (which indirect discrimination prohibitions better address), rather than individual and blatant (which direct discrimination prohibitions best address). Further, by restricting the prohibition to dismissal, the Act does not address the difficulties carers face in getting employment and getting fair terms and conditions. Also by not providing comprehensive protection at the federal level, the federal government leaves individuals to rely on state legislation, which is not consistent. It is arguable that men with family responsibilities do not make more use of the family responsibilities provisions of the Sex Discrimination Act because they cannot utilise the sex discrimination prohibitions in the alternative, as women can and have done. Analysis of the cases that have succeeded in respect of family un-friendly policies and practices reveals that applicants tend not to rely solely on the family responsibilities provisions of the Act, but pitch alternative claims of sex discrimination. The sex discrimination provisions, however, are generally only available to women in respect of caring responsibilities in that it is only women who can argue that caring responsibilities are a characteristic that appertain generally to them or that family-unfriendly work policies and practices have the effect of disadvantaging their sex. In this way, men are restricted in their claims, and in particular restricted to direct discrimination in respect of dismissal, and are thus likely to see their claims as less viable. In the second article I have attached, I explore why the Sex Discrimination Act is limited in its effectiveness using a regulatory analysis. While anti-discrimination laws have the potential to promote equality, there are features of the Australian regulatory model of anti-discrimination laws that severely limit the effectiveness of these laws in achieving this goal. The key limitations I highlight are: The Rule - the restricted protection afforded in respect of family responsibilities, as already noted above; Enforcement - the right to prosecute for breaches is limited to victims; Establishing a prohibition that relies for enforcement on initiatives taken by disempowered victims, rather than proactive enforcement by a public agency, is arguably one of the weakest forms of achieving behavioural change, barely one step above free-market self-regulation. Sanction - the sanctions are only compensatory, with no exemplary or punitive component, and no public penalties, thus limited in their capacity to deter or change the bottom line for discriminating organisations; and Process - the dispute resolution process is an informal one that mostly keeps breaches out of public view, thus limiting the publicity threat of actions. Recommendations Based on this analysis, I submit that the following reforms would enable the Sex Discrimination Act to give greater assistance to men and women to address workplace disadvantage they may face on the basis of their family responsibilities. Expand the family responsibilities provisions - to cover indirect discrimination and the full range of work relationships and stages, as states such as NSW have done. (The reasonableness defence should be made available in respect of this ground, as it is for other grounds under the Act, in order to enable respondents to argue that their policy or practice, though disparately impacting upon the protected group is reasonable in all the circumstances, including the objectives of the requirement and the cost of a less discriminatory alternative.) Reasonably adjustment duty As the Productivity Commission has recommended in respect of disability discrimination, an explicit duty of reasonable adjustment ought to be introduced into the Act. Arguably with any restriction on indirect discrimination that is moderated by a reasonableness defence, there is already an implicit requirement to provide some accommodation, but an explicit requirement would provide greater clarity and could have significant normative effect. Family Responsibilities Guidelines - Expand HREOCs power under s.48(1)(ga) of the Sex Discrimination Act to establish guidelines for the avoidance of discrimination on the ground of family responsibilities. Currently HREOC has power to prepare and publish such guidelines only in respect of the other grounds of prohibited discrimination under the Act and sexual harassment. Given the difficulties employers have shown in understanding the scope of family responsibilities discrimination, this is of particular concern and should be rectified. Purvis and the comparator - Clarify (or, if necessary, legislatively limit) the restrictions on direct discrimination presented by the High Courts judgment in Purvis v New South Wales (Department of Education and Training) [2003] HCA 62 to ensure that characteristics closely associated with the protected trait of sex or family responsibilities are not attributable to the comparator (a process which renders sex or family responsibilities virtually meaningless and obscures different treatment). Facilitate compliance - Expand HREOCs power to further support complainants or even initiate inquiries into indirect and systemic discrimination in order to more proactively promote equality rather than rely upon reaction driven by disempowered victims. Increase the incentive to prevent discrimination By expanding the array of sanctions available for breach to include punitive damages or public penalties (for repeat offenders or particularly egregious and intentional acts of prejudice), the incentive to prevent discrimination can be increased. Effecting change beyond the complainant The Human Rights and Equal Opportunity Act 1986 should be clarified or amended to support the making of orders that are not merely compensatory for the individual victim, but can extend to conduct of the respondent that affects persons other than the complainant. Such a power would better enable systemic discrimination to be addressed, even within an individual complaints based model. Obviously a court is only likely to make such orders if they are sought and their utility explained, a role that HREOC should be empowered to fulfil if granted powers under Recommendation 5, above. I would be happy to clarify or respond to any queries in respect of this submission. Belinda Smith Faculty of Law University of Sydney 173-175 Phillip Street Sydney NSW, Australia Tel: (61 2) 9351 0229 Fax: (61 2) 9351 0200 E-Mail: belindas@law.usyd.edu.au  This article has been accepted for publication, but is subject to revision. Please do not quote or cite without first obtaining permission and publication details from the author.  Belinda Smith A regulatory analysis of the Sex Discrimination Act 1984 (Cth): Can it effect equality or only redress harm? (2005), Part 2.  Productivity Commission, Review of the Disability Discrimination Act 1992, Report No. 30, 30 April 2004 (Recommendation 8.1).  HYPERLINK "http://www.pc.gov.au/inquiry/dda/finalreport/index.html" http://www.pc.gov.au/inquiry/dda/finalreport/index.html.      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