ࡱ> ` ibjbj \ ( < < < 4p ///h004p i1634J3J3J3%4n6G7\HiJiJiJiJiJiJi$mkhmni< TA%4%4TATAni< < J3J3i0E0E0ETA< J3< J3Hi0ETAHi0E0E_< < aJ31 PfL/0B`Bdei0i`nHC~n4aan< al7690Em;D<777niniDj777iTATATATAp p p D"/p p p /p p p < < < < < <   ABN 31 384 184 778 Level 1, 21 Murray Crescent GRIFFITH ACT 2603 Tel: (02) 6239 8900 Fax: (02) 6239 8999 POLICE FEDERATION OF AUSTRALIA SUBMISSION TO STRIKING THE BALANCE INQUIRY CONDUCTED BY THE FEDERAL SEX DISCRIMINATION COMMISSIONER TABLE OF CONTENTS  TOC \o "1-3" \h \z \u  HYPERLINK \l "_Toc110830568" Executive Summary  PAGEREF _Toc110830568 \h 1  HYPERLINK \l "_Toc110830569" Policing as an Occupation  PAGEREF _Toc110830569 \h 2  HYPERLINK \l "_Toc110830570" The Unique Nature of Policing  PAGEREF _Toc110830570 \h 2  HYPERLINK \l "_Toc110830571" Changes in Organisational Structures  PAGEREF _Toc110830571 \h 2  HYPERLINK \l "_Toc110830572" The Oath of Office  PAGEREF _Toc110830572 \h 2  HYPERLINK \l "_Toc110830573" Police Stress/Distress  PAGEREF _Toc110830573 \h 3  HYPERLINK \l "_Toc110830574" Lack of child care and inflexible work practices 6  HYPERLINK \l "_Toc110830575" Demographics of State and Territory Police Services  PAGEREF _Toc110830575 \h 6 Union Consultation Questions...7  SUBMISSION TO STRIKING THE BALANCE INQUIRY CONDUCTED BY THE FEDERAL SEX DISCRIMINATION COMMISSIONER Executive Summary The Police Federation of Australia (PFA) is a federally registered organisation representing approximately 50,000 police in all states and territories. The Federation also has close historical links with the Police Association of New Zealand. Each state and territory police union is a branch or affiliate of the PFA. The PFA forms national policy on industrial and professional matters relating to policing. The Federation established a Womens Advisory Committee (PFA WAC) in January 2000 in recognition of women as an underrepresented group in both police services and police unions. The PFA WAC is made of women who are elected officials in their police unions. If no women hold such a position, then a state or territory branch of affiliate of the PFA is able to send a woman to represent it at the PFA WAC meetings. The PFA WAC also has a Secretariat, the Chief Executive Officer of the PFA and a Research capacity through an industrial officer from the Victorian Branch of the PFA. The PFA, as a representative organisation for Australias police services, acknowledges policing as an occupation with occupational and organisational stressors, and the PFA WAC has included a section in this submission related to stress and policing, as it sees it as relevant to any debate regarding a balance with paid and unpaid work. The relevance of the work of policing is that if work life creates stressors for which there is not sufficient organisational support, then those police officers experiencing that stress will take it home and coping and survival mechanisms then become important, allowing little time for debates about the division of unpaid work, child or elder care. Further to the issue of stress, The PFA has a policy position that police services nationally do not provide child care or sufficient flexibility and family friendly conditions to allow police officers to balance their work and family life, let alone, as alluded to above, engage in a debate about the division of paid and unpaid work in their lives. If child care and real choices were available, this, the PFA WAC argues, would allow for that debate to begin as the structure of the workplace would recognise and cater for the reality of paid and unpaid work, parenting and caring, as well as the need for down time in leisure and recuperation. This paper will seek to outline the nature of policing as an occupation, and policing as an employment choice, and then to argue that the best possible way for the men and women of Australian police services to strike a balance in their home lives is for their employers to offer them employment and family friendly policies which will allow the discussions around the performance of unpaid work to occur. The paper also addresses the union consultation questions Policing as an Occupation Policing is an essential service conducted by each of the states and territories, as well as the Commonwealth. It is an industry requiring its workers, police officers, to be available 24 hours a day, 7 days a week, 52 weeks of the year. It is also a male dominated industry with a history of strong resistance to any challenge to the cultural status quo, including the entry of women to policing. The Unique Nature of Policing Policing is a unique occupation which, as the PFA contends, makes it a very different and a more dangerous occupation than other emergency services or the defence forces. There are many stresses/distresses that are attendant on policing as an occupation, which consequently makes it even more important that a work/family life balance exists. This paper will later report on some preliminary findings of some current research by the Work and Stress Research Group, in the School of Psychology at the University of South Australia, which shows a work distress factor in Victorian police officers. Changes in Organisational Structures The distress experienced is also arguably an outcome of the changes in policing in recent years which have resulted in a diminution of administrative roles for officers as successive governments and police departments have changed the management structures of policing, pushing more and more police into front line roles. This means that very few police have the ability to work other that the 24 / 7 / 52 pattern. The Oath of Office Further, police are never truly off duty because of the effect the oath of office has on police and the requirement for police to act in certain circumstances, whether on or off duty, when other members of society have no requirement to act. Police officers take an oath of office, which gives them enormous powers, and at the same time places great responsibilities on them. Police are different from other workers in a number of respects, but particularly in relation to the nature of their professional duties. Police Stress/Distress As mentioned briefly earlier there is research that supports the argument about the stressful nature of policing and its long-term impact on police officers continually exposed to issues that other members of the community might never witness in a lifetime. Operational stressors, including, shift work, long hours, the unpredictability of policing, and public scrutiny such as the array of oversight bodies will be examined. Policing has become a very complex occupation in the modern world. The pressures and stresses on officers take a significant toll in psychological injury. There has been a significant amount of research completed over the last twenty years into the impact of stress in policing. These studies have not been restricted to overseas jurisdictions. In 1982 Steven Albert wrote in the NSW Police News, in the context of a study he had done into occupational stress in the NSW Police Force, that: It is generally accepted by the medical profession that some occupations are more likely than others to cause stress-related maladies leading to disorders such as coronary heart disease, gastrointestinal malfunctions, dermatological problems, severe nervous conditions, neuroses, etc. Police work is one such occupation, so hazardous that it even exceeds the formidable stressors encountered by air traffic controllers. In terms of emotional problems, police have significantly higher levels of suicide, divorce and alcoholism than the general population and the majority of other occupational groups. At the same time, the evidence of the impact of the occupational stresses of police work was becoming overwhelming. In 1985 Gudjonsson and Adlam said: the results of the data have implication for police management practices, police training and police operations. Although moderate stress may have some positive functions (eg. makes a police officers more vigilant and better prepared for action), severe and prolonged stress generally has deleterious consequences for mental and physical health and is likely to impair effective policing in an operational context. Even in 1985, the authors had flagged two significant issues for police management firstly that police officers could suffer serious psychological injury from prolonged exposure to severe stress and, secondly, that the officers performance could also be impaired, thus exposing a potential risk for members of the public. Both NSW and Victorian Police have access to an Employee Assistance Program provided by an external service provider, for work and non-work related issues. Records indicate that of those officers who took advantage of the program almost 50% did so for work related issues. The main work related issues are: Conflict in the workplace i.e.: (conflict with co-worker, conflict with supervisor, conflict with customer, conflict with subordinate) General Work Stress Nature of Work Workplace Trauma That provider also reported that the highest users of this service were Senior Constables, those officers that are at the front line of operational policing and the rank where the majority of female officer are. In 2004 NSW Police alone attended the following incidents 121,925 Motor Vehicle Accidents 14,524 Apprehended Domestic Violence Orders 115,829 Domestics 44,226 Assaults 15,166 Brawls 27,675 Hoodlums 19,107 Intoxicated Persons 13,902 Missing Person 2,719 Pursuit of Offender 1,229 Searches & Search & Rescues 147 Signal One (office in need of assistance) 20,667 Neighbour Disputes 87,793 Noise Complaints 85,370 House/Business Alarms 13,000 Hold up Alarm 2,737 Armed Hold Ups 2,898 Assault & Robs 2,842 Bag Snatches 62,252 Break & Enters 5,326 Persons on Premises 7,615 Prowlers 468 Home Invasions 8,573 Deceased 16,734 Fires 7,523 Schedule II (Mental Health) 1,336 Sexual Assaults That is a total of over 700,000 incidents. All of these incidents are attended to be front line police officers, again where the predominance of female officers are located. The types of incidents outlined about are all extremely stressful for the officer involved. They also highlight again the unique nature of policing. Whilst a number of other services might attend to some of these incidents as well as police, police attend them all, and in the lead role. They are further examples of where occupational as well as organisational stress makes policing a unique occupation. LACK OF CHILD CARE AND INFLEXIBLE WORK PRACTICES Policing is a male dominated industry, with around 20% female representation. This has meant that over the years, employment conditions were based on the single married male with no caring responsibilities. There has been some improvement in recent years, nevertheless, the PFA argues that police services can do much more in terms of workplace polices to recognise child and elder care, and provide employer operated child care and so become employers of choice in allowing work/family balance. CURRENT Demographics of State and Territory Police Services Born after 1/7/64% of total membershipQueensland 6,06166.97Tasmania 74865.00NSW 10,57872.45AFP 1,57855.00Victoria 6,036*58.46 *SA 2,18054.00NT 71666.00WA 3,16362.78TOTAL 31,06062.58Source: PFA submission to Treasury Review of Superannuation Preservation Age Requirements These figures clearly show that 63% of police officers in Australia are in the age group for parenting and elder care. All police services offer part time employment. The great majority of part time employees are women, and the reasons for their applications are for child caring purposes. Agency Sworn males Sworn females Unsworn males Unsworn females TotalNo. of P/T staff included in totalAFP1,7535445256743,496133NSW11,2273,5121,3702,67918,788421NT732257831271,19913QLD6,8691,8351,0922,16511,961608SA2,9968353875664,784302TAS8822361492301,497115VIC8,7851,9067121,52112,924563WA4,2967674997856,347396Source: Partners at Work, Victoria Police Part-time Employment Review, Benchmarking Report, Megan Lygnos, Senior Project Officer, Human Resources Department, February 2003 Recent focus group work in Victoria on part time employment demonstrated perceptions regarding part time employees as not being committed to work, and part time as not being real police work. It is also the case that part time employees, the great majority women, are clustered at the lower levels of the rank structures and have fewer opportunities for career advancement. As the majority of part time police are women with caring responsibilities, they suffer the double impact of lower level jobs and the bulk of unpaid work in the home. This historical development of police employment practices, coupled with the resistance to women entering the services, has meant that no police service has had to seriously grapple with the issues of employer provided child care, or real penetration of flexible work policies to allow, for example, working from home. There have been sporadic advances in such policies, but there is still strong resistance to the take up of such options by a female majority, and no advance at all on child care. Appendix 1 outlines the current employment standards in all jurisdictions. The PFA WAC has developed benchmark standards which each police union attempts to pursue with police services through enterprise bargaining. The matrix clearly shows that there has been minimal progress and police services need to address the realities facing their workforces with caring responsibilities. UNION CONSULTATION QUESTIONS Do men and womens different paid and unpaid work obligations affect their economic outcomes, health, relationships and life chances? The short answer is Yes! In policing, prior to the introduction of part time work for sworn officers, women with family responsibilities simply resigned as they were unable to cope with the demands for caring, unpaid work and the demands of full time police work. This clearly had an impact on their immediate income as well as retirement income as superannuation ceased. Since the introduction of part time policing, women have been retained in policing, but they tend to remain at the rank of Senior Constable, and their superannuation is affected irrespective of whether they are in a defined benefit scheme, where the final multiple of salary is affected by conversion to part time work, or in an accumulation scheme, as the amount contributed is less for the period of part time employment. The majority of police in Australian services who take up part time policing are women, and the reason is for family caring purposes. Family care includes unpaid work in the home. Do informal workplace policies work well to assist employees to balance their paid work and family responsibilities? Do they assist some employees more than others, and if so, is this appropriate? Informal policies in policing have tended to favour men as there are strong cultural ties around masculine activities. There was evidence led before the Anti Discrimination Tribunal of Victoria in Robertson and State of Victoria Victoria Police, that employees were encouraged to play and attend mid week football matches, thus vacating the office every Wednesday, Yet when a female employee, Debra Robertson, requested a four day work roster to manage her parental responsibilities, she was denied this request, even though she wanted Fridays off and had covered the office for the football season. The PFAs policy is that proper formal policies which reflect the reality of modern family life be implemented by police services. Have EEO policies and business case arguments produced a greater acceptance of the need for workplaces to be family-friendly? Whilst EEO and business cases have raised awareness of issues affecting work and family, they have tended, in the PFAs view, to entrench the gender divide and drive an overrepresentation of women into part time policing, because the full time work model does not suit family life. Rather than endure the gender divide, an across the board assessment of working conditions, accompanied with a cultural shift from masculine/feminine role stereotypes would provide police employees with better choices about working patterns and so allow unpaid work patterns to be addressed also. How can Australian workplaces be made more family-friendly? The PFA has adopted a benchmark family friendly working conditions. It is attached as Appendix A to this document. PFA policy is the benchmark condition, and the table outlines the current employment conditions in each area. PFA Branches attempt to achieve the benchmark through enterprise bargaining. What are the barriers to changing attitudes towards a more equal division of paid work and family responsibilities? Policing is a masculine occupation, and this, coupled with the general cultural view in Australia of women as the primary care givers and keepers of the home, make the task of attitudinal change in policing a challenge. Education of managers conjoined with a change in workplace culture through real employment mode choices would go part of the way to changing attitudes. What effects, if any, do external factors such as partner and community attitudes, social policy or workplace relations have in shaping mens and womens decisions about paid work and family arrangements? Community attitudes are very powerful in shaping peoples decision on work and family. Government policies can shape decisions also, without necessarily changing attitudes but rather by confronting people with a reality - usually economic - which will determine choice. One example of this is the lack of paid maternity leave in Australia, which determines that women will be the primary care giver as income is lost during confinement and early care. Even in police services where paid maternity leave is available for a considerable period, such as Victoria and New South Wales, the community attitude and prevailing government policies regarding child care still see women in the primary care giver and unpaid work roles. Workplace relations can be an important change agent as it can provide a relief mechanism to community attitudes by offering employees workplace policies and conditions to give them some measure of freedom in their choices. Do men make adequate use of the workplace relations system to assist them to balance their paid work with their family responsibilities? Anecdotal information indicates this is not the case as men are perceived as breadwinners and, particularly in a masculine occupation such as policing, conversion to part time employment or taking parental leave to be the primary care giver may be seen as a weakness, so men too are victims of the gender divide in perpetuating themselves as breadwinner. What are the best ways of engaging men in the work of caring and other unpaid work? Genuine change in Australias workplaces to accommodate family life and unpaid work is the best way to achieve change in mens roles as this will provide the structural supports needed before the pattern of work in the home can change. Genuine change also needs to deliver equality of earnings between genders. The gender wage gap continues to exist and perpetuates the male breadwinner structure as women become the second choice for primary income in a relationship with care and responsibilities. (Refer to  HYPERLINK "http://www.docep.wa.gov.au/Ir/WorkLife/Pay%20Equity/Pages/Review_of_the_Gender.html" http://www.docep.wa.gov.au/Ir/WorkLife/Pay%20Equity/Pages/Review_of_the_Gender.html for a current report on the Gender Wage disparity.) Are amendments to the workplace relations system needed 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? If not, why not? PFAs strong view is that any movement away from a decentralised industrial relations system is bad for workers with family responsibilities. Workers, especially women employed in undervalued occupations and industries, need a strong collective to achieve conditions to assist in work and family. Australia, as a signatory to ILO conventions concerning work and family balance, needs to ensure that there is fairness in bargaining and that individual workers are not in the same position as an employer to bargain for wages and conditions, including family friendly arrangements. General acceptance is that employees are in a weaker bargaining position than the employer in the employment relationship, ideally they should be the same or better than the employer if they are seeking improvements. This is achieved more successfully collectively than individually it is shown. Further to that, the current regulatory environment should deliver equality, however it is the cultural and socially ingrained gender inequality coupled to the market economy that is the real hurdle. The proposed IR changes will certainly not redress this situation, in fact the potential exists to make things worse. The impacts will hit hardest on the precarious employment areas, in which women are disproportionally over represented. PFA is concerned about the proposed federal industrial laws based on the Corporations power and the move away from traditional conciliation and arbitration with an umpire in the form of the Australian Industrial Relations Commission. Anti discrimination laws can be used by workers to assist with work and family, but this is a remedial action after the event. Strong industrial laws with work and family at their core would better assist workers and ameliorate the rise of discrimination cases. What do you think should be the role of government, employers and families in promoting appropriate divisions of paid and unpaid work by Australian families? This submission is seeking to put the ball firmly in the court of employers and government to provide the structural assistance through policies and workplace conditions to give proper choice to men and women regarding paid work, which should then flow on to a debate about unpaid work. Until the structures are properly in place, the division of paid and unpaid work will remain unchanged. How can workplace cultures be encouraged to change to promote a better balance between paid work and family responsibilities? Cultural change should follow once the lead is given on working conditions, as outlined above. What responses to paid work and family conflict would assist to promote equality between men and women? The PFA reiterates its main argument that proper workplace arrangements to reflect family life is the best way to avoid having to respond to the conflict. CONCLUSION: PFA WAC thanks HREOC for the opportunity of making this submission. We trust it has revealed the unique nature of policing and in particular some of the difficulties facing female officers in such an occupation. The PFA WAC is committed to ensuring that police jurisdictions implement family friendly policies that are properly underpinned by strategic resourcing strategies. We trust that inquiry will go a long way to assisting that outcome in policing in Australia. We therefore encourage HREOC to make strong recommendations to government and employers regarding policy direction to recognise the realities of family life and to assist families in their paid and unpaid work.  I, , do swear that I will well and truly serve our Sovereign Lady the Queen as a police officer without favour or affection, malice or ill-will until I am legally discharged, that I will cause Her Majestys peace to be kept and preserved, and that I will prevent to the best of my power all offences against that peace, and that while I continue to be a police officer I will to the best of my skill and knowledge discharge all my duties faithfully according to law. So help me God. (NSW Oath) (The wording of the Oath of Office varies from jurisdiction to jurisdiction but the issue of the responsibilities attached to the oath remain the same).  Albert SR A Scientific Examination of Occupational Stress in New South Wales Police Force 1982 January, Police News 19-24  Gudjonsson G & Adlam KR Occupational Stressors Among British Police Officers Jan 1985 Vol 58 No. Police Journal 73-80  Ibid. at 78  Partners at Work, Victoria Police Part-time Employment Review, Benchmarking Report, Megan Lygnos, Senior Project Officer, Human Resource Department, February 2003  Robertson and State of Victoria Victoria Police, Anti Discrimination Tribunal of Victoria 1998     PAGE   FILENAME \p C:\Documents and Settings\squsa\Local Settings\Temporary Internet Files\OLK6E\Striking The Balance Submission 300905.doc Page  PAGE 12 stuw   * + , - ƽulaZaG9hzNh?,0J,mHnHu$jhzNh?,0J,UmHnHu h?,5;jh?,5;Uh<h+Z^Jh+Zh+Z5CJ(^JaJ(hLk5CJ(^JaJ(hLk5CJ^JaJh<5CJ^JaJh<h<5CJ^JaJhG5CJ^JaJhG5CJ0aJ0h< hhh<OJQJ^Jh8CJOJQJ^Jh8OJQJ^Jjh8OJQJU^J2HI^stuvw   * n gd+Z$a$gd<$$dNa$gdGgd<gd$a$$da$gdf$a$d,ii- I J K L ] ^ _ y z { | } ~  λ谡x^谡Mx jWhutkUmHnHu2jdWh?,hutk>*B*UmHnHphuh?,OJQJmHnHuhemHnHu jVhutkUmHnHujh?,UmHnHuh?,mHnHu$jhzNh?,0J,UmHnHu2jjVh?,hutk>*B*UmHnHphuhzNh?,0J,mHnHuh?,mHnHu    5 6 7 8 9 : ; < = Y Z [ \ ߼߱y_߱N jYhutkUmHnHu2jXYh?,hutk>*B*UmHnHphuh?,OJQJmHnHuhemHnHu jXhutkUmHnHujh?,UmHnHuh?,mHnHu2j^Xh?,hutk>*B*UmHnHphuh?,mHnHuhzNh?,0J,mHnHu$jhzNh?,0J,UmHnHu ; P  O P R ijs gd2? gdY]gdhgdhgd+Zgd+Zgd^$a$gdGjgdg`^gd+ n gd+ n      . / 0 J K L үҤy_ҤN j[hutkUmHnHu2jL[h?,hutk>*B*UmHnHphuhemHnHu jZhutkUmHnHujh?,UmHnHuh?,mHnHu2jRZh?,hutk>*B*UmHnHphuh?,mHnHuhzNh?,0J,mHnHuh?,OJQJmHnHu$jhzNh?,0J,UmHnHuL M N O P Q R n o p q       ӸӸӀuӸaӸP j@]hutkUmHnHu&j\h?,hutkUmHnHuh0J,mHnHuhh0J,>*mHnHuh?,mHnHu&jF\h?,hutkUmHnHuh?,mHnHuhzNh?,0J,mHnHuh?,OJQJmHnHu$jhzNh?,0J,UmHnHujh?,UmHnHuhemHnHu  . 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