CommentsontheNationalHumanRightsActionPlan,
BaselineStudy,2011
29February2012
MatthewKeeley,Director
NationalChildren’sandYouthLawCentre
1. Overview
TheNationalChildren’s andYouthLawCentresubmitsthefollowingcommentson theNational
HumanRightsActionPlan2011.1
ThefollowingcommentsaremadebyreferencetotheNationalChildren’sandYouthLawCentre (NCYLC)andAustralianYouthAffairsCoalition(AYAC)jointsubmission(thesubmission)ontheBaselineStudyconsultationdraft.TheNCYLCacknowledgesthatmanyoftheconcernsraisedinthatsubmissionhavebeennotedbytheBaselineStudy(thestudy). However,thestudy doesnotplacesufficientemphasisonsomeissuesraised,failstoaddressrecommendationsmadeinrelationtotheseandinsomeinstancesseemstoindicatethatmattersraisedwillnotbeconsideredbytheGovernmentintheNationalHumanRightsActionPlan(theActionPlan).
Previoushumanrightsactionplanshave,inouropinion,not hadasubstantialimpact onthehuman rightslandscapein Australia.NCYLCisconcernedthatAustralia’snexthumanrightsactionplanmay provetobesimilarlyineffective unlessanduntilit:
setsclearperformanceindicators;
identifiesclearlythedataneededtoassessperformanceagainstthoseindicators;
obtainsthecommitmentofthestatesandterritoriestothoseindictorsandtothecollection andprovisionofsuchdata;
ensuresamorecomprehensivecoverageofthehumanrights issuesconfrontingall
AustraliansincludingAustralia’schildrenandyoungpeople;
includesprovisionforevaluationoftheeffectivenessoftheActionPlanitselfandforfunding oftheresearchrequiredtoidentifyanddevelopthenecessaryframeworksfordatacollectionandprovision;and
asaresultoftheabove,gainsthesupport andbuy-inofAustraliansconcernedwiththe
realisation,bothprogressiveandimmediate,ofhumanrightsforallAustralians.
TotheextentthattheBaselineStudycanaddresstheseissuesin itscapacityof identifyingpriority areasfortheActionPlanandguidingfuturepolicydevelopmentinareasthatcannotbespecifically addressedintheplan,NCYLCcallsonitsauthorstodoso.
Belowweaddressourparticularconcernsregardingtheactionplan’somissionsregardingtherightsofchildrenandyoungpeople.
2. Therights-basedapproach
NCYLCreaffirms itsviewthat“a“rights-based”approachshouldbeadoptedtoensurethatthe“best interestsofthechild”aretheprimaryconsiderationinbothpolicyandlegislativeframeworksin
Australia2 andthatchildrenandyoungpersonsareregardedasactiveparticipantsratherthan
1 TheNationalChildren’sandYouthLawCentreacknowledgesthecontributionsofAhramChoi,LouiseCooneyandKatyHindmarshinthepreparationof thisdocument.
2 UNGeneralAssembly,Conventiononthe Rightsofthe Child,20November1989,UnitedNations,Treaty
Series,vol. 1577, article3.
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passivebeneficiaries,inthespiritof article12of theUnitedNationsConventionontheRightsofthe
Child(theConvention)3”.4
Thestudystatesthatthe“bestinterests”principleenunciatedinarticle3“underpinslegislationand practicesconcerningchildreninallAustralianjurisdictions”5 andnotesconcernsaboutthecurrentlackofopportunitiesfor participation.6 However,moreemphasisneedstobeplacedontheresponsibility ofgovernmentinrealising therightsofchildrenandyoungpeopleundertheConvention,includingfacilitatingtheirinvolvementinthedevelopmentoflegislation,policyandpractices thataffectthem.
3. IndependentCommonwealthCommissionerfor ChildrenandYoungPeople
Thestudynotesthe“largenumberofsubmissions”7 recommendingtheestablishmentofaNational Children’sCommissionerandthegovernment’sintentionto“explore thepotentialroleof sucha commissioner.”8 NCYLCwelcomesthegovernment’scommitmenttoinvestigatingtheestablishmentoftherole,9 however,remainsconcernedatthelackofspecificcommitmenttocreatingthe
position.Therolehas alreadybeensubjectofaprivatesenator’sbill10andsubsequentSenate
inquiry.11Anumberofnon-governmentorganisations(includingNCYLC)havealsocalledforthe establishmentoftheroleasanindependentpositionfoundedonchildrightsprinciples.12
TheinternationalcommunityhasalsorecognisedtheneedforchildrenandyoungpeopletobeabletoaccessappropriatemechanismsforenforcementoftheirrightsundertheConvention.13Thethird OptionalProtocol,whichopenedforsignatureon28thFebruary2012,14providesamechanismfor childrenandyoungpeopletorealisetheirrightsundertheConventionbyestablishingacomplaints
processthroughwhichissuesmayberaised andaddressed.NCYLCcommendsthegovernmentfor
3 UNGeneralAssembly,Conventiononthe Rightsofthe Child,20November1989,UnitedNations,Treaty
Series,vol. 1577, article12.
4 National Children’sandYouthLawCentreandAustralianYouthAffairsCoalition,SubmissiontotheBaseline
StudyNationalHumanRightsActionPlan:ConsultationDraft,2011,1.
5 Attorney-General’sDepartment,NationalHumanRightsAction Plan:Baseline Study2011,p.73
6 Ibid.
7 Ibid73.
8 Ibid.
9 CouncilofAustralianGovernments,ProtectingChildrenis Everyone’sBusiness:NationalFramework for
ProtectingAustralia’sChildren2009 -2020,2009,p. 16;UnitedNationsHumanRightsCouncil, Reportof the
WorkingGrouponthe UniversalPeriodicReview:Australia,UNDocA/HRC/17/10(24March2011),p. 9;
AustralianGovernmentAttorney General’sDepartment, Australia’sNationalHuman RightsAction Plan:
exposure draft2012
+Consultation+version.pdf,2.
10CommonwealthCommissionerfor Children andYoungPeople Bill2010 (Cth).
11SenateLegal andConstitutionalAffairsLegislationCommittee,CommonwealthCommissionerforChildren
andYoungPeople Bill2010,May 2011.
12NGO SectorPositionPaper, A NationalCommissionerforAustralia’sChildren:The Role,Functionsand
PowersoftheOffice ofthe NationalChildren’sCommissioner, Australia,December2011.
13HumanRightsCouncil,OptionalProtocoltothe Conventiononthe Rightsofthe Childonacommunications procedure,HRCRes17/18, 17thsession, Agenda Item5,A/HRC/RES/17/18,(14thJuly2011).
14CRC:SigningCeremonyof the OptionalProtocoltothe Conventiononthe Rightsofthe Childonacomplaints
mechanism(28February 2012)ChildRightsInternationalNetwork
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ratifyingthetwoexistingOptionalProtocolstotheConvention,15andcallsonthegovernmentto signandratifythethirdOptionalProtocolalso.
4. AboriginalTorresStraitIslanderchildrenand youngpeople
NCYLCagreesthatthereisaneedforflexibleinitiativesthatcanadapttoplaceandcontextinrelationtoIndigenouschildrenandyoungpeople16andisencouragedbythe6key targetsofClosingtheGap.However,itremainsconcernedabouthowthesegoalswillbeachieved.
NCYLCandAYACsubmissionnoted thesuccessful,locallyownedMumsandBabiesprogram addressingissuesofinfantmortalityandAboriginalandTorresStraitIslanderwomen’saccessto mainstreamhealthservices.17Thestudynotestherehasbeensignificantimprovementininfant mortality ratesandtalkofnewhealthplanwhichwillbemadeinpartnershipwiththeNational Congressof Australia’sFirstPeoples,whichappearstobeapositivestep.Yetthereremainsno expressgovernmentcommitmenttosoundlocally-ownedprojects.
ThesubmissionalsoemphasisedtheneedforbilingualeducationtoensureAboriginalandTorres
StraitIslanderchildrenmaintainlinkstotheircultureandheritageandtoimproveliteracy.18
Althoughthestudy hassomediscussionofeducationandliteracyissuesandtheneedforAboriginal andTorresStraitIslanderlanguagestobetaughtinschools,19thereisnoexpresscommitmentto bilingualeducation.
Additionally,thesubmissionraisedtheissueofidentity giventhedifficultiesfacedbyAboriginaland TorresStraitIslanderchildren in obtainingbirthcertificates.20Whilst thestudyraisedsomeissuesof discrimination inrelationtoAboriginalandTorresStraitIslanderchildren,21thisparticularissuewas notadequatelyaddressed.
5. Childreninout-of-homecare
Thestudynotesthatissueswith out-of-homecaresystemsacrossAustraliaarebeingaddressed through theNationalFrameworkforProtectingAustralia’sChildren(theNationalFramework),NationalEarlyYearsStrategy22andtheNationalStandardsforOutofHomeCare(theNationalStandards),23aswellasviaStateandTerritoryspecificpoliciesandprograms.24Thestudy notedthat datacollectionconcerningout-of-homecaresystemsispresentlylimited,25butnotedthat
15UNGeneral Assembly,OptionalProtocoltotheConventionontheRightsof the Childontheinvolvementofchildren in armed conflict,Volume2173,Article27531(25May2000,enteredintoforce12February 2002);UNGeneralAssembly,Optional Protocoltothe Conventiononthe RightsoftheChild onthe sale ofchildren,childprostitutionand childpornography,Volume2171,Article27531(25May 2000,enteredintoforce18
January2002).
16NationalHumanRightsActionPlan.aboven4.41.
17NCYLCSubmissionto theBaselineStudy.aboven3.6.
18Ibid5.
19NationalHumanRightsActionPlan.aboven4.51-53.
20Ibid5-6.
21Ibid53-55.
22Ibid73.
23Ibid80.
24Ibid79-80.
25Ibid79.
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monitoringwouldbeincreasedundertheNationalStandardsincludingasurveyofchildrenandyoungpeopleincareandprotectionsystems.26Itisunclearifthismonitoring wouldsufficiently addressthepresentlackofdata.Additionally,thestudy appearstoplaceultimateresponsibilityforchildrenincareandprotectionsystemsonindividualStateandTerritorygovernments.27
Inrelationtoconcernsraisedaboutthecomplexityofleaving homeplans,thestudynotesthatthe NationalFrameworkincludes“enhancedtransitionplanning”28.Italsonotedthedevelopmentof“a nationallyconsistentapproachtoplanningforyoungpeopleleavingout‐of‐homecare.”29However thestudydoesnotspecifywhetherorhowtheseplanningprocesseswilladdresstheissuesof relevancetoandownershipbyindividual childrenandyoungpeopleoftheir leavinghomeplans.
6. Juvenilejusticepolicepowers
ThestudynotedthedisproportionatelyhighratesofdetentionamongstAboriginalandTorresStrait Islanderyouth,30aswellasconcernsaboutthedisproportionateimpactofmandatorysentencing policiesonAboriginalandTorresStraitIslanderpeoplegenerally.31TheissueofmandatorysentencinginWesternAustraliawasalsonotedinrelationtochildrenandyoungpeoplegenerally,butthestudylentsupporttothepolicy.32Thispositionisconcerninggiven thegovernment’sresponsibilitiesundertheConvention33andevidencefromprogramsinotherjurisdictions,includingthosequotedinthestudy,whichshowthatdiversionarymeasuresreduceratesofre-offending.34
Problemsassociatedwithpolicemove-onpowersraisedintheNCYLCandAYACsubmissionwere notsufficientlyraisedbythestudy.
Thestudyalsonotedconcernsregardingtheageofcriminalresponsibilityin Australia,butmadeno commitmenttoraisingthisinlinewithinternationalstandards.35NCYLCnotesthat,despitethefact thattheageofcriminalresponsibilitymaybeaslow as7yearsinsome jurisdictions,36theUN CommitteeontheRightsoftheChildhasasserted that“aminimumageofcriminalresponsibility belowtheageof12yearsisconsidered…nottobeinternationally acceptable”37andinitsConcluding ObservationsonAustraliain2005,urgedtheAustraliangovernmenttoraisetheageofcriminal responsibility inlinewithinternationally acceptablelevels.38
26Ibid.
27Ibid.
28Ibid73.
29Ibid80.
30Ibid56.
31Ibid.
32Ibid83.
33UNGeneral Assembly,ConventionontheRightsofthe Child,20November1989, UnitedNations,Treaty
Series,vol. 1577, article37(b).
34NationalHumanRightsActionPlan.aboven4.82.
35Ibid82-83.
36Ibid83.
37CommitteeontheRightsof theChild,GeneralCommentNo.10:children’srightsin juvenilejustice,44th
session, CRC/C/GC/10 (25April2007),paragraph32.
38UNCommitteeontheRightsoftheChild, UN CommitteeontheRightsofthe Child:ConcludingObservations,
40thsession,CRC/C/15/Add.268 (20October2005).
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7. Socialsecurity
Thestudyacknowledgesconcernsregardingaccesstosocialsecuritygenerally39andnotesreform measuresproposedtoassistreceiptofsocial securitybenefits.40Italsorecognisesthesignificantissueofyouthhomelessnessandtheinabilityofthisgrouptoaccessaffordableaccommodationand services.41However,it failstoacknowledgetheunique circumstancesandneedsofchildrenandyoungpeopleinrelationtosocialsecurity andtheirabilitytoaccessservices.ThesubmissionbyNCYLCandAYACoutlinedtheseissuesandmadearecommendationconcerningreviewofbenefitsforchildrenandyoungpeople.42Itisdisappointingthatthestudyhasnotacknowledgedthespecific barrierstoaccessingsocialsecurityfacedbychildrenandyoungpeople.
8. Parentalguidanceresponsibilities
NCYLCreaffirms itsposition thatarights-basedapproach(asopposedtoawelfareapproach)to assistingparentsthroughtheprovisionoftailoredfamilysupportservices isthemostappropriateandrecognisesthediversityof Australianfamilies.43Specifically,itcallsonthegovernmentto acknowledgeandaddresstheobstaclesfaced bychildrenandyoungpeopleintheprocurementof essentialidentitydocumentssuch aspassports.Childrenofparentswhohaveseparated,Aboriginal andTorresStraitIslanderchildrenandchildreninout-of-homecarefaceparticulardifficultyinthis regardastheremaybeissueswithobtainingparentalconsentand/orsupportingdocumentationsuchasbirthcertificates.44
9. Discriminationonthebasisofsexualand/orgenderidentity
Thestudydoesnotoutlineanypoliciesorinitiativesdirectedateliminatingdiscriminationon the basisofsexualand/orgenderidentityforchildrenandyoungpeople.Thereisrecognitionthatissues ofviolence,suicideandself-harm haveparticularsignificancetoyoungpeople.45Itisnotedthatchildrenandyoungpeoplearevictimsofviolenceand/orabusebasedonsexuality andgenderissueswhilstatschool.46Theunderreportingofsuchabusegiventhelackofappropriatesupportservices andfearofstigmaisalsonoted.47
NCYLCandAYACcalledforaspecificchild-relatedlegislativeframeworkagainstdiscriminationonthegroundsofsexualityandgenderidentityinrelationtochildrenandyoungpeople.Thisisnottakenupinthestudy.Indeeddiscriminationconcernsseemedfocusedonolderpeople,thoseliving
withadisabilityandthosewithHIV.48
39NationalHumanRightsActionPlan.aboven4.102.
40Ibid103.
41Ibid107.
42NCYLCSubmissionto theBaselineStudy.aboven3.7.
43Ibid7-8.
44Ibid8.
45NationalHumanRightsActionPlan.aboven4.77.
46Ibid94-95.
47Ibid95.
48Ibid93.
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10.Childrenandyoungpeoplewithdisabilities
ThestudyrecognisestheneedforsupportforpeoplelivingwithdisabilitiesandtheNCYLCsupports thecommitmentofgovernmentsacrossAustraliatotheestablishmentofaNationalDisability InsuranceScheme.49
However,otherchild-specificconcernsraisedbyNCYLCandAYACsubmissionarelargelyexcluded fromconsiderationinthestudy.NCYLCagainemphasisestheneedformechanismsenabling meaningfulparticipationbychildrenwithdisabilitiesindecision-makingthataffectsthem. Additionally,whilst recognisingthe government’sintentiontoinvestigatereporting mechanismsfor
learningoutcomes,50NCYLCdrawsattentiontotherecommendationmadeinthesubmission
concerningdatacollectionon theprovisionofservicestochildrenwithdisabilitiesintheeducation system.51
11.Refugeechildren
Theapplicationofthe“bestinterests”principletopolicyconcerningrefugeeand/ormigrantchildren requiresapresumptionagainsttheirdetention.NCYLCis concernedatthestudy’sfailuretoconsider applicationof thebestinterestsprincipleinrelationtorefugeeand/ormigrantchildren.Thisisdespitethestudy’searlierassertionthatthebestinterestsprincipledoesinform“legislationandpracticesconcerningchildreninallAustralianjurisdictions.”52Althoughthestudy notesgovernmentpolicy concerningtheuseofthe“leastrestrictive”formofdetentioninrelationtochildren,thereis
inadequateconsiderationofapresumptionagainstdetention.
NCYLCalsodrawsattentiontotheproposedadditionalrecommendations inthesubmission concerningtheuseofcourtsorindependenttribunalstoconsiderdetentionofchildren,the appointmentofanindependentguardianforunaccompaniedchildrenandthetimelyreunificationofrefugeefamilies.53Thestudynotessomeoftheseconcerns,54butisunabletopointtogovernmentproposalstoaddressthem.
12.Concludingcomments
NCYLCcommendstheinitiativetakenbytheAustraliangovernmentindevelopingtheNational HumanRightsActionPlanandundertakingtheimportantworkof addressinglocalhumanrights concerns.However,inordertoensuretheeffectiveimplementationoftheActionPlan,the governmentneedstosetcleartargetsandtimelinesfor implementation,aswellastransparent standardsagainstwhichprogressmaybemeasured.Ongoingconsultationwiththecommunity,
includingexpertsandnon-governmentbodies,shouldremainakeyfeatureoftheprocess.
49Ibid122.
50Ibid118.
51NCLYCSubmissionto theBaselineStudy.aboven3.9.
52NationalHumanRightsActionPlan.aboven4.73.
53NCYLCSubmissionto theBaselineStudy.aboven3.10-11.
54NationalHumanRightsActionPlan.aboven4151.
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