ALRC Referral on Legal Freedoms of Religious Schools (and others)

(This is a guest blog post from Mark Fowler, Director, Fowler Charity Law Pty Ltd and an Adjunct Associate Professor at the University of Notre Dame Law School, Sydney.)

The Commonwealth Attorney-General has released a long-awaited referral to the Australian Law Reform Commission concerning the legal freedoms of religious schools and religious bodies. The referral gives effect to a commitment of the Morrison Government made in its December 2018 response to the Expert Panel on Religious Freedom (the Ruddock Review). This is the latest instalment in the debate over the proper protections to be afforded to religious freedom that first arose in the context of the legalisation of same-sex marriage. For ease of reference, the Ruddock Review and the Government Response are available here.

Main Points to Note

By way of analysis, there are a few headline points to note about the ALRC Referral:

  1. The referral requests recommendations on how to provide legal guarantees that will ensure that schools can continue to teach and act consistently with their ethos. This gives effect to the Government’s commitment that arose from the recent Senate debates on the Discrimination Free Schools Bill 2018, introduced by the Greens, and the Sex Discrimination Amendment (Removing Discrimination Against Students) Bill 2018, introduced by Labor Senator Penny Wong. In their dissenting Senate Inquiry report on the Wong Bill, Labor committed to removing the religious schools exemptions for both staff and students. Labor’s proposal is:
  • In respect of students, all acts of ‘direct discrimination’ would be unlawful and schools would need then to argue that their actions are ‘indirect discrimination’ and are ‘reasonable’. In my view, this introduces high degrees of uncertainty for schools, parents and children.
  • In respect of staff, to introduce a positive right for schools to exercise discretion over teachers (not wider staff), which would only be available where a teacher acts inconsistently with the school’s beliefs – that is, schools will not be able to require that teachers hold their beliefs. Many schools consider that their ability to employ persons who adhere to their belief system is critical to the modelling of authentic faith to the next generation. 

Should Labor win the election, the ALRC’s recommendations will be a critical lodestar, either guiding future Labor reform efforts, or their proper assessment.

2. The referral concerns not only Commonwealth, but also State and Territory law, emphasising ‘the desirability of national consistency in religious exceptions in those laws’.

3. The referral extends not only to the religious freedom rights of religious schools but to all religious bodies. Given this wide-ranging scope, the ALRC recommendations hold out the prospect of wholesale reform to protections to religious freedom within State, Territory and Commonwealth law.

4. The referral makes expressly clear that the ALRC is to consider faith-based institutions, such as welfare providers, to be ‘bodies established for religious purposes’ for the purposes of the referral, aligning with the treatment of such bodies by the Ruddock Review. On the basis of past reviews, this is likely to invite deliberation on whether special conditions should apply to such faith-based institutions, particularly where they are in receipt of government funding, or make supplies to the general public. 

5. Consistent with the Government response to the Ruddock Review, the referral also requests recommendations on amendments to State and Territory discrimination and vilification law to ensure that such laws do not prohibit the expression of a traditional view of marriage.

Specific Terms of the Referral

In specific terms, the referral requests that the ALRC consider ‘what reforms to relevant anti-discrimination laws, the Fair Work Act 2009 (Cth) and any other Australian law should be made in order to:

  • limit or remove altogether (if practicable) religious exemptions to prohibitions on discrimination, while also guaranteeing the right of religious institutions to conduct their affairs in a way consistent with their religious ethos; and
  • remove any legal impediments to the expression of a view of marriage as it was defined in the Marriage Act 1961 (Cth) before it was amended by the Marriage Amendment (Definition and Religious Freedoms) Act 2017 (Cth), whether such impediments are imposed by a provision analogous to section 18C of the Racial Discrimination Act 1975 (Cth) or otherwise.’

The referral can be seen as the culmination of long-running calls from religious bodies to replace the existing religious exemptions with a positive right to act (see, for example, my recent article for the ABC here). It can also be seen as a response to concerns raised during the marriage campaign concerning infringements on freedom of speech.

A full copy of the referral can be obtained here.

Religious Discrimination Act

Importantly, the referral states:

‘The ALRC should also have regard to religious exemptions in anti-discrimination laws and their interaction with ‘religious belief or activity’, including the expression of religious and moral views, insofar as they are a ground of discrimination (as proposed by the Religious Freedom Review, particularly in recommendations 15 and 16, and in accordance with Recommendation 2).’ 

The Ruddock Review’s Recommendation 15 contained a proposal to protect religious belief and activity through a CommonwealthReligious Discrimination Act (you can find my further piece for the ABC on this topic here). Recommendation 2 proposed that anti-discrimination law should be structured according to the principles set out in international law, as interpreted by the Siracusa Principles. For those who would like further detail on the relevant international law, a very helpful summary that had specific regard to religious schools, was provided by the Coalition Senators Dissenting Report to the Greens Bill, available here

Any consideration of the interaction of such an Act with exemptions will likely require the ALRC to give consideration to the substantive content of protections within a Commonwealth protection of religious belief. In my view, this will be an important area for stakeholders to consider in their submissions. 

Reporting Timeframe and Opportunity for Submissions

The ALRC must report by 10 April 2020, and is requested to consult with relevant stakeholders. Judging from conventional ALRC practice, it will be likely that the ALRC will seek submissions from the general public.

Further Note

(By Neil Foster) It is also interesting to note that on the ALRC website, the following information appears:

Conduct of Inquiries
Both inquiries will be led by ALRC President, the Hon Justice S C Derrington… The ALRC will consult widely during the course of each Inquiry.

In accordance with the ALRC’s usual process, a Discussion Paper for each Inquiry will be released at an interim stage and interested stakeholders will be invited to make formal submissions in response to the Discussion Paper. These submissions will inform the final report provided to the Attorney-General of Australia.

The ALRC has opened the Terms of Reference for both Inquiries to public comment until 10 May 2019. Please refer to the Corporate Crime and Religious Freedoms inquiry pages on the ALRC website. The ALRC will use comments on the Terms of Reference to inform the scope of its review.

The ALRC will now undertake the process of setting up these two inquiries and will commence consultations with stakeholders in these areas in a few months’ time. (emphasis added)

It is, in my experience, slightly unusual to see an invitation to comment on the Terms of Reference of an inquiry. Presumably those interested may like to offer views on the interpretation of the wording and the intent of the reference. If so, it is worth noting that there is a very short timeframe for “terms of reference” comments, which expires on 10 May 2019. This, of course, is just a preliminary comment stage- further comments will no doubt be sought after a Discussion Paper is released.

Further information: since this post was first up, the ALRC has now announced more details about its timeline:

The ALRC is planning to release a Discussion Paper on 2 September 2019 which will set out proposed reforms and ask questions to assist the ALRC to prepare formal recommendations. Submissions on the Discussion Paper will be due by 15 October 2019.

Post-Ruddock Report developments

This is just a brief update on where we are following the delivery of the Ruddock Report last year and the debates about amending the law on religious schools and sex discrimination.

The short version is that there seems to be no news for the moment. Following the report of the Senate committee inquiry into Senator Wong’s bill on 14 February, in which the majority of the committee recommended that the bill be not progressed at the moment, there was no debate on the bill in the last two weeks of Parliament in February. The next time Parliament sits will be for debate on the Federal budget, and whatever other issues have arisen leading up to a probable Federal election in May. It is always hard to predict, but it seems unlikely that the bill will be debated at that stage, so it will probably be one of those matters that will depend on who wins the election.

The Government did previously indicate that it was going to refer the matters raised in the bill to the Australian Law Reform Commission; that will presumably happen in due course but so far there is no indication of the precise terms of reference or when there might be a report.

Finally for the moment, for those interested in the range of legal issues raised by the Ruddock Report, the University of Queensland Law School, in partnership with the Australian Law Journal, is sponsoring an academic conference “Religious Freedom After Ruddock” (Sat 6 April, at UQ). Registration is available here. It looks like being an interesting day, and I will be presenting a paper on questions of “blasphemy” and free speech following the recommendation of the Report.

Senate committee report on “Religious Schools and Discrimination” bill

The Senate Legal and Constitutional Affairs Committee has now (Feb 14, 2019) tabled its Report on the Sex Discrimination Amendment (Removing Discrimination Against Students) Bill 2018, a Private Senator’s Bill introduced last year by Senator Wong with the support of the ALP. (The background to the Bill can be found in previous posts on this blog, starting here, the most recent of which was here.) The recommendation of the majority is that the Bill not be approved, and instead that the Bill and related issues “be referred to the Australian Law Reform Commission for full and proper consideration” (para 3.86).

Continue reading

SDA amendments referred to another inquiry

A brief note about the Sex Discrimination Act amendments which have the subject of a number of recent posts. The House of Representatives has now adjourned for the year without a Government Bill being introduced to make any changes concerning religious schools and discrimination. So no binding changes will be made this year. On 6 December the Senate referred the Sex Discrimination Amendment (Removing Discrimination Against Students) Bill 2018 to the Legal and Constitutional Affairs Legislation Committee for inquiry and report by 11 February 2019. Submissions to the Committee can be made at the website linked here, and must be provided by 21 January 2019:

Note: this post has been edited- contrary to initial advice I had received from the Committee, the deadline for public submissions to the Committee on this inquiry is 21 January 2019, not 11 January.

Result of Senate debate on amendments to SDA

A brief update on Parliamentary developments. The Senate debate on the ALP-sponsored Bill to amend the Sex Discrimination Act 1984 took place today. While initially the Bill had been subject to a tight time limit which meant it would have passed today if not actually voted down, at the last minute a Government motion amended this arrangement. The result is as follows:

Debate on this bill will continue at a later date.

It seems that the bill is likely to be referred for consideration to a committee, and the debate will presumably be picked up in the New Year. 

There was a similar Bill, however, introduced into the House of Representatives this morning by the Leader of the Opposition. At the moment it is not clear whether this Bill will be debated again this week. More updates will be provided when more is known.

Contacting Parliament on sex discrimination amendments

A number of Christian and other religious organisations are deeply concerned about the proposals in the ALP-sponsored private Bill due to be debated in the Senate on Monday Dec 3. As I have discussed in previous comments (here and here) the Bill, which started out as an agreed measure to stop religious schools from expelling gay students on the basis of their “orientation” alone, has a number of other serious consequences for religious freedom, not only for schools but for churches, mosques, synagogues and other religious organisations (such as, for example, University student ministries.)

The Bill amends the Sex Discrimination Act 1984 to remove some clauses which have previously provided protection for Christian organisations to operate in accordance with their religious beliefs. It narrows the scope of s 37 of the Act, which has previously exempted religious bodies acting in accordance with their beliefs from being sued for discrimination on the grounds of sex, sexual orientation or gender identity. If the Bill in its current form goes through, a Christian student group, for example, may not be legally able to require those who engage in “education” on its behalf (whether at public meetings or in small groups) to teach the Bible’s view on sex or sexual activity. A church may find that its “education” in small groups or in its church services can be challenged as providing “less favourable” treatment to same sex attracted members of the congregation.

As well as my previous comments on this blog, see these other comments from Christian organisations:

I have been asked how concerned citizens can contact their Parliamentary representatives. There is a helpful “contact page” which allows electronic messages to be sent on this Parliament house web page. There is a box to type in your postcode to find out who your local MP is, and the “refine search” menu on this page enables you to identify all the Senators for your State.

Points that could  be made include:

  • No religious schools want to be able to expel same sex attracted students on the grounds of their sexual orientation alone.
  • However, the current ALP-sponsored Bill goes far beyond dealing with this problem, and will seriously reduce the religious freedom of religious schools to operate in accordance with their religious beliefs.
  • The Bill is also so widely framed that it removes protections for all “religious bodies” in relation to “education”, and this has the potential to make it unlawful for churches, mosques and synagogues to teach the doctrines of their faith to their own members.
  • It would be best if legislation was not rushed through at the last minute. Parliament should wait until the Ruddock Report has been released and there is time for careful consideration and consultation before making any amendments in this area.