HUMAN RIGHTS IN THE PUBLIC SECTOR UNDERSTANDING THE

HUMAN RIGHTS IN THE PUBLIC SECTOR UNDERSTANDING THE CANADIAN HUMAN RIGHTS ANTI-DISCRIMINATION MODEL LORNE FOSTER SCHOOL OF PUBLIC POLICY AND ADMINISTRATION DEPARTMENT OF EQUITY STUDIES

Table of Contents Introduction q Canada’s Human Rights Agenda q Protected Grounds and Protected Social Areas q Equality and Discrimination in a modern Canadian Context q Public Sector Employment q New Public Management Theory and the Human Rights Paradigm Foster – Human Rights & Public Sector 2

Importance of Human Rights Whether we like it or not, religious, ethnic and cultural diversity is part of our modern world – and increasingly, part of our national and community reality. Human rights and the respect for every individual upon which they rest, offer the best hope for reconciling the conflicts this diversity is bound to generate. If we are to live together in peace and harmony – within our nations and as nations in the wider world – we must find ways to accommodate each other. Human rights, expressed in the fabric of our law and administered by our courts and tribunals, provide a way to accomplish this. �The Right Honourable Beverley Mc. Lachlin, Chief Justice of Canada Foster – Human Rights & Public Sector 3

Rights Scaffolding in Canada The Charter, Bill of Rights and Human Rights Codes provide the structural scaffold for collective and individual rights standards and equal opportunity in Canadian society. � The Charter of Rights and Freedoms – constitutional supremacy � The Bill of Rights – statutory support instrument � Federal and Provincial Human Rights Codes – remedial in nature and aimed at eliminating discrimination. Foster – Human Rights & Public Sector 4

Foundations of Human Rights United Nations Declaration of Human Rights Canadian Bill of Rights 1960 Foster – Human Rights & Public Sector Canadian Chart of Rights and Freedoms 5

Charter of Rights and Freedoms The Canadian Charter of Rights and Freedoms (also known as The Charter of Rights and Freedoms or simply the Charter, is a bill of rights entrenched in the Constitution of Canada guaranteeing certain: • • • Fundamental Freedoms [religion, beliefs, conscience, expression, press, assembly, thought, expression] Democratic Rights [right to vote & a democratic form of government] Mobility Rights Equality Rights Language Rights Minority Language Education [French/ English minorities] Foster – Human Rights & Public Sector 6

Canadian Bill of Rights, which was enacted in 1960. However, the Bill of Rights was only a federal statute, rather than a constitutional document. � Limited in scope � Easily amendable by parliament � No application to provincial laws. � The Supreme Court Of Canada also narrowly interpreted the bill of rights and the court was reluctant to declare laws inoperative. � The Bill Of Rights continues in force in Canada and its importance lies in those provisions which the Charter does not duplicate – for example, the right to the enjoyment of property (section 1(a)). Foster – Human Rights & Public Sector 7

Ontario Human Rights Code, 1962 q. Racial Discrimination Act, 1944 q. Fair Employment Practices Act, 1951 q. Fair Accommodation Practices Act, 1954 Foster – Human Rights & Public Sector 8

Protected Grounds Are Age Ancestry, colour, race Citizenship Ethnic origin Place of origin Creed Disability Family status Marital status (including single status) Gender identity, gender expression Receipt of public assistance (in housing only) Record of offences (in employment only) Sex (including pregnancy and breastfeeding) Sexual orientation. Foster – Human Rights & Public Sector 9

Protected Social Areas Are The Code requires equal treatment in: 1. 2. 3. 4. 5. Accommodation (housing) Contracts Employment Services Vocational associations (unions). Foster – Human Rights & Public Sector 10

Human Rights Act The Human Rights Act embodies the important public policy of eliminating (removing/ redressing) discrimination in society. In recognition of the prominence of such public policy, the Supreme Court of Canada has characterized human rights legislation as quasi-constitutional. This means that the Act is almost as fundamental to our legal structure as the Charter, even though it is a law passed by Parliament. Moreover, the Court has ruled that where there is a conflict between human rights legislation and other laws, human rights legislation takes priority, unless the human rights law creates a clear exception. Foster – Human Rights & Public Sector 11

Complementarities Of The Charter and Human Rights Codes The Charter is a constitutional discourse that applies to the acts and conduct of government, the Human Rights Codes apply to the acts of, and conduct between, individuals. The Charter defines the structure of public institutions and there operating culture [accentuates equality]. The Code(s) provide public policy remedies for the person or group discriminated against, and for the prevention of further discrimination [accentuates anti-discrimination]. Foster – Human Rights & Public Sector 12

What is Equality? Section 15 of the Charter states that: � Every individual is equal before and under the law and has the rights to equal protection and equal benefit of the law without discrimination and, in particular, without discrimination based on race, national or ethnic origin, colour, religion, sex, age or mental or physical disability. What does equality mean? People's understanding of this idea has changed and developed over the years. At one time, people believed that only certain people had the right to equality, such as White men, adults, or landowners. Until recently, many people thought that equality meant getting the exact same treatment as other people. We call this approach "formal equality". Now, the courts and many equality seekers have a broader view of equality, one that is often called "substantive equality" Foster – Human Rights & Public Sector 13

What is Substantive Equality The Definition: Making sure everyone is treated in a fair and equitable manner both in employment and service by addressing genuine disadvantage – individual and group. Ø Fairness - Steps taken to ensure that such impacts do not impact negatively on others, while remaining consistent with the overall purpose of equity. Ø Generally more aggressive than “diversity” approaches Ø The objective: Ø Equity (fairness & representation) in employment and services (through inclusive design & barrier removal) Foster – Human Rights & Public Sector 14

What is Discrimination is differential treatment based on a personal characteristic which has an adverse impact on an individual or group. Examples of personal characteristics include race, ancestry, place of origin, colour, ethnic origin, citizenship, creed, sexual orientation, age, marital status, family status or handicap. Types of discriminatory conduct are: (1) Harassment [sexual, racial, general] (2) poisoned environment, (3) indirect or constructive discrimination & (5) systemic discrimination Foster – Human Rights & Public Sector 15

Examples of Discrimination Ø Ø Ø Denying someone goods, services, facilities or accommodation. Providing someone goods, services, facilities or accommodation in a way that treats them adversely and differently. Refusing to employ or continue to employ someone, or treating them unfairly in the workplace. Following policies or practices that deprive people of employment opportunities. Paying men and women differently when they are doing work of the same value. Retaliating against a person who has filed a complaint with the Commission or against someone who has filed a complaint for them. Foster – Human Rights & Public Sector 16

What is Discrimination? � � � Different treatment and adverse impact Case law: � No formulaic way of applying a test � Has “substantive discrimination” been demonstrated in the context Often confirmed where differential treatment is: � associated with a stereotype � offensive to human dignity � targets a historically disadvantaged community Maybe also require disadvantage relative to others be shown No Intent required: � Discrimination doesn’t have to be intentional Foster – Human Rights & Public Sector 17

Equal Treatment With Respect To Employment The right to “equal opportunity with respect to employment” covers every aspect of the workplace in the private and public sector employment relationship – including job applications, recruitment, training, transfers, promotions, apprenticeship terms, dismissal and layoffs. It also covers rate of pay, overtime, hours of work, holidays, benefits, shift work, discipline and performance evaluations. Human rights claims of discrimination and harassment can be made against employers, contractors, unions, and directors or other people in the workplace such as coworkers and supervisors. Foster – Human Rights & Public Sector 18

Human Rights Commissions and Employment Federal and Provincial Commissions have only one aim: to advance equality for all Canadians through public policy. Unlike in court, a human rights adjudication has the agility to make any award, other than legal fees, to remedy discrimination in the workplace. The list includes extraordinary situational powers such as mandatory reinstatement with back pay – sometimes years after an employee's departure – general damages for discrimination, wage loss recovery, public interest remedies, human rights training, and forced sensitivity courses. Foster – Human Rights & Public Sector 19

Other Workplace Legislation “Formal barriers” to discrimination and income equality: � � � The Employment Equity Act The Public Sector Equitable Compensation Act Public Service Labour Relations Act Public Service Employment Act [Non-partisanship] Employment Standards Legislation Workplace Health And Safety [(i) Right to Refuse Unsafe Work, (ii) Getting Hurt at Work/ Workers Compensation] Foster – Human Rights & Public Sector 20

Informal Covert and Hidden Barriers Human Rights Codes go beyond formal, overt, blatant adverse, systemic discrimination to address: q q q Constructive Discrimination Poisoned Environment Harassment I. Sexual II. Racial III. General (i. e. bullying or personal harassment). Foster – Human Rights & Public Sector 21

The Employers Obligation It is the obligation of employers in the private and public sector to follows the letter and spirit of the Ontario Human Rights Code – to support and protect the dignity and worth of everyone. This means providing equal rights and opportunities for all employees, clients and volunteers. Creating policies, programs and processes designed to address, prevent and eliminate discrimination in all aspects of employment and when providing services to others. Foster – Human Rights & Public Sector 22

What is the Public Sector in Canada The public sector in Canada refers to the part of the economy concerned with providing various government services – universities, hospitals, utilities, Crown corporations and other government-funded institutions. The composition of the public sector varies by country, but in most countries the public sector includes such services as the military, police, public transit and care of public roads, public education, along with healthcare and those working for the government itself, including the public service workers and elected officials Foster – Human Rights & Public Sector 23

Public Sector Employment in Canada Foster – Human Rights & Public Sector 24

Public Sector Employment in Canada Rolling Back of the State If public employment is taken as a whole – meaning, according to the Financial Management System definition, the three public administrations (federal, provincial and local), the health and social services networks, the education networks, and government business enterprises – the public sector workforce of all provinces declined in size during the 1990 s. Recently, more cuts to the public service sector have been recommended at both the provincial and federal levels of government Foster – Human Rights & Public Sector 25

The Ratio Of Public Employment The ratio of public employment to total employment is one of the main indicators for measuring the scale of government intervention in a given society. The greater this proportion is, the more that the public sector is present in the capacity of employer and the more this role is assumed to be considerable. Neo-liberal ideology of fiscalized consciousness New Public Management – running government like a business financial restraint, spending reductions, labour force downsizing “value for dollars” // “bang for your buck” // “reducing government footprint. ” Foster – Human Rights & Public Sector 26

Values And Ethics Code For The Public Sector – Benchmarking Canada Palestinian Authority (NDP) (I) Respect For Democracy, (I) Transparency (II) Respect For People, (II) Performance [measurable targets] (III) Integrity, (IV) Stewardship (III) Partnership (V) Excellence – [professionalism] (IV) Oversight – [regulatory consumer protection] Source: Palestinian Auutoruity National Development Plan 2011 -2013; Code Of Conduct For The Civil Service, Palestinian Authority, Benchmarking Report, OECD 2011 Foster – Human Rights & Public Sector 27

New Public Management Theory The (NPM) model implies redefining core business and streamlining government functions under the auspice of budgetary restraints and expenditure reductions (NPM) is largely driven by the same values that underlie those of the private sector – the three Es – efficiency, effectiveness, and economy. These are placed within the framework of “quality service” to citizens, who are now referred to as “customers” or “clients. ” Generally speaking – (NPM) tends to turn all state intervention of “policy space” into market functions. Foster – Human Rights & Public Sector 28

Public Sector Workers in Canada Foster – Human Rights & Public Sector 29

Public Sector Employment in Ontario Foster – Human Rights & Public Sector 30

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Public Employment As A Share of Total Employment The number of employees per 1000 inhabitants is an indicator of the capacity of the public sector to deliver services. It provides an idea of the scale of administrative systems in the provinces of Canada. It is also indicative of the size of government relative to a given society, although, on this score, the ratio of public employees to total employment is thought to be more suitable. Foster – Human Rights & Public Sector 32

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Human Rights Paradigm vs. New Public Management The ratio of public employment to total employment is partially determined by the dynamism of total employment. A human rights paradigm would argue that a dynamic workforce is base on the inclusion and the actualization of all of our abilities and talents. Therefore, harnessing people skills is the lever to financial management not the reverse. The goal is to apply a human rights paradigm to decision making across public services in order to achieve better public service employee relations – and better service provision to the public Foster – Human Rights & Public Sector 34

Historical Hiring Practice Of The Federal Government An internal audit report in 2002 conducted by the Research Division of the Public Service Commission found: q Managers in the federal public service continue to hire people they know – including spouses, siblings and cousins – rather than comply with prescribed rules to ensure all Canadians have a fair chance at government jobs. q 51% of placements it was unable to conclude competency and fairness were respected, because key documents were missing Foster – Human Rights & Public Sector 35

Historical Hiring Practice Of The Federal Government (Con’t) q Managers avoided hiring employees through an open competition. In 115 cases where individuals were referred by name for a job, 110 were listed as if they had been hired through a public competition q Managers had prepared lists of possible candidates when no competition was ever held q Managers list job qualifications in such a specific way that employees can accurately predict who in the office will get the job. Foster – Human Rights & Public Sector 36

Contemporary Pubic Sector Employment Problems Ø Issues of concern pertaining to representation and recruitment of women, persons with disabilities, visible minorities and aboriginal peoples. Ø Concerns expressed regarding the public service commission’s new method for calculating recruitment rates [e. g. , over 25% hires through non-postings]. Ø Some improvement, but continuing scarcity, of members of visible minority groups in executive positions. Ø Expenditure reduction initiatives (including layoffs of public servants, wage freezes, and rollbacks), negatively impact racialized workers who generally lack the same level of seniority as White workers. Foster – Human Rights & Public Sector 37

People Tend to Hire People Like Themselves Workplace composition studies in USA and Canada have confirmed that people tend to hire people like themselves. Out of these studies we start to recognize that discrimination can be deliberate or unintentional // overt or covert // blatant or hidden. Ø Dr. York Professor Frances Henry and her colleagues – and the UARR - conducted ‘audit studies’ supporting racialized barriers - these have involved interview “audits” and “employment agency referral studies” – with very similar findings to the Americans – in regard to ‘names’ and ‘accents’ Ø A British Columbia based “resume study” by Philip Oreopoulos, (2009) to investigate the reasons why skilled immigrants struggle in the labour market – found that when education and skill levels were comparable, the applicants with “English-sounding names” received interview requests 40 percent more often than applicants with Chinese, Indian, or Pakistani names. Foster – Human Rights & Public Sector 38

Contemporary Human Rights Workplace Tools Address “subtle and informal barriers” preventing people of colour from having full and equal involvement in society occur at the level of norms and values � The Human Rights Maturity Model � Discrimination Prevention Program � Accessibility For Ontarians With Disabilities Act, 2005 – [(I) Customer Service (Ii) Employment (Iii) Information And Communications (Iv) Transportation (V) Design Of Public Spaces � Canadian Experience Policy � Accommodation Policy* Foster – Human Rights & Public Sector 39

Steps To An Inclusive Workplace o o Diversity Ø Is about efficiency Cultural Competence Ø Is working effectively in crosscultural situations Equity Ø Involves addressing systemic discrimination, historical disadvantage, representativeness Ø Is about proactively removing ‘isms’ and the oppression / discrimination they cause Anti-racism/ Oppression Foster – Human Rights & Public Sector 40

HUMAN RIGHTS Principles & Law EQUITY DIVERSITY ANTI-RACISM / ANTI-OPPRESSION GOAL: Inclusivity + Cultural Competence Foster – Human Rights & Public Sector Human Rights Framework for Diversity 41