ۥ- ?`5]~ ###1111 = G QM4ӈA18 Appendix D Human Rights and Equal Opportunity Commission Notice under section 35 of the Human Rights and Equal Opportunity Commission Act 1986 (Cth) Concerning Equal Opportunity in Employment Complainant: Mr Ken Van Den Heuvel Respondent: The Commonwealth of Australia (Australian Defence Force) 1. The Commissions jurisdiction This is a complaint under the Human Rights and Equal Opportunity Commission Act 1986 (Cth) (the Act) of discrimination in employment on the ground of age. The jurisdiction of the Human Rights and Equal Opportunity Commission (the Commission) in relation to complaints of discrimination in employment and occupation was described in my first report to Parliament on complaints in this area. That description is set out in Appendix 1 of this notice. In 1989 the Human Rights and Equal Opportunity Commission Regulations declared a number of additional grounds of discrimination for the purposes of the Act with effect from 1 January 1990. The subject of this notice, age discrimination, is one of those grounds. 2. The complaint 2.1 The nature of the complaint On 1 July 1997 the Commission received a complaint under section 32 of the Act from Mr Ken Van Den Heuvel. The complainant alleges that the Australian Defence Force (the ADF) discriminated him against on the ground of age when it rejected his application to remuster to the position of Aircraft Loadmaster. The complainant was employed by the RAAF as a Ground Support Fitter at Williamstown Air Base. In April or May 1996 he made enquiries in relation to an advertisement by the RAAF for applicants for the position of Aircraft Loadmaster. He was aged 37 years at the time. He examined the requirements for the position and found one selection criterion was an upper age limit of 35 years. He telephoned the relevant RAAF contact person, Dr Leonie Ryder, to clarify why there was an age restriction. He claims Dr Ryder stated that the statistics indicated there were two reasons for not accepting a person over this age. First, a person's ability to learn diminishes at this age. Second, a person is less likely to be able to change his or her lifestyle past this age. He claims he gave Dr Ryder some examples of why he believed he did not fit into this category of applicant. He claims Dr Ryder replied that she was not saying he could not apply but that she would be on the selection board. On 3 June 1996 the complainant submitted a written application for the position of Aircraft Loadmaster. In his application he requested that an age waiver be granted. He addressed the reasons for the age restriction provided by Dr Ryder and submitted information concerning his recent completion of tertiary studies and his experience as a facilitator. He claimed these examples demonstrated his ability to perform the job and that he and his family were prepared to make adjustments. He listed his knowledge and skills which he felt were transferable to the position. The complainant provided a copy of a letter dated 25 July 1996 from the RAAF stating his application had not been approved. It stated that he did not meet the minimum selection criteria in that he exceeds the maximum age for entry. 2.2 Response by the ADF In its original response to the complaint, the respondent stated that the complainant was one of 53 applicants for six remuster training positions. It claimed that a final determinant in processing an application is an airman's reported history contained in annual evaluation reports and that only the most competitive applicants were approved for further processing. It claimed that it is normal practice not to grant an age waiver where there is a sufficient pool of personnel to select from who meet the minimum selection criteria. It also stated that the complainant was excluded from further processing because he exceeded the age limit and that the age waiver was not applied because he had not demonstrated exceptional performance and there were sufficient applicants who met the prerequisite criteria. The respondent provided a copy of Defence Instruction (Air Force) AAP 6800.003 Section 13 Chapter 3 containing the selection criteria for the position of Aircraft Loadmaster. These required an applicant to: be medically fit be aged between 17 and 35 years be able to work under conditions adversely affecting physical comfort have completed year 10 be assessed as suitable on tests for LOADM training and able to meet other abilities and aptitudes possess a range of personal attributes possess some exposure to flying be assessed as having an adequate interest and realistic understanding of LOADM training be an Australian citizen or eligible to become one be assessed as able to adjust to requirements of military life. The respondent provided a copy of course objectives for the Basic Loadmaster Course which it claims give an indication of the duties of the position. The respondent also provided a list of birth dates of Aircraft Loadmasters. These showed that as at October 1997 there was a total of 76 Loadmasters of whom 55, or 72 percent, were over the age of 35 years. The respondent stated that it was unable to explain why Loadmasters aged 36 years and over were considered fit for the position whereas other servicemen in this age group were not. The respondent provided a copy of a Note of Action dated 14 June 1996 by Dr Ryder concerning the complainant's application. Dr Ryder recorded not suitable for further processing and Aged 37. She also recorded that the complainant had called her to discuss an age waiver and she had told him that she would not recommend it. She stated that he had told her that his motivation for applying was that he was looking for a change after 20 years as a Ground Support Fitter and that she told him this was not adequate motivation for review. In a further response dated 2 February 1998, the respondent stated that it is not saying that servicemen over 35 years could not perform the duties of the position as an age waiver exists. However, waivers are only granted in exceptional circumstances, such as an applicant demonstrating exceptional performance. It stated that the fundamental rationale for the respondent's age policies is the need to maintain a young and fit force. Preference is given to applicants under 35 years as they are more likely to remain fit for operational service and perform well in training. 2.3 Conciliation Attempts by the Commission to conciliate this complaint were unsuccessful. 3. Process of the inquiry As a result of inquiries and investigation into this complaint I formed the preliminary opinion that the act complained of by the complainant constituted discrimination on the basis of age. Pursuant to sections 33 and 27 of the Act I invited the respondent to make submissions orally or in writing or both in relation to that practice. The respondent elected to make oral submissions. On 1 February 1999 I convened the inquiry in Sydney to take oral submissions from the respondent. On that date, however, the respondent, without notice to the complainant, sought an adjournment of the proceedings so that it could attempt to resolve the matter with the complainant. The respondent also indicated that it was in the process of conducting a review of the policy which was the subject of Mr Van Den Heuvel's complaint. I indicated that I would not view favourably an application for a further adjournment for the provision of oral submissions. I also directed that the complainant had four weeks, and the respondent four weeks thereafter, within which to provide me with any further written submissions. 4. Submissions and findings on liability One of the functions conferred on me by the Act is to inquire into any act or practice that may constitute discrimination (section 31(b)). Discrimination is defined in section 3 of the Act as follows: discrimination means: (a) any distinction, exclusion, or preference made on the basis of race, colour, sex, religion, political opinion, national extraction or social origin that has the effect of nullifying or impairing equality of opportunity or treatment in employment or occupation; and (b) any other distinction, exclusion or preference that: (i) has the effect of nullifying or impairing equality of opportunity or treatment in employment or occupation; and (ii) has been declared by the regulations to constitute discrimination for the purposes of this Act, but does not include any distinction, exclusion or preference: (c) in respect of a particular job based on the inherent requirements of the job; or (d) in connection with employment as a member of the staff of an institution that is conducted in accordance with the doctrines, tenets, beliefs or teachings of a particular religion or creed, being a distinction, exclusion or preference made in good faith in order to avoid injury to the religious susceptibilities of adherents of that religion or creed. As previously noted, under regulation 4(a) of the Human Rights and Equal Opportunity Commission Regulations any distinction, exclusion or preference made on the ground of age constitutes discrimination for the purposes of the Act. On 19 April 1999 the respondent wrote to me and advised that it concedes liability in this matter. It also advised that Mr Van Den Heuvel's complaint has sparked a comprehensive review of age restrictions within the ADF. I was advised that on 9 April 1999 Major General Dunne, the Head of the Defence Personnel Executive, endorsed the recommendations of that review, and that the review and recommendations were currently being considered by the Chief of the Australian Defence Force, Admiral Chris Barry. His decision on the review was expected within two weeks. I was also informed that the age restriction applicable to Loadmasters is encompassed within the scope of the review. In conceding liability in this matter, the respondent has admitted that it discriminated against the complainant in his application for the position of Aircraft Loadmaster on the basis of his age and that it was not an inherent requirement of the particular position that applicants be under the age of 35 years. I agree with this. In these circumstances, I find that the act complained of by the complainant constitutes discrimination in employment based on age. 5. Submissions on recommendations Having found the decision to reject the complainant's application to remuster to the position of Aircraft Loadmaster discriminatory under the Act, I am required to consider what recommendations I should make. The Act does not make it unlawful to discriminate on the ground of age. However, the division of the Act under which I am conducting this inquiry is directed to the elimination of discrimination in employment and occupation. Section 35(2) expressly provides that, where an act or practice is found to constitute discrimination, the Commission may make such recommendations, including compensation, as it considers appropriate in relation to a person who has suffered loss or damage as a result. Both parties have provided submissions to me concerning the quantum of damages that I should award in this matter should I be minded to recommend an award of compensation. 5.1 Complainant's submissions on recommendations sought The complainant submitted that, as he was unable to pursue a satisfactory career path in a discriminatory free working environment, he requested a discharge from the ADF. It appears from correspondence from the respondent that the discharge took place in September 1996. The complainant also submitted that his loss should be assessed on the assumption that he would have been successful in the selection process for the position of Aircraft Loadmaster had the respondent not engaged in discriminatory acts. The complainant provided details of his minimum estimation of loss of opportunity and pain and suffering as a result of the discriminatory act. He has listed heads of damage which include loss of flying allowance until retirement at age 55 years, loss of pay through no promotion until retirement at age 55 years, loss of superannuation and pain and suffering. The complainant suggests a total figure of approximately $370,000.00. The complainant also requested that the following recommendations be made: removal of the age criterion for the requirements of the Aircraft Loadmaster position statement of regret by the respondent and enlistment of the complainant in the RAAF Reserves with a minimum of 30 days service a year. 5.2 Respondent's submissions on recommendations sought The respondent submitted that a convenient and logical approach for assessing the quantum of damages is that taken by the Commission in relation to a complaint made by Robert Bradley against the Commonwealth of Australia. This was a decision made by the Commission on 5 March 1998 and also involved a complaint of age discrimination against the Department of Defence. In that case, the Commission awarded the complainant a sum of $5000.00 by way of compensation. The respondent sought a review of the matter pursuant to the Administrative Decisions (Judicial Review) Act 1977 (Cth). The Federal Court found no error of law in the decision: Commonwealth of Australia v Human Rights and Equal Opportunity Commission and Robert Bradley, unreported, 16 October 1998, Wilcox J (Bradley). The award of compensation was not the subject of the review. The respondent also made further submissions concerning the way in which an assessment of damages should be made in this matter. It submitted that, although the complainant had served for approximately 22 years in the RAAF, he had not progressed beyond the rank of Sergeant. The respondent also referred to the assessment made by an RAAF psychologist, Dr Ryder, which classified him as not suitable for further processing. It states that on its calculations the complainant had only a 11% chance of being selected for the position. This calculation is made on the basis that the complainant's application was one of fifty three applications for six remuster training positions. The respondent also queried whether the complainant could have taken up a posting if he had been successful in the application process. The respondent stated that the complainant did not suffer a direct economic loss, as he was not sacked or demoted, and so his loss in reality is no more than the loss of the opportunity to be assessed on his merits in a highly competitive process in which he may or may not otherwise have been successful. The respondent submitted that the available indicators suggest that in fact the complainant would not have been successful in being appointed as a Loadmaster, although it accepts that this cannot be stated with absolute certainty. It submitted that the complainant's loss should therefore be assessed on this basis and not on the assumption that he would have been successful if he had not been excluded from the selection process on a discriminatory ground. The respondent also submitted that the complainant has not provided any material to indicate his earnings since his discharge in September 1996 and has not provided a clear basis for the calculation of his economic loss. It requested that, if I was minded to make a significant award for economic loss, I provide the respondent with an opportunity to be heard further on this issue. 5.3 Complainant's submissions in reply on recommendations sought The complainant responded at length to the submissions made by the respondent. He pointed out a number of matters which he thought made the consideration of compensation in his matter different from that in Bradley. These matters are that the complainant had been serving in the RAAF for approximately 20 years at the time of his application for the position as Aircraft Loadmaster, that he had cleared all of the necessary fitness tests and medical checks for the position, that he was obviously well respected by his peers and that he had an excellent history of service. The complainant also stated that he has quickly progressed to the highest level in his current employment, that he has met or exceeded the training requirements for the RAAF and his current employer and that this leads him to believe that he could pass all Loadmaster training requirements. The complainant also stated, I believe that what has happened to me is far worse than being sacked or demoted. Had I been sacked or demoted I assume that I would have done something wrong, this would have been far easier to accept than the current situation. 6. Discussion of recommendations 6.1 Recommendation of compensation Taking all of these matters into account, I do not consider that it is appropriate that I make the recommendation proposed by the complainant for an award of damages based on economic loss calculated on the basis that he would have been successful in his application for the position. There is still no way to determine with any certainty that, even if the respondent had considered his application for the position of Aircraft Loadmaster in a non-discriminatory way, the complainant would ultimately have been selected. I also note the respondent's request that, if I was minded to make a recommendation for damages based on actual economic loss, I provide it with an opportunity to test the complainant's evidence about the loss he suffered. I did not consider cross examination of the complainant necessary in this regard as I am of the view that the appropriate measure of damages in this matter is one of general damages. The principles of assessment of damages in discrimination cases are flexible, although based generally on the principles applied when assessing damages in tort: Hall v A&A Sheiban Pty Ptd (1989) 85 ALR 503 at 502. However any damages are statute based and the wording of the statute is the principal basis for assessment for this head of damage: Stephenson v Human Rights and Equal Opportunity Commission (1995) 61 FLR 134 at 142-3. Overall, awards of damage must be fair and reasonable in the circumstances of each case: Ritossa v Gray & Anor (1992) EOC 92-452. In these circumstances, I have concluded that the complainant's loss is the loss of the opportunity to be assessed on his individual merits. In other cases where damages have been awarded for the denial of the opportunity to have a job application properly considered, together with the loss of the enjoyment of working in a preferred occupation, it has been stated that these damages cannot be calculated on a simple basis of loss of earnings and do not depend on proof that the complainant would in fact have been employed: Reddrop v Boehringer Ingleheim Pty Ltd (1984) EOC 92-031. It has been held that it is enough if there can be shown to have been a real chance that the complainant would in fact have been employed (Reddrop, ibid) or that it is probable that the hiring or a promotion would have occurred: Hill v Water Resources Commission (1985) EOC 92-127. I have carefully considered the submissions made by the complainant and respondent on this issue. I have taken into account the respondent's submissions concerning its view on the complainant's career progression in the RAAF, its suggestion that the complainant may not have been able to take up a posting even if he had been successful in the application process and the submissions about the likelihood of the complainant obtaining the position had the respondent not engaged in a discriminatory act. In relation to this last point, I have considerable difficulty with the respondent's mathematical calculation concerning the complainant's prospects in obtaining the position. I do not find this proposed method of calculation particularly accurate or helpful. I have also taken into account Dr Ryder's assessment of the complainant as not suitable for further processing. I note however that this would be only one of a number of considerations that would have been taken into account had the complainant's application been considered further. I have also considered the complainant's submissions including his service in the RAAF for approximately 20 years at the time of his application for the position as Aircraft Loadmaster, that he had cleared all of the necessary fitness tests and medical checks for the position, that he was obviously well respected by his peers and that he had an excellent history of service. General damages can also include factors such as damages for humiliation, loss of dignity, injury to feelings and so on. While the complainant has provided little in the way of submissions about these kinds of issues, he said that he feels that what has happened to him is far worse than if he had been sacked and demoted and that he experienced pain and suffering as a result of the actions of the respondent. Having taken into account all of the matters before me, I recommend that the complainant be awarded compensation for his loss as a consequence of the discrimination in the sum of $10,000.00. 6.2 Other recommendations I have been advised by the respondent that it has undertaken a comprehensive review of age restrictions within the ADF. The Commission has not been provided with any information as to the content of the review and what, if any, changes are to be made. I therefore make further recommendations on the basis of the information currently available to me. 1. I recommend that the upper age limit contained in the selection criteria for Aircraft Loadmaster positions be abolished. It appears that, if the upper age limit is abolished, it is unnecessary to make any recommendation concerning age waivers on the basis of exceptional skill. 2. In the circumstances, I also recommend that the respondent provide an apology to the complainant. I do not consider it appropriate to recommend that the complainant be enlisted in the RAAF Reserves with a minimum of 30 days service a year. In making this decision, I have taken into account the respondent's submissions concerning the uncertainty of a position vacancy and the complainant's employment suitability including trade qualifications and currency. 7. Notice of findings of the Commission The Commission finds that the act complained of by the complainant, namely that the respondent rejected his application to remuster to the position of Aircraft Loadmaster on account of his age, constituted discrimination in employment based on age. 8. Reason for findings 1. The respondent conceded liability in this matter. On the basis of this concession and my own inquiries, I am satisfied of the following matters. 2. The respondent's rejection of the complainants application to remuster to the position of Aircraft Loadmaster was by reason of his being 37 years of age at the time of making the application. 3. The respondent's decision to exclude the complainant's application from further processing by reason of his age is a distinction or exclusion on the basis of age. 4. The respondent's exclusion has had the effect of nullifying the complainants equality of opportunity or treatment in employment. 5. The distinction, exclusion or preference was not based on the inherent requirements of the particular position. 9. Recommendations On the basis of the matters discussed above, I recommend that: 1. the upper age limit contained in the selection criteria for Aircraft Loadmaster positions be abolished 2. the respondent provide an apology to the complainant 3. the respondent pay the complainant the sum of $10,000. Dated at Sydney this 16th day of September 1999 ______________________________________ Chris Sidoti Human Rights Commissioner Endnotes  Human Rights and Equal Opportunity Commission Report into complaints of discrimination in employment and occupation: compulsory age retirement, HRC Report No.1, 30 August 1996.  Notified in the Commonwealth of Australia Gazette on 21 December 1989.  This decision was overturned (but not on the issue of damages) by the NSW Court of Appeal: (1984) EOC 92-108. !u~n6.Ann6"*VlBxyqrxph`XPHF V F F F V F F F F D D D D D D D D D D D D F (A=?QStv>@hjA]ļ|tph`XPF F @D F F F F F F F F F F F @D F @D  !!"" 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