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Ý ƒûœ!ÝÔUKUS.,ÔÝ  ÝÔ_Ôò òCOMMITTEE€ON€THE€ELIMINATION€OF€RACIAL€DISCRIMINATIONÐ ° ÐÌòòÔ_ÔHaganÔ_Ô€v.€AustraliaóóÐ à ÐÌCommunication€No.€26/2002Ð pÀ ÐÌ20€March€2003Ð P   ÐÌÔ_ÔCERDÔ_Ô/C/62/D/26/2002Ð 0 € ÐÌÌVIEWSÐ P  Ðó óÌÌòòòòSubmitted€byóó:€Stephen€Ô_ÔHaganÔ_Ô€(represented€by€counsel)Ð Ð  ÐÌòòAlleged€victimóó:€The€petitionerÐ ° ÐÌòòState€partyóó:€AustraliaÐ à ÐÌòòDate€of€the€communicationóó:€31€July€2002€óóÐ pÀ ÐÌÌòòÓ  ÓThe€Committee€on€the€Elimination€of€Racial€Discriminationóó,€established€under€article€8€of€theÐ @ ÐInternational€Convention€on€the€Elimination€of€All€Forms€of€Racial€Discrimination,Ð 0€ ÐÌòòMeeting€onóó€20€March€2003,Ð ` ÐÌòòAdopts€the€followingóó:Ð ð@ ÐÓ¾ÓÌÌÓ  Óòòò òOpinionó óóóÐ À! ÐÌÌÓÓÓ  Ó1.€€The€petitioner,€Stephen€Ô_ÔHaganÔ_Ô,€is€an€Australian€national,€born€in€1960,€with€origins€in€the€Ô_ÔKoomaÔ_ÔÐ $à" Ðand€Ô_ÔKullilliÔ_Ô€Tribes€of€South€Western€Queensland.€€He€alleges€to€be€a€victim€of€a€violation€byÐ €%Ð # ÐAustralia€of€articles€2,€in€particular,€paragraph€1€(c);€4;€5,€paragraphs€d€(Ô_ÔiÔ_Ô)€and€(ix),€e(vi)€andf;€6€andÐ p&À!$ Ð7€of€the€International€Convention€on€the€Elimination€of€All€Forms€of€Racial€Discrimination.€€He€isÐ `'°"% Ðrepresented€by€counsel.Ð P( #& ÐÌò òThe€facts€as€presentedó óÐ 0*€%( ÐÌ2.1€€In€1960,€the€grandstand€of€an€important€sporting€ground€in€Toowoomba,€Queensland,€where€theÐ ,`'* Ðauthor€lives,€was€named€the€ð ðÔ_ÔE.S.Ô_Ô€ððNiggerðð€Brown€Standðð,€in€honour€of€a€well„known€sporting€andÐ -P(+ Ðcivic€personality,€Mr.€Ô_ÔE.S.Ô_Ô€Brown.€€The€word€ð ðniggerðð€(ð ðthe€offending€termðð)€appears€on€a€large€signÐ ð-@), Ðon€the€stand.€€Mr.€Brown,€who€was€also€a€member€of€the€body€overseeing€the€sports€ground€and€whoÐ ° Ðdied€in€1972,€was€of€white€Anglo„Saxon€extraction€who€acquired€the€offending€term€as€hisÐ  ð Ðnickname,€either€ð ðbecause€of€his€fair€skin€and€blond€hair€or€because€he€had€a€penchant€for€usingÐ à ÐððNigger€Brownðð€shoe€polishðð.€€The€offending€term€is€also€repeated€orally€in€public€announcementsÐ €Ð Ðrelating€to€facilities€at€the€ground€and€in€match€commentaries.Ð pÀ ÐÌ2.2€€On€23€June€1999,€the€petitioner€requested€the€trustees€of€the€sports€ground€to€remove€theÐ P   Ðoffending€term,€which€he€found€objectionable€and€offensive.€€After€considering€the€views€ofÐ @  Ðnumerous€members€of€the€community€who€had€no€objection€to€the€use€of€the€offending€term€on€theÐ 0 € Ðstand,€the€trustees€advised€the€petitioner€by€letter€of€10€July€1999€that€no€further€action€would€beÐ  p  Ðtaken.€€On€29€July€1999,€a€public€meeting€chaired€by€a€prominent€member€of€the€local€indigenousÐ `  Ðcommunity,€and€attended€by€a€cross„section€of€the€local€Aboriginal€community,€the€mayor€and€theÐ P  Ðchair€of€the€sports€ground€trust,€passed€a€resolution€ð ðThat€the€name€ððÔ_ÔE.S.Ô_Ô€Nigger€Brownðð€remain€onÐ ð@  Ðthe€stand€in€honour€of€a€great€sportsman€and€that€in€the€interest€of€the€spirit€of€reconciliation,€raciallyÐ à0  Ðderogative€or€offensive€terms€will€not€be€used€or€displayed€in€futureðð.€òò1/óóÐ Ð  ÐÌ2.3€€On€11€May€2000,€the€petitioner€brought€a€federal€court€action,€on€the€basis€that€the€trusteesððÐ ° Ðfailure€to€remove€the€offending€term€violated€sections€9€(1)€òò2/óó€€and€18€C€(1)€òò3/óó€€of€the€federal€RacialÐ  ð ÐDiscrimination€Act€1975€(ð ðthe€Actðð).€€He€sought€removal€of€the€offending€term€from€the€grandstandÐ à Ðand€an€apology€from€the€trustees.€€On€10€November€2000,€the€Federal€Court€dismissed€theÐ €Ð Ðpetitionerððs€application.€€The€Court€considered€that€the€petitioner€had€not€demonstrated€that€theÐ pÀ Ðdecision€was€an€act€ð ðreasonably€likely€in€all€the€circumstances€to€offend,€insult,€humiliate€orÐ `° Ðintimidate€an€indigenous€Australian€or€indigenous€Australians€generallyðð.€€Nor€was€the€decision€anÐ P  Ðact,€in€the€words€of€the€statutory€language,€ð ðdone€because€of€the€race€...€€of€the€people€of€the€groupðð.€Ð @ ÐFinally,€the€Court€considered€that€the€Act€did€not€protect€the€ð ðpersonal€sensitivities€of€individualsðð,Ð 0€ Ðas€it€considered€to€be€the€case€here,€but€rather€ð ðÔ_Ôrender[edÔ_Ô]€acts€against€individuals€unlawful€onlyÐ  p Ðwhere€those€acts€involve€treating€the€individual€differently€and€less€advantageously€than€otherÐ ` Ðpersons€who€do€not€share€the€membership€of€the€complainantððs€racial,€national€or€ethnic€groupðð.€€OnÐ P Ð23€February€2002,€the€Full€Court€of€the€Federal€Court€rejected€the€petitionerððs€appeal.€€On€19€MarchÐ ð@ Ð2002,€the€High€Court€of€Australia€refused€the€petitionerððs€application€for€special€leave€to€appeal.€€Ð à0 ÐÌ2.4€€The€petitioner€also€pursued€a€complaint€to€the€Human€Rights€and€Equal€OpportunitiesÐ À! ÐCommission€(Ô_ÔHREOCÔ_Ô),€which€could€not€be€pursued€further€because€of€a€subsequent€restriction€byÐ °"  Ðlaw€of€the€Commissionððs€jurisdiction€to€investigate€certain€individual€complaints.€€Ð  #ð! ÐÌò òThe€complaintó óÐ €%Ð # ÐÌ3.1€€The€petitioner€contends€that€the€use€of€the€offending€term€on€the€grandstand€and€orally€inÐ `'°"% Ðconnection€therewith€violates€articles€2,€in€particular,€paragraph€1€(c);€4;€5,€paragraphs€d€(Ô_ÔiÔ_Ô)€and(ix),Ð P( #& Ðe€(vi)€and€f;€6€and€7€of€the€Convention.€€He€contends€that€the€term€is€ð ðthe€most€racially€offensive,Ð @)$' Ðor€one€of€the€most€racially€offensive,€words€in€the€English€languageðð.€€Accordingly,€he€and€hisÐ 0*€%( Ðfamily€are€offended€by€its€use€at€the€ground€and€are€unable€to€attend€functions€at€what€is€the€areaððsÐ  +p&) Ðmost€important€football€venue.€€He€argues€that€whatever€may€have€been€the€position€in1960,Ð ,`'* Ðcontemporary€display€and€use€of€the€offending€term€is€ð ðextremely€offensive,€especially€to€theÐ -P(+ ÐAboriginal€people,€and€falls€within€the€definition€of€racial€discrimination€in€Article€1ðð€of€theÐ ð-@), ÐConvention.€€Ð ° ÐÌ3.2€€He€clarifies€that€he€has€no€objection€to€honouring€Mr.€Brown€or€naming€a€football€stand€in€hisÐ à Ðhonour,€but€that€at€the€time€the€nickname€ð ðNiggerðð€was€applied€to€Mr.€Brown,€non-AboriginalÐ €Ð ÐAustralians€ð ðeither€were€not€aware€of€or€were€insensitive€to€the€hurt€and€offence€that€term€causedÐ pÀ Ðto€Aboriginal€peopleðð.€€He€argues€further€that€it€is€not€necessary€to€repeat€Mr.Brownððs€nicknameÐ ` ° Ðin€order€to€honour€him,€for€other€stadia€named€after€well„known€athletes€utilize€their€ordinary€names,Ð P   Ðrather€than€their€nicknames.€€Ð @  ÐÌ3.3€€He€argues€that€under€article€2,€paragraph€1€(c),€in€particular,€any€State€party€to€the€ConventionÐ  p  Ðhas€an€obligation€to€amend€laws€having€the€effect€of€perpetuating€racial€discrimination.€€He€contendsÐ `  Ðthat€use€of€words€such€as€the€offending€term€in€a€very€public€way€provides€the€term€with€formalÐ P  Ðsanction€or€approval.€€Words€convey€ideas€and€power,€and€influence€thoughts€and€beliefs.€€They€mayÐ ð@  Ðperpetuate€racism€and€reinforce€prejudices€leading€to€racial€discrimination.€€The€lawfulness€(in€termsÐ à0  Ðof€domestic€law)€of€the€use€of€this€term€also€runs€counter€to€the€objectives€of€article€7,€whichÐ Ð  Ðindicates€that€States€parties€undertake€to€combat€prejudices€leading€to€racial€discrimination.€€Ð À ÐÌ3.4€€The€petitioner€further€argues€that€section€18€(1)€(b)€of€the€Act,€requiring€the€offensive€conductÐ  ð Ðto€be€ð ðbecause€ofðð€a€racial€attribute€is€narrower€than€the€associative€terms€ð ðbased€onðð€found€in€theÐ à Ðdefinition€of€racial€discrimination€in€article€1€of€the€Convention.€€He€characterizes€that€the€dismissalÐ €Ð Ðof€his€complaint,€inter€alia€on€the€grounds€that€the€offensive€term€was€not€ð ðbecause€ofðð€a€racialÐ pÀ Ðattribute,€was€ð ðtechnicalðð.€€Ð `° ÐÌ3.5€€By€way€of€remedy,€the€petitioner€seeks€the€removal€of€the€offending€term€from€the€sign€and€anÐ @ Ðapology,€as€well€as€changes€to€Australian€law€to€provide€an€effective€remedy€against€racially„Ð 0€ Ðoffensive€signs,€such€as€the€one€in€question.Ð  p ÐÌò òThe€State€partyððs€submissions€on€admissibility€and€meritsó óÐ P ÐÌ4.1€€By€submission€of€26€November€2002,€the€State€party€disputed€both€the€admissibility€and€meritsÐ à0 Ðof€the€petition.€Ð Ð  ÐÌ4.2€€As€to€admissibility,€the€State€party,€while€conceding€that€domestic€remedies€have€beenÐ °"  Ðexhausted,€considers€the€petition€incompatible€with€the€provisions€of€the€Convention€and/orÐ  #ð! Ðinsufficiently€substantiated.€€Concerning€incompatibility,€the€State€party€refers€to€jurisprudence€ofÐ $à" Ðthe€Human€Rights€Committee€that€it€will€not€review€the€interpretation€of€domestic€law,€absent€badÐ €%Ð # Ðfaith€or€abuse€of€power,€òò4/óó€€and€invites€the€Committee€on€the€Elimination€of€Racial€DiscriminationÐ p&À!$ Ðto€take€the€same€approach.€€The€State€party€notes€that€its€courts€and€authorities€considered€theÐ `'°"% Ðpetitionerððs€complaints€expeditiously€and€according€to€laws€enacted€in€order€to€give€effect€to€itsÐ P( #& Ðobligations€under€the€Convention.€€The€courts,€at€first€instance€and€appeal,€held€that€the€petitionerððsÐ @)$' Ðcomplaints€had€not€been€made€out.€€Accordingly,€the€State€party€submits€it€would€be€inappropriateÐ 0*€%( Ðfor€the€Committee€to€review€the€judgements€of€the€Federal€Court€and€to€substitute€its€own€views.€Ð  +p&) ÐAs€to€the€specific€claim€under€paragraph€1€(c)€that€the€State€party€should€amend€the€RacialÐ ,`'* ÐDiscrimination€Act€(being€a€law€having€the€effect€of€perpetuating€racial€discrimination),€the€StateÐ -P(+ Ðparty€argues€that€this€claim€is€incompatible€with€the€Convention,€as€the€Committee€has€noÐ ð-@), Ðjurisdiction€to€review€the€laws€of€Australia€in€the€abstract.€€It€invites€the€Committee€to€follow€theÐ ° Ðjurisprudence€of€the€Human€Rights€Committee€to€this€effect.€òò5/óó€Ð  ð ÐÌ4.3€€In€view€of€the€thorough€consideration€and€rejection€of€the€complaint€before€domestic€instances,Ð €Ð Ðthe€State€party€also€argues€that€the€petition€is€insufficiently€substantiated,€for€purposes€ofÐ pÀ Ðadmissibility.Ð ` ° ÐÌ4.4€€On€the€merits,€the€State€party€disputes€that€the€facts€disclose€a€violation€of€any€articles€of€theÐ @  ÐConvention€invoked.€€As€to€the€claim€under€article€2,€the€State€party€submits€that€these€obligationsÐ 0 € Ðare€of€general€principle€and€programmatic€in€character,€and€therefore€accessory€to€other€articles€ofÐ  p  Ðthe€Convention.€€Accordingly,€in€the€same€way€that€the€Human€Rights€Committee€only€finds€aÐ `  Ðviolation€of€article€2€of€the€International€Covenant€on€Civil€and€Political€Rights€òò6/óó€€after€finding€aÐ P  Ðseparate€substantive€violation€of€the€Covenant,€a€violation€of€article€2€of€the€Convention€could€onlyÐ ð@  Ðarise€after€a€violation€of€the€other€substantive€articles€(which€is€denied€in€its€submissions€underÐ à0  Ðarticles€4€to€7€below).€òò7/óó€€€Even€if€the€Committee€considers€that€article€2€can€be€directly€breached,Ð Ð  Ðthe€State€party€submits€that€it€has€satisfied€its€obligations:€€it€condemns€racial€discrimination,€hasÐ À Ðenacted€legislation€and€policy€to€make€its€practice€by€any€person€or€body€unlawful€as€well€as€toÐ ° Ðeliminate€all€forms€of€racial€discrimination€and€actively€promote€racial€equality,€and€has€providedÐ  ð Ðeffective€mechanisms€of€redress.€€Ð à ÐÌ4.5€€In€terms€of€the€specific€paragraphs€of€article€2,€as€to€paragraph€1€(a),€the€State€party€citesÐ pÀ Ðacademic€commentary€to€the€effect€that€this€provision€does€not€deal€with€private€acts€ofÐ `° Ðdiscrimination€(which€are€referred€to€in€subparagraphs€(b)€and€(d)).€òò8/óó€€€As€the€Toowomba€SportsÐ P  ÐGround€Trust€is€a€private€body€rather€than€a€public€authority€or€government€agent,€its€acts€fallÐ @ Ðoutside€the€scope€of€paragraph€1€(a).€€As€to€paragraph€1€(b),€the€State€party€relies€on€commentary€thatÐ 0€ Ðthis€provision€is€intended€to€prevent€any€actor€engaged€in€racial€discrimination€from€receiving€StateÐ  p Ðsupport.€òò9/óó€€€The€State€party€submits€that€neither€the€establishment€of€the€Sports€Ground€Trust,€itsÐ ` Ðcontinued€existence,€nor€its€response€to€the€communication€can€be€taken€as€any€State€sponsorship,Ð P Ðdefence€or€support€of€any€racial€discrimination€committed€by€the€Trust€(which€is€denied).Ð ð@ ÐÌ4.6€€As€to€paragraph€1€(c),€the€State€party€refers€to€its€submissions€below€that€no€racialÐ Ð  Ðdiscrimination€has€been€suffered.€òò10/óó€€That€the€petitionerððs€complaint€under€the€RacialÐ À! ÐDiscrimination€Act€was€unsuccessful€does€not€detract€from€the€effectiveness€of€that€legislation,€norÐ °"  Ðdoes€it€suggest€that€the€Act€creates€or€perpetuates€racial€discrimination.€€As€to€paragraph1(d),€theÐ  #ð! ÐState€party€again€refers€to€its€submissions€that€no€racial€discrimination€has€occurred,€and€to€itsÐ $à" Ðgeneral€remarks€above€on€article€2.€òò11/óó€€As€to€paragraph€1€(e),€the€State€party€refers€to€commentaryÐ €%Ð # Ðthat€this€provision€is€ð ðbroadly€and€vaguely€wordedðð,€leaving€undefined€ð ð[Ô_Ôw]hatÔ_Ô€ððÔ_ÔintegrationistÔ_ÔððÐ p&À!$ Ðmovements€are,€and€what€ððstrengthensðð€racial€divisionðð.€òò12/óó€€The€State€party€recalls€that€AustraliaÐ `'°"% Ðis€a€multicultural€society,€and€that€its€laws€and€policies€are€designed€to€eliminate€direct€and€indirectÐ P( #& Ðracial€discrimination€and€actively€to€promote€racial€equality.€€It€refers€to€its€periodic€reports€to€theÐ @)$' ÐCommittee€for€in„depth€description€of€these€laws€and€policies.€€As€to€paragraph€2,€the€State€partyÐ 0*€%( Ðsubmits€that€the€petitioner€has€failed€to€indicate€how€the€circumstances€of€his€case€warrant€theÐ  +p&) Ðimplementation€of€ð ðspecial€measuresðð.€€Alternatively,€it€refers€to€its€submissions€that€noÐ ,`'* Ðdiscrimination€has€taken€place€for€the€conclusion€that€no€need€for€ð ðspecial€measuresðð€arises.Ð -P(+ ÐÐ ð-@), Ð4.7€€As€to€the€petitionerððs€claim€under€article€4,€the€State€party€invokes€its€reservation€to€this€article.Ð ° Ðòò13/óó€€The€State€party€recalls€that€pursuant€to€its€obligations€under€this€article,€it€enacted€PartII€A€ofÐ  ð Ðthe€Racial€Discrimination€Act,€including€section€18€C,€under€which€the€petitioner€filed€his€claim.€Ð à ÐIt€further€argues,€based€on€the€jurisprudence€of€the€Human€Rights€Committee,€òò14/óó€€that€States€partiesÐ €Ð Ðmust€be€accorded€a€certain€ð ðmargin€of€appreciationðð€in€implementing€their€Convention€obligations.€Ð pÀ ÐÌ4.8€€The€State€party€argues€that€the€use€of€the€term€ð ðbecause€ofðð€in€section€18€of€the€Act,€€requiringÐ P   Ða€causal€relationship€between€offensive€conduct€and€the€race,€colour€or€national€or€ethnic€origin€ofÐ @  Ðthe€ð ðtargeted€groupðð,€is€an€appropriate€manner€to€implement€the€obligation€to€prohibit€theÐ 0 € Ðintentionally€racist€acts€described€in€article€4.€€This€is€consistent€with€the€Convention€and€avoidsÐ  p  Ðuncertainty.€€Accordingly,€the€State€party€argues€that€to€use€ð ðbased€onðð€in€section€18€of€the€ActÐ `  Ðwould€not€give€appropriate€effect€to€article€4€of€the€Convention€as€implemented€in€Australian€law.€Ð P  ÐÌ4.9€€The€State€party€contends€that€the€petitionerððs€complaint€was€not€dismissed€on€technical€grounds,Ð à0  Ðbut€for€lack€of€substance.€€The€Federal€Court,€rejecting€the€contention€that€any€use€of€the€offendingÐ Ð  Ðterm€must€necessarily€be€racially€offensive,€concluded€that€in€the€context€in€which€the€offendingÐ À Ðterm€was€used€and€the€community€perceptions€of€the€sign€on€the€stand,€the€decision€of€the€Trust€toÐ ° Ðleave€the€sign€intact€did€not€breach€section€18€C€of€the€Act.€€The€State€party€invites€the€CommitteeÐ  ð Ðto€adopt€the€approach€of€the€Federal€Court€and€take€into€consideration€the€context€in€which€the€wordÐ à Ðis€used€in€determining€issues€under€article€4.€€Ð €Ð ÐÌ4.10€€The€State€party€refers€to€the€following€contextual€elements:€(i)€the€fact€that€the€offending€termÐ `° Ðis€displayed€as€ð ðan€integral€part€of€the€name€of€a€person€who€is€clearly€being€honoured€by€havingÐ P  Ðhis€name€publicly€attached€to€the€standðð,€(ii)€the€Federal€Courtððs€finding€that€ð ð[e]ven€if€the€nicknameÐ @ ÐððNiggerðð€was€originally€bestowed€long€ago€on€Mr.€Brown€in€circumstances€in€which€it€then€had€aÐ 0€ Ðracial€or€even€a€racist€connotation,€the€evidence€indicates€that€for€many€decades€before€the€authorððsÐ  p Ðcomplaint,€its€use€as€part€of€the€customary€identifier€of€Mr.€Brown€had€ceased€to€have€any€suchÐ ` Ðconnotationðð,€(iii)€the€consulations€with€local€indigenous€persons,€(iv)€the€evidence€of€a€formerÐ P ÐAboriginal€rugby€league€personality€in€the€area€for€whom€the€name€was€unproblematic€and€ð ðsimplyÐ ð@ Ðpart€of€historyðð,€and€(v)€the€absence€of€any€complaint€(until€the€petitionerððs)€over€40€years€of€displayÐ à0 Ðat€a€ground€often€frequented€by€many€indigenous€persons€despite€increased€sensitivities€andÐ Ð  Ðwillingness€to€speak€out€in€recent€years.€Ð À! ÐÌ4.11€€In€the€light€of€the€above,€the€State€party€contends€that€the€Federal€Courtððs€conclusion€(upheldÐ  #ð! Ðon€appeal)€that€the€trusteesðð€refusal,€conveyed€only€after€ð ðin€good€faith€[having]€taken€care€to€avoidÐ $à" Ðoffending€the€members€of€a€racial€groupðð€and€which€ð ðis€not,€on€an€objective€view,€likely€to€offendÐ €%Ð # Ðmembers€of€that€groupðð,€was€not€an€ð ðact€done€because€of€the€race€ofðð€any€person.€€While€acceptingÐ p&À!$ Ðthat€the€petitioner€subjectively€felt€offended,€the€Committee€should€apply€an€objective€test€similarÐ `'°"% Ðto€that€of€the€Federal€Court€in€finding€that€there€was€no€suggestion€that€the€trustees€were€attemptingÐ P( #& Ðto€justify,€promote€or€incite€racial€discrimination,€contrary€to€article€4€of€the€Convention.€Ð @)$' ÐÌ4.12€€In€terms€of€the€specific€paragraphs€(a)€to€(c)€of€article€4,€the€State€party€argues€that€theÐ  +p&) Ðpetitioner€has€supplied€no€evidence€as€to€how€it€may€have€violated€any€of€these€obligations,Ð ,`'* Ðincluding€that€it€may€be€abetting€racist€activities.€€It€points€to€Part€II€A€of€the€Act,€which€makesÐ -P(+ Ðunlawful€offensive€behaviour€based€on€racial€hatred,€and€to€further€legislation€at€both€State€and€Ð ð-@), ÐTerritory€level€that€proscribes€racial€hatred€and€vilification,€as€implementing€its€obligations€underÐ ° Ðthese€paragraphs.€€As€to€paragraph€(a)€it€recalls€its€reservation,€and,€as€to€paragraph€(c),€that€the€TrustÐ  ð Ðis€not€a€public€authority€or€institution.€€Ð à ÐÌ4.13€€As€to€the€petitionerððs€claim,€under€article€5,€that€he€is€unable€to€enjoy€functions€at€the€sportsÐ pÀ Ðground,€the€State€party€refers€to€the€jurisprudence€of€the€European€Court€of€Human€Rights€inÐ ` ° Ðassessing€discrimination.€€Under€that€approach,€there€must€be€a€clear€inequality€of€treatment€inÐ P   Ðenjoyment€of€the€relevant€right,€as€compared€to€others€in€an€analogous€position.€€If€there€is€suchÐ @  Ðinequality€between€similarly€situated€persons,€there€must€be€reasonable€and€objective€justificationÐ 0 € Ðas€well€as€proportionality€of€the€means€applied€to€achieve€a€particular€aim.€òò15/óó€€The€State€partyÐ  p  Ðobserves€that€sections€9€(making€racial€discrimination€unlawful)€òò16/óó€€and€10€(ensuring€equalityÐ `  Ðbefore€the€law)€of€the€Act€were€enacted€to€implement€articles€2€and€5€of€the€Convention,€and€sectionÐ P  Ð9€closely€follows€the€definition€of€racial€discrimination€in€article€1€of€the€Convention.€€Ð ð@  ÐÌ4.14€€The€State€party€notes€that€the€Federal€Court€(upheld€on€appeal)€interpreted€the€phrase€ð ðbasedÐ Ð  Ðonðð€section€9€(1),€upon€which€the€author€relied,€as€not€ð ðrequiring€a€causal€relationship€between€theÐ À Ðact€complained€of€and€race€etc.,€but€[that€it]€should€rather€be€read€as€meaning€ððby€reference€toðð,€i.e.,Ð ° Ðas€capable€of€being€satisfied€by€a€less€direct€relationship€than€that€of€cause€and€effectðð.€€Turning€toÐ  ð Ðthe€petitionerððs€case€in€terms€of€section€9€(1),€the€Court€did€not€consider€that€the€trusteesðð€decisionÐ à Ðto€retain€the€sign€was€an€act€ð ðbased€onðð€race.€€This€was€so€for€the€decision€was€not€ð ðan€act€thatÐ €Ð Ðinvolved€treating€members€of€the€Aboriginal€race€differently,€let€alone€less€favourably,€from€otherÐ pÀ Ðmembers€of€the€communityðð,€as€the€offending€term€was€simply€part€of€the€customary€identifier€ofÐ `° Ða€well„known€person€which€had€long€ceased€to€have€any€inappropriate€connotation.€€Ð P  ÐÌ4.15€€The€Court€considered€that,€even€if€the€decision€was€based€or€motivated€on€race,€these€racialÐ 0€ Ðconsiderations€ð ðwere€taken€into€account€to€satisfy€the€trustees€that€maintenance€of€the€sign€wouldÐ  p Ðòònotóó€give€offence€to€Aboriginal€persons€generally,€as€distinct€from€offence€to€[the€petitioner]Ð ` Ðpersonallyðð.€€Thus,€the€Court€concluded,€in€finding€that€there€was€no€racial€discrimination,€that:€€ð ð[I]tÐ P Ðcannot€be€said€that€the€act,€even€if€based€on€race,€involved€any€distinction€etc.€having€either€theÐ ð@ Ðpurpose€or€effect€of€nullifying€or€impairing€the€recognition,€enjoyment€or€exercise,€on€an€equalÐ à0 Ðfooting,€of€any€human€right€or€fundamental€freedom€of€the€kind€referred€to€in€sectionðð.€€The€StateÐ Ð  Ðparty€therefore€submits€that,€as€found€by€the€Federal€Court,€the€petitioner€has€failed€to€establish€thatÐ À! Ðhe€was€treated€by€the€trustees€any€differently€from,€or€less€favourably€than,€any€other€person€in€aÐ °"  Ðsimilar€position,€and€therefore€no€racial€discrimination€has€been€established.€€Ð  #ð! ÐÌ4.16€€In€terms€of€the€specific€paragraphs€of€article€5€invoked€by€the€petitioner€(paras.€(d)€(i),€(d)(ix),Ð €%Ð # Ð(e)€(vi)€and€(f)),€the€State€party€submits€that€as€he€failed€to€establish€a€racially€based€distinction€inÐ p&À!$ Ðthe€circumstances€of€his€case,€no€question€of€discrimination€arises€in€respect€of€his€freedom€ofÐ `'°"% Ðmovement,€freedom€of€assembly€or€association,€right€to€equal€participation€in€cultural€activities,€orÐ P( #& Ðright€of€access€to€any€public€place€or€service,€respectively.€€As€to€paragraph(e)€(vi),€the€State€partyÐ @)$' Ðrefers€to€the€Committeeððs€jurisprudence€that€it€is€beyond€its€mandate€to€ensure€that€this€right€isÐ 0*€%( Ðestablished,€but€rather€to€monitor€its€implementation€once€the€right€is€granted€on€equal€terms.€òò17/óóÐ  +p&) ÐÌ4.17€€On€article€6,€the€State€party€notes€that€States€possess€a€wide€margin€of€discretion€in€fulfillingÐ -P(+ Ðtheir€obligation€under€article€6.€òò18/óó€€It€submits€that€its€domestic€law,€which€provides€for€the€filingÐ ð-@), Ðand€determination€of€complaints€of€racial€discrimination€and€the€award€of€remedies,€includingÐ ° Ðmonetary€compensation€for€successful€complaints,€appropriately€implements€the€obligation€underÐ  ð Ðarticle€6.€€The€State€party€emphasizes€that€the€dismissal€of€the€petitionerððs€complaint€by€the€FederalÐ à ÐCourt€is€no€reflection€on€the€effectiveness€of€the€Actððs€remedies€against€racial€discrimination,€or€ofÐ €Ð Ðthe€remedies€available€when€complaints€are€successful.€€Ð pÀ ÐÌ4.18€€In€any€event,€the€State€party€submits€that€article€6,€providing€for€remedies,€is€accessory€inÐ P   Ðnature€and€can€only€be€found€to€have€been€violated€once€a€separate€violation€of€the€specific€rightsÐ @  Ðin€the€Convention€has€been€established.€òò19/óó€€As€no€other€violation€of€the€Convention€has€beenÐ 0 € Ðestablished€(under€arts.€2,€4,€5€or€7),€nor€can€there€be€a€consequent€violation€of€article€6.€€Ð  p  ÐÌ4.19€€As€to€the€claim€under€article€7,€the€State€party€notes€that€the€Act€came€into€effect€the€day€afterÐ P  Ðthe€Convention€entered€into€force€for€the€State€party.€€Moreover,€federal,€State€and€TerritoryÐ ð@  Ðgovernments€have,€over€the€years,€adopted€a€wide€array€of€measures€to€combat€effectively€racialÐ à0  Ðprejudice€and€promote€racial€harmony,€which€are€detailed€in€the€State€partyððs€periodic€reports.€€ThatÐ Ð  Ðthe€petitioner€was€unsuccessful€before€the€domestic€courts€does€not€detract€from€the€immediacy€orÐ À Ðeffectiveness€of€measures€taken€by€the€State€partyððs€governments€to€combat€racial€prejudice€and€toÐ ° Ðpromote€racial€harmony.€€Ð  ð ÐÌò òThe€petitionerððs€commentsó óÐ €Ð ÐÌ5.1€€By€submission€of€20€December€2002,€the€petitioner€responded€to€the€State€partyððs€observations.€Ð `° ÐHe€confirms€that€he€is€not€asking€the€Committee€to€review€decisions€of€the€domestic€courts,€butÐ P  Ðrather€to€assess€compliance€with€the€Convention€of€the€public€display€and€repeated€use€inÐ @ Ðannouncements€of€the€offending€term.€€It€is€apparent€from€the€outcome€of€the€domestic€proceedingsÐ 0€ Ðthat€the€State€partyððs€domestic€law€is€cast€in€overly€restrictive€terms€and€does€not€give€full€effect€toÐ  p ÐConvention€obligations.€€Nor€does€the€petitioner€ask€the€Committee€to€review€the€State€partyððs€lawÐ ` Ðin€abstracto;€rather,€he€complains€of€a€specific€breach€of€the€Convention€and€the€State€partyððs€failureÐ P Ðto€provide€a€corresponding€remedy.Ð ð@ ÐÌ5.2€€The€petitioner€considers€that€subjective€views€of€individuals€referred€to€by€the€State€party€whoÐ Ð  Ðwere€not€offended€by€the€term€in€question€is€of€no€relevance,€as€the€question€is€whether€the€offenceÐ À! Ðwas€felt€by€the€petitioner€and€his€family.€€In€any€event,€a€considerable€number€of€other€personsÐ °"  Ðshared€the€petitionerððs€views€on€the€stand,€namely€the€Toowoomba€Day€Committee,€the€ToowoombaÐ  #ð! ÐMulticultural€Association,€over€80€people€participating€in€a€ð ðpractical€reconciliationðð€walk€and€300Ð $à" Ðpersons€who€signed€a€petition.€€Affidavits€to€this€effect€were€submitted€to€the€Federal€Court,€butÐ €%Ð # Ðwere€not€admitted€as€evidence€on€technical€grounds.€òò20/óó€€The€petitioner€invites€the€Committee€toÐ p&À!$ Ðtake€notice€of€these€views.€€In€any€event,€the€petitioner€requests€the€Committee€to€conclude€that€theÐ `'°"% Ðoffending€term€is€objectively€offensive,€whatever€the€subjective€views€of€various€individuals.Ð P( #& ÐÌ5.3€€As€to€the€inferences€to€be€drawn€from€the€failure€of€his€domestic€proceedings,€the€petitionerÐ 0*€%( Ðargues€that€this€failure€derived€from€the€State€partyððs€legislation€being€so€narrowly€drawn€that€it€isÐ  +p&) Ðexceedingly€difficult€to€prove€discrimination,€and€thus€it€did€not€give€full€effect€to€the€Convention.€Ð ,`'* ÐThis€failure€shows€that€the€State€partyððs€law€does€not€provide€effective€protection€against€racialÐ -P(+ Ðdiscrimination.€€He€emphasizes€that€he€does€not€approach€the€Committee€arguing€a€violation€ofÐ ð-@), Ðdomestic€legislation,€but€rather€of€the€Convention€itself.€€Ð ° ÐÌ5.4€€As€to€the€State€partyððs€specific€arguments€under€article€2,€the€petitioner€observes€that€the€StateÐ à Ðparty€has€taken€no€steps€to€have€the€offending€sign€removed,€despite€the€controversy€surroundingÐ €Ð Ðit€for€years.€€This€is€said€to€be€in€violation€of€the€duty,€under€article€2,€to€eliminate€and€bring€to€anÐ pÀ Ðend€all€forms€of€racial€discrimination.€€The€petitioner€rejects€the€characterization€of€the€SportsÐ ` ° ÐGround€Trust€as€a€ð ðprivate€bodyðð.€€He€points€out€that€trustees€are€appointed€and€can€be€removed€byÐ P   Ðthe€Minister,€and€that€their€function€is€to€manage€land€for€public€(community)€purposes.€€Indeed,€theÐ @  ÐState€partyððs€legislation€provides€that€any€liability€of€the€trustees€attaches€to€the€State.€òò21/óó€€It€isÐ 0 € Ðtherefore€a€public€authority€or€institution€for€Convention€purposes.€€Ð  p  ÐÌ5.5€€As€to€the€State€partyððs€specific€arguments€under€article€4,€the€petitioner€objects€to€the€referenceÐ P  Ðto€its€reservation.€€He€contends€that€the€reservation€is€ð ðprobably€invalidðð€as€incompatible€with€theÐ ð@  Ðobject€and€purpose€of€the€Convention.€€Even€if€valid,€he€points€out€that€the€reservation€is€temporallyÐ à0  Ðlimited€as€it€refers€to€the€State€partyððs€intention€ð ðat€the€first€possible€moment,€to€seek€fromÐ Ð  ÐParliament€legislation€implementing€the€terms€of€Article€4€(a)ðð.€€Given€that€the€State€party€contendsÐ À Ðthat€the€Part€II€A€of€the€Act€implements€its€obligations€under€the€article,€the€reservation€must€nowÐ ° Ðhave€lapsed.€€Ð  ð ÐÌ5.6€€The€petitioner€points€out€that€he€is€not€objecting€to€use€of€the€offending€term€in€the€distant€past,Ð €Ð Ðbut€rather€its€contemporary€use€and€display.€€He€points€out€that€it€is€not€necessary€to€repeat€theÐ pÀ Ðoffensive€nickname€in€order€to€honour€Mr.€Brown,€and€it€is€not€common€in€the€State€party€for€standsÐ `° Ðto€feature€the€nicknames€of€famous€sportspeople€in€addition€to€their€proper€names.Ð P  ÐÌ5.7€€As€to€the€State€partyððs€specific€arguments€under€article€5,€the€petitioner€contends€that€he€òòhasóóÐ 0€ Ðestablished€a€racially„based€distinction€on€the€basis€that€the€offending€term€is€racially€offensive€andÐ  p Ðderogatory,€and€that€white€Australians€are€not€affected€as€the€petitioner€and€his€family€have€been.€Ð ` ÐThe€inability€as€a€consequence€of€the€petitioner€and€his€family€to€attend€the€ground€impaired€theirÐ P Ðrights€under€article€5,€including€their€right€to€equal€participation€in€cultural€activities.€€As€to€the€StateÐ ð@ Ðpartyððs€specific€arguments€under€article€5,€the€author€observes€that€the€State€party€failed€to€identifyÐ à0 Ðany€measure€of€ð ðteaching,€education,€culture€and€informationðð€directed€at€combating€the€trusteesððÐ Ð  Ðdiscriminatory€conduct,€or€at€promoting€reconciliation€amongst€the€many€persons€offended€by€theÐ À! Ðsign.Ð °"  ÐÌò òIssues€and€Proceedings€before€the€Committeeó óÐ $à" ÐÌò òòòConsideration€of€admissibilityóóó óÐ p&À!$ ÐÌ6.1€€Before€considering€any€claims€contained€in€a€petition,€the€Committee€on€the€Elimination€ofÐ P( #& ÐRacial€Discrimination€must,€in€accordance€with€rule€91€of€its€rules€of€procedure,€decide€whether€orÐ @)$' Ðnot€it€is€admissible€under€the€Convention.Ð 0*€%( ÐÌ6.2€€The€Committee€notes€that€the€State€party€concedes€that€domestic€remedies€have€been€exhausted.€Ð ,`'* ÐAs€to€the€State€partyððs€arguments€that€the€petition€falls€outside€the€scope€of€the€Convention€and/orÐ -P(+ Ðis€insufficiently€substantiated,€the€Committee€considers€that€the€petitioner€has€sufficientlyÐ ð-@), Ðsubstantiated,€for€purposes€of€admissibility,€that€his€individual€claim€may€fall€within€the€scope€ofÐ ° Ðapplication€of€the€provisions€of€the€Convention.€€Given€the€complexity€of€the€arguments€of€both€factÐ  ð Ðand€law,€the€Committee€deems€it€more€appropriate€to€determine€the€precise€scope€of€the€relevantÐ à Ðprovisions€of€the€Convention€at€the€merits€stage€of€the€petition.€€Ð €Ð ÐÌ6.3€€In€the€absence€of€any€further€objections€to€the€admissibility€of€the€communication,€theÐ ` ° ÐCommittee€declares€the€petition€admissible€and€proceeds€to€its€examination€of€the€merits.Ð P   ÐÌò òòòConsideration€of€the€meritsó óÐ 0 € ÐÌóó7.1€€Acting€under€article€14,€paragraph€7€(a),€of€the€International€Convention€on€the€Elimination€ofÐ `  ÐAll€Forms€of€Racial€Discrimination,€the€Committee€has€considered€the€information€submitted€by€theÐ P  Ðpetitioner€and€the€State€party.Ð ð@  ÐÌ7.2€€The€Committee€has€taken€due€account€of€the€context€within€which€the€sign€bearing€the€offendingÐ Ð  Ðterm€was€originally€erected€in€1960,€in€particular€the€fact€that€the€offending€term,€as€a€nicknameÐ À Ðprobably€with€reference€to€a€shoeshine€brand,€was€not€designed€to€demean€or€diminish€its€bearer,€Mr.Ð ° ÐBrown,€who€was€neither€black€nor€of€aboriginal€descent.€€Furthermore,€for€significant€periods€neitherÐ  ð ÐMr.€Brown€(for€12€years€until€his€death)€nor€the€wider€public€(for€39€years€until€the€petitionerððsÐ à Ðcomplaint)€objected€to€the€presence€of€the€sign.€€Ð €Ð ÐÌ7.3€€Nevertheless,€the€Committee€considers€that€that€use€and€maintenance€of€the€offending€term€canÐ `° Ðat€the€present€time€be€considered€offensive€and€insulting,€even€if€for€an€extended€period€it€may€notÐ P  Ðhave€necessarily€been€so€regarded.€€The€Committee€considers,€in€fact,€that€the€Convention,€as€aÐ @ Ðliving€instrument,€must€be€interpreted€and€applied€taking€into€the€circumstances€of€contemporaryÐ 0€ Ðsociety.€€In€this€context,€the€Committee€considers€it€to€be€its€duty€to€recall€the€increased€sensitivitiesÐ  p Ðin€respect€of€words€such€as€the€offending€term€appertaining€today.€€Ð ` ÐÌ8.€€The€Committee€therefore€notes€with€satisfaction€the€resolution€adopted€at€the€Toowoomba€publicÐ ð@ Ðmeeting€of€29€July€1999€to€the€effect€that,€in€the€interest€of€reconciliation,€racially€derogatory€orÐ à0 Ðoffensive€terms€will€not€be€used€or€displayed€in€the€future.€€At€the€same€time,€the€CommitteeÐ Ð  Ðconsiders€that€the€memory€of€a€distinguished€sportsperson€may€be€honoured€in€ways€other€than€byÐ À! Ðmaintaining€and€displaying€a€public€sign€considered€to€be€racially€offensive.€€The€CommitteeÐ °"  Ðrecommends€that€the€State€party€take€the€necessary€measures€to€secure€the€removal€of€the€offendingÐ  #ð! Ðterm€from€the€sign€in€question,€and€to€inform€the€Committee€of€such€action€it€takes€in€this€respect.€Ð $à" ÐÌÌ[Adopted€in€English,€French,€Russian€and€Spanish,€the€English€text€being€the€original€version.€Ð `'°"% ÐSubsequently€to€be€issued€also€in€Arabic€and€Chinese€as€part€of€the€Committeeððs€annual€report€toÐ P( #& Ðthe€General€Assembly.]Ð @)$' ÐÌÌòòò òNotesó óóóÐ ,`'* ÐÌòò1/óó€€€It€is€not€clear€whether€the€petitioner€attended€this€meeting.Ð ð-@), Їòò2/óó€€€Section€9€of€the€Racial€Discrimination€Act€1975€(Commonwealth)€provides:€Ð ° ÐÌRacial€discrimination€to€be€unlawfulÐ à ÐÌà0  à(1)€"It€is€unlawful€for€a€person€to€do€any€act€involving€a€distinction,€exclusion,€restriction€orÐ pÀ Ðpreference€based€on€race,€colour,€descent€or€national€or€ethnic€origin€which€has€the€purposeÐ ` ° Ðor€effect€of€nullifying€or€impairing€the€recognition,€enjoyment€or€exercise,€on€an€equalÐ P   Ðfooting,€of€any€human€right€or€fundamental€freedom€in€the€political,€economic,€social,Ð @  Ðcultural€or€any€other€field€of€public€life."Ð0 €(#(# ÐÌòò3/óó€€€Section€18€C€of€the€Racial€Discrimination€Act€provides:Ð `  ÐÌOffensive€behaviour€because€of€race,€colour,€or€national€or€ethnic€originÐ ð@  ÐÌà0  à(1)€It€is€unlawful€for€a€person€to€do€an€act,€otherwise€than€in€private,€if:ÐÐ (#(# ÐÌà0  àà0` (#(#à(a)€The€act€is€reasonably€likely,€in€all€the€circumstances,€to€offend,€insult,€humiliateÐ ° Ðor€intimidate€another€person€or€a€group€of€people;€andРð` (#` (# ÐÌà0  àà0` (#(#à(b)€The€act€is€done€because€of€the€race,€colour€or€national€or€ethnic€origin€of€the€otherÐ €Ð Ðperson€or€of€some€or€all€of€the€people€in€the€group.ÐpÀ` (#` (# ÐÌòò4/óó€€€òòÔ_ÔMaroufidouÔ_Ô€v.€Swedenóó€Case€No.€58/1979,€Views€adopted€on€9€April€1981.Ð P  ÐÌòò5/óó€€€òòÔ_ÔMacIsaacÔ_Ô€v.€Canadaóó€Case€No.€55/1979,€Views€adopted€on€25€July€1980:€€"[The€Committee's]Ð 0€ Ðtask€is€not€to€decide€in€the€abstract€whether€or€not€a€provision€of€national€law€is€compatible€with€theÐ  p ÐCovenant,€but€only€to€consider€whether€there€is€or€has€been€a€violation€of€the€Covenant€in€theÐ ` Ðparticular€case€submitted€to€it."Ð P ÐÌòò6/óó€€€Article€2€of€the€Covenant€sets€out€the€right€to€an€effective€remedy€for€violations€of€the€Covenant.Ð à0 ÐÌòò7/óó€€€Paras.€4.7€to€4.9,€òòinfraóó.Ð À! ÐÌòò8/óó€€€Lerner,€N.:€€òòThe€UN€Convention€on€the€Elimination€of€All€Forms€of€Racial€Discriminationóó.€TheÐ  #ð! ÐNetherlands,€Ô_ÔSijthoffÔ_Ô€Ô_ÔNoordhoffÔ_Ô€Publishers,€1980,€at€37.Ð $à" ÐÌòò9/óó€€€Ibid.€Ð p&À!$ ÐÌòò10/óó€€€Paras.€4.19€to€4.15,€òòinfraóó.Ð P( #& ÐÌòò11/óó€€€Para.€4.4,€supra.Ð 0*€%( ÐÌòò12/óó€€€Ô_ÔOp.citÔ_Ô.,€at€38.Ð ,`'* ÐÌòò13/óó€€€The€reservation€provides:€€"The€Government€of€Australia€...€declares€that€Australia€is€not€atÐ ð-@), Ðpresent€in€a€position€specifically€to€treat€as€offences€all€the€matters€covered€by€article€4€(a)€of€theÐ ° ÐConvention.€€Acts€of€the€kind€there€mentioned€are€punishable€only€to€the€extent€provided€by€theÐ  ð Ðexisting€criminal€law€dealing€with€such€matters€as€the€maintenance€of€public€order,€public€mischief,Ð à Ðassault,€riot,€criminal€libel,€conspiracy€and€attempts.€€It€is€the€intention€of€the€AustralianÐ €Ð ÐGovernment,€at€the€first€suitable€moment,€to€seek€from€Parliament€legislation€specificallyÐ pÀ Ðimplementing€the€terms€of€article€4€(a)."€Ð ` ° ÐÌòò14/óó€€€òòÔ_ÔHertzbergÔ_Ô€et€al.€v.€Finlandóó€Case€No.€61/1979,€Views€adopted€on€2€April€1982.Ð @  ÐÌòò15/óó€€€Ô_ÔAireyÔ_Ô€v.€Ireland€(A€32€para.€30€(1980)),€òòDudgeon€v.€United€Kingdomóó€(A€45€para.€67€(1981)),Ð  p  ÐòòVan€der€Ô_ÔMusseleÔ_Ô€v.€Belgiumóó€(A€70€para.€46€(1983)),€òòThe€Belgian€Linguistic€Case€(Merits)óó€(A€para.Ð `  Ð6€(1968)).Ð P  ÐÌòò16/óó€€€For€full€text€of€the€provision,€see€footnote€2,€supra.Ð à0  ÐÌòò17/óó€€€òòÔ_ÔDembaÔ_Ô€Ô_ÔTalibeÔ_Ô€Ô_ÔDiopÔ_Ô€v.€Franceóó€Case€No.€2/1989,€Opinion€of€18€March€1991.Ð À ÐÌòò18/óó€€€Valencia€Rodriguez,€L.:€€"The€International€Convention€on€the€Elimination€of€All€Forms€ofÐ  ð ÐRacial€Discrimination"€in€òòManual€on€Human€Rights€Reporting€Under€Six€Major€InternationalÐ à ÐInstrumentsóó,€New€York,€United€Nations,€1997,€at€289.Ð €Ð ÐÌòò19/óó€€€See€para.€4.4€and€footnote€4,€supra.Ð `° ÐÌòò20/óó€€€This€evidence€is€supplied€to€the€Committee.Ð @ ÐÌòò21/óó€€€Section€92€òòLandsóó€Act€1994€(Queensland).Ð  p ÐÌÓdÓ