Implementing Anti-Discrimination Law

131 Pages·2014·1.68 MB·English

CROATIAN LAW CENTRE AND
“HOMO” THE ASSOCIATION FOR THE PROTECTION OF HUMAN
RIGHTS AND CITIZENS’ FREEDOMS
IN PARTNERSHIP WITH THE EQUAL RIGHTS TRUST

Implementing Anti-Discrimination Law:
A Toolkit for Civil Society
The Croatian Law Center (CLC) is a non-governmental and not-for-profit organisation with the
main goal of establishing and promoting the rule of law in Croatia; it focuses on the needs of
vulnerable and marginalised groups by providing free legal aid in cases of violations of human
rights and freedoms, as well as by reacting against the discriminatory regulations and practice
and lack of compliance with the international standards.

“HOMO” Association for Protection of Human Rights and Citizens’ Freedoms is a non-
governmental and not-for-profit organisation with 15 years of experience in maintaining a
continuous field presence starting from the end of the war, monitoring the return of refugees,
women’s and minority rights, and providing legal aid, information and advice.

The Equal Rights Trust (ERT) is an independent international organisation whose purpose is to
combat discrimination and promote equality as a fundamental human right and a basic
principle of social justice. Established as an advocacy organisation, resource centre and think
tank, ERT focuses on the complex relationship between different types of discrimination,
developing strategies for translating the principles of equality into practice.
© Chapters 1-3 June 2013 The Equal Rights Trust
© Chapters 4-5 June 2013 The Croatian Law Center
© Chapter 5 June 2013 “HOMO” Association for Protection of Human Rights and Citizens’
Freedoms
© Cover June 2013 : Saša Samac

All rights reserved. No part of this publication may be translated, reproduced, stored in a
retrieval system or transmitted in any form or by other means without the prior written
permission of the publisher.

This Toolkit has been prepared with the financial assistance of the European Union and the
Government Office for Cooperation with NGOs.
The contents of this document are the sole responsibility of the Croatian Law Center, the
Association for the Protection of Human Rights and Citizens’ Freedoms and The Equal Rights
Trust and can in no way be taken to reflect the views of the European Union and/or
Government Office for Cooperation with NGOs.

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Table of Contents

Table of Contents .............................................................................................................................................................. 3
ACKNOWLEDGEMENTS ................................................................................................................................................. 8
ACRONYMS .......................................................................................................................................................................... 9
Note: A Guide to Boxes used in this Toolkit ........................................................................................................... 9
1 Introduction ........................................................................................................................................................... 10
1.1 Purpose of this Toolkit ............................................................................................................................. 10
1.2 About the Authors/Project ..................................................................................................................... 10
2 The Unified Human Rights Framework on Equality and the Declaration of Principles on
Equality .............................................................................................................................................................................. 11
3 International and Comparative Standards on Equality and Anti-Discrimination Law ........... 16
3.1 Grounds of Discrimination ..................................................................................................................... 16
3.1.1 Explicit Grounds ................................................................................................................................ 16
3.1.1.1. Race ................................................................................................................................................... 18
3.1.1.2. Colour ............................................................................................................................................... 18
3.1.1.3. Ethnicity........................................................................................................................................... 19
3.1.1.4. Descent ............................................................................................................................................. 19
3.1.1.5. Sex ...................................................................................................................................................... 19
3.1.1.6. Pregnancy ....................................................................................................................................... 20
3.1.1.7. Maternity ......................................................................................................................................... 20
3.1.1.8. Civil, Family or Carer Status .................................................................................................... 21
3.1.1.9. Language ......................................................................................................................................... 22
3.1.1.10. Religion or Belief .......................................................................................................................... 22
3.1.1.11. Political or Other Opinion ........................................................................................................ 22
3.1.1.12. Birth ................................................................................................................................................... 23
3.1.1.13. National or Social Origin ........................................................................................................... 23
3.1.1.14. Nationality ...................................................................................................................................... 23
3.1.1.15. Economic Status ........................................................................................................................... 24
3.1.1.16. Association with a National Minority .................................................................................. 24
3.1.1.17. Sexual Orientation ....................................................................................................................... 24
3.1.1.18. Gender Identity ............................................................................................................................. 24
3.1.1.19. Age ..................................................................................................................................................... 25
3.1.1.20. Disability.......................................................................................................................................... 25
3.1.1.21. Health Status .................................................................................................................................. 26
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3.1.1.22. Genetic or Other Predisposition to Illness ........................................................................ 26
3.1.2 Additional Grounds .......................................................................................................................... 26
3.1.3 Discrimination by Association and by Perception .............................................................. 28
3.1.4 Multiple Discrimination ................................................................................................................. 29
3.1.5 Relationship between the Grounds of Discrimination ...................................................... 31
3.2 Forms of Prohibited Conduct ................................................................................................................ 31
3.2.1 Direct Discrimination ...................................................................................................................... 31
3.2.1.2 Definition of Direct Discrimination ...................................................................................... 32
3.2.1.3 Justification of Direct Discrimination .................................................................................. 33
3.2.2 Indirect Discrimination .................................................................................................................. 35
3.2.2.1 Definition of Indirect Discrimination .................................................................................. 35
3.2.2.2 Justification of Indirect Discrimination .............................................................................. 36
3.2.3 Harassment ......................................................................................................................................... 38
3.2.3.1 Sexual Harassment ...................................................................................................................... 39
3.2.4 Instructions to Discriminate ........................................................................................................ 39
3.2.5 Incitement to Discriminate ........................................................................................................... 40
3.3 Reasonable Accommodation ................................................................................................................. 41
3.4 Discrimination and Violence ................................................................................................................. 44
3.5 Scope and Right-Holders ......................................................................................................................... 46
3.5.1 Scope ...................................................................................................................................................... 46
3.5.2 Right-Holders ..................................................................................................................................... 49
3.5.3 Duty-Bearers ...................................................................................................................................... 50
3.6 Obligations on States ................................................................................................................................ 52
3.6.1 Giving Effect to the Right to Equality ....................................................................................... 52
3.6.2 Measures against Poverty ............................................................................................................. 56
3.6.3 Specificity of Equality Legislation .............................................................................................. 56
3.6.4 Participation ....................................................................................................................................... 57
3.6.5 Education on Equality ..................................................................................................................... 57
3.7 Enforcement ................................................................................................................................................. 58
3.7.1 Access to Justice ................................................................................................................................ 58
3.7.2 Victimisation ....................................................................................................................................... 63
3.7.3 Standing ................................................................................................................................................ 64
3.7.4 Evidence and Proof .......................................................................................................................... 64
3.7.5 Remedies and Sanctions ................................................................................................................ 66
3.7.6 Specialised Bodies ............................................................................................................................ 68
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3.7.7 Duty to Gather Information .......................................................................................................... 70
3.7.8 Dissemination of Information ..................................................................................................... 70
3.8 Prohibitions .................................................................................................................................................. 71
3.8.1 Prohibition of Regressive Interpretation ............................................................................... 71
3.8.2 Derogations and Reservations .................................................................................................... 71
4 Equality and anti-discrimination legislation in Croatia ....................................................................... 73
4.1 Introduction ................................................................................................................................................. 73
4.2 Discriminatory conduct and its prevention based on specific laws ...................................... 74
4.2.1 Labour Act ........................................................................................................................................... 74
4.2.1.1 General matters ............................................................................................................................ 74
4.2.1.2 Prohibition of discrimination ................................................................................................. 74
4.2.1.3 Protection of dignity of workers ........................................................................................... 74
4.2.2 Gender Equality Act ......................................................................................................................... 76
4.2.2.1 Interpretation of provisions of the Act ............................................................................... 76
4.2.2.2 Definitions of concepts .............................................................................................................. 76
4.2.2.3 Court protection ........................................................................................................................... 77
4.2.3 Anti-Discrimination Act ................................................................................................................. 79
4.2.3.1 Purpose and scope of implementation of the Act ........................................................... 79
4.2.3.2 Definitions of discrimination under the Act .................................................................... 80
4.2.3.3 Prohibition of discrimination ................................................................................................. 81
4.2.3.4 Right to compensation of damages ...................................................................................... 81
4.2.3.5 Proceedings before the court .................................................................................................. 81
4.2.3.6 Jurisdiction ..................................................................................................................................... 85
4.2.3.7 Temporary measures ................................................................................................................. 85
4.2.3.8 Burden of proof ............................................................................................................................ 86
4.2.3.9 Participation of third parties .................................................................................................. 87
4.2.3.10 Deadline for the fulfilment of obligations, enforceability ........................................... 88
4.2.3.11 Extraordinary legal remedies ................................................................................................. 88
4.2.3.12 Joint legal action for protection against discrimination .............................................. 88
4.2.3.13 Preventative and repressive complaints of the alleged discriminator .................. 90
4.2.3.14 Execution ......................................................................................................................................... 91
4.2.4 Complaints in regard to exposure and omission ................................................................. 91
4.2.4.1 Complaints in regard to exposure......................................................................................... 91
4.2.4.2 Complaints in regard to omission ......................................................................................... 92
4.2.5 Procedure in disputes in regard to protection of collective interests and rights .. 96
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4.2.5.1 Introduction ................................................................................................................................... 96
4.2.5.2 Active and passive legitimacy ................................................................................................. 96
4.2.5.3 Interests and rights that can be protected ........................................................................ 97
4.2.5.4 Available legal protection ......................................................................................................... 97
4.2.5.5 Expansion of subjective boundaries of finality of the judgment in regard to
protection of collective interests and rights ............................................................................................. 98
4.2.5.6 Intervention ................................................................................................................................... 99
4.2.5.7 Local jurisdiction ......................................................................................................................... 99
4.2.5.8 Non-suspension of appeal ...................................................................................................... 100
4.2.5.9 Temporary measures ............................................................................................................... 100
4.2.6 Complaint or counter-claim of the opposite party ........................................................... 100
4.2.6.1 Complaint of the opposite party .......................................................................................... 100
4.2.6.2 Counter-claim .............................................................................................................................. 101
5 Step by step instructions for implementing equality law and policy in Croatia ...................... 102
5.1 Achieving civil law anti-discrimination protection in courts - Activities to be
undertaken ................................................................................................................................................................ 102
5.1.1 Preliminary preparatory actions ............................................................................................. 102
5.1.1.1 Identifying discriminatory violations and persons actively and passively
involved in discrimination ............................................................................................................................. 102
5.1.1.2 Determining the content of anti-discrimination protection (remedies) to be
sought 102
5.1.1.3 Parties and representatives................................................................................................... 103
5.1.1.4 Court jurisdiction ....................................................................................................................... 103
5.1.1.5 Legally relevant facts and evidence ................................................................................... 103
5.1.1.6 Perpetuation of evidence ........................................................................................................ 103
5.1.1.7 Temporary measures ............................................................................................................... 103
5.1.1.8 Intervention ................................................................................................................................. 104
5.1.1.9 Estimation of costs and collection of funds..................................................................... 104
5.1.1.10 Anticipation of the court decision on non-suspension of appeal ........................... 104
5.1.2 Joint legal action .............................................................................................................................. 104
5.1.3 Execution............................................................................................................................................ 105
5.1.4 Disputes against the state ........................................................................................................... 105
5.2 Preparing an individual anti-discrimination complaint – concise instructions ............. 106
5.2.1 Content of the Claim ...................................................................................................................... 106
5.2.2 Jurisdiction ........................................................................................................................................ 106
5.2.3 Parties and the intervenor on behalf of the plaintiff ........................................................ 106
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5.2.3.1 The plaintiff .................................................................................................................................. 106
5.2.3.2 The defendant ............................................................................................................................. 107
5.2.3.3 Intervenor on behalf of the plaintiff ................................................................................... 108
5.2.4 Factual claims and proposal of evidence in the complaint............................................ 108
5.2.5 Motion for the complaint ............................................................................................................. 109
5.2.5.1 Complaint for determination of discrimination ............................................................ 110
5.2.6 Complaint for the prohibition or elimination of discrimination ................................. 110
5.2.6.1 Complaint for the prohibition of discrimination .......................................................... 110
5.2.6.2 Complaint for elimination of discrimination .................................................................. 111
5.2.6.3 Complaint for compensation of damages due to discrimination ........................... 111
5.2.7 Complaint with a request to order that the judgment determining the violation of
the right to equal treatment be published in the media at the defendant's cost ..................... 112
5.2.8 Temporary measures .................................................................................................................... 112
6 Applying law and policy techniques to achieve effective progressive change in anti-
discrimination standards in Croatia .................................................................................................................... 113
6.1 Public advocacy and strategic litigation strategy in protection of human rights .......... 113
6.1.1 Why strategy and what it is about? ......................................................................................... 113
6.1.2 Strategy in protection of human rights ................................................................................. 114
6.1.3 From moral imperative to legal obligation .......................................................................... 115
6.1.4 Strategic litigation – what is it and what is it for? ............................................................. 116
6.1.5 The role of civic actors.................................................................................................................. 117
6.1.6 Analysis and criteria for case selection ................................................................................. 119
6.1.7 Planning activities and support for strategic litigation .................................................. 122
6.1.7.1 Impact estimate .......................................................................................................................... 122
6.1.7.2 Support for the proceedings ................................................................................................. 123
7 Annex A: Accession, Succession and Ratification of Croatia to key relevant international
human rights instruments ....................................................................................................................................... 131

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ACKNOWLEDGEMENTS

This report is published by the Croatian Law Center (CLC) and the Association for the Protection
of Human Rights and Citizens’ Freedoms (HOMO), in partnership with The Equal Rights Trust.
This Toolkit is the outcome of a partnership between ERT, CLC and HOMO on a joint project
entitled “Empowering Civil Society through Training and Establishing a Croatian Equality
Forum” funded by the European Commission National Programme for Croatia under the IPA –
Transition Assistance and Institution Building Component for 2008. The partners are very
grateful for the support provided for this project. However, the contents of this publication are
the sole responsibility of ERT, CLC and HOMO and can in no way be taken to reflect the views of
the European Union.
ERT Acknowledgements
Chapters 1-3 of this Toolkit were written by staff members of The Equal Rights Trust.
All individuals and organisations who responded to queries, provided information and advice
and met with CLC, HOMO and ERT are thanked. In particular, we wish to thank members of the
Croatian Equality Forum for their assistance at every stage of this Toolkit’s production, and for
supporting the aims and objectives of the project.
CLC and HOMO acknowledgements
Chapters 4-6 of this Toolkit were written by associates of the Croatian Law Centre and the
Association for the Protection of Human Rights and Citizens’ Freedoms.

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ACRONYMS

ADA Anti-Discrimination Act

CEDAW Covenant on the Elimination of All Forms of Discrimination Against Women

CERD International Convention on the Elimination of All Forms of Racial

CRPD Convention on the Rights of Persons with Disabilities

CPA Civil Procedure Act

EA Execution Act

GEA Gender Equality Act

IPA Instrument for Pre-Accession Assistance

LA Labour Act

NHRI National Human Rights Institution

Note: A Guide to Boxes used in this Toolkit

Blue Boxes contain the principles found in the Declaration of Principles on Equality.

Yellow Boxes contain the grounds upon which discrimination is prohibited under
international human rights law and the Declaration of Principles on Equality.

Green Boxes contain summaries of various topics such as direct discrimination, indirect
discrimination, and reasonable accommodation.

Pink Boxes contain examples of discrimination issues in practice such as forms of
discrimination or steps that could be considered reasonable accommodation.

Dark Blue and Gold EU Boxes contain examples of anti-discrimination legislation and policy
from other European Union member states.

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1 Introduction
1.1 Purpose of this Toolkit

The Anti-Discrimination Act has been in force in Croatia since January 1st 2009 and provides
comprehensive protection from discrimination across a number of grounds and in all areas of
life regulated by law. The Act provides Croatia with a strong legal framework for combating
discrimination and promoting equality, in line with current European standards. However,
awareness of the Act remains low and its implementation and enforcement are underdeveloped.

This Toolkit is intended to be a resource for civil society in Croatia to assist in promoting the full
implementation of the Anti-Discrimination Act, in line with international law and best practice.
As such, it combines a detailed assessment of international and comparative standards on
equality law with explanation and analysis of the Anti-Discrimination Act and other Croatian
laws and policies relevant to non-discrimination and equality. It also introduces best practice
techniques and strategies from other European Union jurisdictions and provides practical step-
by-step guides for those seeking to bring strategic discrimination cases before national and
regional courts, and those wishing to engage in legislative and policy advocacy.

It is expected that the Toolkit will be a key source of reference for civil society organisations,
legal practitioners, governmental authorities, national and international human rights
organisations, and all other stakeholders in the promotion of equality and non-discrimination
within Croatia and the wider region.

1.2 About the Authors/Project

This Toolkit has been developed by The Equal Rights Trust (ERT), the Croatian Law Center
(CLC), and the Association for the Protection of Human Rights and Citizens’ Freedoms (HOMO).

The Equal Rights Trust is an independent international organisation whose purpose is to
combat discrimination and promote equality as a fundamental human right and a basic
principle of social justice. Established as a resource centre and a think tank, it focuses on the
complex relationship between different types of discrimination, developing strategies to
translate principles of equality into practice.

The Croatian Law Center is a non-governmental and not-for-profit organisation with the main
goal of establishing and promoting the rule of law in Croatia; it focuses on the needs of
vulnerable and marginalised groups by providing free legal aid in cases of violations of human
rights and freedoms, as well as by reacting against the discriminatory regulations and practice
and lack of compliance with the international standards.

“HOMO” Association for Protection of Human Rights and Citizens’ Freedoms is a non-
governmental and not-for-profit organisation with 15 years of experience in maintaining a
continuous field presence starting from the end of the war, monitoring the return of refugees,
women’s and minority rights, and providing legal aid, information and advice.

ERT, CLC and HOMO have a have been working in partnership since 2011 on a joint project,
funded by the EU under the IPA scheme, designed to empower civil society to combat
discrimination and inequality in Croatia. Throughout the project, the partners have undertaken
research into the reality of discrimination and inequality in Croatia today. They have also
analysed the legal and policy framework governing discrimination and inequality in Croatia.
This Toolkit draws upon this research to present a practical document for those seeking to
challenge discrimination and inequality in Croatia.
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