"Building Awareness To Shift Attitudes"
A response to the discussion paper "Improving the employment participation of people with disability
in Australia" published by The Hon Bill Shorten MP, Minister for Employment and Workplace
Relations, Financial Services and Superannuation and the Department of Education, Employment
and Workplace Relations (DEEWR)
By
the WorkFocus Group
February 2013
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About Us
The WorkFocus Group works with the Australian Government as the sole national provider of JobAccess,
the National Disability Recruitment Coordinator (NDRC) program, the Complaints Resolution and
Referral Service (CRRS) and the National Disability Abuse and Neglect Hotline (The Hotline). We are also
a high performing provider under Job Services Australia (JSA) and Disability Employment Services (DES),
and a leading national provider of occupational rehabilitation services for both public and private sector
employers.
We work closely with employers - large and small alike - in delivering our services. We believe this has
helped us develop a strong understanding of employer needs, how to influence employers and the
barriers employers face. We consulted with the following selection of our employer partners about the
Minister's Discussion Paper and the contents of this response:
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Commonwealth Bank Australia
The Fairwork Ombudsman
Manpower
Sunshine Coast Council
Australia Post
The Department of Human Services
Darwin City Council
We also consulted with Susan Scott-Parker, founder and CEO of the Business Disability Forum, the UK’s
national employers’ network.
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Introduction
We share the Government's view that increasing the employment of people with disability is essential,
not only for individuals with disability and their families, but also for the Australian economy broadly. 1
We also agree that more needs to be done to improve employer practices in regard to people with
disability.
We have first-hand experience in this area which we have used to form the recommendations in this
submission. As mentioned above, a large part of our business is devoted to engaging with employers
over the employment of people with disability - developing their confidence, educating and supporting
them - and so we feel we offer realistic, on-the-ground perspectives on these issues.
As noted in the Discussion Paper, Government programs that support the employment of people with
disability, such as JobAccess and the National Disability Recruitment Coordinator (NDRC) have existed for
some time, and "despite their relative success, there has been limited improvement in the statistics". 2
As the sole national provider of these two mentioned services, as well as a DES provider, we would like
to supply a brief commentary on each of these specific areas (Part 2). Each service has unique strengths
and we believe successes there form a good platform to build upon. However, we will begin with what
we see as the most fundamental issue raised in the Discussion Paper.
1
This point is well demonstrated in Deloitte Access Economics (2011), The economic benefits of increasing employment for
people with disability (Commissioned by the Australian Network on Disability)
2
Commonwealth Government (2012) Improving the employment participation of people with disability in Australia Discussion Paper
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Part 1
1.1 The real problems
The point is often made that employing people with disability makes good business sense. Indeed
Minister Shorten's Discussion Paper notes the following:3
• employees with disability are rated as average or above average in productivity, flexibility and
attendance
• workers with disability have a positive impact on staff morale
• employing people with disability builds customer loyalty and provides business benefits to the
employer brand
• employees with disability are an extremely diverse group both in sense of their skills and their
needs
• employing a person with disability does not cost more than a person without disability (financial
assistance is also available for workplace modifications)
• employees with disability actually have fewer scheduled absences as well as better retention
rates
• employees with disability cost marginally less in terms of safety and insurance costs4
Typically, when something makes good business sense it gets adopted without any help from
Government. The competitive drivers of commerce and industry make sure that advantageous practices
are swiftly implemented. Why then, if employing people with disability makes good business sense (and
we agree that it does) have we not seen an improvement in the statistics in Australian business?
We believe that most answers to this question still - despite many years of effort - fall into two familiar
categories:
i) Attitude - Many employers do not understand/trust/appreciate the skills, contributions and benefits
that people with disability can bring to their business. This is often compounded by myths and false
stereotypes around employing people with disability. People in general, not just employers, are also
afraid of doing or saying 'the wrong thing' around a person with a disability (a lack of basic disability
confidence). Many employers (especially small and medium sized) believe they will have to spend a lot
of money making many changes in order to accommodate those with disability. Many conclude that it is
"too hard" and opt to instead "keep it simple" by avoiding the issue altogether. That, expressed bluntly,
is the attitude problem. If that isn't changed then major improvement in the employment of people with
disabilities in Australia is arguably impossible.
ii) Awareness - Linked in many ways to i), Australian employers are simply not aware enough - or
convinced enough - of the business benefits of employing people with disability, and more importantly,
they are not aware enough of the Government supports available to them in this area.5
3
Originally from Commonwealth Government (2012), Strengthening your business through diversity – A guide for employers.
These points have been well-established for over ten years, most prominently argued in Graffam, Joseph, Smith, Kaye,
Shinkfield, Alison and Polzin, Udo (2002) Employer benefits and costs of employing a person with a disability
4
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We believe that the programs and supports available in Australia - DES, JobAccess, the NDRC, etc - are
appropriate, comprehensive and effective. They are not perfect and we hope to assist the Government
in their continual improvement, refinement and adaptation to the contemporary patterns of our labour
market (see Part 2 for more). However, the available programs and supports are not the problem. We
believe that we, together with Government, should focus efforts - in a bigger way than ever before - on
building awareness and shifting attitudes. If this is sustained over many years then the Government's
programs and supports will be used more, and to far greater effect, than ever before.
Primary Recommendation: build awareness to shift attitudes
We think changing deeply held attitudes is hard and will take long-term commitment. However building
awareness is not hard, and it is the first step towards changing attitudes. Our recommendation therefore
is to focus efforts on promoting the benefits of employing people with disability, building familiarity with
the available Government programs and supports and working to aggressively shatter myths and
negative stereotypes.
To accomplish this we recommend a sustained, multi-year, through-the-line awareness campaign.6 This
campaign is challenging and needs to change attitudes and have a lasting influence on decision makers.
It therefore needs to be very skilfully executed. We believe a compelling, memorable, repeated and
informative radio, TV and print campaign coupled with a targeted direct marketing drive to employers
and industry groups would build awareness, dispel myths and shift attitudes.
5
The Australian Human Resources Institute (2011), Recruiting People with Disability: An Employer Perspective, indicates that
54% (out of 678) of those employers sampled had never employed someone with an identified disability and were not aware
that DES services were available to assist them. Of those employers who had employed a staff member with a disability, only
one third filled the vacancy though a DES provider.
6
The Australian Chamber of Commerce and Industry (2012, Employ Outside The Box - The rewards of a diverse workforce)
makes a similar recommendation but suggests a below-the-line campaign. We feel however that both above- and below-theline campaigns in tandem would be more effective in the longer term because above-the-line advertising will reach the
employers of tomorrow, smaller businesses, the wider community and the 'national consciousness'. All these are missed by
targeted below-the-line campaigns, but nevertheless have powerful influence on the decisions of employers.
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1.2 Quotas
It seems to us that where countries feel there is no hope of an attitude shift they resort to quotas. We
believe there is hope for an attitude shift in Australia, and we also believe that the business community and the majority of people with disability - would prefer all other options ahead of quotas.
Fundamentally, employment is all about getting the right person for the job.7 Though we acknowledge
that employment quota schemes have forced change in some countries, we believe that change comes
with tokenism and poor employment practices. For example, in Portugal, a disability quota in public
employment is mostly filled with long-term employees who have cancer, meaning few persons with
disability from outside have been hired.8
People with disability may need specific supports in order to sustain work, but they should nevertheless
be chosen on the merit of their abilities and suitability for the role, not the mere existence of their
disabilities.
Recommendation: No to quotas
1.3 Reporting and Disclosure
We agree that measurement is an important aspect of what we need to do to boost the employment of
people with disability. We also understand that measurement is never going to be precise because of
definitional issues and because disclosure must always be voluntary.
People with disability have a number of fears that stop them disclosing. Some are afraid of stereotyping,
some fear their application will be rejected, others simply consider their disability to be a private matter,
or nothing to do with their employer. We respect the opinions of job seekers but generally try to discuss
the benefits of disclosure, leaving the decision up to them.
Up till now, employers in general have taken a pragmatic view on disclosure. One employer we
consulted set out their views on voluntary disclosure as follows:
"(a) Some disabilities are obvious and disclosure is therefore not applicable
(b) If it is an obvious disability that does not impact on the position – no disclosure is necessary
(c) If it is not obvious but does not impact on the position – no disclosure is necessary
(d) If it is not obvious (e.g. mental health) but does impact on the position – disclosure is necessary"
This last point (d) is obviously the most difficult for employers to manage. Disclosure cannot be forced
but where it affects work performance employers are liable to say it is 'necessary' in order for the proper
7
This was a key finding in employer surveys detailed in Department of Education, Employment and Workplace Relations
(2011) Employer perspectives on recruiting people with disability and the role of Disability Employment Services
8
M.Fembek et al, the Essl Foundation (2012) Zero Project Report 2013 - International Study On The Implementation Of The
UN Convention On The Rights Of Persons With Disabilities
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supports to be put in place. If it is necessary can it still be voluntary? This is where the interests and
rights of employers and employees with disability are not easy to align.
Recommendation: mandatory reporting for large companies
We believe that building awareness and changing attitudes will encourage more people to disclose their
disabilities, but this will take time. In the meantime, we support the idea of mandatory reporting for
larger companies. We also recommend that employers lead the process of shaping and evolving the
disclosure and reporting regime. While we endorse the idea of reporting we would not like to see a
cumbersome process burdening business.
We support the idea of employers being actively involved in developing guidelines on reporting and
disclosure in partnership with people with disability. One way to do this could perhaps be a coalition of
employer representatives (e.g. the Australian Network on Disability) and the Australian Federation of
Disability Organisations. We expect this will lead to the focus being on qualitative reporting primarily
(i.e. practices, processes, plans and strategies) with secondary quantitative reporting where possible and
applicable. An agency may need to be established to manage, collate and distil the reports, turning them
into best practice tools and templates where possible.
1.4 The definition of disability for reporting purposes
Part of the challenge with all disability services is that the very concept of disability is so nebulous. As
noted in the Discussion Paper, the spectrum of disability is wide and varied, there are vast differences in
the severity of disability, the age of onset, and the degree to which a person's abilities and
independence are affected. This is before even considering those with multiple disabilities or co-morbid
conditions.
For this reason there may never be a definition that is universally agreed. However, for the purposes of
disability employment reporting and disclosure arrangements we recommend a merger of the two
definitions cited in the Discussion Paper (i.e. the Disability Discrimination Act definition of disability and
the ABS Survey of Disability, Ageing and Carers definition of disability). We have supplied a version of
how this could work as Appendix 1 at the end of this document.
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Part 2
Just as it makes business sense to employ people with disability, for Government it makes economic
sense to create an environment that is supportive for people with disability. 9 We believe Australia
increasingly has a supportive environment. In Part 1 we mentioned our belief that the available
programs and supports are appropriate, comprehensive and effective but that there is nevertheless
opportunity for improvement. Now in Part 2 we briefly characterise three disability employment
programs we are involved in and recommend a few ways in which they could do more, as well as ways in
which they can contribute to overcoming the main barriers discussed in Part 1.
2.1 The NDRC
The NDRC creates employment opportunities for people with disability by building disability confidence
and helping large employers to employ people with disability. The service was recently reviewed and
enhanced following consultation with employers and disability groups. This review means the NDRC is
increasingly focussed on education and capability building. The goal is to make it easier for employers to
access services that will help them employ people with disability, including:
• helping more employers implement tools and best practice disability programs, and
• facilitating learning through engaging employers and human resource practitioners in best
practice seminars.
In essence, the recent review has not changed the goal of the NDRC: to partner with employers to create
sustainable employment for people with disability. However, what has been enhanced is the way the
NDRC pursues its goals. The service moves from a placement focus to become more of a change agent,
via education, facilitation and the sharing of good practice across employers and employer groups.
Recommendation: monitor the results of an enhanced NDRC
We believe the revised NDRC model will allow greater opportunity for the NDRC to engage with even
more Australian businesses and employer groups. We look forward to being able to report on the
progress of the revised service in the coming months.
2.2 JobAccess
JobAccess provides confidential, expert advice on the employment of people with disability, including
how to access a Disability Employment Service, workplace modifications and adjustments and Auslan
interpreting. JobAccess can serve to help small-to-medium sized employers looking to fill a vacancy with
someone with disability. The service puts them in touch with a number of DES providers in their area so
they have the opportunity to discuss their business needs, build a relationship and determine if the
service is able to meet their recruitment needs.
9
This is well explained in Sebastian Buckup, International Labour Organization (2009), The price of exclusion: The economic
consequences of excluding people with disabilities from the world of work
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Since inception, JobAccess has advised on over 144,000 enquiries, managed over 20,000 funding
requests and organised more than 6,500 worksite assessments to determine disability-specific
workplace needs. We have an impressive knowledge base on disability, aids and equipment – what
works for what job.
The biggest strength of JobAccess is that it is a one-stop-shop for employers and job seekers with
disability where they can get professional advice, funding and support for workplace adjustments,
disability awareness training and much more. JobAccess receives very high satisfaction scores from both
job seekers and employers.
Recommendation: allow JobAccess to cover more Disability Awareness Training
JobAccess should be expanded to play a bigger role in the education of employers and job seekers. A
first step would be to get Disability Awareness Training (DAT) to cover potential employees and
interested employers as well. We believe that if an employer is interested they should be able to get
funding for DAT without it necessarily being linked to a specific person with disability.
Recommendation: look at additional ways to increase employer awareness of JobAccess
JobAccess is a very effective service - the employers and job seekers who use it rate it very highly.
JobAccess is an asset which could be made more of. We recommend an even sharper focus on
awareness-raising initiatives that give ‘bang for buck’, with perhaps a more formal working party-style
collaboration between Government and JobAccess to optimise these efforts. The service currently
operates under a tight funding arrangement so resourcing such an effort may need to be further
explored. Promoting JobAccess will help the service reach more employers and job seekers and cement
its role as the ‘go to’ service for disability employment assistance. In turn, this may well have an impact
on the wider issue of changing attitudes about disability employment.
2.3 Disability Employment Services
The Government's Disability Employment Services (DES) program recognises that some job seekers with
disability need specialist help, and crucially, that their employers may need specialist support too.
People with disability want to work but may need coordinated support, training opportunities and an
inclusive community in order to succeed. In essence, most lack opportunity, not ability. DES providers
help job seekers with disability to access individually tailored employment services, with strong links to
training and skills development, as well as ongoing support for both the employee and employer.
Since DES commenced in 2010 the number of DES job seekers who were placed in a job (for at least 13
weeks) is almost 50% higher than under the previous system (DEN/VRS). The latest Survey of Disability,
Ageing and Carers, conducted by the Australian Bureau of
Statistics (ABS), and cited in the Minister's Discussion Paper, was conducted in 2009, before DES. It
showed that the labour force participation rate for people with disability aged 15–64 years was 54.3 per
cent compared to 82.8 per cent for people without disability (a gap that has been persistent for over 10
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years). We expect the next ABS survey of Disability, Ageing and Carers will reveal the positive effect DES
has had on disability employment in Australia.
In their 2011 research paper, 'Recruiting People With a Disability: An Employer Perspective' the
Australian Human Resources Institute (AHRI) make the point that Disability Employment Services
attempts to combine two very different sectors of the community into the one program where their
interests are potentially at odds. On the one hand there are DES providers and community support
services which originate from education, health and welfare programs, while on the other there are
competitive businesses looking for skills that can help sustain or grow their enterprise. The AHRI survey
also revealed that many employers feel that DES providers are "more focused on supporting and placing
the job seeker than understanding and addressing the needs of the business".10
What results from this clash are deficiencies in recruitment practices, such as not properly matching job
seekers to the employer selection criteria. Employers are not patient with DES providers who are not
commercially astute, fast and efficient. The challenge for DES providers is to deliver effective job seeker
support on the one hand and effective employer support on the other, and these take very different
skills.
By way of example, atWork Australia, part of the WorkFocus Group, employ specialists on each side of
this divide in their delivery of DES. Each type of specialist requires very different skills and experience i.e. job seeker specialists with case-management, clinical and support skills and employer specialists with
key account management and relationship building skills. We believe this is the most effective way for
DES providers to engage both job seekers and employers simultaneously.
Recommendation: make funding for vocational training easier to access through a DES provider
If we all agree that people with disability should be chosen for work on the basis of their skills and
suitability for the role then training for people with disability is key. A common complaint from job
seekers to the CRRS service (operated by WorkFocus Australia) is that DES providers cannot pay for their
training courses. We recommend that access to funds for vocational training is made easier to address
this.
10
Australian Human Resources Institute (2011), Recruiting People with Disability: An Employer Perspective
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Part 3: Capturing and developing ideas, big and small
In the developing of this paper, and in our ongoing conversations with employers and other stakeholders
dedicated to furthering diversity in business, we have uncovered some high-potential ideas.
Some of these ideas are small and may represent quick wins, others are larger and require development.
The WorkFocus Group thought it useful to capture them in this document for your consideration. We
would be delighted to play a role in examining these further with you.
3.1 Leadership and connecting people
One theme that continually emerged in discussion was that all this effort is for naught unless an
employer says ‘yes’ to hiring a person with disability. At the moment, and rightly so, there is a great deal
of focus on the services that exist along the pathway to employment. However, there is also enormous
potential in creating direct connections between employers and people with disability.
Once connections are created, biases and assumptions fall by the wayside. An employer sees the person
and their potential, not a preconceived idea of the challenges of disability.
We believe some or all of the following ideas are worth pursuing to create and build upon linkages
between employers and people with disability:
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A ‘Getting to Yes Forum’ – Sponsored by the Government, professionally facilitated, this two-day
forum brings together 60-70 business leaders and skilled job seekers and / or employees with
disability, gets them together as peers, and determines all the obstacles along the path to
employment – both for job seekers with disability and for employers. A paper is distributed
beforehand to guide proceedings and a process should be established to develop the forum’s
findings. Done well, this may well influence the next phase of Government employment policy.
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Leadership development programs – Large employers agree to ‘sponsor’ high potential job
seekers with disability through their existing in-house programs. Via advertisements in the
disability press, job seekers with disability are invited to apply for this sponsorship. Selected
applicants are matched to an employer who then puts them through the same in-house
leadership (or any relevant) training as their own employees are attending. Connections are
established between that job seeker with disability and several people within an organisation.
Perceptions of people with disability are revised, networks are established, mentoring is a
possibility and the ripple effect goes to work in changing attitudes.
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A pool of professionally qualified and skilled job seekers with disability – All large employers that
we spoke with have made commitments to employing people with disability. These are executed
with varying degrees of success. Most of these employers identified a real gap: they are unable
to find ‘high capacity’ people with disability for their jobs. Typically, these people are not
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registered with a DES. It would be a huge service to them to have one pool of professionally
qualified and skilled job seekers with disability, potentially under the NDRC service. An example
of a similar service in the US is the ‘Think Beyond the Label’ initiative, a public-private partnership
that focuses on recruiting people with disability that may not be engaged with federally funded
disability employment services.
3.2 Human Resources functions and recruiters
Both in-house and external recruiters, as well as the wider human resources (HR) function, can have a
dramatic impact on whether job seekers with disability are catered for throughout that process.
One recent United Kingdom survey of 3,000 people, conducted by British Telecom, found that nearly
two-thirds (65%) of people admitted they avoid people with disability because they don’t know how to
act around them.11 That was a general population survey, so presumably a large percentage of recruiters
may well carry a similar attitude into their work.
It stands that there may be some progress made through focusing on Australia’s HR and recruitment
practitioners. Specific ideas include:
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Establish an accreditation scheme for HR practitioners in AUS – this would begin with disability
confidence training, both in general and also specifically focused on the recruitment, application
and retention phases of employment.
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Guaranteed interviews – should a person with disability meet the criteria for a job, they are
granted an interview. This form of positive discrimination is another way attitudes can and will
slowly change. The job seeker with disability, at minimum, benefits from interview practice and,
each and every time, recruiters and managers meet job seekers with disability their disabilityconfidence is built and attitudes shift. A guaranteed interview also provides an incentive for a
person with disability to disclose that disability at the job application stage. The NDRC actively
advocates for this strategy to be adopted across its partners and it is a concept that is growing in
appeal.
3.3 Operational and systems adjustments
Sometimes it is not what is being done, but how it is being done, that may present the obstacle to
employment. Many employers now rely on online recruitment, which creates a barrier for many job
seekers with disability.
11
Full press release on the 2011 survey can be found at
https://www.btplc.com/News/Articles/ShowArticle.cfm?ArticleID=A558F129-8F6C-410A-AB4B-703E976AD053
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In the UK, McKinsey and Company found that 1.3 million people with disability were unable to apply for
any jobs with the vast majority of companies due to barriers created by technology. Anecdotally, the
Australian experience is similar.
One way to start looking at this issue may be:
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Review and discuss the UK and other international experiences to explore ways to combat this
challenging issue.12 There is also a technology taskforce in the UK which may assist. We are well
aware the Australian Government is already doing a great deal of work in making its own
websites accessible to all. The challenge is to influence the private sector to follow suit.
Conclusion
Our argument in this submission is that attitude and awareness issues are the real problems blocking the
employment of more people with disability. We feel that Government has done well to evolve an
effective set of programs and supports but that more focus should be placed on building awareness in
order to shift attitudes.
It is the attitudes of employers that we most need to change and therefore employers are where most of
the focus should be. Properly understanding how to work with employers is key (i.e. for DES providers)
in order to catalyse an organic demand-driven strategy.
To summarise, our main recommendations are:
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Build awareness to shift attitudes
No to quotas
Mandatory reporting for large companies
Monitor the results of an enhanced NDRC
Allow JobAccess to cover more Disability Awareness Training
Explore further promotion of JobAccess
Make funding for vocational training easier to access through a DES provider
All of us at the WorkFocus Group are proud of our work so far in helping people with disability into work,
building employer disability confidence and partnering with Government in the delivery of disability
employment programs. We look forward to continuing our work on all three fronts and we would be
delighted to engage further with Government to make a lasting, positive change to the employment
prospects of those with disability.
12
One example for review could be http://businessdisabilityforum.org.uk/talent-recruitment
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Appendix 1: An idea for a merged definition of disability
We have developed the following definition by merging the most important features of the Disability
Discrimination Act (DDA) definition of disability and the ABS Survey of Disability, Ageing and Carers
definition of disability.
A ‘disability’ means a limitation, restrictions or impairment, which has lasted, or is likely to last, for at
least 6 months and restricts everyday activities.
It includes:
a) total or partial loss of the person’s bodily or mental functions; or
b) total or partial loss of a part of the body; or
c) the presence in the body of organisms causing disease or illness; or
d) the presence in the body of organisms capacity of causing disease or illness; or
e) the malfunction, malformation, absence or disfigurement of a part of the person’s body; or
f) a disorder or malfunction that results in the person learning differently from a person without
the disorder or malfunction; or
g) a disorder, illness or disease that affects a person’s thought processes, perception of reality,
emotions or judgment or that results in disturbed behaviour;
To guide and directly inform the interpretation of the definition above, specific examples of disabilities
under this definition include:
• Loss of sight (not corrected by glasses or contact lenses)
• Loss of hearing where communication is restricted, or an aid to assist with, or substitute for,
hearing is used
• Incomplete use of feet or legs
• Nervous or emotional condition causing restriction
• Restriction in physical activities or in doing physical work
• Speech difficulties
• Shortness of breath or breathing difficulties causing restriction
• Disfigurement or deformity
• Mental illness or condition requiring help or supervision
• Chronic or recurrent pain or discomfort causing restriction
• Blackouts, fits, or loss of consciousness
• Long‐term effects of head injury, stroke or other brain damage causing restriction
• Difficulty learning or understanding
• Incomplete use of arms or fingers
• Difficulty gripping or holding things
• Receiving treatment or medication for any other long‐term conditions or ailments and still
restricted
Note: The key exclusion (from the originals) are the DDA stipulations (h, i, j and k) relating to when the
disability existed/will exist. This is because the definition is intended to be used to aid in the
measurement and reporting of the current number of people with current disabilities at work
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