sou · GTB356 · 2006-01-01 00:00:00 — Pictures in the media, in politics of the ideal voter, or in restaurants of the ideal customer, seem to have great importance in regard to discriminatory norms and behavioral patterns. Discrimination can at times thus be explained by referring to someone else who does not want to deal with the immigrant. This is a way for individuals and institutions to place responsibility on someone else. Why havent we understood this before? Thus far the main focus in research has been on immigrants and not on the structures in Swedish society. Both research as well as the political system have to a large extent been focused on the defi- ciencies of immigrants and the measures needed to repair those deficiencies. This can be called blaming the victim. In other words, those affected by structural discrimination are made responsible for their own situation. This type of practice can be seen in the one-sided focus on self-sufficiency, evaluation of foreign education, the presumption that problems in school are related to their culture, that the unemployed are too passive, that they choose to live in segregated areas, that the low rate of voting is due their insufficient knowledge about the system. The ethnic power structure The review of the research in this field shows that Swedish society is divided along ethnic lines. I therefore find it relevant to talk about an ethnic power structure in society. Given a starting point in my view of the gender power structure, I have developed the following definition. The concept describes and explains that the society is permeated by an unequal distribution of tasks, resources and power between Swedes and immigrants, and that this inequality remains in spite of the vari- ous measures undertaken. The ethnic power structure is characterized by 1) Swedes and immigrants being kept separate, and the division into a hierarchical pattern, eg in terms of the ethnic distribution on the labour market and in daily speech, 2) that Swedes/Swedishness const- itutes the norm, and that Swedes have a superior roll and immigrants a subordinate one, which can be illustrated by the definition of some jobs as immigrant jobs that have lower status and pay, but also that Swedes earn more for the same work. Swedes in general also have more power, freedom and influence in various parts of society. Myths about discrimination and racism In racism and discrimination have long been equated with nazism and apartheid. This interpretation of racism as a clear ideo- logy concerning biological races and their internal hierarchy, seems to still have an explanatory value in regard to official accounts. In particular, representatives from Swedish institutions (politicians, civil servants, employers, unions) seem to have a difficult time even using the words racism and discrimination, especially in regard to others with power, and in particular in regard to themselves. In most cases a power perspective as well as a structural per- spective has been lacking. Racism is often seen as something that exists in other countries, in history or among confused young men (e.g. skinheads). This has meant that many (and in particular) pri- vileged people deny the structural character of discrimination and thus can avoid examining themselves. This is one of the reasons why it has been much easier to focus on everything else other than discriminatory norms and actions. Relevant measures in other countries and measures against gender discrimination in other countries and The work against structural discrimination has made its most important marks in the , and . The mea- sures against gender discrimination in are to a large extent similar to the general conclusions that can be drawn in regards to these countries. It is also apparent that the legal measures undertaken in concerning gender discrimination have been affected and strengthened by the efforts in these countries to counteract ethnic discrimination. The development of various measures for counteracting discrim- ination in the , and has been stimulated by organisations in civil society. They have succeeded in mobilising those affected, in developing the necessary knowledge base and making demands. The most prominent tools in these countries for counteracting discrimination, including structural discrimination, have been developed in a process that combined political leadership, strong civil society organisations that gathered those affected, and a focus on changing behavior. The process resulted in stronger laws, insti- tutions and policies – such as anti-discrimination in public contracts (contract compliance). An important step towards more effective anti-discrimination work is taken through the acknowledgement that discrimination exists, and put in focus. This focus has thereafter been combined with proactive measures to promote equality. Starting at the wrong end, that is with the proactive work, with it a risk that a focus will be maintained on the targets of discrimination, with the result that power relations are thereby kept hidden. The civil society efforts have not just helped in the development of legal tools. These efforts have been needed to ensure the enforce- ment of the laws and the follow-up of the tools. They have also stimulated research that has focus on power relations and ethnic discrimination. This in turn leads to the conclusion that there is a need to sti- mulate similar processes in . A focus on discrimination should lead to more pressure that helps ensure that people are able to get jobs that are relevant to their skills and experience – i.e. inc- reasing diversity in a way that takes the individual into account. This in turn produces both role models as well as empowerment. Empowerment should in turn lead to a greater focus on equal rights and opportunities, i.e. In other words, it lays spiral of positive change. The inquirys proposals and recommendations I have concluded that a combination of three factors have been im- portant in the development of an effective tools for counteracting structural discrimination in other countries. These factors are: political leadership focused on counteracting discrimination a strong movement against racism and discrimination within civil society laws and other measures that are focused on changing behaviour This means that there is not a single solution, but that various mea- sures and actors are needed at different levels. A stairway should be swept from the top – political leadership A clear focus on the promotion of equal rights, duties and oppor- tunities, and an understanding that this in turn leads to the current goals of diversity and mutual respect, is needed. The strategy used should be a clearly defined anti-discrimination policy. This means a policy that places the actions of politicians, civil servants, employ- ers, unions and researchers in focus. A requirement that all national authorities develop action plans against discrimination I propose that all national authorities should be required to develop action plans against discrimination. The plans are to be based on an authoritys analysis of its own structures in order to determine the existence of and means for counteracting structural discrimination. These plans are to apply to both the internal and external activities of the authorities, and are to be submitted annually to the Ombudsman against ethnic discrimination (DO). The DO shall contribute to the development of these plans as well as having a duty to evaluate the plans. Investigate the societal cost for discrimination It is important to investigate the social and economic cost for ethnic discrimination. The costs can include such factors as the cost for the society in people needlessly being prevented from realizing their potential, the increased health costs related to physi- cal and mental illness related to discrimination, costs related to the lack of trust in the and other parts of the legal system and the lack of faith in government programs meant to help those in need. Discrimination testing as a qualitative development tool I propose that certain key authorities be required to use discrimin- ation testing (practical application of situation testing) as a tool to test the quality of their internal and external work with equality and counteracting discrimination. Empowerment – strengthening the role of civil society An important step that needs to be taken is ensuring that those who are targets of structural discrimination become a part of the work to counteract discrimination. The following proposals are a way to fulfil this goal. Continued support is provided to the civil society organisations that work with counteracting discrimination, in particular those that work with several grounds of discrimination. Support provided to immigrant organisations should be examined to ensure that the support to a greater extent helps to develop their advocacy role. The parts of civil society that are subjected to structural discrimination due to ethnicity or religion should be provided representation in relevant government inquiries, e.g. the Parlia- mentary Committee Investigating a Comprehensive Anti-discrim- ination law and supervision and the future inquiry with the task of an overall review of integration policy in . The of a fund for the development of case law rela- ted to equality. The development of case law in has been too slow. A comprehensive anti-discrimination law and supervision My conclusion is that structural discrimination is most effectively counteracted within the framework of a comprehensive anti-disc- rimination law and supervision. Similar systems are the ones that have functioned as role models for the development of the anti- discrimination laws in and other parts of Europe. I propose a strengthening of the DO through the addition of a strategic unit. The task of this unit will be to work with many of the proposals in this inquiry, e.g. the anti-discrimination action plans of the national authorities, maintaining a coordinating role in regard to the work of the different ombudsmen in relation to anti- discrimination in public procurement contracts, as well as carrying out a more overall strategic role with a focus on analysis and measures for affecting the mechanisms behind structural disc- rimination. As the institutional prerequisites for long-term interdisciplinary research into the field of structural discrimination are lacking, I propose the development of a research institute with this purpose. Anti-discrimination in national public procurement contracts I propose the adoption of an executive order that requires all government authorities to include an anti-discrimination in their public procurement contracts. The is to cover all grounds of discrimination. These contracts amount to about 100 billion Swedish Crowns annually. The that was introduced recently in the should be used as a model. This is a way to ensure that tax funds do not go to companies that are wil- ling to discriminate, in other words this is a question of democracy. In addition, it is a question of quality since the main requirement made by the anti-discrimination laws is that an employer not disc- riminate against the most qualified applicant or employee due to irrelevant factors such as ethnicity, religion, gender, disability or sexual orientation. Similar requirements in the have had posi- tive effects on the employment opportunities of ethnic minorities (men and women) and (white) women. Anti-discrimination in all funding provided to civil society organisations I propose the development of a similar to be included in national funding provided to NGOs. Anti-discrimination policy for the governments bank assets I propose the development of an anti-discrimination policy for the national governments bank assets that will specify that the government will move its funds from banks that discriminate. I propose that , Statistics and the DO be given the task of developing variables for ethnic statistics that can be used by national public authorities. This is not a question of ethnic registration, but a better use of the public sta- tistics that are already in use. Meaningful ethnic indicators are needed to provide an understanding of the current state of the society and how it is changing. One possibility is the use of a mea- surement related to those born in , within other parts of the EU and outside of the EU. This could provide the basis for a rough analysis of the situation within working life. It is important to be able to develop a picture of the ethnic composition of the work- force employed by larger employers. Otherwise it will be difficult to determine whether or not the measures in place are having an effect. Measures for the DO and other authorities Situation testing as a method of proof I propose that the DO be given the task of developing the use of situation testing as a method of proof in discrimination cases. It has been used in other countries and should lead to a more effec- tive development of case law. Code of conduct for working life I propose that the DO together with the other ombudsmen be given the task of developing a code of conduct for working life as a complement to their work against discrimination. Among other things the code should also be a contribution to the existing work with measures (already required by the law) and the future work with equality plans. The code should in addition be developed in cooperation with representatives from the unions and employers as well organisations representing those affected by discrimination. Proposals in specific areas of society Measures concerning structural discrimination and the I propose that regular confidence surveys be carried out that prov- ide an insight into the confidence level of immigrants in regard to various public institutions (compared with Swedes), especially the legal system, and more specifically the . This can be deve- loped into an indicator regarding the effectiveness of certain measures. I propose various measures that will mean that the issue of structu- ral discrimination will be given a more prominent role in regards to the . As persons with their roots outside of Europe seem to have a comparative lack of confidence in the and their work, this is an important signal that needs to be taken seriously. measures I propose are intended to affect the education of the , how complaints are investigated and the reporting of the use of stop and search measures. Remove the poorly motivated differences established in various rules and laws I propose that citizenship requirements that result in poorly moti- vated differences that are established in rules or laws be repealed or amended in accordance with the proposals in a previous inquiry Medborgarskapkrav i svensk lagstiftning (Citizenship requirements in Swedish law) (SOU 2000:106), including the issue of the right to vote in local elections. In addition, I propose that a new inquiry examine the issue of the differences in constitutional law concer- ning the freedoms and liberties of non-citizens as opposed to Swe- dish citizens. Full voting rights for everyone permanently residing in I propose that the issue of full voting rights for all permanent resi- dents, i.e. even in national elections, should be investigated. A consultation process with those affected by structural discrimination concerning participation and democracy I propose that a consultation process concerning participation and democracy be set up with those affected by structural discrimina- tion. This is needed to analyse why immigrants participate at a lower rate than Swedes in the political process. The basic idea is that if politicians are interested in raising the level of participation of immigrants, it seems that the issue should be discussed with immigrants. Anti-discrimination perspective in the educational system I propose that certain university level educations be encouraged to include courses that take up discrimination as a key issue. In addi- tion, I propose that an analysis be undertaken of whether or not todays educational material contain stereotypical images of people in other countries, or people in . Beyond this I propose that an investigation be undertaken of the extent to which students know about violations of human rights in . This can cover such topics as discriminatory laws and policies directed toward the roma and jews, the historical treatment of the sami, the prominent role of race biology as science in Swe- den and policy of sterilisation. In addition, there is the long period during which laws and policies clearly discriminated against women. In order to understand discrimination in today, I think that it is important with an understanding that Swe- den has not been free from various types of violations of human rights, especially discrimination. Investigation of certain laws I propose an inquiry into the Alcohol Act in order to clarify the right of local governments to include anti-discrimination condi- tions in the alcohol permits issued to restaurants. This is one way of dealing with discrimination in restaurants. In addition, I propose that the Local Government Act be examined with a view towards introducing a positive duty to counteract discrimination. Recommendations to local governments Local governments play a key role in the influence of the public sphere and in daily life. I have therefore decided that it is important to provide a few recommendations. They basically follow the pat- tern set in the rest of the inquiry. Mainly it is important that local governments examine the various roles through which discrimina- tion can be counteracted and pro-active measures can be put in place – e.g. as an employer, in public procurement contracts, the of local rules, the provision of services and in run- ning the schools. One new issue though is in the recommendation that local governments join the UNESCOs Coalition of European Cities Against Racism. This coalition of European cities has under- taken the implementation of a 10-point action program against racism and discrimination. UNESCOs involvement is based on the idea that cities can and should play a key role in the concrete work against everyday racism. Förordning om tillägg i förordningen (1986:856) om de statliga myndigheternas ansvar för genomförandet av integrationspolitiken Härigenom föreskrivs att 5 § skall läggas till förordningen (1986:856) om de statliga myndigheternas ansvar för genomföran- det av integrationspolitiken. 5 § skall ha följande lydelse. Myndigheterna skall upprätta en plan mot diskrimi- nering på grund av etnisk tillhö- righet, religion eller annan tros- uppfattning. Planen skall inläm- nas till Ombudsmannen mot etnisk diskriminering (DO). Baserad på en analys av diskriminering i myndighetens interna och externa verksamhet, samt möjligheter till motver- kande, skall planen redogöra för vilka åtgärder som ska påbörjas eller genomföras . Planen skall innehålla en redovisning av de åtgärder som behövs för att upptäcka, beivra och motverka diskriminering på grund av etnisk tillhörighet, religion eller annan trosuppfattning samt för att främja lika rättigheter och möjligheter. Denna plan ska även innehålla rekryteringsmål för myndigheten. En redovis- ning av hur de planerade åtgär- derna har genomförts samt en analys av resultatet av dessa skall tas in i efterföljande års plan. Förordning om införandet av en antidiskrimineringsklausul i alla statliga myndigheters upphandlingar Härigenom föreskrivs att Förordning om införandet av en anti- diskrimineringsklausul i alla statliga myndigheters upphandlingar skall ha följande lydelse. § 1 Alla statliga myndigheter skall införa en antidiskriminerings- klausul med följande lydelse i alla upphandlingar. Leverantören skall i sin verksamhet i följa vid varje till- fälle i gällande antidiskrimineringslagstiftning. De lagar som f.n. avses är artikel 141 , 16 kap. 9 § brotts- balken, jämställdhetslagen (1991:433), lagen (1999:130) om åtgärder mot diskriminering i arbetslivet på grund av etnisk till- hörighet, religion eller annan trosuppfattning, lagen (1999:132) om förbud mot diskriminering i arbetslivet av personer med funktionshinder och lagen (1999:133) om förbud mot diskrimi- nering i arbetslivet på grund av sexuell läggning, lagen (2001:1286) om likabehandling av studenter i högskolan samt lagen (2003:307) om förbud mot diskriminering. Leverantören är skyldig att på begäran av den upphandlande enheten skriftligen redovisa de åtgärder, upprät- tade planer m.m. som vidtagits med anledning av förpliktelserna i § 1. Uppgifterna skall redovisas till den upphandlande enheten efter begäran därom om inte annat överenskommits i det enskilda fallet. Leverantören skall, om denne använder underleverantör, i sina kontrakt med denne ålägga underleverantören den skyldighet som anges i § 1 ovan. Leverantören svarar gentemot den upp- handlande enheten för underleverantörers brott mot antidiskri- mineringslagarna i § 1. Leverantören skall också tillse att den upphandlande enheten på begäran kan ta del av underleverantörs åtgärder, planer m.m. i enlighet med § 2. Eftersom det är av mycket stor betydelse för den upphandlande enheten att dess leverantörer lever upp till grundläggande demokratiska värderingar skall ett brott mot förpliktelserna i §§ 1–3 anses utgöra ett väsentligt kontraktsbrott. Den upp- handlande enheten äger därför rätt att häva avtalet om leveran- tören, eller dennes underleverantör, bryter mot villkoren i §§ 1– 3. Avtal skall emellertid inte hävas om leverantören vidtar rättelse eller andra åtgärder i syfte att uppnå efterlevnad av de i § 1 nämnda lagarna eller om överträdelsen anses som ringa. 1Utredningens uppdrag och arbete Regeringen beslutade (Dir. 2003:118) att till- kalla en särskild utredare med uppdrag att redovisa den kunskap som finns om strukturell diskriminering på grund av etnisk eller religiös tillhörighet i . I uppdraget ingick också att i relevanta delar redovisa den kun- skap som finns om åtgärder som vidtagits mot strukturell diskri- minering på grund av etnisk eller religiös tillhörighet i andra länder. Uppdraget innefattade även att i relevanta delar redovisa kunskap om och åtgärder mot könsdiskriminering i och i andra län- der. I denna del är uppdraget begränsat till kunskap som är av sär- skilt intresse för arbetet mot strukturell diskriminering på grund av etnisk och religiös tillhörighet. Utredaren skulle även föreslå åtgär- der för att motverka strukturell diskriminering på grund av etnisk eller religiös tillhörighet, samt föreslå åtgärder för att fylla luckor i kunskapen om strukturell diskriminering på grund av etnisk eller religiös tillhörighet. Enligt direktiven ska utredarens arbete i första hand inriktas på sju samhällsområden: arbetsmarknaden, bostadsmarknaden, mass- medier, det politiska systemet, rättsväsendet, utbildningsväsendet och välfärdstjänster som t.ex. socialtjänst och hälso- och sjukvård. Enligt direktiven skall utredaren redovisa uppdraget . Enligt beslut vid regeringssammanträde den 3 febru- ari om tilläggsdirektiv (Dir. 2005:12) förlängs utredningstiden. Utredaren skall redovisa uppdraget . Utredningens uppdrag och arbete I regeringsbeslut bemyndigades statsrådet att tillkalla en särskild utredare. Sekreterare i utredningen har varit statsve- tare . 1.3Varför behövs en utredning om strukturell diskriminering? Enligt direktiven finns tre huvudsakliga skäl bakom utredningen. För det första pekas på ett behov att systematiskt sammanställa och redovisa den kunskap som finns för att utgöra ett underlag för bedömningar av vilka åtgärder och ytterligare kunskap som behövs. Inom de olika samhällsområdena som kunskapsöversikten täcker råder väldigt skilda förutsättningar.