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BACKGROUND to the ss4q campaign

On 18 November 2004 the Ministry of Social Development hosted a Gay, Lesbian, Bisexual, Transgender and Intersex (GLBTI) Policy Issues workshop.  It was attended by twenty five people from the GLBTI communities including academics, community workers, and state sector workers such as teachers, police, policy analysts, lawyers and front-line support workers.  A number of presentations were made throughout the day followed by a discussion of policy and human rights issues for GLBTI people. 

The most persistent issue to emerge from these discussions was bullying and harassment in schools.  It became clear that there was a high level of concern amongst the participants about the safety of GLBTI students in schools.  This was heightened by analysis of the Youth2000 research that showed schools are often unsafe environments for young people who are, or are perceived to be, transgender, bisexual, takatāpui, gay, fa’afafine, intersex or lesbian. 

In 2004 OUT THERE! developed a kit providing information and strategies to assist schools in enhancing their environments to be inclusive of sexual orientation and gender identity diversity.  However OUT THERE! decided it was unable to tackle these issues effectively without broader support from the GLBTI communities.  Therefore a working group was established to support a broader SS4Q* - Safety in Schools for Queers* project. Its focus was to name and alleviate discrimination, harassment and bullying in schools for GLBTI students and teachers. 

In June 2005 SS4Q organised a national conference attended by 190 youth, students, teachers, counsellors and health professionals. The conference was a collaborative effort of the Human Rights Commission, the New Zealand AIDS Foundation, Out There, the Family Planning Association, the Post Primary Teachers’ Association, Rainbow Youth, gay welfare groups and a large number of individuals from GLBTI communities.  The level of support for the conference was overwhelming and included participation by parents and teachers.  It was a testament to the level of concern about the issue of safety in schools.

Policy Document

These are the policies espoused by SS4Q*, which have been established through collation of the information from the conference and further consultation.

There are 6 policy areas:

1. Student Support

2. Teacher Support

3. School Policies & Practices

4. Curriculum

5. Professional Learning

6. Government Policies

1.    Student Support

1.1 Eliminating Discrimination

Schools are required to meet the anti-discrimination provisions of the Human Rights Act, which make it unlawful to discriminate against someone on the grounds of their sexual orientation or sex.  Schools are also bound by the National Administration Guidelines which require them to provide safe emotional and physical environments.

Schools should aim to be inclusive supportive environments that recognise the human rights of all students regardless of their sexual orientation, gender identity, ethnicity, culture, and abilities.

SS4Q also supports the Schools as Human Rights Communities initiative, which would increase the understanding of human rights in schools.

1.2 Visible Support

The Youth 2000 study shows that 35% of non-heterosexual students at secondary school in Aotearoa New Zealand feel unsafe at school all or most of the time.  Staff also report that many queer teachers feel unsafe being “out” about their sexual orientation or gender identity at school.

Contact People:
All schools should have a diverse range of contact people to deal with anti-harassment, bullying and discrimination complaints.  These contact people should include both students and staff and, if possible, some GLBTI contact people.  All those undertaking this function should have received anti-discrimination, harassment and bullying training covering all grounds contained in the Human Rights Act, including those related to sexual orientation or sex / gender identity.  Publicity material about this complaints and support service should overtly start that it includes discrimination and human rights issues for GLBTI staff and students.  

These contact people may be a visible first point of call for people to:

• seek support on harassment or discrimination
• file complaints to be acted on by the Board of Trustees or similar
• disclose their gender identity /sexual orientation confidentially and/or
• be referred on for better support.

Contact people might be part of the counselling department where appropriate. 

Peer mediators, peer sexuality, and anti-harassment teams of students currently provide important support roles in schools. These systems need to be further developed and given a place in all schools.  Furthermore, peer mediators need to be trained on sexuality and gender identity issues.

1.3 Diversity Groups

Having a diversity group within every school, open to heterosexual, questioning, bisexual, transgender, gay, lesbian, takatāpui, fa’afafine, intersex and queer students, is a positive goal to work towards.  Where it is not currently possible, a school should be able to show that it has an alternative way for queer students to meet with other queer young people in a supportive and well-managed environment.  There are some excellent examples of diversity groups based within a school, perhaps open to students from other schools in the area.  In other cases, a community-based group has also been effective.  The focus should be on the best arrangement to provide the support required by queer students. 

School staff need to be well trained on sexuality and gender diversity before diversity groups are established.  For some schools, cultural change may need to occur before it appropriate to have a diversity group.

Diversity groups are important for visibility, peer support, connectivity and belonging. They counter the sense of isolation that GLBTI youth face due to the invisibility of queer people and resources, particularly within a school environment. Diversity groups also provide a support mechanism to help deal with the issues such as harassment and bullying that queer youth may face.  These groups provide support in a positive, relaxed  manner, that is, as a club or social grouping.  Therefore they need to be accorded the same status as any sporting, recreational or extra-curricular group.

Diversity groups need to be well supported and safe.  As such, ideally they should be linked in with peer support or anti-harassment groups where such groups exist in a school.  Failing this they should be linked with GLBTI-friendly staff (counsellor where possible) and/or student leaders.   However they are linked, they should be student-run. One important safety element is the non-disclosure of the meeting time and venue. This should only be disclosed via the staff member attached to the group.  The youth running the group may also need support via the school’s counsellor or other appropriately trained and skilled staff members.

1.4 School Balls, Activities, and Events

Many schools currently discriminate against students who take a same-sex partner to school social events, including school balls.  There have been a number of complaints to the Human Rights Commission about this issue, most of which have been resolved through mediation.  Possible options include schools selling single, rather than double, tickets to school socials, balls and other events.  This also helps to reduce the pressure on any students who do not want to take a partner to these events.   Encouraging students to come as groups or with a friend often makes balls less threatening for all students and means students are not pressured into deciding or expressing their sexual orientation or gender identity. 

Schools can also embrace both cultural and gender diversity by moving beyond a dress code focused solely on ball gowns and tuxedos.  Any school concerns about controlling non-students’ attendance can be addressed through other mechanisms e.g. allowing students to bring one ‘guest, friend or partner of their choice’ whose name would be vetted by the ball organisers. 

1.5 Single/Unisex Changing Facilities

Toilets and changing rooms are reported to be one of the main sites of abuse, harassment, intimidation and bullying for many students, including those who are queer.  Making these facilities safe for all students should be a high priority. 

However there are additional issues for GLBTI students.  Gender-specific facilities do not provide an option for students who do not easily fit into either “make or ‘female’ categories.  This includes many intersex and transgender students and also some ‘masculine’ girls and ‘feminine’ boys.  Students whose gender identity is not clearly recognised or accepted by others are likely to be questioned and harassed when using gendered facilities.  Single cubicle unisex toilets are a very good option for these students, particularly if there are sufficient numbers of toilets to ensure they do not become seen as “the queer toilet”.  A disability toilet may be a short-term option.  However, it reduces the toilet’s availability for disabled students and potentially discloses a student’s gender identity if they are questioned about using a disability toilet. 

These issues are heightened for transgender and intersex students, particularly if they start transitioning at school.  Transgender and intersex students should be supported to use the facilities that correspond with their gender identity.  It is very unlikely that a student will have had gender reassignment surgery.  However, the Human Rights Commission’s view is that the Human Rights Act 1993 covers all transgender people and does not depend on whether or not they have had such surgeries.  Even if a transgender or intersex student is usually recognised and accepted in their chosen gender, there is usually some degree of discomfort in circumstances that involve the possible exposure of one’s body e.g. changing rooms or where toilet stalls do not have doors.  This is a dignity and privacy issue and can often be resolved through providing curtains on showers, doors on toilet cubicles and private cubicles within a changing area.

Schools also need to consider these issues in the context of education outside the classroom, to prevent transgender and intersex students from having their opportunities restricted.  .On one-off events such as school trips, it may be appropriate to consider the special requirements of transgender and intersex student in a similar way to arrangements made for disabled students e.g. through access to facilities used by staff. 

1.6 Families/Whanau

We recognise that families have a great deal of influence about young people’s attitudes to sexuality and gender identity.  Schools should provide resources and contacts for family members who seek advice regarding issues of sexual orientation and gender identity. 

Some  family members are also same-sex attracted and may live in non-heterosexual relationships.  Others may also be transgender or intersex.  Schools should be open to the different types of families in their school community and work with students and families when a student is being bullied because of the family member’s sexual orientation or gender identity.  .

2.         Teacher Support

Many GLBTI teachers report that they do not feel safe being ‘out’ at school. This has consequences for their mental health and for their career opportunities.

The Human Rights Act stipulates that it is illegal to discriminate on the grounds of sexual orientation. The Ministry of Education and schools must take steps to meet their obligations under the Act.

2.1 EEO Policy
EEO policies and practices in schools should include GLBTI people.

2.2 Protection of GLBTI staff
Many GLBTI teachers are still discriminated against in schools, or feel that they would be if they were open about their sexual orientation or gender identity. 

Teachers need to feel safe to be ‘out’ at school and protected from harassment, bullying and discrimination on the grounds of sexual orientation and/or gender identity.

The ability to be ‘out’ and not have to hide this aspect of their personal lives is critical for the mental health and well being of GLBTI teachers.  ‘Out’ teachers would also be positive role models for students. 

2.3 Single/Unisex Changing Facilities

Unisex toilets and changing facilities should also be available for staff, as an option that transgender and intersex staff members can access. 

3.         School Policies and Practices

A 2001 UK study shows a direct link between homophobic bullying in schools and suicide. Researcher Rivers concluded that 53% of the lesbian, gay and bisexual adults he surveyed had contemplated suicide as a direct result of being bullied at school.  Of those, 82% had experienced name-calling, 71% had been ridiculed, 60% had been hit or kicked, and 58% had been teased.

A recently released Australian study conducted by La Trobe University showed that same-sex attracted young people were three times more likely to self-harm if they had been physically abused because of their sexuality. While 20% of same-sex attracted young people who had had no abuse had self-harmed, 40% of those who’d suffered verbal abuse and 60 % of those who’d suffered physical abuse self-harmed.

Schools are required to provide a safe physical and emotional environment for all students under the National Administration Guidelines.

3.1 Policies
All schools must have comprehensive anti-discrimination and anti-harassment policies with explicit mention of homophobia and transphobia, These policies need clear procedures that are widely understood and implemented.

3.2 School Audits
Schools need to be regularly audited on their safety for GLBTI students, with a focus on:

• Levels of bullying
• Anti-harassment policies, procedures and practices.
• Support systems for GLBTI students
• Teacher professional development

Schools must also be audited on their approach to sexual orientation and gender identity in the curriculum, particularly in the sexual health curriculum but also in other areas.

3.3 Disciplinary proceedings
Some students report that they have been disciplined for their sexual orientation and gender identity.

Students must never be disciplined for these reasons, as it is contrary to their basic human rights, and also has a profound impact on the mental health of the student.

3.4 Anti-discrimination, bullying and harassment campaigns
SS4Q supports anti-bullying campaigns, but suggests some important extensions and changes.

• Bullying needs to be defined broadly to include harassment and discrimination, and to include psychological as well as physical violence  
• These campaigns/projects must be present in all schools
• All anti-bullying programmes need to recognise that homophobic and gender-based or trans-phobic bullying are some of the most common forms of bullying, and therefore address it specifically and proactively.

3.5 Diversity
GLBTI people grow up within every community – they are tangata whenua, Pasifika, Asian, European etc. School resources should portray positive messages about the diversity of GLBTI youth. Positive affirmation of the full diversity of the GLBTI community is important as these communities all have diverging approaches to sexual orientation and gender identity.

3.6 Gender-neutral uniforms
Schools need to have uniform options that allow students to wear the uniform that feels comfortable, meets the school’s dress code and is consistent with their gender identity.  The simplest option is often if all students are entitled to wear pants, skirts or shorts, particularly in co-ed schools. 

It is unlikely that a transgender student will want to attend a single sex school where they are required to wear a gender-specific uniform that is inconsistent with their gender identity.  However there are instances where parents have forced a female to male transgender student to attend a girls’ only school and vice versa.  This is likely to place considerable stress on a student, which would be exacerbated by a strict gender-specific dress code. 

3.7 Language
Language that is used in school needs to be inclusive and avoid:

• assumptions that all students or their families are heterosexual (heterosexism)
• gender stereotyping including assumptions that there are only two genders (male or female) 
• negative comments that encourage fear of  students or staff because they are lesbian, gay or bisexual (homophobia) or transgender (transphobia)

SS4Q has reports of teaching staff using the word ‘gay’ as an insult in a classroom setting.  Racist and sexist language would not ordinarily be tolerated and nor should homophobic or transphobic language.

4.         Curriculum

Marama, 22-years-old: “I was so unsure about being gay. It wasn’t spoken about in health classes or anywhere. That is why it took so many years of hating who I was, ‘cos I didn’t know who I was. I find people put down or talk down to things/issues that they don’t know anything about or just don’t understand.”

This statement reveals the critical impact negative information, or no information, can have on the well-being of young gay, lesbian or bisexual young people. For this young lesbian woman the lack of information meant that she had no valid affirmation of her sexuality. She also alludes to the way the lack of information fostered homophobic or anti-gay attitudes in her fellow students. Both of these things are contributing to the suicide rates amongst non-heterosexual youth. Suicide ideation has been directly linked with homophobic environments through qualitative research with young gay males in New Zealand.

The Ministry of Education’s ‘Quality Teaching for Diverse Students in Schooling: Best Evidence Synthesis’ directly discusses the crucial importance of teachers’ roles in valuing and affirming student diversity in order to facilitate all students’ learning in and outside the classroom.   When schools recognise and harness the diversity that exists within every school, student outcomes, both social and academic, will improve.

4.1 Anti-homophobia and anti-transphobia education for students
All students must have anti-transphobia and anti-homophobia education at school.

The development of the modules for such a course must be based on sound methodology and the programmes must be thoroughly evaluated.

4.2 Inclusive curriculum
The curriculum presents many opportunities to be inclusive of all sexual orientations and gender identities.

Subjects such as history, social studies, health, (human) geography, English, biology/science all present examples where inclusion would be fairly straightforward. For example: a GLBTI author/text in English; or gender in biology/science. The human rights aspect of the social studies curriculum has great potential for both including GLBTI people, and also constructively examining the prejudice against GLBTI people.   This inclusive approach is in line with the Ministry’s Best Evidence Synthesis on Diverse Students and will mean better outcomes for students’ learning and social achievements.

However, inclusion will be difficult unless teachers are well resourced and informed.

Teachers need to be provided with quality material and resources to assist them. They also need to be given goals and guidance to ensure the inclusion of new material in the curriculum.

4.3 Library Resources
Resources in school libraries need to include GLBTI-positive material and self-help information on issues such as coming out, having GLBTI parents, coping with bullying, and the transition process for transgender people.

4.4  Sexuality Education
Sexuality education is often given to external organisations to undertake. It is critical that these organisations understand sexual orientation and gender identity and conduct GLBTI-positive education for students. Currently these organisations are not monitored and are sometimes not GLBTI-friendly.

Some ways of countering the problems in this area are:

• Better preparation of health/physical education teachers for sexuality education.
• The registering, monitoring and evaluation of external providers.
• A set of guidelines that external providers must fulfil, including legal obligations to provide positive information on sexual orientation and gender identity.

Students need realistic sexuality education that reflects all the types of sexual expression that people engage in, to ensure safe sex practices are properly understood and followed. If, for example, only safe penetrative vaginal sex with a penis is discussed, students may be under the false impression that penetrative anal sex does not require condoms. Both heterosexual and homosexual people may have anal sex. 

Discussion of healthy relationships, whether they are heterosexual or same-sex, should underpin all sexuality education.

4.5 De-gendering the curriculum and extra-curricular activities
Although effort has been put into de-gendering curriculum in the past, there are still lingering attitudes that some activities and occupations are male and others female. Pressure to do male-only or female-only activities can be particularly hard for transgender students.   Also, it is often when individual students engage in activity that is deemed to fall outside of normative gender roles that they face homophobic labelling and harassment.  More work needs to be done on de-gendering the curriculum.

4.6 Heterosexist models
Both teachers and textbooks frequently use case studies in their work to help to explain their work. When they refer to partners, families, couples and such like there needs to be an onus on both the teacher and the text to give diverse examples of the types of families and couples represented in Aotearoa New Zealand.

If only heterosexual models are presented there is a reinforcement of the idea that non-heterosexual identities are inferior.

4.7 Education about the Human Rights Act
Education about the Human Rights Act is important for students to understand the content, origin and rationale behind the protection of human rights in Aotearoa New Zealand.

4.8 GLBTI and Māori
Culturally appropriate programmes must be developed and delivered to all students and teachers about takataāpui, the origins of the kupu (word), and who identifies with it.  This would help to create a positive understanding of the history and meaning of takatāpui. Information must come from prominent takatāpui, as they hold the knowledge and understanding.

Part of the education for GLBTI youth must be related to Te Tiriti o Waitangi, and the special place of takatāpui as tangata whenua in Aotearoa. This understanding will help Māori and non-Māori GLBTI youth to feel protected and secure against homophobia and racism towards Māori.  It will build a sense of belonging and legal protection for all.

Students who identify as GLBTI and Māori need to feel that they can identify as takatāpui without having to choose one culture over the other.  GLBTI Māori should not have to feel that to identify as GLBTI means they cannot identify as Māori, and vice versa.  The tension created by having to choose undermines self worth, self-esteem and health.  It also damages the sense of place in Māori and New Zealand society of takatāpui. 

To identify as takatāpui is about much more than just a sexual act, it is an expression of Māori identity and the cultural heritage of Aotearoa New Zealand.

5.         Professional Learning

5.1 Anti-homophobia and anti-transphobia education

It is crucial that prospective and current teachers receive education so that they do not discriminate on the basis of sexual orientation, gender identity, and gender stereotyping and respect the human rights of GLBTI students and staff. 

Respect for GLBTI students and their right to freedom from discrimination should be assessed in selection processes for pre-service teacher education.  This should then be reinforced through the celebration of diversity and human rights in pre-service teacher education. 

In-service training should then be available for teachers who have already graduated.  Specifically, there is a need for ‘just in time’ education for staff in schools that are developing policies and procedures around homophobia or transphobia or where a particular need has been identified in relation to a GLBTI student e.g: someone who is transitioning from one gender to another while at school. 

Such education must be provided to all teachers, principals, guidance counsellors, RTLBs, Group Special Education staff, and Alternative Education Centre staff, and should also be offered to members of Boards of Trustees.  There is an urgent need for quality resources to support this work. 

5.2 Health and sexuality curriculum teachers

Health teachers and physical education teachers who are responsible for the delivery of sexuality education need comprehensive education and support for delivering the curriculum, and for dealing with issues of sexuality and gender identity in an inclusive and supportive way.

Many teachers do not currently feel comfortable providing instruction on these issues and lack of preparation may be one of the main underlying reasons for this

5.3 Updated information

School counsellors need to keep teachers informed about support systems for GLBTI students in the school and community.

6.         Government Policies

6.1 Specialists in Ministry of Education

Individuals in the Ministry of Education at a national and regional level must have GLBTI student/staff issues as part of their work.

If a school has an issue arise with a student around their sexual orientation or gender identity, there needs to be an expert with whom they can talk through the issues. This might be placed within School Support Services contracts as an extra deliverable.

6.2 Reference Group – Ministry of Education
The Ministry of Education needs to establish a Reference Group to give support and advice on GLBTI education issues. The group needs to report to the Secretary of Education or a delegated person with an overview of all relevant sections of the Ministry, in order to ensure a whole-of-school approach to safety for queer students.  The members of such a group would be external experts with support from Ministry staff from a range of sections.   Such a group must reflect both expertise and the diversity in the GLBTI communities.

6.3 Media campaign
The GLBTI community deserves to be appreciated, accepted, included and understood by the wider community. There needs to be a government sponsored health campaign like the ‘Like Minds Like Mine’ campaign to challenge myths, stereotypes and prejudice.

6.4 ERO Reviews
ERO reviewers need to be trained on the issues around diversity and GLBTI-related prejudice, so that they can identify quality provision or its absence in schools.

6.5 Government funding for delivery of education
The delivery of anti-homophobia and anti-transphobia education needs to be a government-funded exercise.  Given the limited resources within schools, and the vulnerability of GLBTI staff to harassment, at least in the short-term, out-sourcing the education is likely to be the best option.  A nationally co-ordinated exercise also ensures that models of best practice are able to be shared between schools.  This education needs to follow sound methodology and be thoroughly evaluated.  

Creating safety in schools for GLBTI students, and all those affected by GLBTI-based prejudice, requires careful pilot studies that can provide models of best practice for other schools to follow.

6.6 Suspension Reduction Initiatives
Anecdotal evidence suggests that some students are currently being suspended and expelled for being GLBTI, or after reacting violently to being bullied for being GLBTI.  Some students may also be ‘acting up’ as a response to their fears of and actual experience of harassment and their concerns about their gender identity or sexual orientation.  These students are unlikely to want to attend school if they feel unsafe.