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*i3* COMMISSION OF THE EUROPEAN COMMUNITIES 
Brussels, 29 ! ! 1995 
COM(95) 593 final 
95/0308<CNS) 
Proposal for a 
COUNCIL RECOMMENDATION 
on the balanced participation of 
women and men in decision-making 
(presented by the Commission) 

Proposai for a 
Council Recommendation on the balanced participation of 
women and men in decision-making 
Explanatory Memorandum 
I INTRODUCTION 
Changes in the roles of women and men are one of the major features of social change 
in Europe Upheavals in the labour market, changes in demographic and family structures, 
and developments in education and training have also played a major part. Policies 
conducted on the initiative of the Member States and the activities of organisations 
involved in promoting equal opportunities have led to some real progress. 
The Community has been one of the prime movers in changing the status of women in 
society It first consolidated the legal principle of equal treatment at work, and to a large 
extent with regard to social security, on the basis of Article 119 of the Treaty enshrining 
the principle of equal pay. Realising that equal opportunities are conditional upon, but not 
necessarily guaranteed by, equality in law, the Commission also instituted a host of 
measures to promote de facto equality - mainly through its three consecutive equal 
opportunities programmes - in many different and mutually complementary ways, such 
as forming networks, stepping up information and communication activities, supporting 
pilot activities or studies and identifying and disseminating sound practice, etc. 
However, de facto inequality still exists. The scarcity of women in the circles where 
collective decisions are prepared or taken is identified as one of the causes of inequality 
between women and men and of our societies' structural inflexibility. The repercussions 
on society as a whole of decisions at national and international level in political, 
economic, social and cultural domains, taken by groups mainly made up of men, "tend 
to reflect the values, points of view and the personal experience of their authors" 
The question of women's participation in decision-making has been on the Community 
agenda since 1984, when the Council adopted a Recommendation on the promotion of 
positive action for women. This was confirmed once again in 1986 by the Council 
Resolution on the promotion of equal opportunities for women. The Council Resolution 
of 21 May 1991 on the third Community programme on equal opportunities for women 
and men (1991-1995) set itself equal representation in decision-making as one of its 
goals 
The network of experts on women in decision-making, establised in the context of this 
programme, provided statistics on how representation is shared between women and men 
in governments, elected assemblies (from the European Parliament to elected assemblies 
of local municipalities in the Member States), administrations and the advisory bodies 
involved in decision-making. The network members collaborated on research work on 
decision-making in sectors other than the political sectors, especially finance, health, 
education and justice and helped to highlight strategies which were likely to promote 
equal access to decision-making circles. 
Les femmes et le cliangement structurel (Women and structural change), Paris. OECD. 1991 
In its resolution of It February 1994, the European Parliament called upon the 
Commission "to step up implementation of the equal opportunities policy to combat 
individual obstacles which hinder women from taking part in decision-making" and to 
define "measures and actions to promote greater participation of women in the decision­
making process" 
The European Union at the fourth World Conference stressed the need for responsibilities, 
powers and rights to be shared equally which constitutes one of the main elements of the 
Platform for Action and the Declaration adopted at the end of the conference. 
The fourth Community action medium-term action programme on equal opportunities for 
women and men (1996-2000) proposed by the Commission includes measures to achieve 
balanced participation of men and women in decision-making. 
The requirement for women and men to share decision-making represents a goal which 
is regarded as beneficial for society as a whole. It is not simply a matter for the Member 
States The social partners, political organisations, NGOs and the media must play their 
part It is therefore appropriate, in the present case, to consult the Economic and Social 
Committee and the Committee of Regions. 
At the end of its Resolution of 27 March 1995, the Council asked the Commission to 
prepare a draft recommendation to promote the balanced participation of women and men 
in decision-making. This is the subject of this proposal for a recommendation which, in 
conformity with the principle of subsidiarity, calls upon the Member States to choose 
suitable measures which can range from mere encouragement to legislation. 
II PRESENTATION 
1. Subject of the recommendation 
The aim is to encourage the Member States to examine the question of the balance 
between women and men in decision-making in all areas (political, social, economic and 
cultural) and forms (the decision-making circles themselves and also the bodies which 
prepare and contribute to decision-making) and to adopt a comprehensive and integrated 
strategy to achieve such a balance. 
2. The sectors involved in the comprehensive and integrated strategy 
a) Education and training: The existing imbalances mainly result from the 
stereotyping of men's and women's roles by education and training and the 
presentation of the role and the contribution of women in society Equal access 
to decision-making is dependent on school textbooks and education and training 
not representing public responsibilities as being reserved for men and private 
responsibilities for women but as being shared between the two 
b) Advertising in the media: In our societies, communication plays a key part in 
reinforcing the role models created by education and training. The media have, 
often and still tend to, stereotype men's and women's roles, especially in 
advertising. Without prejudice to freedom of expression, the Member States are 
called upon to take suitable measures to stop advertising undermining equality. 
c) Institutional communication: The Member States themselves use communication 
for the public good and for general interest. Action by and help from the State in 
preparing and disseminating campaigns designed to demonstrate the advantages 
of equality in decision-making have proved effective and should be stepped up. 
(l) The social partners, political organisations and media enterprises: Balanced 
participation of men and women in decision-making is not solely a matter for 
public institutions and the national administration. The States must alert all social 
and cultural partners and players to the importance of establishing such a balance 
in their organisations and must encourage them, by suitable means, to do so by 
preparing equal opportunities plans to ease access to decision-making for women. 
3. Showing how far men and women share decision-making, developing research, 
and taking advantage of and disseminating examples of sound strategy 
a) The need to compile and publish statistics: The existing imbalance between men 
and women in decision-making is not properly appreciated as there is a statistical 
time lag in this area. The States are thus encouraged to develop existing, or 
introduce new, statistics providing as accurate and complete as possible a picture 
of how the two sexes are represented in political, administrative, economic, social 
and cultural decision-making circles. These statistics must be published. 
b) The need for both quantitative and qualitative studies on the two sexes' 
involvement in decision-making Since the existing imbalances are ingrained in 
history and culture, any attempt to correct them will come up against prejudice 
and opposition The Member States are called upon to support, develop and 
publicise studies which help assess the situation in terms of scale and also identify 
the legal, social and cultural obstacles to more balanced participation of the sexes 
in decision-making. As calls for equal representation in decision-making are a 
recent development, it is also necessary to encourage research on partnership 
between men and women in the decision-making process, strategies conducive to 
such partnership and ways of assessing them. 
c) Experimentation and dissemination of good practice: Experimentation and 
dissemination of examples of good practice are needed to pave the way to equality 
in decision-making. Here, it is up to the States to support, encourage and raise the 
profile of initiatives taken in this area in order for them to become widespread. 
4. The specific role of the States 
a) As regards the presence of women in government: This is mainly a question of 
political will. Appointing more women to key posts in government is a way of 
setting an example to other sectors of society. It is therefore recommended that 
the Member States promote a better balance between men and women in 
government. 
b) As regards the presence of women in elected assemblies and advisory bodies: In 
spite of most efforts have been made in this area, there are few women in the 
elected assemblies at national, regional and local level in most Member States. 
The same is true of the advisory bodies which help to prepare public decisions. 
Here again, State action can bring about significant changes and induce a knock-
on effect. Plans or programmes, sometimes with target figures, and support 
measures for women to enable them to gain access to assemblies and bodies have 
proved effective The States are asked to continue implementing these or, if they 
do not yet exist, to introduce them. 
c) As regards decision-making in general government: The operational side of the 
civil services is mainly staffed by women, whereas management and supervisory 
staff are mainly men in the majority of the States. The States are reminded of the 
need to implement or step up equal opportunities plans in this sector and are 
called upon to ensure that, when civil servants are recruited by competition, men 
and women are equally represented in the committees and selection boards which 
prepare and conduct the competitions, as overrepresentation of one of the sexes 
is likely to affect the nature and content of the competition and the selection 
process. 
d) As regards communication enterprises: The media - be it the press, radio or 
television - have a special responsibility, as they produce information, images and 
programmes which themselves influence social behaviour It is thus crucial for the 
Slates to encourage these enterprises to adopt equal opportunities measures, 
particularly to equalise representation in their management bodies, especially those 
responsible for decisions concerning programme production 
PROPOSAL FOR 
A COUNCIL RECOMMENDATION ON THE BALANCED 
PARTICIPATION OF WOMEN AND MEN 
IN DECISION-MAKING 
THE COUNCIL OF HIE EUROPEAN UNION, 
having regard to the l'reaty establishing the European Community, and in particular 
Article 235 thereof, 
having regard to the Commission's proposal1, 
having regard to the opinion of the European Parliament2, 
having regard to the opinion of the Economic and Social Committee , 
having regard to the opinion of the Committee of the Regions4, 
Whereas the Council has adopted a series of legislative instruments and political 
commitments in the field of equal treatment and opportunities for men and women ; 
Council Directive 75/117/EEC on the approximation of the laws of the Member States relating to 
the application of the principle of equal pay for men and women, OJ No L 45. 19.2.75, p. 19. 
Council Directive 76/207/EEC on the implementation of the principle of equal treatment for men 
and women as regards access to employment, vocational training and promotion, and working 
conditions, OJ No L 39, 14 2.76, p. 40. 
Council Directive 79/7/EEC on the progressive implementation of the principle of equal treatment 
for men and women in matters of social security, OJ No L 6, 10.1.79, p. 24 
Council Directive 86/378/EEC on the implementation of the principle of equal treatment for men 
and women in occupational social security schemes, OJ No L 225, 12.8.86, p. 40. 
Council Directive 86/613/EEC on the application of the principle of equal treatment between men 
and women engaged in an activity, including agriculture, in a self-employed capacity and on the 
protection of self-employed women during pregnancy and motherhood, OJ No L 359, 19 12.86, 
p. 56. 
Council Directive 92/85/EEC on the introduction of measures to encourage improvements in the 
safety and health at work of pregnant workers and workers who have recent l\ given birth or are 
breastfeeding. OJ No L 348, 28.11.92, p. 1. 
Council Recommendation of 13 December 1984 on the promotion of positive action for women 
(84/635/EEC). OJ No L 331, 19.12.84. p. 34. 
Council Recommendation of 31 March 1992 on child care (92/242/EEC). OJ No L 123, 8.5.92. 
p. 16. 
Council Resolution of 12 July 1982 on the promotion of equal opportunities for women. OJ No 
C 1X6. 21.7.82. p. 3. ' 
Council Resolution of 7 June 1984 on action to combat unemployment amongst women. OJ No 
C loi. 21.0X4. p. 4. 
Resolution of the Council and of the Ministers for Education meeting within the Council of 3 June 
1985 containing an action programme on equal opportunities for girls and boys in education, OJ 
No C 166. 5 7X5, p. 1. f 
Whereas the Meads of State and Government, meeting within the European Council in 
lessen attd Cannes, stressed that equal opportunities for women and men and the fight 
against uneniploysieBi were paramount tasks of the European Union and its Member 
States, 
Whereas attention was focused on women's access to decisicm-making in the Council 
Recommendation of 13 December 1984 on the promotion of positive action for women, 
in the Council Resolution of 24 July 1986 on the promotton of equal opportunities for 
women and in the Council Resolution of 21 May 1991 on the Third Medium-Term 
Community Actios Programme on Equal Opportunities for Women and Men ( 1991-1995); 
Whereas the Council Resolution of 27 March 1995 on the balanced participation of 
women and men in deosion-niafcing called on the Member States to "promote the 
balanced participation of roen and women in dedsion-making as a priority objective in 
the context of their respective practices regarding equal opportunities for women and men 
and to adopt this objective as such in their government's programmes" and, moreover, 
called upon the Commission *to draw up a draft recommendation to be submitted to the 
Council aimed at promoting the balanced participation of women and men in decision­
making"; 
Whereas the European Parliament in its Resolution of 11 February 1994" "on women in 
decision-making bodies" asked the Commission wto step up implementation of the equal 
opportunities policy ... to combat individual obstacles which hinder women from taking 
part in decision-making" and to define "measures and actions to promote greater 
participation of women in the decision-making process"; 
Whereas the European Commission's Fourth Medium-Term Community Action 
Programme on Equal Opportunities for Women and Men (1996 to 2000)7, which has been 
submitted to the Council for decision, included promotion of the balanced participation 
of women and men in decision-making as one of its six main objectives; 
Whereas the Declaration and the Action Platform of the Fourth World Conference on 
Women stressed the need to ensure that responsibilities, powers and rights are shared 
Second Council Resolution of 24 July 1986 on the promotion of equal ppportunilies for women, 
OJ No C 203, 12.8 86. p. 2. 
Council Resolution of 16 December 1988 on the reintegration and late integration of women into 
wo*»g life, OJ N® C 333, 28.12.88, p.l. 
Council Resolution of 29 May 1990 on the protection of the dignity of women and men at work, 
OJ No C 157. 27.6.9», p. 3. 
Council Resolution of 2-1 May 1991 on Ihe third meéîum-tenit Community action programme on 
equal opportunities for women and men (1991-1995), OJ No C 142. 31.5.91. p. 1. 
Council Resolution of 22 June 1994 on the promotion of equal opportunities for men and women 
through action by the European Structural Funds, OJ No C 231. 20.8.94, p. 1. 
Council Resolution of 6 December 1994 on equal participation by women in an employment-
intensive economic growth strategy within the European Union, OJ No C 368, 29.12.94. p. 3. 
Council Resolution of 27 March 1995 on the balanced participation of women and men in 
decision-making. OJ No C 168, 4.7.95, p. 3. 
A3-0035/94. 11.02.94 (EP 179.623) 
COM(95) 381 final, 95/0206 (CNS) 
6 
equally, and that the Member States are fully involved in the implementation of the 
platform for action*; 
Whereas the underrepresentation of women in decision-making bodies is largely a result 
of the delay in women's attaining equal rights and of obstacles to their gaining economic 
independence; 
Whereas women are still underrepresented in such bodies be they public or private, 
political, administrative, economic, social or cultural; 
Whereas women account for over half the population and balanced participation of 
women and men in representation and administration of nations is a requirement for 
democracy, 
Whereas the underrepresentation of women in decision-making posts constitutes a loss 
for society as a whole and does not allow the interests and needs of the whole population 
to be catered for in full; 
Whereas a balanced participation of men and women in decision-making is likely to give 
rise to different ideas, values and behaviour which will result in more justice and equality 
in the world for both men and women; 
Whereas the Member States, the social partners, political parties and organisations, NGOs 
and the media have a key role to play in creating a society where public and private, 
economic, political and domestic responsibilities are shared equally by women and men; 
Whereas, in conformity with the principle of subsidiarity and proportionality as set out 
in Article 3B of the Treaty establishing the European Community, the aim of the present 
Recommendation -the balanced participation of women and men in decision-making- can 
be pursued more effectively by the exchange of information and examples of good 
practice within a common framework for all Member States; it is therefore appropriate 
to propose, at Community level, guidelines to promote a balanced representation of 
women and men in decision-making bodies; whereas the present recommendation is 
limited to the minimum necessary to obtain this objective and does not exceed what is 
necessary; 
Whereas the Treaty does not confer, for the purpose of the adoption of this 
Recommendation, any other powers that those set out in article 235, 
RECOMMENDS THAT THE MEMBER STATES: 
Adopt a comprehensive and integrated strategy designed to promote balanced 
representation of women and men in places of power, influence and decision, and 
develop or introduce suitable legislative or regulatory measures or incentives to 
achieve this 
Communication from the Commission to the Council of 29.5.1995 (COM(95)221 final) on a new 
partnership between women and men : Equal sharing and participation 
? 
a) Highlight'in school textbooks and curricula and in education and training at all 
levels the role and the contribution of women in society and stress the importance 
of sharing both public and private responsibilities between women and men, 
b) Take suitable steps so that the image of women and men in the media and 
advertising neither reinforces nor consolidates unjustified stereotyping of men's 
and women's responsibilities, 
c) Devise, encourage and propagate public campaigns to alert public opinion to the 
usefulness and advantages for society as a whole of balanced participation by 
women and men in decision-making, 
d) Alert the social partners, political parties and groups, associations and NGOs and 
the media to the importance of a balance between women and men in decision­
making bodies, and encourage them to develop equal opportunities plans with 
measures to ease access to decision-making for women. 
a) Develop or promote the production and publication of statistics illustrating how 
men and women are represented in decision-making circles in general and in 
political and administrative domains, public councils and committees, 
administrative and management boards at national, regional and local level and 
in the economy and social and cultural life in particular, 
b) Support, develop and encourage quantitative and qualitative studies on women and 
men in decision-making and especially on the legal, social or cultural obstacles 
to decision-ma-king for persons of either sex, on ideas and concepts which are 
likely to enhance the concept of a democratic partnership between women and 
men and on strategies to bring about equality in decision-making, 
c) Support and encourage initiatives creating examples of good practice in the 
various areas of decision-making and develop programmes for the dissemination 
and exchange of experience with a view to propagating such practice 
4. 
a) Promote a better balance between women and men at all levels of government, 
b) Introduce or pursue active measures, such as mentorship activities and target 
figures, to promote a balance between women and men in political 
representation at national, regional and local level, including advisory bodies 
which contribute to public decision-making. Particular attention should be paid to 
the promotion of a balanced composition in committees, commissions and 
working groups at national as well as European level. 
J> 
c) Implement or develop equal opportunities plans for the public sector 
incorporating the concept of balanced participation in decision-making, and 
ensure, when recruitment competitions take place, that women and men are, as far 
as possible, represented equally in the committees responsible for preparing 
competitions and in the selection boards, 
d) Encourage the private sector to increase the presence of women at all levels of 
decision-making, notably by the adoption, or within the framework, of equality 
plans or positive action programmes, 
e) Encourage press, radio and television organisations to adopt measures to 
promote balanced participation by women and men in production, management 
and decision-making bodies, 
AND THEREFORE CALLS ON THE COMMISSION 
I to step up its efforts to provide information, alert public opinion, encourage 
research and promote pilot activities to achieve balanced participation by women 
and men in decision-making, 
2. to encourage and organise, in conjunction with the Member States, systematic 
pooling of experience and assessment of policies implemented to achieve a 
balance between women and men in decision-making, 
3 to submit a report to the Council, within three years of adoption of this 
Recommendation, on progress achieved in implementing it on the basis of 
information provided by the Member States. 
7 
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COM(95) 593 final 
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