CELEX: 51995PC0593
Language: en
Date: 1995-11-29
Title: Proposal for a COUNCIL RECOMMENDATION on the balanced participation of women and men in decision-making

COMMISSION OF THE EUROPEAN COMMUNITIES
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                                            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)
 ---pagebreak---  ---pagebreak---                                           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
 ---pagebreak--- 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.
 ---pagebreak--- 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-
 ---pagebreak---    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
 ---pagebreak---                                            PROPOSAL FOR
              A COUNCIL RECOMMENDATION ON THE BALANCED
                        PARTICIPATION OF WOMEN AND MEN
                                     IN DECISION-MAKING
THE COUNCIL OF H I E 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
 ---pagebreak--- 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
        w o * » 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
 ---pagebreak--- 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
                                                                                                   ?
 ---pagebreak--- 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>
 ---pagebreak--- 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
 ---pagebreak--- ***»*a*»«^^
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                                                                   ISSN 0254-1475
                                                            COM(95) 593 final
                                               DOCUMENTS
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                                      Catalogue number : CB-CO-95-659-EN-C
                                                              ISBN 92-77-97171-1
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