Contribution ID: 206a69f8-a382-43f9-9f9d-aa14f78a60d3
Date: 02/04/2019 13:47:22

Evaluation of the relevant provisions of EU law implementing the Treaty principle on
'equal pay for equal work or work of equal value'
Fields marked with * are mandatory.

Public consultation on the Evaluation of the relevant provisions of EU law
implementing the Treaty principle on 'equal pay for equal work or work of equal value'

Introduction
The Gender Equality Recast Directive requires Member States to ensure that any laws, regulations and
administrative provisions contrary to the principle of equal treatment are abolished. Besides, Member
States have to introduce measures to enable persons who consider themselves wronged by a failure to
apply the principle of equal treatment to pursue their claims by judicial process, possibly after recourse to
other competent authorities. Therefore, effective, proportionate and dissuasive penalties for breaches of
the obligations under the Directive must be provided by the Member States. The Directive also lays down
rules to alleviate the burden of proof on claimants pursuing discrimination claims, including pay
discrimination, and contains provisions regarding victimization, protecting persons lodging complaints
from adverse treatment.
An evaluation of the implementation of Gender Equality Recast Directive carried out in 2013 showed that
the main challenge is to implement the provisions of the Directive relating in particular to the enforcement
and legal interpretation of the principle of 'equal pay for work of equal value'. It also demonstrated that the
problem of gender pay inequalities is greater in the private sector, where there is generally more
discretion in wage setting. These problems are confirmed by cases brought before the Court of Justice of
the European Union, cases reported by the equality bodies and complaints submitted to the European
Commission.
In order to raise awareness about the persistence of (unconscious) gender bias in pay and to incentivize
companies to take initiatives to analyse and revise their pay structures, the 2014 Pay Transparency
Recommendation provided four core measures to improve pay transparency. Member States were
encouraged to implement the most appropriate measures in view of their specific circumstances and
include at least one of these core measures. However, the 2017 Implementation Report of the
Recommendation revealed very limited follow-up to the Recommendation: in a third of Member States,
transparency-enhancing measures are still entirely absent. It also revealed that the current national
transparency measures in place are insufficient and not effective on their own.
As a result, the Commission decided to launch a more in-depth evaluation of the existing EU legal
provisions of the Gender Equality Recast Directive and Pay transparency recommendation implementing
the Treaty principle on “equal pay for equal work and work of equal value” for women and men. The
present public consultation is intended to feed into that assessment.

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Background documents:
1. The Treaty on the Functioning of the European Union (see Article 157);
2. Directive 2006/54/EC of the European Parliament and of the Council of 5 July 2006 on the
implementation of the principle of equal opportunities and equal treatment of men and women in matters
of employment and occupation (recast);
3. Commission Recommendation of 7 March 2014 on strengthening the principle of equal pay between
men and women through transparency;
4. Report from the Commission to the European Parliament and the Council on the application of
Directive 2006/54/EC of the European Parliament and of the Council of 5 July 2006 on the
implementation of the principle of equal opportunities and equal treatment of men and women in matters
of employment and occupation (recast), COM(2013) 861 final;
5. Report from the Commission to the European Parliament, the Council and the European Economic and
Social Committee on the implementation of Commission Recommendation on strengthening the principle
of equal pay between men and women through transparency, COM(2017) 671 final
Consultation questions

I. General part
The principle of equal pay between women and men is enshrined in Article 157 of the Treaty on the
Functioning of the European Union. In line with the Treaty, Gender Equality Recast Directive 2006/54/EC
prohibits any direct and indirect discrimination on grounds of sex with regard to all aspects and conditions
of remuneration for the same work or work to which equal value is attributed. It requires that where a job
classification system is used for determining pay, it should be based on the same criteria for both men
and women and so drawn up as to exclude any discrimination on grounds of sex.
In accordance with settled case-law of the Court of Justice of the EU, the notion of “pay” includes not only
basic pay, but also, for example, overtime supplements, special bonuses paid by the employer, travel
allowances, compensation for attending training courses and training facilities, termination payments in
the case of dismissal and occupational pensions. Furthermore, in order to assess whether workers are
performing the same work or work of equal value, it should be determined whether, having regard to a
range of factors including the nature of the work and training and working conditions, those workers may
be considered to be in a comparable situation.
Member States should ensure that all employment-related arrangements, including provisions in
individual or collective agreements and contracts, internal company rules, rules governing independent
professions and rules governing employees’ and employers’ organisations contradicting the principle of
equal pay should be or may be declared null and void or may be amended.
1. Would you say that men and women are paid equally for the same work or work of equal value
in your country?
Yes
Partially
No
Do not know

Comments, if any:

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Comments, if any:
Uit het meest recente onderzoek dat het Centraal Bureau voor de Statistiek (CBS) in opdracht van het
ministerie van Sociale Zaken en Werkgelegenheid heeft gedaan naar beloningsverschillen tussen mannen
en vrouwen bij de overheid en in het bedrijfsleven blijkt dat er nog steeds een beloningsverschil bestaat
tussen vrouwen en mannen. Bij de bepaling van het verschil wordt onder meer gebruik gemaakt van
enquêtegegevens. Dit betekent dat er rekening gehouden moet worden met onzekerheidsmarges rondom
de uitkomsten.
Het ongecorrigeerde beloningsverschil tussen mannen en vrouwen bedraagt in 2016 19 procent in het
bedrijfsleven en 8 procent bij de overheid. Wanneer rekening wordt gehouden met bepaalde
achtergrondkenmerken waarvan bekend is dat ze sterk samenhangen met beloning, zoals leeftijd,
arbeidsduur en opleidingsniveau, bedraagt het beloningsverschil in 2016 in het bedrijfsleven 7 procent en bij
de overheid 5 procent. Dit wordt het gecorrigeerde beloningsverschil genoemd. Het CBS geeft aan dat het
resterende ‘onverklaarde loonverschil tussen vrouwen en mannen’ (het gecorrigeerde beloningsverschil) een
voorzichtige indicatie van het bestaan van ongelijk loon voor gelijkwaardige arbeid geeft. Belangrijk daarbij is
dat het CBS aangeeft dat op basis van het onderzoek niet is te zeggen in hoeverre feitelijk sprake is van
beloningsdiscriminatie, waarbij meestal vrouwen minder betaald worden voor gelijkwaardig werk
Dit onderzoek is vier keer eerder uitgevoerd door het CBS. Om vast te stellen wat de trend is, is door het
CBS een lijn geschat op basis van de vijf gecorrigeerde beloningsverschillen over de jaren 2008, 2010,
2012, 2014 en 2016. Het CBS concludeert op basis hiervan dat er, gegeven de op dit moment bekende
data, een gestage afname van het gecorrigeerde beloningsverschil bestaat bij zowel de overheid als het
bedrijfsleven in de onderzochte periode.

2. How effective do you consider that the implementation of the equal pay principle in your
country is?
Very
effective

Somewhat

Somewhat

effective

ineffective

Very
ineffective

Do
not
know

In the public sector
In associations and nongovernmental organisations
In academic / research funding and
performing organisations, including
universities
In the private sector, in particular:
Large enterprises (from 250
employees)
Medium-sized enterprises (50 to 249
employees)
Small enterprises (10 to 49
employees)

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Microenterprises (less than 10
employees)

Comments or explanations, if any:

8

3. In your opinion, which of the following measures enshrined in the Gender Equality Recast Directive have been effective in your country in
facilitating respect of equal pay rights for women and men?
Very

Somewhat

Somewhat

Very

Do not

No such measures in

effective

effective

ineffective

ineffective

know

my country

Access to information on pay levels in the
private sector
Access to information on pay levels in the public
sector
Enforceable rules on equal pay for equal work
Enforceable rules on equal pay for work of
equal value
The use of gender-neutral job classification
systems
The use of gender-neutral job evaluation
systems
Recurrent analysis and review of pay structures
at employer level
Promotion of social dialogue between the social
partners

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Comments or explanations, if any:

4. In your opinion, which of the following measures enshrined by the Gender Equality Recast
Directive have been effective in your country in ensuring the protection of a worker claiming
enforcement of his/her rights to equal pay?
Very
effective

Somewhat

Somewhat

effective

ineffective

Very
ineffective

Do
not

No such
measures

know

in my
country

In case of a legal
claim by an employee,
putting a duty on the
employer to prove that
there has been no
breach of the principle
of equal pay (burden of
proof)
Right to adequate
compensation /
reparation for victims of
discrimination
Protection of
employees lodging
complaints against
dismissal or other
adverse treatment
Effective,
proportionate and
dissuasive penalties for
discrimination faced by
employees

Comments or explanations, if any:

5. Would you agree/disagree with the following statements about the broader impact of the
Gender Equality Recast Directive and EU Pay Transparency Recommendation?
Do
Agree

Somehow

Somehow

agree

disagree

Disagree

not
know

There has been increased public debate
about the need to ensure pay transparency

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There has been increased public debate
about the need to introduce effective
measures to ensure the implementation of
equal pay for work of equal value
There has been increasing attention by
employers and trade unions to develop
gender neutral job classification and job
evaluation systems
The need for pay transparency has been
increasingly taken into account in wider
policy measures
The need to ensure equal pay for work of
equal value has impacted policy actions
more widely
Equality bodies have been empowered to
play a more significant role in implementing
the principle of equal pay for work of equal
value by supporting enforcement (e.g. in
providing guidance, receiving complaints,
victim representation)

Comments or explanations, if any:

6. Would you agree/disagree with the following statements about the national measures in your
country facilitating respect of equal pay rights for women and men and protection of a worker
claiming his/her rights?
Do
Agree

Somehow

Somehow

agree

disagree

Disagree

not
know

National measures made employers
aware of (unconscious) gender bias in pay
National measures made employees
aware of gender pay gaps
National measures allowed for
comparisons of job content to find a
comparator performing work of equal value
even where one is not present in the same
employer
National measures triggered employers to
analyse their pay structures and assess the
extent of pay discrimination based on
gender

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National measures ensured that follow-up
actions are taken by employers where
unjustified gender gaps in pay have been
revealed
National measures helped to ensure
access to justice for victims of genderbased pay discrimination

Comments or explanations, if any:

7. Do you think that over the last 10 years progress has been made in your country in facilitating
the enforcement of equal pay rights for women and men?
Agree
Somewhat agree
Somewhat disagree
Disagree
Don't know

Comments or explanations, if any:
Sinds 2008, het eerste verslagjaar van de Monitor loonverschillen mannen en vrouwen,
is de loonkloof zowel bij de overheid als het bedrijfsleven kleiner geworden, maar deze
afname gaat sneller bij de overheid dan bij het bedrijfsleven (zie onderstaande figuur). In
2008 is de loonkloof bij de overheid 16 procent, bij het bedrijfsleven 22 procent. In 2016 is
de loonkloof tussen mannen en vrouwen bij de overheid gedaald naar 8 procent,
bij het bedrijfsleven naar 19 procent.
Zowel internationaal als nationaal is al veelvuldig onderzoek gedaan naar de loonkloof
tussen mannen en vrouwen, een overzicht hiervan is te vinden in het rapport ‘Gelijk loon
voor gelijk werk?, 2014’ op www.cbs.nl. Voor de verklaring van deze loonkloof wordt dan
gekeken naar factoren waarvan bekend is dat ze sterk samenhangen met beloning. In dit
onderzoek is gekeken naar de effecten van een groot aantal werknemers- werkgevers- en
baankenmerken, namelijk:
—— Kenmerken van de werknemer: geslacht, leeftijd, herkomst, onderwijs (-niveau en
-richting), werkervaring, arbeidshandicap, huishoudenssituatie, inkomen partner;
—— Kenmerken van de werkgever: sector, aantal werknemers, percentage vrouwen,
winstgevendheid, vestigingsregio;
—— Kenmerken van een baan; beroepsniveau, beroepsrichting, contractvorm, voltijd/
deeltijd, soort arbeidsrelatie, leiding geven, managementfunctie.
Na correctie voor verschillen in bovenstaande kenmerken blijft bij de overheid een
loonverschil tussen vrouwen en mannen van 5 procent bestaan. In het bedrijfsleven
is dat 7 procent (zie figuur 2.1).
Bron: https://www.cbs.nl/nl-nl/maatwerk/2018/47/monitor-loonverschillen-mannen-en-vrouwen-2016

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8. Do you think that over the last 10 years progress has been made in your country in ensuring the
protection of workers claiming these rights (e.g. against dismissal or adverse treatment by
employer)?
Agree
Somewhat agree
Somewhat disagree
Disagree
Don't know

Comments or explanations, if any:
Gelijke behandeling en ontslagbescherming zijn in Nederland goed geregeld. Ingeval een werkgever een
werknemer met een vast dienstverband wil ontslaan wordt in de ontslagprocedure getoetst of er geen gelijke
behandelingsregels zijn geschonden. Ook kan tijdens het vaste dienstverband op andere punten gelijke
behandeling worden afgedwongen. In geval een werknemer een contract voor bepaalde tijd heeft en dit
contract wordt niet verlengd en vermoed wordt dat sprake is van ongelijke behandeling kan de werknemer
naar het College voor de Rechten van de Mens gaan. Deze uitspraken zijn weliswaar niet bindend, maar
hebben wel gezag.

9. What are the obstacles to an effective implementation of the principle of equal pay for women
and men?
Do
Agree

Somehow

Somehow

agree

disagree

Disagree

not
know

Lack of legal certainty of national equal
pay rules
Lack of job evaluation systems
Lack of effective application of existing job
evaluation systems
Lack of capacity of enforcement bodies
Limitations imposed by data protection
rules
Entrenched features of collective
bargaining systems
Limited applicability of the equal pay rules
to the private sector
Limited applicability of the equal pay rules
to small/medium-sized companies
Limited applicability of the equal pay rules
to the research organisations
Lack of effective compensation systems
for victims

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Lack of dissuasive penalties for employers
Lack of awareness among employees of
existing rights equal pay rules
Lack of awareness among employers of
existing rights equal pay rules
Lack of capacity of the public
administration to ensure a follow up action
is taken by employers, even if unjustified
gender gaps in pay have been revealed

Other, please specify:

II. Pay transparency
In 2014, the Commission, by adopting Recommendation 2014/124/EU on strengthening the principle of
equal pay between men and women through transparency, suggested that every Member State adopt (or
adapt) at least one out of four measures ensuring greater transparency of pay:
employee’s right to request information from his /her employer on pay levels, broken down by
gender, for categories of employees doing the same work or work of equal value;
employer’s duty to report on wage structures by category of employee or position, broken down by
gender;
analytical gender pay audits in large companies; and
inclusion of equal pay aspects in collective bargaining and collective agreements

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10. How important do you find the below mentioned benefits of the pay transparency measures in your country?
Very

Rather

Rather

important

Important

unimportant

Not at

Do

No such

all

not

measures in

important

know

my country

The right for employees to request pay information enables employees to
enforce their right to equal pay for work of equal value
The employers’ duty to provide and publish pay information helps to
create an atmosphere of trust
Having access to pay information increases employees’ motivation and
productivity
Increased employee motivation linking to greater pay transparency helps
to reduce labour turnover
Increased employee motivation linked to greater pay transparency
increases companies’ economy performance
Greater pay transparency contributes to a better image of the employer
Greater pay transparency contributes towards the reduction of the gender
pay gap

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Comments or explanations, if any:

The aim of the questions below is to gather opinions on any possible impact on administrative burden,
wages, and working environment resulting from of the implementation of pay transparency measures.
11. How likely do you think the following risks might occur in case pay transparency measures are
applied in your country?
Very
large
extent

Rather

Rather

Not

large

small

at

extent

extent

all

Do

No such

not

measures in

know

my country

Increasing administrative
burdens/costs for employers
Increasing administrative
burdens/costs for public
authorities
Increasing wage demands and
/or labour costs
Disclosure of pay information
leads to a hostile work
environment
Limiting employers' freedom to
negotiate wages

Other, please specify:
Overigens is dit lastig te beantwoorden, om dat dit afhankelijk is van het systeem dat wordt gekozen.

12. In your country, do you think that the implementation of pay transparency measures has led to
higher implementation costs compared to the benefits resulting from it?
Please consider both monetary and non-monetary costs for you or your organisation. Please provide
explanations, facts and figures below.
Yes
No
Do not know

Comments or explanations, if any:

16

III. Enforcement measures and protection of victims of gender-based pay
discrimination

13. In your country, which enforcement measures are in place against employers in cases of
proven pay discrimination based on gender? Which of them do you find dissuasive?

Very

Rather

dissuasive

dissuasive

No such

Rather
not
dissuasive

Not

measures

dissuasive

in my
country

Monetary fines
Disqualification from public
procurement
Disqualification from public
benefits, subsidies
Publication of pay
discrimination judgments
“Naming and shaming” an
employer guilty of gender-based
pay discrimination

Other, please specify:

14. In your country, how important are the possible factors mentioned below which would
influence a person’s decision to avoid seeking redress in case of alleged pay discrimination based
on gender?
Very

Rather

Rather

important

important

unimportant

Not at

Do

all

not

important

know

Lack of knowledge on how/where to
complain
Inadequate levels of compensation for
victims
Lengthy and costly litigation
Lack of support from professional
bodies (e.g. equality bodies etc.)
Perception that no action will be taken
to remedy a wrongdoing

17

Fear of professional consequences (e.
g. lack of promotion, discontinuation of
an employment contract)

Other, please specify:

15. Which of the following measures would encourage victims of gender-related pay
discrimination to seek a redress in your country, and to what extent?
Very

Rather

Rather

Not

large

large

small

at

extent

extent

extent

all

Do
not
know

Clear information and awareness-raising by the State
(e.g. information campaigns) concerning the right to
redress for victims of pay discrimination (including on
advice, assistance, applicable procedures and costs)
Clear information for individuals about the possibility
to be represented in the judicial and/or administrative
procedure by the equality body.
Awareness of individuals that their claim is facilitated
by the fact that it is up to the employer in a judicial
procedure to prove that there was no breach of the
principle of equal pay (burden of proof)
Clear information on pay systems at company level
(e.g. regarding the existence of a comparator
performing work of equal value in the company
/organisation)
Clear information by employers to their employees on
the right to compensation for victims of pay
discrimination and on the internal procedures in place
Clear information and awareness-raising by trade
unions concerning the right to redress for victims of
pay discrimination

Other, please specify:

16. Do you think that the measures (legal or administrative) which exist in your country are
sufficient to combat gender-related pay discrimination, or that there is a need for some further EUlevel action on measures to address such discrimination?
Existing measures at national level are sufficient
Existing measures at EU level are sufficient

18

Member States should enhance existing legislative measures
EU should enhance existing legislative measures
There is a need for further non-binding national measures
There is a need for further non-binding EU measures
There is a need for new legislative measures at national level
There is a need for new legislative measures at EU level
Do not know

Comments or explanations, if any:
Zie ook de Kamerbrief Implementatieplan Arbeidsmarktdiscriminatie die eind 2018 naar de Tweede Kamer is
gestuurd; https://www.rijksoverheid.nl/documenten/kamerstukken/2018/11/22/kamerbrief-implementatieplanarbeidsmarktdiscriminatie-2018-2021

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