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Gender representation in the Parliamentary Assembly

Doc. 15366: compendium of written amendments | Doc. 15366 | 28/09/2021 | Final version

Compendium index

Amendment 13 Sub-amendment 1 to amendment 13 Sub-amendment 2 to amendment 13 Sub-amendment 3 to amendment 13 Amendment 1 Sub-amendment 1 to amendment 1 Amendment 2 Sub-amendment 1 to amendment 2 Amendment 3 Amendment 4 Sub-amendment 1 to amendment 4 Amendment 5 Amendment 6 Amendment 14 Amendment 16 Amendment 7 Sub-amendment 1 to amendment 7 Amendment 15 Sub-amendment 1 to amendment 15 Amendment 8 Sub-amendment 1 to amendment 8 Amendment 9 Sub-amendment 1 to amendment 9 Amendment 10 Amendment 11 Amendment 12

Caption: AdoptedRejectedWithdrawnNo electronic votes

ADraft Resolution

1The sharing of responsibilities in political and public decision making between women and men is an inherent element of any true and effective democracy, a matter of equity and justice, and responds to the necessarily legitimate aspirations that have been expressed in our societies for decades. Women's empowerment and capacity building are essential to achieve women's effective and active participation in representative institutions and decision-making bodies. Our societies are composed of an equal number of men and women. Combining this reality with political representation and establishing parliamentary parity is a legitimate objective; where there is political will and where the impetus is given at the highest institutional level, parity can become the norm.
2In ten years, the proportion of women in the Parliamentary Assembly has increased to 37%, reflecting the clear progress made in most member States' national parliaments, where the entry of more women into each new legislature has been made possible by proactive electoral legislation. However, whether in the Assembly or in national parliaments, women are still the under-represented sex; in only ten national parliaments in Europe do women hold more than 40% of the seats.
3The Assembly congratulates the member States which, through their proactive legislation, but also through awareness-raising, accompanying, support and training policies, have made it possible to open the doors of legislative power more widely and sustainably to women. It recalls all the recommendations it made in its Resolution 2290 (2019) “Towards an ambitious Council of Europe agenda for gender equality”, its Resolution 2111 (2016) “Assessing the impact of measures to improve women’s political representation”, its Resolution 1781 (2010) "A minimum of 30% of representatives of the under-represented sex in Assembly national delegations” and its Resolution 1585 (2007) “Gender equality principles in the Parliamentary Assembly”. The Assembly once again urges the national parliaments of member States, in particular the 16 national parliaments with less than a quarter of women members, to make women's access to elective office a priority, in line with the recommendations of the Assembly and the Committee of Ministers of the Council of Europe, as contained in Recommendation Rec(2003)3 of the Committee of Ministers on balanced participation of women and men in political and public decision making and Recommendation CM/Rec (2007) 17 of the Committee of Ministers on gender equality standards and mechanisms.
4In 2007, the Assembly set a target for national parliaments to ensure that their delegations include "a percentage of women at least equal to the percentage of women in their national parliament, with a target of at least 30%, bearing in mind that the threshold should be 40%". 32 out of 47 national delegations include a percentage of women greater than or equal to 30%, of which 21 delegations have a percentage greater than or equal to 40%. In this respect, the Assembly congratulates the national parliaments of Albania, Andorra, Bosnia and Herzegovina, Croatia, Finland, Iceland, Ireland, the Republic of Moldova, Monaco, North Macedonia, Norway, San Marino and the Slovak Republic for guaranteeing parity in their parliamentary delegations to the Assembly, even though some of them come from parliaments with a much lower percentage of women.
5All the parliamentary delegations shall comply with the requirement set out in Rule 7.1.b of the Rules of Procedure to include at least one woman representative (full member). This requirement, which is binding for small delegations, is unquestionably minimal for medium-sized delegations and even more so for large delegations of 20, 24 or 36 members. In order to promote progress towards parity, and to call on certain parliaments to set a higher example, the regulatory requirements will have to be increased.
6The Assembly therefore intends to redefine the representation criteria that national parliaments must meet when setting up their delegations to the Assembly. In this respect, it considers that a delegation made up entirely of women does not respect the principle of equal gender representation in the Assembly.
7Finally, the Assembly supports the political objective in the Council of Europe of promoting the threshold to be reached for participation of women and men that is 40% minimum for each sex. However, such an objective cannot at present be regarded as a regulatory principle, the disregard of which by national delegations would be sanctioned. The Assembly therefore formally undertakes to increase the minimum representation of each sex in its delegations to 40% as from the opening of its 2026 session.
8In order to make the Assembly more representative and to encourage national delegations to promote more effectively the political objective of equal representation of women and men in the Assembly, in keeping with a non-discriminatory approach, which takes into account the size of the delegations, the Assembly decides to amend its Rules of Procedure as follows:
8.1with regard to the composition of national delegations, in Rule 6.2.a, delete the second sentence and add the following new paragraph [new Rule 6.2.b]:

28 September 2021

Tabled by Mr Olivier BECHT, Ms Martine LEGUILLE BALLOY, Mr André GATTOLIN, Ms Isabelle RAUCH, Ms Nicole DURANTON, Ms Catherine KAMOWSKI, Ms Liliana TANGUY

If adopted, amendment 1 falls.

Votes: 74 in favor 20 against 15 abstentions

In the draft resolution, paragraph 8.1, replace the words: “Each national delegation shall include members of the under-represented sex [footnote 1] to ensure at least the following gender representation” with the following words:

"Each national delegation must include both women and men among its representatives. Each national delegation shall include members of the under-represented sex [footnote 1] at least in the same percentage as in its parliament or, if this is more favourable to the representation of the under-represented sex, ensure gender representation as follows:”

28 September 2021

Tabled by the (Former) Committee on Rules of Procedure, Immunities and Institutional Affairs

In amendment 13, replace the second sentence in inverted commas with the following sentence:

"As long as women are under-represented in the Parliamentary Assembly, each national delegation shall include women as members at least in the same percentage as in its parliament or, if this is more favourable to the representation of women, ensure gender representation as follows:"

28 September 2021

Tabled by Ms Béatrice FRESKO-ROLFO, Mr Jacques MAIRE, Ms Mònica BONELL, Mr Pierre-Alain FRIDEZ, Ms Marica MONTEMAGGI, Mr Gerardo GIOVAGNOLI, Mr Pere LÓPEZ, Ms Eva LÓPEZ

ln amendment 13, replace the second sentence in inverted commas with the following sentence:

"As long as women are under-represented in the Parliamentary Assembly, each national delegation with three seats (6 members) or more shall include women as members at least in the same percentage as in its parliament or, if this is more favourable to the representation of women, ensure gender representation as follows:" and delete the first bullet point.

Explanatory note

Amendment 13 already requires 2-seat (4 member) delegations to include 1 woman and 1 man as representatives. These delegations cannot be expected to include 50% women as soon as their national parliament has at least 26% women. The "at least the same percentage" requirement should be waived for them.

28 September 2021

Tabled by Ms Béatrice FRESKO-ROLFO, Mr Jacques MAIRE, Ms Mònica BONELL, Mr Pierre-Alain FRIDEZ, Ms Marica MONTEMAGGI, Mr Gerardo GIOVAGNOLI, Mr Pere LÓPEZ, Ms Eva LÓPEZ

In amendment 13, in the last sentence, after the words "Each national delegation", insert the following words:

"with three seats (6 members) or more" and delete the first bullet point.

Explanatory note

Same as for written sub-amendment 2.

28 September 2021

Tabled by the Committee on Equality and Non-Discrimination

Falls if amendment 13 is adopted.

In the draft resolution, paragraph 8.1, replace the words "Each national delegation shall include members of the under-represented sex [footnote 1] to ensure at least the following gender representation" with the following words:

"The composition of each national delegation shall include both women and men. Delegations with two seats (4 members) shall include at least one woman as a representative. The composition of each national delegation with three seats (6 members) or more shall include at least the same percentage of women as in the composition of the national parliament appointing the delegation, unless this national parliament is composed of more than two-thirds of members of one sex. In the latter case, the following rules shall apply".

Explanatory note

This reinstates the requirement that delegations reflect the composition of their national parliaments, where it is more balanced than one-in-three. Promoting equal gender representation within the Assembly, which this report is intended to support, will not be possible if delegations appointed by gender-balanced parliaments are subject only to the "one-in-three" principle.

28 September 2021

Tabled by Ms Béatrice FRESKO-ROLFO, Mr Jacques MAIRE, Ms Mònica BONELL, Mr Pierre-Alain FRIDEZ, Ms Marica MONTEMAGGI, Mr Gerardo GIOVAGNOLI, Mr Pere LÓPEZ, Ms Eva LÓPEZ

In amendment 1, after the words "ln the draft resolution, paragraph 8.1,", insert the following words:

"delete the first bullet point and".

28 September 2021

Tabled by the Committee on Equality and Non-Discrimination

Votes: 84 in favor 9 against 18 abstentions

In the draft resolution, paragraph 8.1, replace, everywhere they appear, the words "shall have a minimum of [N1] members of the under-represented sex, including [N2] representative(s) of the under-represented sex" with the following words:

"shall have a minimum of [N1] women and [N1] men, including at least [N2] woman(women) and [N2] man(men) as representatives". (The numbers [N1] and [N2] shall be the same as the numbers in the respective sub-paragraphs of paragraph 8.1 of the draft resolution.)

Explanatory note

All numbers remain unchanged as compared with paragraph 8.1 of the draft resolution. However, the wording is simplified to avoid the term "the under-represented sex".

28 September 2021

Tabled by the (Former) Committee on Rules of Procedure, Immunities and Institutional Affairs

In Amendment 2, replace the words "shall have a minimum of [N1] women and [N1] men, including at least [N2] woman(women) and [N2] man(men) as representatives" with the following words:

"shall have a minimum of [N1] women, including at least [N2] woman(women) as representative(s)"

8.1.1“Each national delegation shall include members of the under-represented sex [footnote 1] to ensure at least the following gender representation:
8.1.2delegations with two seats (4 members) shall include at least one representative of the under-represented sex;
8.1.3delegations with three seats (6 members) shall have a minimum of 2 members of the under-represented sex, including one representative of the under-represented sex [footnote 2];
8.1.4delegations with four seats (8 members) shall have a minimum of 3 members of the under-represented sex, including one representative of the under-represented sex;
8.1.5delegations with five seats (10 members) shall have a minimum of 3 members of the under-represented sex, including two representatives of the under-represented sex;
8.1.6delegations with six seats (12 members) shall have a minimum of 4 members of the under-represented sex, including two representatives of the under-represented sex;
8.1.7delegations with seven seats (14 members) shall have a minimum of 5 members of the under-represented sex, including three representatives of the under-represented sex;
8.1.8delegations with ten seats (20 members) shall have a minimum of 7 members of the under-represented sex, including four representatives of the under-represented sex;
8.1.9delegations with twelve seats (24 members) shall have a minimum of 8 members of the under-represented sex, including four representatives of the under-represented sex;
8.1.10delegations with eighteen seats (36 members) shall have a minimum of 12 members of the under-represented sex, including six representatives of the under-represented sex.”
8.1.11[footnote 1: “For the purpose of the present Rules of Procedure, the under-represented sex is considered to be the one holding less than 40% of the total number of seats in the Assembly.”
8.1.12footnote 2: “Pursuant to Resolutions 1113 (1997) and 1376 (2004), the delegation of Cyprus can only fill 4 of the 6 seats to which it is entitled; it should be considered as a four-member delegation”];
8.2in order to clarify the procedural grounds for a challenge to the credentials of a national delegation relating to its composition, replace Rule 7.1.b with the following:

28 September 2021

Tabled by the Committee on Equality and Non-Discrimination

Votes: 38 in favor 58 against 18 abstentions

In the draft resolution, after paragraph 8.2, insert the following paragraph:

"Delete the second sentence of Rule 7.2 and insert a new paragraph after Rule 7.2 as follows: "Credentials challenged because they do not respect the criteria set out in Rule 6.2.b shall not be ratified. By derogation from Rule 10.1 of the Rules of Procedure, the Assembly decides not to ratify the credentials of the delegation concerned until its composition has been brought into conformity with Rule 6.2.b of the Rules of Procedure.""

Explanatory note

Delegations that do not respect the rules on gender representation should not be able to participate in the Assembly’s work. The Assembly should however give them an opportunity to align their composition with the Rules of Procedure. The procedure regarding credentials challenged on other grounds remains unchanged.

8.2.1“the conditions set out in Rule 6.2.a. and Rule 6.2.b”;
8.3with regard to the election of Assembly Vice-Presidents, as delegations are encouraged to present candidates of the under-represented sex, add the following sentence at the end of Rule 16.3:

28 September 2021

Tabled by the Committee on Equality and Non-Discrimination

Votes: 74 in favor 28 against 8 abstentions

In the draft resolution, paragraph 8.3, replace the words "A delegation may propose a member of the over-represented sex only if it includes at least 40% of the under-represented sex" with the following words:

"A delegation that does not include at least 40% women and 40% men shall propose a candidate of a sex that does not represent more than 60% of the membership of the Assembly."

Explanatory note

The wording has the same effect as the current text. However, the terms "over-" and "under-represented sex", which are impossible to define, are avoided. Gender-balanced delegations are free to choose their candidate to be vice-president. Those that are not gender-balanced must present a candidate of a gender that does not represent more than 60% of the membership of the Assembly.

28 September 2021

Tabled by the (Former) Committee on Rules of Procedure, Immunities and Institutional Affairs

In Amendment 4, replace the words “that does not include at least 40% women and 40% men shall propose a candidate of a sex that does not represent more than 60% of the membership of the Assembly” with the following words:

"may propose a man as Vice-President only if it includes at least 40% of women."

8.3.1“A delegation may propose a member of the over-represented sex only if it includes at least 40% of the under-represented sex”
9In order to encourage the effective role of women in the decision-making process and in parliamentary work, the Assembly calls on the Assembly's political groups to promote more proactively the balanced representation and participation of women and men in the Assembly's decision-making bodies, and in particular to:
9.1strengthen consultation when nominating candidates for the bureaux of the nine Assembly committees so as to achieve parity in the offices of chairpersons and vice-chairpersons;

28 September 2021

Tabled by the Committee on Equality and Non-Discrimination

Votes: 52 in favor 46 against 11 abstentions

In the draft resolution, after paragraph 9.1, insert the following paragraph:

"establish the principle that, when proposing members of ad hoc committees, their gender breakdown is no less balanced than the composition of the group proposing them or, if this is more favourable to the promotion of gender equality, according to the "one in three" principle;"

Explanatory note

This paragraph complements paragraph 10.2 of the draft resolution, which requires the Bureau to include at least one-third women and one-third men in all ad hoc committees. Political groups should play their part by ensuring they also respect this rule when proposing members of ad hoc committees.

9.2follow the “one in three” principle in the appointment of women and men as group spokespersons in Assembly debates;

28 September 2021

Tabled by the Committee on Equality and Non-Discrimination

In the draft resolution, replace paragraph 9.2 with the following paragraph:

"when appointing group spokespersons in Assembly debates, ensure that their gender breakdown is no less balanced than the composition of the group that appoints them or, if this is more favourable to the promotion of gender equality, follow the "one in three" principle;".

Explanatory note

The gender breakdown in political groups in the Assembly depends on the composition of national delegations. Gender balance in the latter will however improve when the new rules are implemented. It is therefore reasonable to expect political groups to take stronger measures to promote gender equality in debates than those currently envisaged.

9.3establish the principle that women and men shall be appointed in alternation in the allocation of group chair positions and respect parity in the allocation of vice-chair positions.

28 September 2021

Tabled by Mr Jacques MAIRE, Ms Mònica BONELL, Mr Damien COTTIER, Ms Yolaine de COURSON, Mr Olivier FRANÇAIS, Ms Yevheniia KRAVCHUK, Ms Stephanie KRISPER, Mr Ian LIDDELL-GRAINGER, Mr Aleksander POCIEJ, Ms Petra STIENEN, Ms Diana STOICA, Ms Lesia VASYLENKO, Mr Tiny KOX

In the draft resolution, replace paragraph 9.3 with the following paragraph:

"aspire to parity and alternation between men and women for group chair and vice-chair positions".

Explanatory note

While the idea of promoting balanced gender representation in governing bodies of the political groups is important, group chairs and vice-chairs are elected and not appointed as it is suggested in the current wording of paragraph 9.3.

28 September 2021

Tabled by Mr Jacques MAIRE, Ms Mònica BONELL, Mr Damien COTTIER, Ms Yolaine de COURSON, Mr Olivier FRANÇAIS, Ms Yevheniia KRAVCHUK, Ms Stephanie KRISPER, Mr Ian LIDDELL-GRAINGER, Ms Petra STIENEN, Ms Diana STOICA, Ms Lesia VASYLENKO

In the draft resolution, after paragraph 9.3, insert the following paragraph:

"aspire to follow the "one in three" principle in the appointment of women and men as members of ad hoc committees in charge of election observation".

Explanatory note

There are several equally important criteria that the groups have to respect when they appoint election observers. The composition of the ad hoc committees to observe elections change constantly depending on withdrawal of members and availability of substitutes at different moments

10Moreover, the Assembly considers that the “one in three” principle shall apply to the composition and functioning of committees. It therefore decides to amend its Rules of Procedure as follows:
10.1with regard to the appointment of members of the Monitoring Committee, the Committee on Rules of Procedure, Immunities and Institutional Affairs, and the Committee for the Election of Judges to the European Court of Human Rights, add the following sentence to the end of Rule 44.3.a:

28 September 2021

Tabled by the Committee on Equality and Non-Discrimination

Votes: 72 in favor 18 against 20 abstentions

In the draft resolution, paragraph 10.1, replace, each time they appear, the words "at least 33% of members of the under-represented sex" with the following words:

"at least one-third women and one-third men".

Explanatory note

This corresponds to exactly the same requirement as is specified in existing text of this paragraph, but avoids reasoning in terms of an "under-represented sex".

28 September 2021

Tabled by the (Former) Committee on Rules of Procedure, Immunities and Institutional Affairs

In Amendment 7, delete the following words:

"and one-third men"

10.1.1“At the beginning of each ordinary session, the candidatures presented by each political group to each of these committees must include at least 33% of members of the under-represented sex where the group holds at least three seats. The Bureau shall appoint members, ensuring that the committees concerned always include at least 33% of members of the under-represented sex.”;
10.2with regard to the composition of ad hoc committees, including those in charge of election observation, in Rule 44.4.c, after the second sentence add the following sentence:

28 September 2021

Tabled by Mr Jacques MAIRE, Ms Mònica BONELL, Mr Damien COTTIER, Ms Yolaine de COURSON, Mr Olivier FRANÇAIS, Ms Yevheniia KRAVCHUK, Ms Stephanie KRISPER, Mr Ian LIDDELL-GRAINGER, Ms Petra STIENEN, Ms Diana STOICA, Ms Lesia VASYLENKO

If adopted, amendment 8 falls.

Votes: 75 in favor 23 against 11 abstentions

In the draft resolution, replace paragraph 10.2 with the following paragraph:

"with regard to the composition of ad hoc committees, in Rule 44.4.c, after the second sentence add the following sentence: "An ad hoc committee, with the exception of ad hoc committees in charge of election observation, shall include at least 33% of members of the under-represented sex".

28 September 2021

Tabled by the (Former) Committee on Rules of Procedure, Immunities and Institutional Affairs

In Amendment 15, replace the words “shall include at least 33% of members of the under-represented sex” with the following words:

"shall include at least one-third women"

28 September 2021

Tabled by the Committee on Equality and Non-Discrimination

Falls if amendment 15 is adopted.

In the draft resolution, paragraph 10.2, replace the words "at least 33% of members of the under-represented sex" with the following words:

"at least one-third women and one-third men".

Explanatory note

Same as for amendment G.

28 September 2021

Tabled by the (Former) Committee on Rules of Procedure, Immunities and Institutional Affairs

In Amendment 8, delete the following words:

"and one-third men"

10.2.1“An ad hoc committee shall include at least 33% of members of the under-represented sex”;
10.3with regard to the appointment of rapporteurs by committees, in Rule 50.1, after the third sentence, add the following sentence:

28 September 2021

Tabled by the Committee on Equality and Non-Discrimination

Votes: 72 in favor 28 against 8 abstentions

In the draft resolution, paragraph 10.3, replace the words "at least 33% of members of the under-represented sex" with the following words:

"at least one-third women and one-third men".

Explanatory note

Same as for amendment G.

28 September 2021

Tabled by the (Former) Committee on Rules of Procedure, Immunities and Institutional Affairs

In Amendment 9, delete the following words: "and one-third men"

"and one-third men"

10.3.1“A committee shall include at least 33% of members of the under-represented sex among its rapporteurs”.
11Finally, the Assembly instructs its Bureau to ensure that this "one in three" principle is applied in all appointment decisions for which it is responsible, in particular in the institutional representation of the Assembly.

28 September 2021

Tabled by the Committee on Equality and Non-Discrimination

Votes: 71 in favor 27 against 12 abstentions

In the draft resolution, after paragraph 11, insert the following paragraph:

"The Assembly invites the Bureau to report to it at least once annually on the implementation of the above measures, including on efforts to promote gender mainstreaming and change parliamentary culture on gender equality in the Assembly’s work more generally, and to publish this report. In addition, it invites the Bureau to draw up guidelines for committees regarding the promotion of gender balance in their work. These guidelines should aim, inter alia, to ensure that committees pay due attention to gender balance amongst external interlocutors invited to participate in their work and in the appointment of representatives to external events. Committees should also be required to report at least once annually to the Bureau on the implementation of these guidelines and on their efforts to promote gender mainstreaming in their work."

Explanatory note

There is considerable scope for strengthening gender mainstreaming in the work of the Assembly and its committees. This amendment aims to increase transparency and accountability in this field and to promote a more inclusive approach in committees’ work on substance.

28 September 2021

Tabled by the Committee on Equality and Non-Discrimination

In the draft resolution, after paragraph 11, insert the following paragraph:

"The Assembly underlines that progress towards gender equality in parliamentary structures will be hampered if due attention is not paid to the need to eliminate sexism and sexual harassment within these structures. It recalls the crucial recommendations made in its Resolution 2274 "Promoting parliaments free of sexism and sexual harassment", and instructs the Bureau to report to it by January 2022 on the steps taken to implement this Resolution within the Assembly."

12The Assembly considers that the implementation of the obligations and objectives set out in this resolution is the collective responsibility of each national parliament and each political party or group. This responsibility should be shared equally within each delegation between all political parties and, in the case of bicameral parliaments, between the two chambers.
13The Assembly decides that the changes to the Rules of Procedure contained in this resolution shall enter into force at the opening of the January 2023 part-session. The bodies concerned (national delegations, groups, committees) are invited to make adaptations over the months in order to achieve the objectives of better representation of the under-represented gender by that date.

28 September 2021

Tabled by the Committee on Equality and Non-Discrimination

Votes: 94 in favor 11 against 7 abstentions

In the draft resolution, paragraph 13, replace the words "better representation of the under-represented gender" with the following words:

"more balanced representation of women and men".

Explanatory note

For consistency.