Protecting human rights in and through sport: obligations and shared responsibilities

Doc. 16196: compendium of written amendments | Doc. 16196 | 24/06/2025 | Final version

Contents

A Draft Resolution

B Draft Recommendation

Compendium index

Amendment 1

Caption: AdoptedRejectedWithdrawnNo electronic votes

ADraft Resolution

1The Council of Europe and its Parliamentary Assembly have a long-standing commitment to the promotion of human rights, democracy and the rule of law in sport, which is a powerful tool for fostering inclusion, equality, integrity and human dignity.

2The Assembly recalls in particular Resolution 2420 (2022) and Recommendation 2221 (2022) on “Football governance: business and values” and Resolution 2465 (2022) on “The fight for a level playing field – ending discrimination against women in the world of sport”.

3It wishes to reaffirm the principles enshrined in the revised European Sports Charter, the Convention on the Manipulation of Sports Competitions (CETS N°215, “the Macolin Convention”, 2014), the Anti-Doping Convention (ETS No. 135, 1989) and its Additional Protocol (ETS No.188, 2002), and the Convention on an Integrated Safety, Security and Service Approach at Football Matches and Other Sports Events (CETS No. 218, “the Saint Denis Convention”, 2017).

4Human rights must be upheld and protected in all sporting contexts, from amateur to professional, including during the bidding, organisation, implementation and legacy phases of major international sports events. The Assembly:

4.1welcomes the work of the Enlarged Partial Agreement on Sport (EPAS), including in the area of child protection and of safeguarding their rights, notably through the Council of Europe “Start to Talk” project and in the area of gender equality in sport, whereby EPAS is continuing to develop wide-ranging alternatives, including implementing the recommendations of the joint European Union-Council of Europe “All In Plus: promoting greater gender equality in sport”, project;

4.2acknowledges the work of the International Federation of Association Football (FIFA), the International Olympic Committee (IOC), the Union of European Football Associations (UEFA), World Athletics, and international sports federations in strengthening safeguarding, addressing abuse and discrimination, and embedding human rights and gender equality considerations in governance;

4.3remains, however, deeply concerned by continuing reports of abuse, discrimination and human rights violations associated with sports participation and major sports events, including in contexts where sports governing bodies and host countries have failed to fulfil their responsibilities;

4.4is deeply alarmed by the widespread and systemic abuse of children and vulnerable adults in sport, including psychological, emotional, physical and sexual abuse, often facilitated by toxic organisational cultures, impunity and a lack of trauma-informed redress systems;

4.5is concerned that current systems for assessing human rights compliance in bidding for and hosting major sports events are often opaque, inadequately enforced and do not provide accessible remedies for victims;

4.6calls for stronger determination to reinforce accountability, transparency and the alignment of sports governance with international human rights standards, in co-operation with national and international authorities and sports governing bodies;

4.7welcomes the work of Play the Game and the ClearingSport project which aims to introduce new standards, collaborations and mechanisms to counter crime, corruption and other breaches of integrity in sport.

5In light of the above, with regard to the battle against abuse in sport, the Assembly urges Council of Europe member States to:

5.1enshrine the promotion and protection of human rights into national sport policy frameworks as a legal and ethical obligation;

5.2require sports organisations within their jurisdiction to adopt and implement human rights policies, including zero tolerance of abuse and discrimination;

5.3ensure the appointment of child safeguarding officers in sport federations working with minors, based on a framework agreed by the various sports stakeholders;

• Amendment 1

24 June 2025

Tabled by Ms Luz MARTINEZ SEIJO, Ms Saskia KLUIT, Ms Esther PEÑA, Ms Susanna VELA, Mr Benjamin DALLE, Mr Andries GRYFFROY, Mr Sergio GUTIÉRREZ PRIETO, Mr Georgios STAMATIS, Ms Kristina IKIĆ BANIČEK

In the draft resolution, paragraph 5.3, replace the word "ensure" with the following word:

"encourage"

5.4establish or strengthen independent national safe sport units to support victims, investigate cases of abuse, and co-ordinate safeguarding education and prevention efforts;

5.5support EPAS in improving tools for good governance and child protection, including through the adoption and monitoring of relevant standards;

5.6actively participate in international efforts to define, promote and monitor compliance with an international code of safe sport, modelled on the World Anti-Doping Code and on the IOC Prevention of competition manipulation code;

5.7monitor the role of commercial advertising and influencers in sports, particularly the alcohol and gambling industries, and the effects they can have on the well-being and health of minors.

6The Assembly also calls upon all international and national sports federations to:

6.1integrate binding human rights and safeguarding provisions into their statutes, codes of conduct and operational rules;

6.2establish trauma-informed, victim-centred reporting mechanisms accessible to all participants in sport, including anonymously and in multiple languages;

6.3provide mandatory safeguarding and human rights training for coaches, referees, sports officials and others in contact with children and vulnerable persons;

6.4include victims of abuse in decision-making bodies, advisory boards and policy-making processes;

6.5publish annual reports on safeguarding and human rights compliance, including data on complaints and disciplinary actions;

6.6ensure full co-operation with public authorities and law enforcement agencies in cases of suspected or reported abuse.

7In light of the above, the Assembly also strongly supports the creation of an independent, global, multisport, safe sport entity offering support and redress to athletes across jurisdictions.

8With regard to combating discrimination and promoting gender equality in sport, the Assembly:

8.1reiterates that sport must be a space free from all forms of discrimination, including on the basis of gender, gender identity, sexual orientation, race, ethnicity, religion, and disability;

8.2welcomes the efforts of FIFA, the IOC, UEFA, World Athletics and international sports federations in setting targets for gender equality in participation and governance, but notes that gender inequalities persist at all levels of sport.

9The Assembly therefore calls upon Council of Europe member States to:

9.1support research and data collection using standardised indicators on gender equality and diversity in sport, drawing on the indicators used for the joint EU-Council of Europe “All In Plus” joint project, allowing for comparability of data;

9.2fund national programmes and partnerships with non-governmental organisations and sports associations aimed at increasing the participation and visibility of women and girls in sport;

9.3penalise discriminatory practices in sport and ensure access to justice for victims of gender-based violence or harassment;

9.4promote intersectional approaches to inclusion, ensuring that the specific needs of marginalised groups are addressed;

9.5work with media outlets to combat gender stereotypes and ensure balanced coverage of women’s sport, again building on the work of the “All In Plus” joint project, including during its informative sessions, which set up a network of sport media professionals.

10The Assembly also urges sports federations to:

10.1co-operate with EPAS where possible in the implementation of recommendations set forth as an outcome of the completed European Union-Council of Europe “All In Plus” joint project and contribute to online repositories on inclusive sport policies with best practices;

10.2adopt and implement gender equality action plans with measurable targets, including for equal pay and for representation in governance bodies;

10.3support mentoring and leadership development programmes for women, including coaches, referees and executives;

10.4engage in campaigns to challenge toxic masculinity and promote positive role models for young athletes.

11With regard to establishing human rights conditionalities for major sports events, the Assembly:

11.1expresses concern that major international sporting events continue to be awarded to host countries with poor human rights records, without adequate monitoring mechanisms;

11.2strongly supports the inclusion of binding human rights conditionalities in the bidding and hosting processes for all major sporting events, including monitoring mechanisms in the implementation and legacy phases;

11.3welcomes the example of the Human Rights Declaration signed for UEFA EURO 2024 and Women EURO 2025 and encourages its replication and expansion across future events for all sports federations.

12The Assembly also calls upon international sports federations and event organisers to:

12.1require comprehensive, contextualised human rights risk assessments as a condition for accepting bids;

12.2include compliance with international labour rights, freedom of expression, gender equality and child protection standards among minimum eligibility requirements;

12.3develop enforceable human rights action plans with timelines and benchmarks for all accepted bids;

12.4establish independent monitoring bodies with powers to investigate, assess compliance and impose sanctions, including the relocation of events in case of serious violations;

12.5work actively with public authorities to facilitate effective access to remedies, including judicial and non-judicial mechanisms, for victims of abuses related to the organisation of sports events;

12.6prioritise transparency and public engagement throughout the bidding, evaluation and hosting process, using the visibility of elite athletes to challenge harmful norms and practices and promote inclusive values;

12.7engage in a structured dialogue with the Council of Europe, the European Union and relevant United Nations agencies to develop human rights protocols in key areas such as freedom of expression, gender equality and child protection standards for the organisation of major sports events.

13Furthermore, the Assembly recommends that EPAS:

13.1develops further guidance on assessing human rights compliance in bids for sport event and provides technical assistance to bidding countries;

13.2facilitates inter-regional dialogue and co-operation on human rights risk assessments in sport, particularly with emerging economies and low-income countries.

14The time has come for a paradigm shift in the governance of sport: one that places the dignity, human rights and well-being of all athletes and stakeholders engaged in sport at its core. Sports governance must align with democratic values, human rights, transparency and the public interest, especially when operating internationally across diverse legal and cultural contexts.

15The Assembly underlines that only a co-ordinated, inclusive and multistakeholder approach can ensure the realisation of human rights in and through sport.

16Finally, the Assembly resolves to continue to monitor these developments, including in framework of the Parliamentary Alliance for Good Governance and Integrity in Sport, and to work with sports bodies, governments and civil society to ensure that the promise of human rights in sport becomes a reality for all.

BDraft Recommendation

1The Parliamentary Assembly recalls Resolution ... (2025) on “Protecting human rights in and through sport: obligations and shared responsibilities”, which calls for binding human rights standards at all levels of sport, in particular to address abuse, discrimination and gender inequality, and to urge governments and sports bodies to strengthen safeguarding, transparency and accountability, ensure inclusive participation and embed human rights in the organisation of major sports events.

2Considering that a co-ordinated, multistakeholder approach is essential for lasting change, the Assembly reaffirms the unique role of the Council of Europe in promoting human rights, democracy and the rule of law in and through sport, notably through its conventions on sport and the Enlarged Partial Agreement on Sport (EPAS).

3While commending initiatives such as “Start to Talk” and “All In Plus”, and the work of EPAS in the area of inclusive sport more generally, the Assembly remains concerned about persistent reports of abuse, discrimination and human rights violations in sport, especially involving children, women and marginalised groups.

4To support Council of Europe member States and sports organisations in aligning governance with human rights standards, the Assembly recommends that the Committee of Ministers:

4.1reinforce EPAS’ mandate and resources to promote human rights in sport, including through the further development of guidance on good governance, safeguarding and anti-discrimination policies;

4.2task EPAS to develop model provisions for national legislation and sports regulations aimed at preventing abuse, ensuring safe sport environments and supporting victims;

4.3invite EPAS to continue to develop technical tools and indicators to monitor compliance with international human rights and gender equality standards across all levels of sport, in collaboration with national authorities and civil society;

4.4encourage EPAS to work with international partners, including the European Union and United Nations agencies, to define and promote an international code of safe sport;

4.5mandate EPAS to assist member States and sports bodies in conducting human rights risk assessments in relation to major sports events, to advise on the inclusion of human rights conditionalities in bidding and hosting processes, and to facilitate interregional dialogue, especially with emerging economies and low-income countries.

5The Assembly considers that EPAS is well placed to co-ordinate a Council of Europe-wide approach to safe, inclusive sport based on values and rights. It calls on the Committee of Ministers to ensure that EPAS has the institutional capacity to fulfil this urgent and growing mandate.