Women's rights in Europe – Progress and challenges
- Author(s):
- Parliamentary Assembly
- Origin
- Assembly
debate on 26 June 2025 (26th sitting) (see Doc. 16211, report of the Committee on Equality and Non-Discrimination,
rapporteur: Ms Petra Bayr). Text adopted
by the Assembly on 26 June 2025 (26th sitting).
1. For decades, the advancement of
women’s rights has been a defining force in shaping more equitable societies,
with growing female participation in economic, public, cultural
and political life. Several Council of Europe member States have
already had a woman head of State or government, while the increase
in the number of women members of parliament has contributed to
making those bodies more representative of the populations they
serve. Discussions on gender equality have thus become a part of
public discourse and legal standards have changed to reflect or
inspire progress. The Parliamentary Assembly stresses that gender equality
and the rights of women, in all their diversity, are cornerstones
of democracy.
2. However, recent years have witnessed an erosion of women’s
rights worldwide, with growing challenges that may be viewed as
resistance to change or a reaction to past and recent achievements.
These obstacles arise against the backdrop of increasingly polarised
societies, in a time of “cultural wars” and ideological tensions.
This erosion is certainly a feature of the current threat of democratic
backsliding. In some cases, external influences, including those
from foreign powers, seem to contribute to this climate, complicating
the efforts to consolidate and expand women’s rights.
Resolution 2290 (2019) “Towards
an ambitious Council of Europe agenda for gender equality” denounces
the fact that “[c]ertain government forces and non-State actors are
targeting long-acquired rights and previously agreed language is
being questioned”. According to the 2021 report
Tip of the iceberg: religious extremist funders
against human rights for sexuality and reproductive health in Europe,
published by the European Parliamentary Forum for Sexual and Reproductive
Rights, between 2009 and 2018 over €700 million originating from
various actors in the United States of America, the Russian Federation
and Europe funded anti-gender equality activity within the European
Union. A 2024 report by the United Nations Working Group on discrimination
against women and girls, entitled “Escalating backlash against gender
equality and urgency of reaffirming substantive equality and the
human rights of women and girls”, warns about this backlash, “which
has reached extreme proportions in certain countries, including
gender apartheid”, and calls for a commitment to substantive gender
equality and for co-ordinated efforts to counter the gender backlash
globally.
3. Calls for a return to so-called traditional family values
are questioning the benefits of the advancement of women’s rights
for society as a whole, or even portraying women’s rights’ defenders
as a threat to families. Politicians promoting traditional roles
for women are attracting attention in the media on this theme, which
is gaining some traction in the public consciousness. The Assembly
expresses concern with regard to the political instrumentalisation
of family values to undermine women’s rights and deplores the spread
of gendered disinformation and the growing backlash against women’s
rights in Europe, as attacks on women’s rights are attacks on democratic
values.
4. The increasing popularity, particularly on social media, of
“masculinists”, advocating the submission of women to men, is a
particular reason for concern, as is a growing climate of misogyny.
Unchecked social media algorithms amplify these voices and tend
to silence the more inclusive ones. The harmful impact of sexist propaganda
on young people’s mindsets, particularly among boys, has been observed
by experts. Recently, the popular television series
Adolescence has raised awareness
and debate around this phenomenon. In its
Resolution 2480 (2023) “The role
and responsibility of men and boys in stopping gender-based violence against
women and girls”, the Assembly recognised the responsibility of
men and boys to be proactive in combating this scourge.
5. With the exception of Andorra, parliaments in Europe remain
male-dominated, including in leadership and decision-making positions,
and such under-representation of women in parliamentary life undermines democratic
institutions and processes. The Assembly welcomes General Recommendation
No. 40 on the equal and inclusive representation of women in decision-making
systems, adopted in October 2024 by the United Nations Committee
on the Elimination of Discrimination against Women, as well as the
Kigali Declaration, adopted at the 145th Assembly of the Inter-Parliamentary
Union in October 2022, entitled “Gender equality and gender-sensitive
parliaments as drivers of change for a more resilient and peaceful
world”. The Assembly calls for the full implementation of its
Resolution 2615 (2025) “Promoting
inclusive participation in parliamentary life: gender equality,
accessibility and inclusive policies”.
6. According to the latest survey by the European Union Agency
for Fundamental Rights, one in three women is a survivor of gender-based
violence in Europe. The Council of Europe Convention on Preventing
and Combating Violence against Women and Domestic Violence (CETS
No. 210, the “Istanbul Convention”), which entered into force on
1 August 2014, is recognised globally as a key text, and the Assembly
welcomes the fact that countering violence against women and domestic
violence is constantly recognised as a political priority within
the Council of Europe. However, the withdrawal of Türkiye from the
Istanbul Convention constitutes a warning signal, not least because
Turkish civil society organisations have reported that this decision
was preceded by a growing backlash against the concept of gender
and, consequently, of gender equality. Gravely concerned that violence
against women and femicide are still an everyday occurrence within
Europe and beyond, the Assembly calls for stronger financial support
to transform commitment into tangible change.
7. Female politicians are especially targeted by hate speech
and online and offline threats of violence or acts of violence.
At the European Conference of Presidents of Parliament, organised
by the Assembly on 20 and 21 March 2025, the speakers stressed that
attacks on women politicians aim at intimidating them, obstructing
their participation and pushing them out of the public sphere and
back into the private domain. They called for systematic investigation
and condemnation of any form of violence against politicians.
8. In its
Resolution 1860 (2012) “Advancing
women’s rights worldwide”, the Assembly calls on member States to
step up efforts to combat discrimination against women and to give
more political weight to gender equality issues and women’s rights.
This call remains necessary. The Assembly recognises that vulnerable groups
are at a higher risk of cumulative forms of discrimination and calls
for concrete measures to prevent intersectional discrimination.
It is particularly concerned about attacks on women with a minority
background, women with disabilities, lesbian, bisexual, transgender
and intersex women, and about significant levels of gendered discrimination
in the fields of housing, employment and healthcare. In its
Resolution 2576 (2024) “Preventing
and combating violence and discrimination against lesbian, bisexual
and queer women in Europe”, the Assembly stresses that they are
especially targeted by anti-gender movements, which attack women’s rights
and the rights of lesbian, gay, bisexual, transgender, intersex
(LGBTI) persons and attempt to silence them or deny them their legitimate
place in public spaces. Once again, the Assembly highlights that
attacks on women’s rights and LGBTI rights weaken the fabric of
our democratic societies.
9. Recalling its
Resolution 2554 (2024) “Protecting
women human rights defenders in Europe”, the Assembly reiterates
its constant support for women’s human rights defenders in Council
of Europe member States and beyond, and calls for their protection
from undue pressure, intimidation and violence. In the present context,
particular attention must be paid to online hate speech, which increasingly
targets human rights defenders, making them also vulnerable to further
attacks, including physical violence. The Assembly recalls that
women human rights defenders in all their diversity play a crucial
role in promoting and protecting human rights, including women’s
rights and the rights of LGBTI persons, and in furthering gender
equality.
10. Sexual and reproductive health and rights epitomise the conflict
between progress and new challenges in women’s rights. Despite some
significant advancements over the past few decades, with progress
in access to education, healthcare, contraception and medical innovations,
a growing number of obstacles has also been faced in recent years.
Referring to
Resolution 2331 (2020) “Empowering
women: promoting access to contraception in Europe”, the Assembly
reiterates that access to modern contraception is crucial to women’s empowerment,
by increasing their decision-making power and autonomy, individually
and within the household, and enabling them to plan their career
and professional development more efficiently and leading to an
improved balance between private and work life.
11. Comprehensive sexuality education has the potential to contribute
significantly to advancing gender equality. It should cover issues
including contraception and the prevention of sexually transmitted
infections; gender equality, gender norms and stereotypes; prevention
of and protection from sexual, gender-based and domestic violence;
sexual orientation and gender identity and expression; self-determination
and consent in relationships; and personal interaction. In
Resolution 2490 (2023) “Innovative
approaches to sexual and reproductive health and rights”, the Assembly
states that comprehensive sexuality education should be both a mandatory
part of all school curricula and a right that is recognised for
all.
12. Highlighting that most Council of Europe member States recognise
the right to abortion, the Assembly stresses that once this right
has been established, it is also necessary to guarantee access to
free, legal and safe abortion for all who seek it, ensuring legal
certainty as a fundamental principle of the rule of law. As highlighted
by
Resolution 2439 (2022) “Access
to abortion in Europe: stopping anti-choice harassment”, in many
Council of Europe member States, anti-choice activists conduct campaigns
of harassment targeting women’s human rights defenders, healthcare
professionals, politicians and people seeking abortion care. Such harassment
is a violation of fundamental rights, including the right to respect
for private and family life, freedom of expression and freedom of
assembly and association. Attempts to control women’s bodies are
nothing less than attacks on their human rights and a way to silence
them.
13. The Assembly expresses concern at the low and/or decreasing
level of funding for sexual and reproductive health programmes,
gender studies and research on women’s health throughout Europe.
The advancement of women’s rights – taking a feminist perspective
– requires robust and constant investment in these fields.
14. The persisting gender pay gap and pension gap create long-lasting
economic inequalities. As stressed by
Resolution 2589 (2025) “Women in
the economy: employment, entrepreneurship and gender-responsive budgeting”,
there is an urgent need to change mindsets with regard to the place
of women in the economy. The Assembly reiterates that gender equality
benefits society as a whole and that investing in women’s participation in
the economy has immediate but also long-term positive benefits.
15. The Assembly recognises the urgent need to eradicate poverty
in all its forms, including extreme, multidimensional and intergenerational
poverty, as well as the feminisation of poverty, and to address
global economic inequality. Women and girls, particularly in rural
areas and indigenous communities, remain disproportionately affected
by poverty and exclusion. Addressing these issues should rank high
among the priorities of the foreign policies of Council of Europe
member States, particularly for those who pursue feminist diplomacy.
16. The Assembly expresses its solidarity with women fighting
for their basic rights in totalitarian and theocratic regimes, in
Europe and beyond, and supports the work of civil society organisations
endeavouring to improve conditions for these women by providing
education and other services. The Assembly reiterates its call to
Council of Europe member States that are Parties to the Rome Statute
of the International Criminal Court to consider proposing an amendment
to the statute in order to include the crime of “gender apartheid”,
which is the institutionalisation of gender-based discrimination
and exclusion of women and girls from all spheres of society. The
Vigdís Prize for Women’s Empowerment provides an opportunity to
raise awareness about the work of women human rights defenders to
empower women in their countries and fields of activity.
17. Current wars and conflicts across the world have a devastating
effect on women and girls, who are moreover subject to sexual violence
and rape as a weapon of war, as well as human trafficking.
18. In the light of all the above concerns and referring to the
political declaration adopted on the 30th anniversary of the Fourth
World Conference on Women, at the 69th session of the Commission
on the Status of Women, the Assembly considers that 2025 represents
a pivotal opportunity to advance towards the full implementation
of the Beijing Declaration and Platform for Action. Noting the recognition
in this declaration that no country has yet achieved full gender
equality, with progress hindered by persistent structural barriers, discriminatory
laws, gender stereotypes and negative social norms, the Assembly
considers that there is no room for complacency. The reduction of
funding especially from the United States of America has also had
a negative impact on programmes aimed at ensuring equal rights for
women.
19. Seeing an urgent need for concerted and innovative efforts
to provide a response to the false discourse of anti-gender movements,
the Assembly welcomes the work currently being undertaken by the
Council of Europe’s Gender Equality Commission to develop positive
narratives that will work to promote gender equality and prevent
and combat violence against women. It looks forward to the outcome
of this work, which is intended to be used by the Council of Europe
and its member States in awareness-raising and communication activities.
20. In the light of these considerations, the Assembly calls on
the member and observer States of the Council of Europe, and States
whose parliaments enjoy observer or partner for democracy status
with the Assembly:
20.1 with regard
to preventing and combating violence against women and domestic
violence, and with the aim of tackling the current low reporting
rates and the high levels of impunity, to:
20.1.1 take measures
to prevent sexual violence in wars and conflict and ensure the perpetrators
are brought to justice;
20.1.2 ratify and implement, if they have not yet done so, the
Istanbul Convention;
20.1.3 invest in awareness-raising campaigns on preventing violence
against women and domestic violence and on the services available
for survivors of gender-based violence;
20.1.4 provide adequate funding for support services for survivors
of gender-based violence;
20.1.5 provide training to the police, the judiciary and all
professionals likely to be in contact with victims of gender-based
and sexual violence on preventing, identifying and combating gender-based
violence, ensuring that these institutions do not contribute, through
their response, to a situation of secondary victimisation;
20.1.6 take measures to prevent and combat online forms of gender-based
violence against women;
20.1.7 strengthen the fight against online sexual exploitation,
paying particular attention to the risks posed by the development
of artificial intelligence;
20.1.8 provide comprehensive sexuality education in schools,
including on consent;
20.2 with regard to ensuring access to sexual and reproductive
health and rights, to:
20.2.1 ensure that obstructing a
person’s access to legal abortion care or to relevant information
is prohibited and criminally or otherwise sanctioned; the prohibited
conduct should include online activities and prevent anti-choice
organisations from misrepresenting themselves as neutral or pro-choice
organisations;
20.2.2 introduce buffer zones near reproductive healthcare facilities
and any organisation providing relevant information on sexual and
reproductive health and rights, so as to avoid disruption of the
activities of medical institutions providing abortion care and ensure
the safety of people seeking such care, including post-abortion
care;
20.2.3 provide reliable information on reproductive rights and
services, including abortion care, and take the necessary measures
to counteract misinformation and disinformation on abortion; these
measures should include specific monitoring to detect the possible
spread of misinformation and disinformation, openly or covertly,
by anti-choice organisations;
20.2.4 take steps to prevent and counter networks of individuals
and organisations created with the aim of harassing pro-choice activists
and politicians as well as those seeking an abortion;
20.2.5 ensure effective access to legal abortion care, when provided
for by national legislation, and relevant and objective counselling
by qualified healthcare professionals; conscientious objection by
professionals – where permitted by law – should never constitute
a barrier to genuine and timely access to legal abortion care;
20.2.6 effectively investigate and prosecute online and offline
hate speech – including co-ordinated attacks – targeting human rights
defenders;
20.2.7 provide information and training to law-enforcement officers
and members of the judiciary to ensure that they have knowledge
of the extent and impact of anti-choice activities;
20.3 with regard to increasing women’s political participation,
to:
20.3.1 ensure through legislative and/or other means
the balanced participation of women and men in all areas of parliamentary
life, and especially in decision-making roles;
20.3.2 set up a gender parity goal for political representation
in national parliaments, conduct a national assessment of the situation
and develop a strategic plan to reach this goal through specific
measures;
20.3.3 promote and support networks for women parliamentarians,
including women’s caucuses in national parliaments;
20.3.4 develop specific programmes for male politicians to engage
as partners and champions, working together with female leaders
to achieve gender equality in politics;
20.4 with regard to preventing and combating sexism, gender-based
discrimination and gender stereotypes, to:
20.4.1 adopt
and implement ambitious gender equality strategies, including gender
budgeting;
20.4.2 promote gender mainstreaming in public administrations,
political parties and the private sector;
20.4.3 launch educational programmes on preventing and combating
gender stereotypes in school, from the earliest years;
20.4.4 work with media outlets on awareness-raising campaigns
on preventing and combating gender stereotypes;
20.4.5 promote the development of critical thinking to counter
sexism and violence in the content, language and illustrations of
toys, comics, books, television, video and other games, online content
and films, including pornography, which shape the attitudes, behaviour
and identity of girls and boys;
20.4.6 ensure that the development and regulation of artificial
intelligence is carried out in a way which does not infringe on
women’s rights;
20.4.7 raise awareness of countering gendered disinformation,
online and offline, and guarantee full access to information on
women’s rights;
20.4.8 support civil society organisations working in this field;
20.4.9 impose pay transparency in order to expose gender pay
gaps and legislate on pay equality;
20.4.10 invest in gender studies and medical research on women’s
health to reduce gender inequalities and improve access to treatments.
21. Referring to its
Resolution 2274 (2019) “Promoting
parliaments free of sexism and sexual harassment” and the #NotInMyParliament
initiative led by the former President of the Assembly, Liliane
Maury Pasquier, the Assembly calls on national parliaments to step
up their efforts to prevent and combat violence against women members
of parliament and parliamentary staff.
22. The Assembly also calls on national parliaments to hold regular
debates on the protection of women’s rights and the issues raised
in this Resolution, and to focus on securing and mainstreaming women’s
rights both in national legislation and in policies throughout all
fields of life.
