236.
The Committee considered the third and fourth
periodic reports of Spain (CEDAW/C/ESP/3 and
CEDAW/C/ESP/4) at its 436th and 437th meetings,
on 17 June 1999.
(a) Introduction by the State party
237.
In introducing the report, the representative
of Spain pointed out that the benchmarks for
Spain's national programmes on equality of opportunities
had been derived from the platforms and plans
of action which had been approved at the various
global conferences, from earlier regional preparatory
meetings and from the European Union. A number
of legal reforms had been adopted to guarantee
equality in the entire body of Spanish laws.
238.
The representative informed the Committee of
the various institutional mechanisms which had
been established. The Constitution provided
for competencies in the area of equality of
opportunities to be distributed between the
State, autonomous communities and town councils
and, as a result, administrations for the promotion
of equality existed in all autonomous communities
and women's affairs units had been established
in numerous town councils. At the national level,
the Institute for Women's Issues, which was
attached to the Ministry of Labour and Social
Affairs, was the agency charged with promoting
government policies in the area of equality.
The Minister of Labour and Social Affairs chaired
the Institute's Governing Council, which was
responsible for implementing policies to coordinate
the work of the different ministerial departments
concerned with women. The objective of the Directorate-General
of the Institute was to ensure maximum coherence
in the various equal opportunity policies elaborated
by the national Government and the autonomous
communities. Non-governmental organizations
participated in the work of the Governing Council
and received technical and financial assistance
for the implementation of specific programmes.
239.
The representative outlined the priorities of
the different Plans of Action for Equal Opportunities.
The main objective of the First Plan (1988-1990)
was to enact legislation that would ensure consistency
between the domestic legal order and the provisions
of the Constitution with respect to the protection
and guarantee of equality. The Second Plan (1993-1995)
was focused primarily on education, vocational
training and health. The Third Plan (1997-2000)
had followed the lines of European policies
in that area, with a view to promoting a common
policy and ensuring gender mainstreaming in
all programmes and policies.
240.
The representative informed the Committee of
the progress that had been made in the field
of education, in which women had made significant
strides. For example, in only seven years, the
number of women who had submitted doctoral theses
had risen by 202 per cent. Gender-based inequalities
in vocational training and higher education
had been reduced considerably, even though some
gender-based differences remained in the choice
of fields of study. A review of teaching materials
and curricula had been begun in collaboration
with the universities and a start had also been
made on the mainstreaming of gender in training
courses. The Ministry of Education and the Spanish
Confederation of Associations of Parents of
Students jointly promoted non-sexist teaching,
sex education and shared family responsibilities.
A commission had undertaken a critical review
of the dictionary of the Spanish Royal Academy
and had published various proposals for inclusion
in a new edition of the dictionary.
241.
The employment rate for women had gone up during
the 1990s, following the adoption of a variety
of measures. The Spanish Kingdom's Action Plan
for Employment promoted, inter alia,
entrepreneurship among women and their insertion
into the workforce. The Institute for Women's
Issues, in collaboration with the Federation
of Chambers of Commerce of Spain, provided technical
and financial assistance to a large number of
women entrepreneurs. The draft legislation aimed
at reconciling the family and working lives
of women, which had been submitted to Parliament,
contained provisions for maternity or paternity
leave.
242.
Despite the recent advances made, participation
in decision-making, which was another area of
key importance for the advancement of women,
continued to be limited. The percentage of women
parliamentarians had increased from 15 per cent
in 1989-1993 to 22 per cent in the national
Parliament and from 7 per cent to 20 per cent
in the parliaments of the autonomous communities.
The number of women employed in ministries,
State secretariats and the public service had
increased considerably, to 45 per cent. Studies
and campaigns had been carried out to ensure
more active participation by women in political
and social life, but the structures and organizations
of power, which were male dominated, continued
to be an obstacle.
243.
Her Government had adopted numerous measures
to eliminate violence against women. In 1998,
it had approved the 1998-2000 Plan of Action
on violence against women, which had been prepared
in collaboration with ministerial departments,
autonomous communities, local municipal councils
and non-governmental organizations. The Plan
contained elements for a comprehensive response
to the problem of violence against women, including
awareness-raising and prevention, education
and training, social resources, health, legislation
and judicial practice, and investigation.
244.
The representative highlighted the important
role of the information media and informed the
Committee of the work being done by the Advertising
Monitoring Unit, which had made an important
contribution to the elimination of discrimination
in the portrayal of women in the media.
245.
The situation of women in rural areas had changed
considerably, since young rural women sought
employment outside of agriculture and the home.
Only 25 per cent of rural landowners were women,
while the average size of their properties was
only a third of that of male landowners.
246.
Priority areas in the field of the advancement
of women and health were the prevention of gynaecological
cancer, care for pregnant women, menopause,
information on and follow-up of contraceptive
use, and the prevention of unwanted pregnancies,
especially among adolescents.
247.
She concluded by stressing that inequality had
ceased to be a problem that affected only women
and had become a social problem.
(b) Concluding comments by the Committee
Introduction
248.
The Committee expresses its appreciation to
the Government of Spain for submitting detailed
third and fourth periodic reports, containing
data disaggregated by sex. It commends the Government
for the comprehensive written replies to the
Committee's questions and its oral presentation,
which provided additional information on the
current situation of the implementation of the
Convention. It appreciates the frank and open
manner in which the State party shared with
the Committee its analysis of the situation
of women and the identification of areas for
further progress.
249.
The Committee commends the Government of Spain
for having sent a large delegation, headed by
the Director-General of the Institute for Women's
Issues. The Committee notes that recent governmental
action, and in particular the Third Plan of
Action for Equal Opportunities, are placed within
the context of the implementation of the Beijing
Platform for Action.
Positive aspects
250.
The Committee commends the Government on its
strong commitment to achieving equality and
equal opportunities for women, reflected in
the sustained progress it has achieved in implementing
the Convention since the consideration of the
second periodic report in 1992.
251.
The Committee welcomes the adoption of the Third
Plan of Action for Equal Opportunities (1997-2000).
It welcomes the introduction of gender mainstreaming
as a strategy involving all State bodies, the
autonomous communities and civil society, as
well as the view that the achievement of gender
equality is a societal concern, rather than
a women's issue, and is the responsibility of
the State and its authorities.
252.
The Committee commends the work of the Institute
for Women's Issues and commends the Government
on the establishment of the Sectoral Women's
Conference as a consultative and deliberative
body to ensure consistency between the State's
equality and equal opportunities policy and
those of the autonomous communities.
253.
The Committee notes with appreciation the use
of affirmative action measures, especially in
the field of employment, to overcome obstacles
to women's de facto equality. It also commends
the Government on the adoption, in April 1998,
of a Plan of Action on violence against women
with specific budgetary allocations for each
of the areas covered by the Plan. It notes the
high level of women's educational achievement,
especially at the tertiary level. The Committee
commends the Government for recognizing, and
addressing by different means, stereotypical
attitudes as a major source of women's continuing
disadvantage.
Factors and difficulties affecting the implementation
of the Convention
254.
The Committee notes that there are no significant
factors or difficulties which prevent the effective
implementation of the Convention in Spain.
Principal areas of concern and recommendations
255.
The Committee notes that the Spanish Constitution
allows for a high degree of decentralization
and that competence in respect of equal opportunities
has been transferred to the autonomous communities.
While noting that such decentralization may
facilitate greater involvement of citizens,
in particular women, in decision-making processes,
the Committee expresses its concern that in
the absence of effective monitoring mechanisms
of the national Government, such decentralization
may lead to an uneven enjoyment by women of
the rights protected under the Convention in
the State party.
256.
The Committee recommends that the Government
carefully monitor equality measures taken at
the level of the autonomous communities and
their coherence and accountability with national
equality policies. It also urges the Government
to ensure strong links between the central and
local Governments and full support to the Women's
Sectoral Conference so as to enable it to implement
fully its role as a mechanism for collaboration
between the central and regional governments.
257.
The Committee expresses concern that notwithstanding
the Government's active policy and concrete
measures to eliminate them, stereotypical gender-based
attitudes persist with regard to the roles of
women and men in the home, in the workplace
and in society. The Committee is particularly
concerned that while women are gradually becoming
integrated into the world of work, men are not
becoming involved in parental and household
tasks in a comparable rate and manner.
258.
The Committee recommends that high priority
be placed on efforts to eradicate traditional
stereotypes that perpetuate direct and indirect
discrimination against women. The Committee
encourages the State party to strengthen educational
measures, beginning at a very early age, and
to increase its collaboration with civil society
organizations, the media and the private sector
so as to achieve greater balance in the roles
and responsibilities of women and men, particularly
in the sharing of family responsibilities. In
promoting this policy, it is also necessary
simultaneously to encourage greater participation
of women in decision-making in public life.
259.
The Committee notes that women's participation
in the labour market is one of the priority
areas in the Third Plan of Action, and that
the Employment Plan for 1998 is also contributing
to a change in the situation of women in the
labour market. These measures notwithstanding,
the Committee is concerned that women's overall
participation in the labour market is one of
the lowest among Western European countries,
with only 32 per cent of women holding full-time
employment, while the rate of women in part-time
employment remains at 76 per cent. Women's unemployment
rate is almost double that of men and, on average,
women earn about 30 per cent less than men.
While new legislation protecting part-time workers
was introduced in 1998 to promote such employment,
the Committee expresses concern that these measures
may lead to short-term gains in women's employment,
without addressing long-term structural issues
of women's double burden of paid and unpaid
work. These measures may also lead to the perpetuation
and reinforcement of stereotypical attitudes
about women's family responsibilities, rather
than increasing their participation in the labour
market.
260.
The Committee urges the Government to monitor
carefully the impact of legislation governing
part-time work and its potential for unintentionally
trapping women in this type of employment. The
Committee also urges the Government to assess
continuously the adequacy of its incentive programmes
for women entrepreneurs and to monitor the need
for comprehensive programmes providing information,
training, economic incentives and skills development
to ensure success for women in small and medium-sized
enterprises.
261.
While welcoming women's high level of educational
achievement, especially at the university level
where women are in the majority, the Committee
expresses concern that those achievements are
not yet reflected in women's equivalent access
to, and representation in, the labour market.
In particular, while men's and women's share
in public-sector employment is balanced, men
hold two thirds of all jobs in the private sector.
262.
The Committee recommends that the Government
study the causes for women remaining under-represented
in employment commensurate with their educational
level, and examine, in particular, recruitment
practices, training and professional development
opportunities offered in the private sector
with a view to assessing their potential for
indirect discrimination against women.
263.
While welcoming the adoption of a Plan of Action
on violence against women (1998-2000) covering
six areas of activity and with specific resource
allocation for each area, and the amendment
to the Penal Code in 1999 concerning offences
against sexual freedom, as well as on trafficking,
the Committee is concerned about the apparent
increase in domestic violence.
264.
The Committee urges the Government to ensure
that rigorous attention is paid to domestic
violence in the implementation of the Plan of
Action. The effectiveness of the steps taken
should be monitored on a regular basis, and
a comprehensive impact assessment undertaken
at the end of the period covered by the Plan.
The Committee also recommends that as experience
is gained from implementation of the Plan based
on good practices the Government continue to
introduce appropriate measures to eliminate
domestic violence. It further urges that domestic
violence issues be included as a mandatory part
of the basic training of law enforcement personnel,
and that investigation and prosecution of domestic
violence complaints be undertaken on a par with
other criminal offences.
265.
The Committee is concerned at the significant
increase in abortions among adolescents aged
15 to 19 years old.
266.
The Committee recommends that abortions among
adolescents be addressed by a multiplicity of
means, including age-appropriate sex education
in primary and secondary schools.
267.
Notwithstanding the existence of a good preventive
policy on HIV/AIDS, the Committee is concerned
at the increase in women's infection rate with
HIV/AIDS. The Committee is also concerned at
the high level of women's drug and tobacco consumption
and other substance abuses.
268.
The Committee recommends that awareness-raising
campaigns be undertaken concerning the preventable
health hazards stemming from tobacco consumption,
and that the need be assessed for additional
regulatory and education measures to prevent
and reduce smoking by women, especially among
adolescents and young women. The Committee also
calls for further study of the causes for the
increase in drug and alcohol use among women.
The Committee invites the State party to provide
in its next report detailed information on the
provision of health services and health insurance
to women, and in particular the potential and
actual impact on women of any steps considered
or taken towards privatization of the health
sector.
269.
While the Committee appreciates the Government's
declared intention to apply the gender mainstreaming
strategy in all policies and programmes, it
notes the absence of any systematic attention
to, or policy directed at the changes in the
demographic composition of the State party.
It notes a lack of attention to the situation
of older women and the implications of demographic
changes for women's health, poverty, pension
entitlements and elder abuse. The Committee
is particularly concerned that, according to
the oral replies of the State party, women's
domestic work and care for older persons are
the two most important obstacles to women's
equal participation in public life, and that
83 per cent of those caring for older persons
are women.
270.
The Committee recommends that the situation
of older women be addressed in a comprehensive
manner in the next Plan on Equal Opportunities
as a matter of priority, and in a cross-cutting
and cross-sectoral manner, with emphasis on
older women's pension entitlements. It also
recommends that the care requirements for older
persons be addressed through public policy measures
in order to establish societal responsibility
for their well-being, rather than allowing it
to remain predominantly as women's unpaid responsibility.
271.
While the Committee notes the efforts deployed
to reduce the illiteracy rate among women, it
urges the Government to strengthen this policy
in order to reduce women's illiteracy and thereby
enable them to have access to information concerning
their rights under the Convention.
272.
The Committee is concerned at the lack of information
on the number and type of women's studies courses
at institutions of higher learning. It recommends
that the Government provide this information
in its next periodic report.
273.
The Committee notes with appreciation that the
issue of women in rural settings is one of the
10 areas of concern in the Third Plan of Action
for Equal Opportunities. At the same time, the
Committee is concerned about the lack of data
with regard to rural women's poverty, employment
rate, health situation, and educational achievement.
It also notes a lack of data and information
on the situation of other groups of particularly
vulnerable women, such as disabled women.
274.
The Committee is concerned at the situation
of foreign women workers in domestic service,
asylum seekers and women who may be living clandestinely
in Spain. The Committee is concerned that these
women may lack adequate protection from violence
and abuse.
275.
The Committee recommends that the situation
of these women workers be assessed in greater
depth, with particular emphasis on the types
of work, legislative provisions governing their
employment, and de facto situation. It also
recommends that measures be taken to improve
their level of literacy, including legal literacy.
276.
The Committee requests that the Government respond
in its next periodic report to the specific
issues raised in these concluding comments.
277.
The Committee requests the wide dissemination
in Spain of the present concluding comments,
in order to make the people of Spain, and particularly
government administrators and politicians, aware
of the steps that have been taken to ensure
de jure and de facto equality for women
and further steps that are required in that
regard. It also requests the Government to continue
to disseminate widely, and in particular, to
women's and human rights organizations, the
Convention, the Committee's general recommendations
and the Beijing Declaration and Platform for
Action.