Direct Request (CEACR) - adopted 2025, published 114th ILC session (2026)

Russian Federation

Equal Remuneration Convention, 1951 (No. 100) (Ratification: 1956)
Discrimination (Employment and Occupation) Convention, 1958 (No. 111) (Ratification: 1961)

In order to provide a comprehensive view of the issues relating to the application of ratified Conventions on equality, the Committee considers it appropriate to examine the Conventions Nos 100 (equal remuneration) and 111 (discrimination in employment and occupation) together.

The Committee notes the observations from the Federation of Independent Trade Unions of Russia (FNPR) and from the Confederation of Labour of Russia (KTR) on both Conventions, communicated with the Government’s reports. It further notes the observations from the KTR on both Conventions, received on 30 August 2024. The Committee requests the Government to provide its comments in this respect.

Convention No. 111 – National policy to promote equality of opportunity and treatment in respect of employment and occupation

Article 1(1)(a). Prohibited grounds of discrimination. Discrimination based on sex. Job advertisements and recruitments practices. The Committee notes the adoption of Federal Law No. 565-FZ of 12 December 2023 on Employment which provides that the dissemination of information concerning job advertisements or vacant positions that contains information of a discriminatory nature, in particular based on sex, is prohibited except in cases where the right or obligation to establish such restrictions or advantages is provided for by federal laws (section 53(3)). Persons disseminating information about job openings or vacancies that contain discriminatory information will be subject to a penalty of fine, pursuant to section 13(11)(1) of the Code of Administrative Offences. In this regard, the Committee notes the Government’s indication, in its report, that, in 2023, 20 persons were subject to administrative liability through the courts, on the basis of prosecutor decisions that such an offence had been committed. It notes, however, that in its observations, the KTR highlights that: (1) the amount of the fines provided for under section 13(11)(1) of the Code of Administrative Offences is purely symbolic and not dissuasive; and (2) despite formal compliance with requirements not to post-discriminatory job advertisements, in practice, many employers, including public authorities at both the federal and the regional levels, continue to apply discriminatory requirements during the recruitment stage, regarding mainly jobseekers sex, marital status and whether they have or intend to have children. In KTR’s views, the lack of a legislative ban on asking questions other than those directly linked to the professional and vocational skills of applicants at the recruitment stage is one of the reasons of the persistence of such discriminatory practices. The Committee notes with regret the absence of information from the Government regarding any measures taken to prevent and address such discriminatory practices. The Committee again asks the Government to provides information on: (i) the measures taken to ensure that, in practice, employers and recruitment agencies do not apply discriminatory criteria at the recruitment stage, including awareness-raising activities carried out for employers, workers and their organizations concerning the prohibition of discrimination in job advertising and hiring; (ii) any studies carried out regarding discriminatory practices in recruitment, and their results; and (iii) the number of cases relating to discriminatory recruitment practices dealt with by the competent authorities, the penalties imposed and remedies granted.

Articles 1 to 3. Equality of opportunity and treatment on the grounds of race, colour and national extraction. Indigenous peoples. The Committee notes the Government’s indication that several decrees were adopted to implement Federal Act No. 11-FZ of 6 February 2020, amending Federal Law No. 82-FZ of 30 April 1999 on Guarantees of the Rights of Numerically Small Indigenous Peoples, in order to establish a procedure for registration on the unified list of persons belonging to small-numbered indigenous peoples (i.e. with a population of less than 50,000 individuals) as a pre-requirement for having access to their social and economic rights and participate in decision-making processes. The Government adds that, pursuant to Decree No. 1520 of 23 September 2020, since February 2022, state and local authorities started to use information on individuals included on unified list to ensure their social and economic rights. As of 24 May 2024, 91,271 persons were included on the list. As regards the procedure for registration on the unified list, the Committee notes the Government’s statement that the Federal Agency for Ethnic Affairs is currently working to address the question of providing a state service for the registration of persons belonging to small-numbered indigenous peoples, through the unified portal of state and municipal services, which would allow citizens to submit their applications from any location with access to the Internet. In this regard, the Committee notes that several United Nations (UN) treaty bodies and Special Rapporteur recently expressed concerned about: (1) the fact that only 47 of the approximately 190 groups of indigenous peoples are officially recognized as such due to the narrow definition of indigenous peoples in the legal framework, which provides for a numerical ceiling of 50,000 individuals, beyond which self-identified indigenous groups are not classified as indigenous and thus prevented from enjoying legal protection of their lands, resources and livelihoods; (2) dissemination of negative stereotypes against indigenous peoples and their limited access to education; (3) the insufficient representation of indigenous peoples in decision-making bodies and inadequacies of processes of consultation with indigenous peoples on the development of legislation and other measures affecting their rights at the local, regional and federal levels; as well as (4) reports of arbitrary restrictions imposed on indigenous peoples’ traditional and culturally rooted subsistence activities, such as hunting and fishing (E/C.12/RUS/CO/7, 23 October 2025, paras 16 and 66; A/HRC/60/59, 15 September 2025, para. 117; and CERD/C/RUS/CO/25-26, 1 June 2023, paras 14 and 29). The Committee asks the Government to provide information onthe measures taken, with the participation of the social partners and the interested groups, to: (i) address the barriers faced by indigenous communities in obtaining recognition in order to secure access to their lands, resources and livelihoods to perform their traditional occupations; (ii) ensure that all indigenous peoples have access without discrimination to education, land and resources, especially those which allow them to practice their traditional activities and retain their means of subsistence; and (iii) promote equality of opportunity and treatment for indigenous peoples in education, training, employment and occupation.

Equality of opportunity and treatment for persons with disabilities. The Committee notes the adoption of Federal Law No. 565-FZ of 12 December 2023 on Employment, as well as subsequent amendments, aimed at enhancing employment opportunities for persons with disabilities. It notes, in particular, that the new law introduces employment quotas for employers with more than 35 employees – ranging from 2 to 4 per cent of the average workforce – together with the establishment of special workplaces and the provision of assistance for persons with disabilities seeking employment or already in employment. It further notes the adoption of Federal Law No. 382-FZ of 9 November 2024, amending section 5.42 of the Code of Administrative Offences, which increases fines applicable to employers in case of non-compliance. The Committee welcomes these legislative developments. The Committee asks the Government to provide information on: (i) the implementation of measures aimed at improving employment opportunities for persons with disabilities, including the application of quotas and any other steps taken to ensure equality of opportunity and treatment for persons with disabilities in education, vocational training and employment; (ii) the employment rates of persons with disabilities, disaggregated by sex and work environment (segregated work environment or the open labour market); and (iii) the number and nature of cases relating to discrimination on the ground of disability in employment and occupation dealt with by the competent authorities, the sanctions imposed and remedies granted.

Convention No. 100 – Principle of equal remuneration for men and women for work of equal value

Article 3. Objective job evaluation. The Committee notes the Government’s indication that, pursuant to sections 129, 132 and 135 of the Labour Code, a worker’s remuneration must be defined in the employment contract, in accordance with the remuneration systems in place at the enterprise and depending on the workers’ qualification, the complexity of the tasks performed, and the quantity and quality of the work. Referring to its previous comments, the Committee notes that, in its observations, the KTR expresses concern at the lack of progress in developing recommendations for the introduction of gender-neutral methods of job evaluation and for improving access to wage information. The Committee further notes that, in its observations, the FNPR emphasizes that insufficient transparency in wage-setting systems may contribute to inequalities in remuneration and hinder workers’ ability to assess the value of their work and compare their wages with those of other workers. The Committee notes with regret the absence of information from the Government on any steps taken or envisaged to ensure objective job evaluation. In light of the widening gender pay gap and persistent occupational segregation, the Committee recalls that the effective application of the Convention requires the development of methods to measure and compare the relative value of different jobs performed by men and women, based on an examination of the respective tasks involved, using objective and non-discriminatory criteria – such as skill, effort, responsibilities and working conditions – so as to avoid the assessment being tainted by gender bias (see General Survey of 2012 on the Fundamental Conventions, paras 695 and 696). The Committee again asks the Government to provide information on: (i) the measures taken to promote, develop and implement practical, gender-neutral approaches and methods for the objective evaluation of jobs, in both the public and private sectors, based on criteria that are free from gender bias, such as qualifications and skills, effort, responsibilities and conditions of work; and (ii) any measures envisaged to improve access to information on wages, including wage transparency policies, in order to facilitate the comparison of remuneration levels.

Convention No. 100 and 111 – Application in practice

Articles 2(2)(c) and 4 of Convention No. 100 and Article 3(a) of Convention No. 111. Collective agreements and gender equality. The Committee notes the Government’s statement that the new General Agreement for 2024–2026, concluded between all trade union associations, all employers’ associations and the Government, reiterates that where violations of the principle of equal pay for men and women for work of equal value are identified, the parties shall develop measures to eliminate such violations (para. 2.1.4). The Committee observes that, in its observations, the KTR expresses concern that the wording of the tripartite General Agreement remains unchanged from previous years, and that it has no information regarding cooperative efforts among the social partners to implement the principle of equal remuneration for work of equal value or to identify and remedy violations in practice. The KTR further indicates that examples of company-level practices point to persistent challenges in ensuring actual compliance with the principle of equal pay for work of equal value, highlighting the potential for progress through targeted action. The Committee asks the Government to provide information on: (i) any violations of the principle of equal remuneration for men and women for work of equal value that have been identified, and on any follow-up measures taken or envisaged, by the Government and the social partners, to address them; and (ii) any measures taken to promote the inclusion in collective agreements of provisions advancing gender equality and equal remuneration for men and women.

Enforcement. The Committee notes the Government’s indication that state labour inspectorates carried out 4,647 supervisory measures, in 2023, including 309 inspection visits, 80 spot checks, 1,852 document inspections, 2,403 field inspections and 3 field surveys. According to the Government, none of these measures resulted in findings of discrimination or wage inequality between men and women. In its observations, the FNPR emphasizes: (1) the general nature of the information provided by the Government, which does not allow for an adequate assessment of the practical application of Conventions Nos 100 and 111; and (2) the limited scope of monitoring activities in practice, due in particular to the moratorium on inspections. In this regard, the Committee refers to its 2024 observation on the Labour Inspection Convention, 1947 (No. 81), concerning the insufficient and declining number of labour inspectors, the restrictions imposed on their powers, and the moratorium on both scheduled and unscheduled inspections. It further notes that, in its observations, the KTR stresses that, despite the legal prohibition of discrimination, perpetrators of discriminatory acts are often not held accountable, owing mainly to: (1) the requirement that complaints of discrimination be brought before the courts, as no other authority, including the state labour inspectorates, is competent to handle such cases; (2) the limited awareness of law enforcement authorities regarding discrimination, which is linked to the absence of a clear definition of discrimination in national legislation; (3) the inadequacy of the rules on the burden of proof, which place an excessive burden on the victim; and (4) the lack of appropriate and dissuasive sanctions. The KTR also indicates that a study conducted between 2021 and 2024 documented dozens of cases of discrimination by employers, a significant proportion of which never reached the courts. In this regard, the Committee notes that, in their concluding observations, several UN treaty bodies expressed concern about reports that procedures for the appointment, promotion, disciplining and dismissal of judges do not fully ensure their institutional and functional independence, thereby undermining public confidence in a judiciary perceived as not independent (E/C.12/RUS/CO/7, 23 October 2025, para. 10; and CCPR/C/RUS/CO/8, 1 December 2022, para. 24). The Committee therefore asks the Government to: (i) take the necessary measures to strengthen the enforcement of legislation on equality and non-discrimination in employment and occupation, including through public awareness-raining activities, targeted labour inspections, effective access to procedures, and the application of appropriate sanctions; and (ii) provide information on the number of discrimination cases in employment and occupation, disaggregated by ground of discrimination – including cases of unequal remuneration – dealt with by the state labour inspectorates, the courts or any other competent authorities, the sanctions imposed and remedies granted.