Equal Remuneration Convention, 1951 (No. 100) - Russian Federation (Ratification: 1956)

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

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.

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

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 Conventions Nos 100 (Equal Remuneration) and 111 (Discrimination in Employment and Occupation), together.

The Committee notes the observations 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) and (3). Prohibited grounds of discrimination. Legislation. The Committee notes the Government’s indication, in its report, that section 4 of Federal Law No. 565-FZ of 12 December 2023 enshrines the principle of equality of opportunity in employment, regardless of several grounds already reflected in section 3 of the Labour Code. Referring to its previous comments, the Committee again notes with regret the absence of information from the Government on the meaning and scope of the term “convictions”, as a prohibited ground of discrimination in its legislation, and whether it also covers “political opinion” referred to in Article 1(1)(a) of the Convention. The Committee notes that, in its observations, the KTR reiterates that the current legislative framework does not ensure effective protection against discrimination and expresses concern about: (1) the lack of legal protection against indirect discrimination in all aspects of employment and occupation; (2) the absence of a clear definition of the various types of discrimination; and (3) the resulted limited understanding of the concept of discrimination among workers, employers, and judges. In light of the above, the Committee again urges the Government to take the necessary measures to ensure effective and comprehensive protection against both direct and indirect discrimination on at least all of the grounds enumerated in Article 1(1)(a) of the Convention, including “political opinion”, and with respect to all aspects of employment and occupation in line with Article 1(3). It asks the Government to provide information on: (i) the measures taken to that end; and (ii) any proactive steps taken to raise awareness among employers, workers, their respective organizations, and law enforcement authorities regarding direct and indirect discrimination in employment and occupation.

Discrimination based on sex. Sexual harassment. The Committee notes the Government’s statement that existing legislation already provides for criminal and administrative liability for cases of violence, including offences against sexual integrity or sexual freedom, violent acts of a sexual nature and coercion to engage in such acts. Recalling that sexual harassment is a serious form of sex discrimination, the Committee regrets the absence of progress in explicitly defining and prohibiting sexual harassment in employment and occupation. It recalls that the prohibition or criminalization of specific acts, such as rape or sexual assault, does not cover the full range of behaviours that constitute sexual harassment in employment and occupation, and that, without a clear definition, it remains doubtful whether the legislation effectively addresses both quid pro quo and hostile work environment sexual harassment (see 2023 General Survey on achieving gender equality at Work, paras 111–117). The Committee again urges the Government to incorporate into labour legislation a clear definition and explicit prohibition of both forms of sexual harassment in employment and occupation. It asks the Government to provide information on: (i) practical measures taken to prevent and address sexual harassment in employment and occupation, including awareness-raising activities for employers, workers and their respective organizations; and (ii) the number of cases of sexual harassment dealt with by the courts or other competent authorities, the sanctions imposed and remedies granted.

Articles 2 and 3. Equality of opportunity and treatment irrespective of race, colour and national extraction. Roma people. The Committee notes the Government’s indication that the updated Comprehensive Action Plan for the Social and Cultural Development of Roma people in the Russian Federation was approved on 12 October 2022. It further notes that: (1) the Federal Agency for Ethnic Affairs (FADN) coordinates the plan and oversees its implementation; (2) the Plan identifies specific measures to improve the education of Roma children, in particular through Russian-language teaching; and (3) biennial research is conducted on the integration of Roma people, with the 2022 study indicating that most Roma respondents did not report discrimination based on ethnicity or language. As regards segregation, the Government states that separate classes for Roma children are rare, limited to primary education, stem from adaptive educational programmes to address differences in education levels, and exist solely at the request of the parents. The Government further indicates that steps have been taken to counter-negative stereotypes through public information and the dissemination of materials highlighting positive aspects of Roma life, and that public subsidies have supported vocational training and employment among Roma people. The Committee welcomes this information. It observes however that several UN treaty bodies have recently expressed concern about: (1) widespread negative stereotypes, prejudices and intolerance against Roma people; (2) persistent segregation in education and reports of lower school access, attendance, retention and completion rates for Roma children at all levels; and (3) the continuing social exclusion and disproportionately high levels of poverty affecting Roma people (E/C.12/RUS/CO/7, 23 October 2025 para. 62; and CERD/C/RUS/CO/25-26, 1 June 2023, paras 14, 16 and 25). The Committee urges the Government to intensify its efforts to combat stigma, prejudices and discrimination against Roma people and to ensure effective equality of opportunity and treatment in education, training and employment. It asks the Government to provide information on:(i) the measures taken under the Comprehensive Action Plan and any available assessment of their impact;(ii) any specific measures adopted to address segregation faced by Roma people in practice, including with regard to ensuring equal access to education; and(iii) the participation of Roma people in education, vocational training and employment.

Migrant workers. The Committee notes that the information provided by the Government refers primarily to efforts to combat irregular migration, rather than to measures taken to eliminate discrimination against migrant workers on all the grounds listed in the Convention. Referring to its previous comment, the Committee recalls that the intersection between migration and discrimination should be addressed in the context of the Convention. While Article 1(1)(a) of the Convention does not refer specifically to “nationality” as a prohibited ground of discrimination, migrant workers are particularly vulnerable to prejudices and differences in treatment in the labour market on grounds such as race, colour and national extraction, often intersecting with other grounds such as gender and religion which may make it difficult to determine whether discriminatory treatment faced by migrant workers is exclusively based on their nationality or on racial, ethnic, religious or other characteristics. In that respect, the Committee further notes that several UN treaty bodies and Special Rapporteur have recently expressed concern about: (1) continued manifestations of hate speech and negative stereotypes targeting migrants, particularly those from Central Asia, the Caucasus and persons of African descent; (2) migrant workers, especially from Central Asia and the Caucasus, still facing harsh working conditions – including excessive working hours and wage violations – abuse, exploitation and discrimination in employment; and (3) limited access to complaint mechanisms, labour inspections and effective remedies (A/HRC/60/59, 15 September 2025, para. 127; E/C.12/RUS/CO/7 23 October 2025, para. 36; and CERD/C/RUS/CO/25-26,1 June 2023, para. 14, 16 and 31). The Committee notes with concern these developments and the lack of information from the Government on measures taken or envisaged to prevent and address discrimination against migrant workers. It also refers to its 2024 observation on the Forced Labour Convention, 1930 (No. 29) regarding the vulnerability of migrant workers to forced labour. The Committee urges the Government to prevent and combat discrimination on the grounds of race, colour and national extraction, including by addressing prejudices and stereotypes, and to ensure equality of opportunity and treatment in employment and occupation for migrant workers and students, particularly those from Central Asia, the Caucasus and persons of African descent. It asks the Government to provide information on: (i) any specific measures implemented to that end, including awareness-raising campaigns and any assessment of their impact; and (ii) any measures taken to ensure access to protection and remedies for migrant workers victims of discrimination, including data on the number, nature and outcomes of relevant cases dealt with by the courts or other competent authorities.

Articles 1 to 3. National policy for equality of opportunity and treatment for men and women. The Committee welcomes the adoption of the National Action Strategy for Women for 2023–30, approved by Government Resolution No. 4356-r of 29 December 2022, together with its 2023–26 action plan. It notes that the Strategy acknowledges the need to address occupational segregation, including by expanding women’s access to employment and leadership positions, particularly through the development of childcare and long-term care services. It notes the Government’s indication that an analysis carried out in 2023 recommended the introduction of specific targets and quantitative indicators to better assess the implementation of the Strategy. The Government further reports that measures have been adopted to enhance women’s access to vocational training and to expand childcare services for preschool-aged children. The Committee however notes that, according to ILOSTAT, women’s labour force participation stood at 60.3 per cent in 2024, 16.5 percentage points lower than men’s, a gap wider than in 2020. In that regard, it notes the KTR’s concerns regarding: (1) women’s persistently lower employment rates despite higher education level; (2) continuing occupational segregation, with women concentrated in education (82.4 per cent), healthcare and social services (79.7 per cent), and hotel and restaurant services (74.4 per cent); (3) the disproportionately high representation of men in senior management positions in female-dominated activities, where women account for only around 20 per cent of managers in education and 26 per cent in healthcare services as of July 2024; and (4) the overall low representation of women in senior management positions, in particular in the private sector. The KTR also highlights the underestimated importance of temporary special measures – such as employment quotas – to reduce vertical segregation and accelerate de facto equality. The Committee further notes that, in its 2025 concluding observations, the UN Committee on Economic, Social and Cultural Rights (CESCR) expressed concern about persistent gender disparities, the disproportionate burden of unpaid domestic and care work borne by women and their under-representation in decision-making positions in both the public and private sectors (E/C.12/RUS/CO/7, 23 October 2025, para. 26). The Committee urges the Government to: (i) intensify its efforts to address gender stereotypes regarding the roles and responsibilities of women and men in the family and society, as well as persistent vertical and horizontaloccupational segregation; and (ii) provide information on the nature and impact of measures adopted to enhance gender equality in employment and occupation, including statistical data on men’s and women’s participation in vocational training and employment, disaggregated by economic sector and occupational category.

Articles 1(1)(a) and 5. Discrimination based on sex. Special measures of protection. The Committee notes the adoption of Order No. 724n of 25 December 2024 of the Ministry of Labour, amending the list of jobs and occupations with harmful or hazardous working conditions where women’s employment is restricted, established by Order No. 512 of 18 July 2019 pursuant to section 253 of the Labour Code. It observes that, while several mining activities are now open to women, new restrictions were introduced at the same time. In its observations, the KTR stresses that, despite a shortened list, women remain excluded from a wide range of sectors and occupations, creating a broad de facto ban that affects all women in the country and further reinforces horizontal occupational segregation. The KTR adds that many of the prohibited jobs for women offer higher wages – 20 to 30 per cent above regional averages – and enhanced social benefits, and that, in smaller industrial towns characterized by a predominance of industries included in the list, such restrictions significantly reduce women’s employment opportunities. The Committee further notes that a draft bill No. 251841-8, aimed at repealing section 253 of the Labour Code “to eliminate the legal basis for professional and economic discrimination against women”, was rejected by the State Duma through Resolution No. 3980-8 GD of 25 May 2023. Observing that the National Action Strategy for Women for 2023–2030 acknowledges the need to reduce restrictions on women’s work, the Committee again urges the Government to ensure that any remaining limitations are strictly limited to maternity protection and based on objective risk assessment, rather than stereotyped perceptions of women’s capacities. It again asks the Government to provide information on: (i) progress made in reviewing these restrictions, including in consultation with the social partners; and (ii) measures taken or envisaged to address legal and practical barriers to women’s employment, including through amendments to sections 99, 113, 253, 259 and 298 of the Labour Code concerning working time restrictions for women with young children.

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

Articles 1 to 4. Assessing and addressing the gender pay gap. The Committee notes, from the statistical information of the Federal State Statistics Service (Rosstat), that the average gender pay gap increased by 2.9 per cent since 2021, reaching 30.4 per cent in 2023. It observes that the gap was as wide as 33.5 per cent among highly qualified specialists – 69.6 per cent of whom were women – and up to 42.1 per cent among top-level managers. Across economic sectors, women’s wages remained systematically lower than men’s, with women still concentrated in lower-paid sectors, such as education and healthcare and social services, while men predominated in higher-paid sectors, such as construction and mining. The Committee notes the Government’s indication that the gender pay gap largely reflects occupational segregation and persistent stereotypes regarding the roles of men and women in the family, with women bearing a disproportionate burden of family responsibilities. In this regard, the Committee notes that, according to the KTR, the widest gender pay gap occurs between ages 30 and 39, when family responsibilities are at their highest. The KTR adds that limited childcare and long-term care services continue to restrict women’s access to higher-paid positions, thereby contributing to persistent gender pay disparities. The Committee refers in this respect to its 2022 direct request on the application of the Workers with Family Responsibilities Convention, 1981 (No. 156). The Committee notes with concern the widening gender pay gap and the repeated lack of information from the Government on concrete measures taken to address this situation. It recalls that the underlying causes of the gender pay gap are closely related to equality of opportunity and treatment between men and women in employment and occupation. Observing that the National Action Strategy for Women for 2023–2030 acknowledges the need to reduce pay differentials between men and women, the Committee urges the Government to take the necessary steps to reduce the gender pay gap and to provide: (i) information on proactive measures addressing its structural causes, including occupational segregation and gender stereotypes; and (ii) statistical data, disaggregated by sex, on pay disparities by economic sector and occupational category.

The Committee is raising other matters in a request addressed directly to the Government.

Direct Request (CEACR) - adopted 2022, published 111st ILC session (2023)

The Committee notes the observations of the Confederation of Labour of Russia (KTR) received on 31 August 2021.

Article 3 of the Convention. Objective job evaluation. The Committee notes the Government’s indication, in its report, that section 132 of the Labour Code provides that remuneration shall depend upon qualifications, complexity of work, and quantity and quality of the work performed. In that regard, the Government refers to: (1) the adoption of Federal Act No. 238-FZ of 3 July 2016 on Independent Assessment of Qualifications, which establishes the procedure for confirming the qualifications of employees or persons applying for a specific job; and (2) the corresponding amendments introduced as a result into the Labour Code (Federal Act No. 239-FZ of 3 July 2016) and the Tax Code (Federal Act No. 251-FZ of 3 July 2016). The Committee notes the Government’s indication that wage differences between men and women are not based on gender but rather on the complexity of the work performed and the effectiveness of the employee. In that regard, it notes that, in its observations, the KTR highlights that recommendations to introduce gender neutral methods for job evaluation that would focus on the content of work and not on the skills and characteristics of those performing it, are not being developed at the state level. The KTR further regrets the lack of access to information on salaries or the possibility to make comparisons. The Committee wishes to recall that while criteria such as quality and quantity of work may be used to determine the level of earnings, the use of only these criteria is likely to have the effect of impeding an objective evaluation of the work performed by men and women to determine the value of such work. Indeed, the effective implementation of the principle of the Convention requires some method of measuring and comparing the relative value of different jobs held by men and women, through an examination of the respective tasks involved, undertaken on the basis of entirely objective and non-discriminatory criteria, such as skill, effort, responsibilities and working conditions, in order to avoid the assessment being tainted by gender bias. Therefore, objective job evaluation is concerned with evaluating the job and not the performance of an individual worker in carrying out his or her job (see 2012 General Survey on the fundamental Conventions, paragraphs 695 and 696). The Committee asks the Government to provide information on:

• (i)the measures taken to promote, develop and implement practical 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 or elaborated to enable access to information on salaries, such as wage transparency policies, so as to ensure the possibility of comparing remuneration levels.

Articles 2(2)(c) and 4. Collective agreements and collaboration with the social partners. The Committee notes that, in its report submitted to the United Nations (UN) Committee on the Elimination of Racial Discrimination (CERD) in 2020, the Government states that given the economic independence of business entities, collective bargaining is a key factor in regulating compensation of employees. In accordance with the current legislation, employees may influence the level of their wages and salaries when entering into collective agreements and industrywide pay scale agreements (CERD/C/RUS/25-26, 3 July 2020, paragraph 331). The Committee welcomes the tripartite General Agreement for 2021-2023 concluded between all the trade union associations, all the employers’ associations and the Government, which specifically provides that: (1) if violations of the principle of equal pay for men and women are identified, regarding equal value, the parties to the Agreement shall develop measures to eliminate such violations; and (2) collective bargaining should be enhanced regarding regulation of employee’s remuneration. Recalling the important role of workers’ and employers’ organizations with regard to giving effect to the provisions of the Convention, the Committee asks the Government to provide information on:

• (i)the manner in which the application of the Convention is promoted through collective agreements;
• (ii)the actions undertaken to promote the implementation of the principle of equal remuneration for work of equal value with the cooperation of the social partners, in particular in the framework of the tripartite General Agreement for 2021-2023, and the results of such initiatives; and
• (iii)any violations of the principle of equal remuneration for men and women for work of equal value identified and any measures developed, by the Government and the social partners, to eliminate such violations.

Awareness-raising and enforcement. The Committee notes with regret the repeated lack of information from the Government on the enforcement of the legal provisions relating to equal remuneration, as well as on cases dealt with by the competent administrative and judicial authorities. It draws the Government’s attention to the fact that this may be due to the lack of awareness of or access to the respective rights and procedures, and to the remedies provided for under the law, or to fear of reprisals. In light of the wide and persistent gender pay gap, the Committee again asks the Government to provide information on:

• (i)any proactive measures taken in order to raise public awareness of the relevant legislative provisions, and of the procedures and remedies available in relation to equal remuneration for men and women for work of equal value
• (ii)the number of labour inspections carried out and pay inequality cases between men and women identified and the number of pay inequality cases dealt with by the competent administrative and judicial authorities, the sanctions imposed and remedies granted.

Observation (CEACR) - adopted 2022, published 111st ILC session (2023)

The Committee notes the observations of the Confederation of Labour of Russia (KTR) received on 31 August 2021.

Articles 1–4 of the Convention. Assessing and addressing the gender pay gap and its underlying causes (occupational segregation). The Committee notes that, according to the statistical information from the Federal State Statistics Service (Rosstat) provided by the Government in its report, the average gender pay gap remained high at 27.9 per cent in 2019 (compared with 27.4 per cent in 2015). It observes that the gender pay gap was as wide as 40 per cent for mid-level professionals, where women represented 68.9 per cent of the total number of workers, and 30.1 per cent for top level professionals, where women represented 70.6 per cent of the total number of workers. Furthermore, in all economic sectors, wages of women were systematically lower than men’s. In that regard, the Committee notes the persistence of occupational gender segregation, with women being still concentrated in hotel and restaurant services (66 per cent), education (79.9 per cent), healthcare and social services (79.9 per cent), while men were mostly working in construction (83.5 per cent), mining (81.7 per cent) and production and distribution of electricity, gas and water (66.9 per cent). It also notes that, in its observations, the KTR highlights that, in sectors where women are most concentrated: (1) the average monthly salary was systematically lower than the national average salary while the opposite applies for sectors where men are concentrated, except in construction where there is a significant percentage of migrant workers; and (2) men remain disproportionately represented in management. In that regard, the KTR adds that, while the share of women in management positions over two years grew by 1.2 per cent and was approaching parity (49.7 per cent in 2019), the gender pay gap in hourly earnings for managers was estimated at 31.6 per cent in 2019. Despite this situation, in KTR’s view, the Government did not take any serious commitment to promote gender equality or elaborate and implement inclusive, comprehensive and gender-sensitive approaches in order to reduce the gender pay gap. The Committee notes with concern this information and regrets that the Government did not provide information on any measures elaborated or implemented in order to address the wide and persistent gender pay gap and its underlying causes. It notes that, in its 2020 conclusions, the European Committee of Social Rights (ECSR) concluded that the Russian Federation was not in conformity with Article 20(c) of the European Social Charter, which requires the implementation of appropriate measures regarding remuneration to ensure equal opportunities and equal treatment between men and women in matters of employment and occupation, on the ground that the obligation to make measurable progress in reducing the gender pay gap has not been fulfilled (March 2021, pages 32–33). Furthermore, in its 2021 concluding observations, the United Nations Committee on the Elimination of Discrimination against Women (CEDAW) expressed similar concerns (CEDAW/C/RUS/CO/9, 30 November 2021, paragraph 38). Finally, the Committee refers to its comments on the application of the Discrimination (Employment and Occupation) Convention, 1958 (No. 111) and the Workers with Family Responsibilities Convention, 1981 (No. 156) regarding prohibition of women’s employment in specific occupational activities, as well as gender stereotypes regarding women’s professional capabilities and their role in the family. The Committee therefore urges the Government to take the necessary steps, without delay, in order to address the gender pay gap and its underlying causes, such as persistent vertical and horizontal occupational gender segregation and stereotypes regarding women’s professional aspirations, preferences and capabilities, and their role in the family. It asks the Government to provide: (i) information on the content of the proactive measures implemented to overcome occupational gender segregation in the labour market and reduce the gender pay gap, including by enhancing women’s access to jobs with career prospects and higher pay; (ii) information on any assessment made of the results achieved by such measures; and (iii) statistical information on the earnings of men and women as well as any recent information on the gender pay gap, disaggregated by occupational category if possible, both in the public and private sectors.

The Committee is raising other matters in a request addressed directly to the Government.

Observation (CEACR) - adopted 2017, published 107th ILC session (2018)

The Committee notes the observations of the Confederation of Labour of Russia (KTR) received on 31 October 2017, which were sent to the Government for its comments.

The Committee notes that the Government’s report contains no reply to its previous comments. It is therefore bound to repeat its previous comments, initially made in 2014.

The Committee notes the observations of the Confederation of Labour of Russia (KTR) received on 31 October 2014, which were sent to the Government for its comments.

Articles 1 and 2 of the Convention. Gender pay gap and its underlying causes. The Committee notes that the Government’s 2014 report does not contain information in reply to its previous comments. The Committee also notes the Government’s report submitted in 2011, which indicates that, according to the statistical information provided by the Federal State Statistics Service (Rosstat), there is a wide gender wage gap (36 per cent), with the average wages of women amounting to 64 per cent of those of men in 2011. The main reason for these differences in wages is the representation of men and women in different areas of employment. The statistics show significant horizontal occupational gender segregation, with women being concentrated in hotel and restaurant services, education, health care and social services, and men in transport and communications, construction and production, and the distribution of electricity, gas and water. The Committee notes from the Government’s report on the implementation of the European Social Charter that the average gender wage gap by economic sector varies from 46 per cent in leisure activities, culture and sports to 11 per cent in education. The wages of women were lower than the wages of men in all sectors and all occupational categories (managers, specialists, other “white-collar” workers and “blue-collar” workers); they ranged from 57 per cent of men’s wages among average-skilled workers up to 84 per cent among unskilled workers. In this report, the Government also indicates that part of the difference in wages between men and women is explained by the payment of compensation to men for work in harmful, dangerous and difficult working conditions where it is prohibited to employ women, and for overtime, work on weekends and public holidays, which is prohibited for “certain categories of women” (RAP/RCha/RUS/3(2014), 20 December 2013, pages 27–30). While noting that the legal framework established by the Labour Code reflects the principle of equal remuneration for men and women for work of equal value, the Committee notes that in light of the persistent gender wage gap and the legislative restrictions referred to above, the principle is not applied effectively in practice. The Committee asks the Government to take concrete steps to address horizontal and vertical occupational gender segregation and inequalities in remuneration existing in practice between men and women, including specific measures to address the legal and practical barriers to the employment of women and stereotypical attitudes and prejudices with a view to reducing inequalities in remuneration, and to indicate how the social partners cooperate in this regard. The Government is also requested to provide information on the following points:

• (i) the measures taken to promote the development and use of objective job evaluation methods in both the private and the public sectors;
• (ii) the work and outcome of the Special Task Force on gender equality set up in 2010 in relation to equal remuneration; and
• (iii) statistical information, disaggregated by sex and economic sector, showing the evolution of the participation of men and women in the labour market and their corresponding earnings.

Enforcement. The Committee once again notes the absence of information concerning the enforcement of the legal provisions relating to equal remuneration, as well as on cases dealt with by the competent administrative and judicial authorities. The Committee is concerned that this may be due to the lack of awareness of or access to the respective rights and procedures, and to the remedies provided for under the law, or to fear of reprisals. The Committee once again asks the Government to take appropriate measures to raise public awareness of the relevant legislation, and of the procedures and remedies available in relation to equal remuneration for men and women for work of equal value. Please provide information on equal pay cases dealt with by the competent administrative and judicial authorities.

The Committee hopes that the Government will make every effort to take the necessary action in the near future.

Observation (CEACR) - adopted 2014, published 104th ILC session (2015)

The Committee notes the observations of the Confederation of Labour of Russia (KTR) received on 31 October 2014, which were sent to the Government for its comments.

Articles 1 and 2 of the Convention. Gender pay gap and its underlying causes. The Committee notes that the Government’s 2014 report does not contain information in reply to its previous comments. The Committee also notes the Government’s report submitted in 2011, which indicates that, according to the statistical information provided by the Federal State Statistics Service (Rosstat), there is a wide gender wage gap (36 per cent), with the average wages of women amounting to 64 per cent of those of men in 2011. The main reason for these differences in wages is the representation of men and women in different areas of employment. The statistics show significant horizontal occupational gender segregation, with women being concentrated in hotel and restaurant services, education, health care and social services, and men in transport and communications, construction and production, and the distribution of electricity, gas and water. The Committee notes from the Government’s report on the implementation of the European Social Charter that the average gender wage gap by economic sector varies from 46 per cent in leisure activities, culture and sports to 11 per cent in education. The wages of women were lower than the wages of men in all sectors and all occupational categories (managers, specialists, other “white-collar” workers and “blue-collar” workers); they ranged from 57 per cent of men’s wages among average-skilled workers up to 84 per cent among unskilled workers. In this report, the Government also indicates that part of the difference in wages between men and women is explained by the payment of compensation to men for work in harmful, dangerous and difficult working conditions where it is prohibited to employ women, and for overtime, work on weekends and public holidays, which is prohibited for “certain categories of women” (RAP/RCha/RUS/3(2014), 20 December 2013, pages 27–30). While noting that the legal framework established by the Labour Code reflects the principle of equal remuneration for men and women for work of equal value, the Committee notes that in light of the persistent gender wage gap and the legislative restrictions referred to above, the principle is not applied effectively in practice. The Committee asks the Government to take concrete steps to address horizontal and vertical occupational gender segregation and inequalities in remuneration existing in practice between men and women, including specific measures to address the legal and practical barriers to the employment of women and stereotypical attitudes and prejudices with a view to reducing inequalities in remuneration, and to indicate how the social partners cooperate in this regard. The Government is also requested to provide information on the following points:

• (i) the measures taken to promote the development and use of objective job evaluation methods in both the private and the public sectors;
• (ii) the work and outcome of the Special Task Force on gender equality set up in 2010 in relation to equal remuneration; and
• (iii) statistical information, disaggregated by sex and economic sector, showing the evolution of the participation of men and women in the labour market and their corresponding earnings.

Enforcement. The Committee once again notes the absence of information concerning the enforcement of the legal provisions relating to equal remuneration, as well as on cases dealt with by the competent administrative and judicial authorities. The Committee is concerned that this may be due to the lack of awareness of or access to the respective rights and procedures, and to the remedies provided for under the law, or to fear of reprisals. The Committee once again asks the Government to take appropriate measures to raise public awareness of the relevant legislation, and of the procedures and remedies available in relation to equal remuneration for men and women for work of equal value. Please provide information on equal pay cases dealt with by the competent administrative and judicial authorities.

Observation (CEACR) - adopted 2011, published 101st ILC session (2012)

Application in practice. The Committee notes the Government’s indication that article 19(3) of the Constitution provides for men and women to enjoy “equal rights and freedoms and equal opportunities”. The Committee also notes that, pursuant to article 37(3), everyone shall receive “remuneration for labour without any discrimination whatsoever and not below the minimum wage established by federal law”. The Committee further recalls that, pursuant to section 3 of the Labour Code (Federal Law No. 197-FZ of 2001), everyone shall have equal opportunities in realizing their labour rights and may not be subject to restrictions with regard to these rights or receive any advantages on the grounds of sex in particular; and that, under section 22, the employer shall ensure equal payment to employees for work of equal value. While noting the relevant legal provisions, the Committee remains concerned about the application of these principles in practice particularly in light of the level of women’s earnings in comparison with men’s. Indeed, the Committee notes from the statistical information provided by the Government the existence of a wide gender wage gap, with the average wages of women amounting in 2009 to 65.3 per cent of those of men. In addition, the Committee notes the deep concern expressed by the United Nations Committee on the Elimination of all Forms of Discrimination Against Women (CEDAW), in its concluding observations, concerning the deterioration of the situation of women in employment, and noting, in particular, that they represent the overwhelming majority of workers in lower level and low-paid jobs in the public sector, that they face discrimination in the private sector, and that their share of high-paid jobs in that sector is low (CEDAW/C/USR/CO/7, 16 August 2010, paragraph 36). According to the report submitted by the Government to CEDAW, hidden discrimination against women and their vertical and horizontal segregation remain serious problems in the economic sphere (CEDAW/C/USR/7, 9 March 2009, paragraph 75). The Committee recalls that stereotypical attitudes regarding the roles of women and men in society result in occupational segregation as well as gender-biased undervaluation of the work performed by women. In order to address such occupational segregation and differences of remuneration between men and women in employment, the Committee refers the Government to its 2006 general observation and to the importance of promoting objective and analytical methods for the evaluation of jobs and to cooperate with workers’ and employers’ organizations to promote the application of the principle of equal remuneration for men and women for work of equal value. The Committee further notes the Government’s indication that a special task force on gender equality was established in 2010 in the Ministry of Public Health and Social Development. The Government indicates that the participation of social partners is planned and that issues relating to equal pay for work of equal value will be discussed. The Committee asks the Government as follows:

• (i) to provide information on the measures taken by the special task force on gender equality with a view to promoting and ensuring equal remuneration for men and women for work of equal value;
• (ii) to take steps to address occupational segregation and the inequalities in remuneration existing in practice between men and women, including specific measures to address stereotypical attitudes with a view to reducing inequalities in remuneration, and to continue to seek the cooperation of the social partners in this regard;
• (iii) to provide information on measures taken to promote the development and use of objective job evaluation methods.

Enforcement. The Committee notes the absence of information concerning equal remuneration cases dealt with by the competent administrative and judicial authorities. In this regard, it stresses that the lack of court cases regarding equal remuneration or wage discrimination is likely to indicate a lack of awareness of or access to the rights and procedures and of the existing remedies under the law, or fear of reprisals. The Committee, therefore, asks the Government to take appropriate measures to raise public awareness of the relevant legislation, the procedures and remedies available related to the principle of the Convention. It also asks the Government to consider providing specific training on the principle of equal remuneration for men and women for work of equal value to judges, labour inspectors and other relevant public officials. Please continue to provide information on equal pay cases dealt with by the competent administrative and judicial authorities.

Observation (CEACR) - adopted 2009, published 99th ILC session (2010)

Application in practice. The Committee notes the Government’s report which contains general information regarding the situation of women in the labour market. However, the Government has once again failed to provide the information requested by the Committee in its previous comments. The Committee therefore reiterates its request to the Government to provide the following:

(i)    detailed statistical information on the earnings of women and men in the private and public sectors, as far as possible as set out in the Committee’s 1998 general observation;

(ii)   information on the measures taken or planned to raise awareness and understanding of the right to equal remuneration for women and men for work of equal value among workers and employers, as well as public officials responsible for monitoring the application of the Convention;

(iii) information on equal pay cases dealt with by the competent administrative and judicial authorities; and

(iv)  information on the specific steps taken to seek the cooperation of employers’ and workers’ organizations with a view to giving effect to the provisions of the Convention.

The Committee urges the Government to provide the information requested in its next report.

Direct Request (CEACR) - adopted 2007, published 97th ILC session (2008)

1. Enforcement. The Committee notes from the Government’s report that in 2005 and in the first ten months of 2006 a total of 107,505 labour inspections were carried out. However, no cases of wage discrimination between men and women were found in the course of these inspections. The Committee asks the Government to indicate whether any measures are being taken or planned to raise awareness and knowledge of the right to equal remuneration for women and men for work of equal value among workers and employers, as well as public officials responsible for monitoring the application of the Convention. The Committee also asks the Government to continue to provide information on equal pay cases dealt with by the competent administrative and judicial authorities.

2. Cooperation with workers’ and employers’ organizations. The Committee notes the information provided by the Government concerning the specific cases in which the authorities have facilitated disputes of remuneration issues between unions and enterprises. Recalling the important role of workers’ and employers’ organizations with regard to giving effect to the provisions of the Convention, the Committee asks the Government to continue to provide information on the specific steps taken to seek the cooperation of these organizations.

Observation (CEACR) - adopted 2007, published 97th ILC session (2008)

Application in practice. The Committee notes that despite repeated requests made by the Committee, the Government’s report contains no statistical information concerning the earnings of men and women. The Committee reminds the Government that an analysis of the position and pay of men and women in all job categories within and between the various sectors is required to address fully the continuing remuneration gap between men and women which is based on sex. In order to permit an adequate evaluation of the nature, extent and causes of the pay differential between men and women and the progress achieved in implementing the principle of the Convention, the collection and analysis of the fullest possible statistical information, disaggregated by sex, on the earnings of men and women is crucial. The Committee, therefore, urges the Government to provide detailed information on the earnings of women and men in the private and public sectors, as far as possible as set out in the Committee’s 1998 general observation. In addition, the Committee asks the Government to provide information concerning its own analysis of the evolution of the acknowledged gender pay gap.

The Committee is raising other matters in a request addressed directly to the Government.

Direct Request (CEACR) - adopted 2006, published 96th ILC session (2007)

The Committee notes that the Government’s report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous direct request, which read as follows:

1. Article 1 of the Convention. Application in practice. The Committee notes with concern the information contained in the Government’s report regarding the existing gender wage gap, according to which there is a trend towards increasing discrimination against women in terms of the wages they receive. The Government once again states that, on average, women’s wages are one-third lower than men’s and that women are, to a large extent, employed in the lower paid occupations and in those sectors where the lowest wages are paid, such as light industry, agriculture, health, education and culture. The Committee draws to the Government’s attention the fact that, in order to undertake a meaningful analysis of the existing overall gender wage gap and with a view to designing and implementing appropriate action to address this issue, it is necessary to examine in depth the earnings received by men and women. The Committee therefore reiterates its previous request to the Government to provide in its next report detailed statistical information on the distribution of men and women in the public sector, the civil service and in the private sector, by earnings levels and hours of work, as well as statistical data on the composition of earnings, as outlined in the Committee’s 1998 general observation.

2. Enforcement. While the Government recognizes the existence of wage discrimination against women, it indicates that the investigations concerning payment of wages carried out by the state labour inspectorate in 2002 and 2003 did not reveal any case of sex-based wage discrimination against women. The Committee asks the Government to continue to provide information on the measures taken and methodology used by the state labour inspectorates to ensure the application of the principle of equal remuneration for men and women workers for work of equal value.

3. Articles 2 and 3. Determination of remuneration and objective job evaluation. The Committee noted previously that section 143 of the Labour Code provides that wage rates are set and employees are assigned to wage categories on the basis of unified rate and skill reference books. The Committee reiterates its request to the Government to provide information on the methodology and criteria used to establish the skill references and the corresponding wage rates.

4. Article 4. Cooperation with employers’ and workers’ organizations. The Government is requested to provide information on any cooperation with workers’ and employers’ organizations for the purpose of giving effect to the provisions of the Convention.

Direct Request (CEACR) - adopted 2005, published 95th ILC session (2006)

1. Article 1 of the Convention. Application in practice. The Committee notes with concern the information contained in the Government’s report regarding the existing gender wage gap, according to which there is a trend towards increasing discrimination against women in terms of the wages they receive. The Government once again states that, on average, women’s wages are one-third lower than men’s and that women are, to a large extent, employed in the lower paid occupations and in those sectors where the lowest wages are paid, such as light industry, agriculture, health, education and culture. The Committee draws to the Government’s attention the fact that, in order to undertake a meaningful analysis of the existing overall gender wage gap and with a view to designing and implementing appropriate action to address this issue, it is necessary to examine in depth the earnings received by men and women. The Committee therefore reiterates its previous request to the Government to provide in its next report detailed statistical information on the distribution of men and women in the public sector, the civil service and in the private sector, by earnings levels and hours of work, as well as statistical data on the composition of earnings, as outlined in the Committee’s 1998 general observation (attached for ease of reference).

2. Enforcement. While the Government recognizes the existence of wage discrimination against women, it indicates that the investigations concerning payment of wages carried out by the state labour inspectorate in 2002 and 2003 did not reveal any case of sex-based wage discrimination against women. The Committee asks the Government to continue to provide information on the measures taken and methodology used by the state labour inspectorates to ensure the application of the principle of equal remuneration for men and women workers for work of equal value.

3. Articles 2 and 3. Determination of remuneration and objective job evaluation. The Committee noted previously that section 143 of the Labour Code provides that wage rates are set and employees are assigned to wage categories on the basis of unified rate and skill reference books. The Committee reiterates its request to the Government to provide information on the methodology and criteria used to establish the skill references and the corresponding wage rates.

4. Article 4. Cooperation with employers’ and workers’ organizations. The Government is requested to provide information on any cooperation with workers’ and employers’ organizations for the purpose of giving effect to the provisions of the Convention.

Direct Request (CEACR) - adopted 2003, published 92nd ILC session (2004)

The Committee notes the Government’s brief report and requests the Government to provide information on the following points.

1. Article 1 of the Convention. With reference to its previous comments, the Committee notes that the new Labour Code which entered into force on 1 February 2002 provides in section 3 that everyone shall have equal opportunities in realizing their labour rights and that nobody may be subject to restrictions with regard to these rights or receive any advantages on grounds of, amongst other grounds, sex and occupational position, and other grounds. It notes with interest that under section 22, the employer shall ensure equal payment to employees for work of equal value. Remuneration of labour is broadly defined as a system of relations involving the establishment and provision by an employer of payments to employees for their labour, while salary and wages are defined as a reward for labour depending on the employee’s qualifications, the complexity, quantity, quality and conditions of the performed work, as well as payments of a compensatory and incentive nature (section 129). Under section 132 any discrimination when establishing or changing the amount of wages and other terms of remuneration is prohibited. The Committee notes that these provisions are in accordance with the Convention and asks the Government to provide information on their practical application and enforcement, including any administrative or judicial decision applying them, as well as their impact on the income levels of women.

2. Articles 2 and 3. The Committee notes that under the new Labour Code, wage systems, wage rates, salaries, and other payments, depending on the sector, shall be established through relevant laws, collective contracts or agreements, and individual contracts (section 135). Section 143 provides that wage rates are set and employees are assigned to wage categories on the basis of unified rate and skill reference books. The Committee asks the Government to provide information on how this system ensures the application in practice of the principle of equal remuneration for men and women for work of equal value including the methodology and criteria used to establish the skill references and corresponding wage rates. The Committee also reiterates its request to the Government to provide information on the unified wage scales in force with regard to the public sector.

3. While welcoming the above provisions of the new Labour Code, the Committee draws the Government’s attention to the importance of ensuring the application of the Convention in practice. It notes the Government’s statement that the main reason for disparity between the wages earned by men and women continues to be the wide differences between wages in the various sectors and in individual companies. In its fourth periodic report under the International Covenant on Economic, Social and Cultural Rights (E/C.12/4/Add.10 of 27 November 2001, paragraph 99) the Government states that differences between men’s and women’s incomes are mainly due to labour market segregation and the existence of "women’s and men’s occupations". According to the Government the average monthly pay of women in large and medium enterprises is almost 30 per cent lower than that of men, which are increasingly entering better paid jobs formerly done predominantly by women. The Committee also notes the deep concern expressed by the Committee on the Elimination of all Forms of Discrimination Against Women in its concluding observations of 25 January 2002 at the deteriorating situation of women in employment and that women are the overwhelming majority in lower level and low-paying jobs in the public and private sectors (A/57/38 (Part I), paragraph 383). In this context the Committee reiterates its request to the Government to provide detailed statistical information on the distribution of men and women in the public sector, the civil service, and in the private sector by earnings levels and hours of work, as well as statistical data on the composition of earnings, as outlined in the Committee’s 1998 general observation. The Government is also asked to indicate the measures taken or envisaged to promote the access of women to better paying jobs in all sectors and fields of economic activity.

4. The Committee recalls that effective and functioning mechanisms at the national level to monitor and enforce equal pay legislation are important to ensure the full application of the Convention. It therefore reiterates its previous direct request to the Government to provide information on the activities of the labour inspectorate with regard to the principle of equal remuneration, including indications of the number of infringements reported and the penalties imposed.

Direct Request (CEACR) - adopted 2001, published 90th ILC session (2002)

The Committee notes the information contained in the Government’s report.

1. The Committee notes that the draft Labour Code has still not been adopted and that it is currently being examined by the State Duma. It hopes that the new Labour Code will soon be adopted and that it will contain more detailed provisions to promote equal remuneration, in accordance with the Convention. Please supply a copy of the text upon its adoption.

2. The Committee notes the Government’s statement that there are still some discrepancies between the remuneration of men and women workers, due to men having higher qualifications and performing more highly qualified work. It notes the various promotional activities referred to by the Government to facilitate the access of women workers to more highly qualified and better paid employment, including: the provision of economic incentives and benefits to encourage the employment of women workers; the federal targeted programme to promote employment for 1998-2000 with special measures aimed at the promotion of women’s employment, including vocational training and guidance services; and the General Agreement for 2000-01 between the associations of trade unions, associations of employers and the Government, which provide for the elaboration of an Act setting out the main lines of state policy in the field of remuneration. It notes the Government’s statement that this Agreement will include plans and measures to eliminate the reasons why men perform more skilled work than women. The Committee trusts that the incentive measures to increase employment of women considered to be less competitive, do not compromise the principles of the Convention. It asks the Government to continue to take promotional measures to improve women’s position in the labour market and to ensure the principle of equal remuneration for men and women workers for work of equal value and to report on the impact of such measures.

3. The Committee reiterates its direct request of 1999 to the Government to provide information respecting the activities of the labour inspectorate in relation to the application of the principle of equal remuneration to wages negotiated above the national minimum wage, especially in view of the provisions of Federal Act No. 109-FZ of 18 July 1995 to amend the Labour Code, which envisaged the strengthening of labour inspection and supervision of violations of labour legislation. It once again hopes that the Government will provide this information with its next report, including indications of the number of infringements reported and the penalties imposed.

4. The Committee asks the Government to provide information in its next report on wage scales in the public sector, as well as other statistical information in conformity with its general observation of 1998, enabling the Committee to assess the application of the Convention in both the public and private sectors.

Direct Request (CEACR) - adopted 1999, published 88th ILC session (2000)

The Committee notes the information contained in the Government's report, and also the statistical information annexed thereto, and the results of the selective survey on employees' wages by profession and by post.

1. The Committee notes from the Government's report that the new draft of the Labour Code, still in preparation, should include the principle of equal remuneration for men and women workers for work of equal value. It reiterates its hopes expressed in its previous direct request that the next report of the Government will include information on the adoption of new amendments and looks forward to receiving a copy of them.

2. The Committee notes the statistical information drawn from a study undertaken by the State Committee on Statistics, of which the Office has received a copy. It notes that the Government indicates that differences in wages are due to the fact that men generally work in occupations that are more dangerous or taxing, or that men have higher qualifications and perform more highly qualified work. It would be grateful if the Government would supply information on the practical steps taken to apply the principle of the Convention, in particular regarding the promotion of access by women to more highly qualified and better paid employment. The Committee hopes that the Government will continue to provide it with the statistical data enabling it to assess the application of the Convention in the Russian Federation, and in this connection recalls the Government's attention to its 1998 general observation concerning this Convention. It again expresses its hope to receive data on public sector wage scales in the next report.

3. Finally, the Committee notes that the Government's report contains no reply to the second point of its previous direct request, asking the Government to provide information on the activities of the labour inspectorate as regards the application of the principle of equal remuneration in the negotiation of wages above the national minimum wage, especially in view of Federal Law No. 109-FZ of 18 July 1995 to amend the Labour Code, by strengthening labour inspection and by increasing verification of labour legislation violations. It reiterates its hope that the Government's next report will contain information on these points including, in particular, details of the number of infringements reported and on penalties imposed.

Direct Request (CEACR) - adopted 1996, published 85th ILC session (1997)

The Committee takes note of the Government's report and the excerpts from a recent collective bargaining agreement which attest to the non-discriminatory nature of negotiated remuneration rates above the minimum wage.

1. In its previous direct request, the Committee had noted that the 1992 amendments to the Labour Code, while continuing to attempt to apply the Convention through the requirement of equal wages "for the same work", had not included the concept of "work of equal value", a concept that goes beyond a reference to the "same" or "similar" work, in choosing the "value" of the work as the comparison (see paragraphs 19 to 21 and 44 to 50 of the 1986 General Survey on equal remuneration). It notes with interest from the present report that the Government is taking measures to include in the most recent draft amendments to the Labour Code, due to be discussed in the State Duma (Parliament) in October 1996, provisions meeting exactly the terms of Article 2 of the Convention, namely equal remuneration for men and women for work of equal value. This step is particularly important in view of the Committee's 1990 general observation, in which it pointed out that, where governments choose to apply the Convention through legislation (one of the options available under Article 2, paragraph 2, of the Convention), and the legislation does not after some time embody the broader principle of equal pay for work of equal value, they should consider taking steps to amend their legislation accordingly. The Committee trusts that the Government's next report will contain information on the adoption of the new amendments, and looks forward to receiving a copy of them.

2. Regarding its previous request for information on how the principle of equal remuneration is applied in the negotiation of wages above the national minimum wage (which the Government acknowledges is extremely low), the Committee notes the information supplied by the Government concerning the possibility of filing complaints before the labour courts in cases of alleged unequal pay, as well as on the role of the labour inspectorate in applying sanctions. The Committee also notes that the Government indicates that, in September 1996 in Moscow, the minimum monthly wage was 75,900 roubles whereas the average real remuneration was 600,000 roubles. The Committee hopes that the Government, in its next report, will supply information on the recent activities of the labour inspectorate in this connection, in particular in view of Federal Act No. 109-FZ of 18 July 1995 to amend the Labour Code, which strengthens state labour inspection and the control of violations of labour legislation (including, for example, details on the number of infringements reported and on penalties imposed).

3. The Committee, in its previous direct request, had asked for recent information on how the principle of the Convention is applied in practice, such as copies of the public sector wage scales and statistical data. As the Government points out that the State Committee on Statistics does not publish such data on wages and salaries which could be used to evaluate the difference in remuneration between men and women, the Committee trusts that in future reports such information - perhaps available from other sources (such as the national report prepared for the United Nations Fourth World Conference on Women or by government departments responsible for following up on the Beijing Declaration and Platform of Action) - will be supplied so that the Committee is in a position to assess that the Convention is being applied in practice.

Direct Request (CEACR) - adopted 1995, published 82nd ILC session (1995)

The Committee takes note of the Government's reports. It notes that they do not contain the information requested, but merely refer once again to the provisions of the legislation that concern the subject of the Convention. The Committee notes the Act of the Russian Federation amending and supplementing the Labour Code, adopted on 25 September 1992. It also notes that the provisions on which it had commented have been maintained. It therefore repeats the substance of its previous comments.

1. The Committee notes that pursuant to the legislation (sections 2 and 77 of the Labour Code) equal wages are guaranteed for the same work. It notes the Government's statement that, during the revision of the Labour Code in 1992, the need to give effect in law to the principle of the Convention was borne in mind, since the Committee had stressed its importance in its previous comments. However, the Committee observes that the provisions of the law have not been amended along these lines. While noting that the 1993 Constitution guarantees the right to a wage fixed without discrimination (article 37(3)), the Committee draws the Government's attention to the fact that the labour legislation is not consistent with the Convention which provides that equal pay for men and women must be guaranteed for work of equal value. The Committee asks the Government to state in its next report the measures that it plans to take in order to amend the legislation in this respect.

2. With regard to wage fixing, the Committee notes that section 80, as amended, of the Labour Code entitles enterprises independently to establish their own forms, systems and amounts of remuneration (and other parts of the wage) to be fixed in collective agreements, in accordance with section 13 of Act No. 2490-I of 11 March 1992 concerning collective and other agreements. With regard to the minimum wages guaranteed by the federal legislation pursuant to article 37 of the Constitution and section 78 of the Labour Code, the Committee asks the Government to indicate the specific measures taken or envisaged to ensure the application of the principle of the Convention in cases where an enterprise remunerates workers at levels above the minimum set by federal law. The Committee would be grateful if the Government would provide the texts of collective agreements establishing wage levels (other than minimum wages) in the various sectors of activity, indicating if possible the percentage of women covered by these collective agreements and the percentage of men and women employed at the different levels. It also asks the Government to provide details of the application of the principle of the Convention to other parts of remuneration such as bonuses or incentives, or any other material encouragement that may be introduced.

3. Furthermore, the Committee observes that it has no recent information enabling it to ascertain how the principle of equal remuneration set out in the national legislation is applied in practice. It would therefore be grateful if in its next report the Government would also supply:

(i) the wage scales applying in the public sector, with an indication of the percentage of men and women employed at different levels;

(ii) statistical data on minimum wage rates and the average actual earnings of men and women, broken down, where possible, by occupation, branch of activity, seniority or level of qualifications, as well as information on the corresponding percentage of women;

(iii) information on the measures taken to ensure supervision of the application of the provisions regulating equal wages and, in particular, on the activities of the labour inspectorate (infringements reported, penalties imposed) and on court decisions.

Direct Request (CEACR) - adopted 1992, published 79th ILC session (1992)

The Committee notes the information provided by the Government in its report concerning the methods for determining remuneration.

1. The Committee notes that pursuant to section 22 of the USSR Act of 4 July 1990, enterprises are entitled independently to establish their own forms, systems and amounts of remuneration. Recalling that section 36 of the Fundamental Principles of the legislation of the USSR relates to minimum wages, the Committee requests the Government to indicate the specific measures taken or contemplated to ensure that the principle of the Convention is applied in those cases where an enterprise remunerates workers at levels above the minimum set by the Government. Noting also from the report that in order to give further material encouragement to workers, systems of bonuses, awards and other incentives may be introduced, the Committee would be grateful if the Government would provide information in its next report concerning the introduction of any bonus or incentive schemes, bearing on the application of the Convention.

2. The Committee recalls that under section 36 of the Fundamental Principles, the work of workers shall be remunerated according to its quantity and quality, and any reduction in remuneration on the ground of sex is prohibited. The Committee requests the Government to indicate whether, in the review of existing legislation (which the Committee noted in its 1991 direct request on the application of Convention No. 111), measures are being taken to give legislative expression to the principle of equal pay for men and women workers for work of equal value. In this regard, the Committee refers to its 1990 General Observation on the application of the Convention where it emphasised the importance of bringing national legislation into conformity with the Convention.

3. The Committee notes that for some years, the Government has not provided information sufficient to enable an appraisal of the extent to which the wage differential has been reduced through application of the principle of the Convention. Accordingly, the Committee requests the Government to provide, in its next report, full information concerning the implementation in practice of the Convention, including (i) the salary scales applying in the public sector, with an indication of the percentage of men and women employed at different levels; (ii) statistical data concerning the minimum or basic wage rates and the average actual earnings of men and women in the economy, broken down, where possible, by occupation or sector of employment, seniority or skill level as well as information on the percentage of women employed in different occupations or sectors; and (iii) information regarding any survey or studies undertaken or envisaged with a view to determining the reasons for wage disparities.

Direct Request (CEACR) - adopted 1990, published 77th ILC session (1990)

The Committee notes with interest the detailed information supplied by the Government in its report.

The Committee notes in particular the information concerning the central fixing of wage rates and the table providing wage scales for the different categories in various branches of industry.

In order to appreciate more fully the practical application of the principle of equal remuneration for work of equal value, the Committee requests the Government to communicate examples of classifications of occupations over the different wage scales in one or more branches of industry, together with the percentages of men and women in the occupations covered.

The Committee requests the Government also to include in its next report the centrally-fixed wage scales for non-industrial sectors, such as the national education system and the national health and social welfare system, together with examples of classifications of occupations over the different scales in these sectors, and the percentages of men and women in each occupation.