* The present document is being issued without formal editing.
** The annexes to the present document may be accessed from the web page of the Committee.
Tenth periodic report submitted by the Russian Federation under article 18 of the Convention, due in 2025 * , **
[Date received: 24 November 2025]
Article-by-article review of the implementation of the provisions of the Convention on the Elimination of All Forms of Discrimination against Women
1.The present report was prepared pursuant to article 18 of the Convention on the Elimination of Discrimination against Women. In preparing the report, the authors referred to the compilation of guidelines on the form and content of reports to be submitted by States Parties to the international human rights treaties (HRI/GEN/2/Rev.6) and General Assembly resolution 68/268 on strengthening and enhancing the effective functioning of the human rights treaty body system. They also took into account the concluding observations of the Committee on the Elimination of Discrimination against Women on the ninth periodic report of the Russian Federation on the implementation of the provisions of the Convention (CEDAW/C/RUS/CO/9).
2.The report makes use of information submitted by the Ministry of Labour and Social Protection, the Ministry of Health, the Ministry of Education, the Ministry of Science and Higher Education, the Ministry of Internal Affairs, the Ministry of Economic Development, the Ministry of Justice, the Ministry of Digital Development, Communications and Mass Media, the Ministry of Foreign Affairs, the Federal Penitentiary Service, the Prosecutor General’s Office of the Russian Federation, the Investigative Committee, the Federal Agency for Ethnic Affairs, the Federal State Statistics Service and the Commissioner for Human Rights in the Russian Federation.
Paragraphs 8 and 9 of the concluding observations
3.The implementation of the provisions of the Convention and its Optional Protocol forms part of the ongoing work of the federal executive authorities. Measures are also taken to support the professional development of the judiciary, prosecutors, police officers and other law enforcement officers in the area of women’s rights.
4.The text of the Convention is available on the official websites of various federal executive authorities and non-governmental and civil society organizations involved in protecting the rights and interests of Russian women.
Part I
Article 1
Paragraphs 10 and 11 of the concluding observations
5.In accordance with article 19 of the Constitution of the Russian Federation, the equality of human and civil rights and freedoms is guaranteed, regardless of sex, race, nationality, language, origin, financial status, official capacity, place of residence, religion, beliefs, membership of public unions or other circumstances; any form of restriction of civil rights on social, racial, ethnic, linguistic or religious grounds is prohibited. The Constitution states that man and woman shall enjoy equal rights and freedoms and have equal possibilities to exercise them. The wording to the effect that men and women also have equal possibilities to exercise the corresponding rights and freedoms is aimed at achieving the full enjoyment by women of their rights and freedoms and true equality.
6.The Constitution also guarantees the protection of maternity, paternity and childhood. The principle of the equal rights of men and women is enshrined in family, labour, civil and tax law.
7.Article 5.62 of the Code of Administrative Offences of the Russian Federation provides for administrative liability for discrimination.
8.The principle of the prohibition of discrimination is also reflected in criminal law: article 136 of the Criminal Code of the Russian Federation provides for criminal liability for discrimination committed by a person using his or her official position. Under article 145 of the Criminal Code, unjustified refusal to hire, and unjustified dismissal of, a woman on grounds of pregnancy, or on the basis that she has a child under 3 years of age, incur criminal liability.
9.As part of the educational programmes implemented by departmental educational institutions, students are taught relevant subjects that explore topics of equality. For example, the Ministry of Internal Affairs is implementing, on an ongoing basis, a set of measures that includes activities aimed at fostering well-rounded and socially responsible individuals in accordance with the spiritual and moral values of the peoples of the Russian Federation, including promoting the courteous and tactful treatment of people, while preventing all forms of discrimination.
Article 2
Paragraphs 12 and 13 of the concluding observations
10.Under article 48, paragraph 1, of the Constitution, everyone has the right to receive qualified legal aid. Safeguards of the right to free qualified legal aid in criminal proceedings are enshrined in the Code of Criminal Procedure. The scope of those safeguards does not depend on sex, race, nationality, language, origin, financial status, official capacity, place of residence, religion, beliefs, membership of public unions or other circumstances.
11.The participation of a defence counsel may be arranged by the person conducting the initial inquiry, the investigator or the court at the request of the suspect or the accused (Code of Criminal Procedure, art. 50, para. 1). If a lawyer is designated by the person conducting the initial inquiry, the investigator or the court to participate in a preliminary investigation or court proceedings, his or her labour costs are reimbursed from the federal budget (Code of Criminal Procedure, art. 50, para. 5).
12.Article 51, paragraph 3, of the Code of Criminal Procedure stipulates that, if a defence counsel is not invited by the suspect or the accused or his or her legal representative or other persons on behalf of or with the consent of the suspect or the accused, the person conducting the initial inquiry, the investigator or the court shall arrange the participation of a defence counsel in the criminal proceedings. Similar regulations apply to minor victims under 16 years of age against whom a crime against sexual inviolability has been committed (Code of Criminal Procedure, art. 45, para. 2).
13.Safeguards of the right to free qualified legal aid outside of criminal proceedings were established in Federal Act No. 324-FZ of 21 November 2011 on free legal aid in the Russian Federation. The categories of individuals (including persons with low incomes and persons with categories I or II disabilities) entitled to free legal aid under the public system of free legal aid, the main actors in which are public law offices and lawyers, and the list of cases in which free legal aid is provided are set out in article 20 of Federal Act No. 324-FZ.
14.In accordance with article 5, paragraph 8, of Federal Act No. 324-FZ, the provision of free legal aid is based on the principles of equality of access to free legal aid and non-discrimination in the provision thereof, thus ruling out any possibility of limiting such safeguards on the basis of a person’s sex.
15.In a number of constituent entities of the Russian Federation, additional safeguards of the right to free legal aid have been established for pregnant women, women with children under 3 years of age, women in difficult situations and women who are living with children in shelters and have been subjected to mental and/or physical violence.
16.The Ministry of Justice compiles data on the composition of the legal profession, including a breakdown by sex. Thus, the legal profession in the Russian Federation was made up of the following numbers of lawyers as at the end of the years 2020–2024: 82,126, of whom 34,462 (42 per cent) were women, as at 31 December 2020; 82,877, of whom 34,510 (41.6 per cent) were women, as at 31 December 2021; 83,112, of whom 34,485 (41.5 per cent) were women, as at 31 December 2022; 83,913, of whom 33,504 (39.9 per cent) were women, as at 31 December 2023; and 84,351, of whom 33,663 (39.9 per cent) were women, as at 31 December 2024.
17.In accordance with article 7, paragraph 1, of Federal Act No. 63-FZ of 31 May 2002 on the work of lawyers and the legal profession in the Russian Federation, lawyers are required to continuously expand their knowledge and raise their level of professional expertise, at their own initiative, following the procedure established by the Council of the Federal Bar Association and the bar associations of the constituent entities of the Russian Federation. Pursuant to article 31, paragraph 3, of Federal Act No. 63-FZ, the councils of the bar associations support the professional development of lawyers by approving professional training programmes for lawyers, paralegals and trainees in the areas identified by the Council of the Federal Bar Association and by organizing professional training under those programmes following the procedure established by the Council.
Paragraphs 14 and 15 of the concluding observations
18.By Order No. 4356-r of 29 December 2022, the Government of the Russian Federation approved the National Strategy of Action for Women 2023–2030, which federal authorities are required to follow when addressing issues related to the advancement of women. It is also recommended that the provisions of the Strategy should guide the authorities of the constituent entities of the Russian Federation in addressing such issues. By Order No. 1104-r of 28 April 2023, the Government approved an action plan for the implementation of the Strategy for Women during the period 2023–2026.
19.To support the implementation of the State policy on women, by Presidential Decree No. 708 of 11 December 2018 on the all-Russian public-State organization Women’s Union of Russia, a decision was taken on State involvement in the work of the civil society organization Women’s Union of Russia, whereby its status was changed to a public-State organization and it was renamed the all-Russian public-State organization Women’s Union of Russia. The Women’s Union of Russia benefits from general State support for non-profit organizations and also receives targeted subsidies from the federal budget to carry out its work.
20.The main areas of work of the Women’s Union of Russia are: protecting women’s rights and interests; increasing the social status of women and their role in the political, economic, social and cultural life of the country; expanding opportunities for the personal empowerment of women living in rural areas; and supporting the implementation of the Strategy for Women and activities under the corresponding action plan.
Article 3
Paragraphs 16 and 17 of the concluding observations
21.The Commissioner for Human Rights in the Russian Federation received 19,864 petitions from women in 2023 and 19,391 in 2024. Women raised various issues related to the protection of social, labour, housing and cultural rights and the protection of their rights in criminal proceedings and proceedings for administrative offences. Women use various means of communication (the Internet, post, hotlines, mass media and in-person meetings) to petition the Commissioner. There are no barriers to the submission of complaints to the Commissioner in the Russian Federation. When examining complaints, the Commissioner works closely with the State authorities, which received about 10,000 petitions from women in 2024, including requests for investigations into alleged violations in various areas.
22.The powers of the Commissioner are established in Federal Constitutional Act No. 1-FKZ of 26 February 1997 on the Commissioner for Human Rights in the Russian Federation. The powers are sufficient to ensure the effective performance of the functions entrusted to the Commissioner to protect the rights and freedoms of citizens. Pursuant to the provisions of the Act, the Commissioner’s toolkit is used in cases where a violation of citizens’ rights by a private organization became possible or was not remedied due to omissions, misconduct or ineffective action on the part of State authorities.
23.In addition, when information is available about mass or gross violations of the rights and freedoms of citizens, or in cases of special public importance, or in cases involving the need to protect the interests of persons unable to take advantage of legal remedies by their own devices, the Commissioner may take appropriate measures on his or her own initiative within the limits of his or her authority.
24.The annual and thematic reports of the Commissioner are made widely available (on the official website of the Commissioner and in the Rossiiskaya Gazeta newspaper) and are sent to the leadership of ministries and departments and the leadership of the constituent entities of the Russian Federation. At the end of the calendar year, the Commissioner sends to the President of the Russian Federation a report on his or her work, which contains a dedicated section with proposals and recommendations. In addition, the annual report is sent to the Federation Council of the Federal Assembly, the State Duma of the Federal Assembly, the Government, the Constitutional Court, the Supreme Court, the Prosecutor General and the Chair of the Investigative Committee.
25.Cooperation with civil society institutions is traditionally carried out by the Commissioner in the following areas: joint events; the provision of humanitarian aid; advisory assistance; and work within the Youth and Expert Council of the Commissioner. To date, 16 cooperation agreements have been concluded with civil society institutions. In 2023, staff of the Office of the Commissioner took part in more than 110 events and projects of non-profit organizations.
26.At the initiative of the Commissioner, Federal Act No. 48-FZ of 18 March 2020 on the commissioners for human rights in the constituent entities of the Russian Federation was adopted, granting regional commissioners broad rights. Every constituent entity of the Russian Federation currently has a commissioner for human rights, who is responsible for reviewing petitions from residents of the region. To monitor the human rights situation, the regional commissioners conduct field visits, including in rural areas. Public advisory councils are operating under the regional commissioners for human rights, and public assistants of the regional commissioners are working in municipal and city districts.
Paragraphs 18 and 19 of the concluding observations
27.The institution of a “foreign agent” was introduced into the legislation of the Russian Federation at the end of 2012, and the first entities that could be recognized as such were non-profit organizations. The reason for introducing this institution was the need to inform society about organizations that engage in political activities and receive foreign funding.
28.Labelling entities as foreign agents is not an infringement of any kind, but rather an assignment of appropriate status. The inclusion of entities in the register of foreign agents does not lead to a prohibition of their activities, including political activities, or their liquidation; this measure cannot therefore be regarded as an attempt to suppress the political activities of civil society.
29.The evolution of this institution was subsequently reflected in the newly introduced institutions of “foreign agents” (individuals, unregistered public unions and Russian and foreign legal entities), which may also engage in political or information-related activities and receive funds and property from foreign sources.
30.These types of foreign agents were covered by various federal laws, and separate registers were maintained. The grounds on which entities were included in the registers of foreign agents were similar and had almost identical consequences. With the aim of systematizing and simplifying the entire legal framework for the activities of different types of foreign agents, Federal Act No. 255-FZ of 14 July 2022 on monitoring the activities of persons under foreign influence was adopted, entering into force on 1December 2022. The Ministry of Justice currently maintains a register of foreign agents that includes entities previously recognized as foreign agents. This Act introduced the general concept of an entity acting as a foreign agent, and the criteria for recognizing entities as foreign agents are set out in articles 2 and 4 of the Act.
31.In addition, Act No. 255-FZ makes provision for categories of entities that cannot be recognized as foreign agents and that are exempt from the obligation to apply for inclusion in the register of foreign agents. As in the previous legislation, Act No. 255-FZ establishes a mechanism for removing entities from the register and defines the grounds for their removal. In addition, it establishes a simplified procedure for removing from the register individuals who had been included therein in the first instance by decision of the Minister of Justice or his or her deputy.
32.The current legislation of the Russian Federation also provides for the right to appeal in court against a decision to include persons and organizations in the register.
33.Furthermore, the Constitutional Court of the Russian Federation has separately considered the constitutionality of the legal provisions governing the activities of non-profit organizations acting as foreign agents. It concluded that the established institution does not contradict the norms of the Constitution of the Russian Federation and international law. In accordance with Constitutional Court Decision No. 10-P of 4 April 2014, the phrase “foreign agent” does not imply a negative assessment of such an organization by the State nor is it intended to form a negative attitude towards the activities carried out by the organization, and it may not be perceived as an expression of distrust or desire to discredit such a non-profit organization and the goals of its activities.
34.Work on improving the legal and regulatory framework related to the activities of organizations and persons acting as foreign agents is carried out continuously on the basis of data obtained from analysing law enforcement practice, as well as taking into account public opinion, including in the professional and academic communities, with a view to adopting the most effective and optimal solutions regarding legal regulation in the relevant area of activity. The legislation on foreign agents does not infringe on the rights and freedoms of individuals and legal entities, nor does it discriminate against those acting as foreign agents. However, the provisions of that legislation are designed to ensure the transparency of the activities carried out by foreign agents in the territory of the Russian Federation.
35.In regulating the activities of foreign agents, the priority for the legislator has been to maintain national security and minimize the possibility of foreign interference in the internal affairs of the Russian Federation, primarily in the political sphere.
Article 4
Paragraphs 20–23 of the concluding observations
36.In accordance with article 19, paragraph 3, of the Constitution, man and woman shall enjoy equal rights and freedoms and have equal possibilities to exercise them. According to the Basis of State policy for preserving and strengthening traditional Russian spiritual and moral values, approved by Presidential Decree No. 809 of 9 November 2022, traditional values include human rights and freedoms, high moral ideals, a strong family, constructive work, the primacy of the spiritual over the material, humanism, compassion, justice, collectivism, mutual assistance and mutual respect. Thus, the Basis defines policy not in relation to men and women, but in relation to the citizens of the Russian Federation, which implies equality regardless of sex.
37.The activities of the mass media are regulated by Act No. 2124-I of 27 December 1991 on the mass media, in accordance with which media editorial offices operate on the basis of professional independence. Interference in any form by officials or State bodies in the editorial policy of the media and violations of the professional independence of editorial offices are prohibited. In addition, article 4 of the Mass Media Act prohibits abuse of media freedom. The mass media may not be used to disseminate materials promoting non-traditional sexual relations and/or preferences, paedophilia, sex change or the refusal to have children.
38.In accordance with article 6.21 of the Code of Administrative Offences, promoting non-traditional sexual relations and/or preferences, sex change or the refusal to have children is understood to mean the dissemination of information and/or commission of public acts with the aim of fostering non-traditional sexual attitudes, portraying non-traditional sexual relations and/or preferences, sex change or the refusal to have children as attractive, fostering a distorted view of traditional sexual relations and/or preferences as socially equivalent to non-traditional sexual relations and/or preferences, or of having children as socially equivalent to refusing to have children, or imposing information about non-traditional sexual relations and/or preferences, sex change or the refusal to have children that evokes interest in such relations and/or preferences, sex change or the refusal to have children.
39.As part of efforts to counter biased portrayals of women in public discourse, the media regularly highlights women holding high-ranking government positions and women who have achieved success in various fields, including those traditionally associated with male professions, such as aerospace, engineering, architecture, mechanics and information technology.
Article 5
Paragraphs 24 and 25 of the concluding observations
40.A focus area of the Strategy for Women is the prevention of social disadvantage among women, including by resolving issues related to the development of a system for preventing social disadvantage of women; expanding mechanisms to support women in difficult situations and help them overcome those situations; countering the abuse of women; promoting public awareness of the unacceptability of the ill-treatment of women through information campaigns and the expansion of channels for effective communication; preventing crimes against women; and informing women about ways to protect themselves from the most common criminal offences. In addition, as part of efforts to protect women’s rights, the Government implements measures to prevent social disadvantage, such as conflicts within the family, significant income reduction, loss of employment and deterioration of health.
41.The investigative bodies of the Russian Federation are focused, on an unconditional and priority basis, on ensuring criminal law protection of the life and health of women who are victims of any form of violence, and on taking timely and sufficient measures to ensure the enjoyment of their rights. Procedural checks and investigations of criminal cases involving offences committed against women are carried out in accordance with the laws of the Russian Federation.
42.For each report of violence, a thorough investigation of the actual circumstances of the incident is carried out, the existence of similar reports by the complainant or his or her close relatives of criminal acts against family members is verified, and a lawful and reasoned decision is taken. With a view to reducing cases of violence against women, the investigative bodies are taking steps to organize cooperation with civil society, volunteer organizations and other social organizations. The investigative bodies also cooperate with crisis centres for women.
43.In addition, social media users can contact any investigative department through its VKontakte social media account. Such interaction helps to enhance the effectiveness of feedback from the public, including in rural areas. This is also facilitated by active engagement in in-person consultations with members of the public, including visits to settlements far from regional centres. The Investigative Committee of the Russian Federation also has a helpline, a “Child in danger” hotline and an online helpdesk. There is an effective oral and written complaints mechanism that allows women to freely assert their rights at the pretrial stage of criminal proceedings. There have been no cases of women being hindered in filing applications and complaints.
44.The investigation of the most high-profile criminal cases of violence against women is entrusted to the most experienced investigators, with the creation of investigative teams and the involvement of staff of operational units. The investigation of offences against the sexual inviolability and sexual freedom of women, including minors, is a priority area of the work of the law enforcement and investigative bodies.
45.When verifying reports and investigating criminal cases involving offences in this category, it is mandatory to make a legal assessment of the actions of officials of guardianship and custody authorities and children’s social institutions and of other officials responsible for preventing violence in the family and domestic sphere; to engage specialists to provide psychological assistance to victims; to take comprehensive measures to ensure the protection of the rights of victims of crime; to establish the circumstances that contributed to the commission of the crime; and to submit reasoned submissions in accordance with article 158 of the Code of Criminal Procedure.
46.Significant importance has been attached to ensuring psychological care and support for victims, including women. For example, since the establishment of the Investigative Committee, psychologists have been functioning as separate staff who protect the rights of affected individuals, assist with certain procedural actions, use visual psychodiagnostic methods and applied psychology to activate memory, draw portraits and analyse the behaviour of participants in criminal proceedings. The Investigative Committee and the Moscow State University of Psychology and Education have concluded an agreement on personnel training. Officials carry out their work in accordance with the Code of Ethics and Professional Conduct for Federal Civil Servants of the Investigative Committee of the Russian Federation, the provisions of which prohibit all types of discriminatory behaviour towards women.
47.Pursuant to article 13 of the Family Code, the minimum age for marriage is set at 18 years. However, if there are valid reasons, the local authorities in the place of residence of persons wishing to marry may, at their request, allow them to marry once they have reached 16 years of age. Building on those provisions, article 134, paragraph 1, of the Criminal Code establishes liability for sexual intercourse with a person under 16 years of age committed by a person aged 18 years or older.
48.In addition, in accordance with paragraph 1 of the notes to article 134 of the Criminal Code, the courts exempt from punishment an individual who has committed a crime covered by paragraph 1 of that article for the first time if it is established that the individual and the crime committed would cease to present a danger to society as a result of marriage to the victim.
49.As indicated by the Constitutional Court of the Russian Federation in its Decision No. 568-O-O of 21 October 2008, the provisions of article 13 of the Family Code together with the provisions of article 134 of the Criminal Code render sexual intercourse between a person aged 18 years or older and a person under 16 years of age lawful only after the registration of their marriage and, consequently, the official recognition of their family relations and do not allow for any other interpretation or, consequently, arbitrary application of this provision of the Criminal Code. Any other approach would contradict article 23, paragraph 1, and article 38, paragraph 1, of the Constitution, which protect family relations, privacy and family secrecy, the purposes of the Criminal Code, the concept of crime and the basis of criminal liability.
50.Nevertheless, this does not exclude the right of the court in each specific case, on the basis of the purposes and objectives of the punishment established in criminal law and a comprehensive and impartial assessment of all the circumstances of the case, including information regarding the personality of the accused and the victim, and guided by the purposes and principles of the Criminal Code, to bring the perpetrator to criminal trial and impose a punishment, or to release the perpetrator, in accordance with the procedure and on the grounds set out in chapters 11 and 12 of the Criminal Code.
51.Sexual intercourse or other acts of a sexual nature committed with the use or threat of violence against the victim fall under articles 131 and 132 of the Criminal Code. In article 131, paragraph 1, of the Criminal Code, rape is defined as sexual intercourse involving the use or threat of violence against the victim or other persons or abuse of the victim’s state of helplessness. Thus, lack of free consent and coercion are among the constituent elements of crimes against sexual freedom and sexual inviolability.
52.With a view to eliminating the unconstitutional aspects of article 116.1 of the Criminal Code (Battery committed by a person who has incurred an administrative penalty), as noted in Constitutional Court Decision No. 11-P of 8 April 2021 on the case concerning the review of the constitutionality of article 116.1 of the Criminal Code in connection with the complaint of L.F. Sakova, the Ministry of Internal Affairs developed Federal Act No. 203-FZ of 28 June 2022 on amendments to article 116.1 of the Criminal Code and article 20 of the Code of Criminal Procedure, in accordance with which a second paragraph was added to article 116.1 of the Criminal Code to establish criminal liability for battery or other violent acts causing physical pain but not causing the effects specified in article 115 of the Criminal Code and not containing the constituent elements of an offence under article 116 of the Criminal Code committed by a person who has a criminal record for a crime involving the use of violence. The implementation of Federal Act No. 203-FZ is aimed at minimizing conditions that could lead to violations of the principles of equality and justice in respect of both the perpetrators and the victims and at enhancing the impact of introducing battery as a specific offence in the legal framework.
53.Federal Act No. 337-FZ of 16 October 2019 on amendments to article 13 of the Federal Act on the police establishes additional safeguards to protect against violence in the domestic sphere. Police officers have been given the authority to apply preventive measures, including to issue an official warning to an individual regarding the inadmissibility of actions that create conditions conducive to the commission of crimes and administrative offences or regarding the inadmissibility of antisocial behaviour.
54.The protection of human and civil rights and freedoms is recognized as a principle of criminal proceedings in the Russian Federation. Authorized officials are required to explain to participants in criminal proceedings their rights, duties and responsibilities and to ensure that those rights can be exercised (Code of Criminal Procedure, art. 11, para. 1). If there is sufficient evidence that a victim, witness or other participant in criminal proceedings, or their loved ones and/or relatives, are at risk of murder, violence, destruction or damage to their property or other dangerous unlawful acts, the court or other authorized officials shall, within the limits of their authority, take the measures provided for in the Code of Criminal Procedure and the laws of the Russian Federation to protect such persons (Code of Criminal Procedure, art. 11, para. 3).
55.The conditions and procedure for the application of protection measures, as well as their forms, are defined by Federal Act No. 119-FZ of 20 August 2004 on State protection of victims, witnesses and other participants in criminal proceedings. State protection measures may also be applied in respect of the claimant, an eyewitness or the victim of a crime, or other individuals contributing to the prevention or detection of the crime, both before criminal proceedings are instituted and after the verdict or other final decision has been rendered in a criminal case (Federal Act No. 119-FZ, art. 2, paras. 2 and 5). One or several of the following protection measures may be applied simultaneously in respect of the protected person: personal protection and protection of home and property; provision of special means of personal protection, communication and danger notification; ensuring the confidentiality of information about the protected person; relocation to another residence; replacement of documents; change of appearance; change of place of work (service) or study; and temporary relocation to a secure location (Federal Act No. 119-FZ, art. 6, para. 1).
56.Particular focus has been placed on eliminating the causes of and conditions conducive to unlawful acts related to violence in the domestic sphere. Thus, the relevant executive authorities are working to prevent behaviour that leads to victimization, to foster an attitude of zero tolerance towards such offences and to prevent social disadvantage as the main factor influencing the spread of negative phenomena in families. One of the most effective measures to minimize the negative consequences of violence in the family sphere has been the creation and development of a network of social organizations providing support to individuals at risk, in particular crisis centres.
57.In 2024, social services for women in difficult situations were provided by 134 organizations in 57 constituent entities of the Russian Federation with a total capacity of 2,423 beds, comprising: 19 State crisis centres; 16 non-governmental crisis centres; 81 units established as State social service organizations; and 18 units established as non-governmental social service organizations.
58.Crisis centres have a wide range of tools for resolving family conflicts. For example, women who have been subjected to violence and are unable to live with the aggressor and have no relatives or housing alternatives are provided with temporary housing (shelter) and legal and psychological assistance. Crisis centre alerts regarding the commission of offences enable police officers to promptly document these incidents in the domestic sphere. A number of such organizations provide psychological assistance not only to victims but also to the offenders themselves.
Paragraphs 26 and 27 of the concluding observations
59.Official data on the prevalence of female genital mutilation are not available. This type of surgery is not included in the list of medical services regulated by Ministry of Health Order No. 804n of 13 October 2017 approving the list of medical services.
60.In accordance with the healthcare laws of the Russian Federation, the internal affairs bodies are informed of cases of the admission of a patient in respect of whom there are reasonable grounds to believe that harm to his or her health has been caused by unlawful actions (Federal Act No. 323-FZ of 21 November 2011 on the basis for protection of the health of citizens of the Russian Federation, art. 13, para. 4 (5)).
61.The procedure according to which medical facilities inform the internal affairs bodies of the cases specified in paragraph 4 (5) of article 13 of Federal Act No. 323-FZ was updated in 2021. This regulation introduced requirements for medical facilities to transmit to the local offices of the Ministry of Internal Affairs information regarding the admission (treatment) of patients displaying signs of harm to health as a result of unlawful acts, including: stab wounds, cuts, slashes and lacerations; poisoning with narcotic drugs, poisonous substances and psychotropic, toxic, potent, intoxicating and/or other psychoactive substances, including alcohol; signs of an intervention performed with the aim of artificially terminating a pregnancy (abortion) outside a medical facility with an appropriate licence; signs of rape and/or other violent acts of a sexual nature; and other signs of harm to health in respect of which there are grounds to believe that they were caused by unlawful actions.
62.On the basis of the definition of rape, the existing relationship between the victim and the perpetrator (for example, registered marriage) has no relevance to the classification of that act under article 131 of the Criminal Code. Thus, marital rape may be classified under article 131 of the Criminal Code (Rape).
63.Crimes against human life and health are grouped together in chapter 16 of the Criminal Code, which is named after those crimes. Offences subject to criminal liability include the following: intentional infliction of serious harm to health (Criminal Code, art. 111); intentional infliction of moderate harm to health (Criminal Code, art. 112); intentional infliction of minor harm to health (Criminal Code, art. 115); battery (Criminal Code, art. 116); battery committed by a person who has incurred an administrative penalty (Criminal Code, art. 116.1); torture (Criminal Code, art. 117); and dereliction of duty in the upbringing of minors combined with cruel treatment (Criminal Code, art. 156). In addition, the commission of any crime, including of a violent nature, against a person who is dependent on the perpetrator is recognized as an aggravating circumstance that carries heavier penalties (Criminal Code, art. 63, para. (h)).
64.The Code of Administrative Offences also contains mechanisms aimed at combating violence. In particular, article 6.1.1 of the Code establishes administrative liability for battery or other violent acts causing physical pain but not causing the effects specified in article 115 of the Criminal Code. The repeated commission of these acts entails criminal liability under article 116.1 of the Criminal Code (Battery committed by a person who has incurred an administrative penalty or who has a criminal record).
Paragraphs 28 and 29 of the concluding observations
65.Federal Act No. 124-FZ of 24 July 1998 on basic guarantees of the rights of the child in the Russian Federation provides for measures to combat trafficking in and exploitation of children and to provide the necessary educational, psychological, medical and legal aid to victims of these types of unlawful acts (art. 14.2). Trafficking in and exploitation of children, including child prostitution, pornography, the production of other child sexual abuse materials and forced labour, are prosecuted.
66.On the basis of international agreements, crimes related to trafficking in persons include not only the crimes defined in article 127.1 (Trafficking in persons) of the Criminal Code, but also a number of other acts related to the exploitation of human beings and involving violence or deception. Such criminal acts include recruitment for prostitution (Criminal Code, art. 240), receiving sexual services from a minor (Criminal Code, art. 240.1) and the production and circulation of materials or objects with pornographic images of minors (Criminal Code, art. 242.1).
67.In accordance with the inter-State programme of joint measures to combat crime for the period 2024–2028, approved by the Council of Heads of State of the Commonwealth of Independent States in its Decision of 13 October 2023, coordinated measures were organized and carried out during the previous year to counter criminal activities related to kidnapping and trafficking in persons and human organs and/or tissues, and to prevent, detect and suppress crimes related to the exploitation of women and children and the production and distribution of pornographic products, including on the Internet.
68.The prohibition of trafficking in persons under the criminal law of the Russian Federation is significantly broader compared with the fundamental United Nations instruments on the subject. Specifically, in Russia, for the actions of perpetrators to qualify as trafficking in persons, the intent to exploit a person is not a required constituent element in crimes related to the purchase, sale or other transactions involving a person.
69.Moreover, criminal acts related to recruitment for prostitution (Criminal Code, art. 240), receiving sexual services, the use of a minor for the production of pornographic materials or objects (Criminal Code, article 240.1), including with the use of information and telecommunications technologies, and a number of other acts in the territory of the Russian Federation are equated with the use of the services of victims of trafficking in persons. Most often, the victims are young women in difficult situations or vulnerable persons.
70.The Ministry of Science and Higher Education piloted a programme of interactive classes for children, adolescents and young people on non-violent methods of dispute and conflict resolution in 2021. The programme is an effective tool for fostering a prosperous, compassionate and safe environment for the full development and socialization of children, adolescents and young people, including through the prevention of deviant behaviour, which entails the prevention of sexual exploitation of women and trafficking in persons. The Ministry sent recommendations to the heads of higher education institutions under its supervision on implementing the programme among first-year students. The programme was piloted in 38 higher education institutions under the Ministry’s supervision. A total of 7,522 students participated in the programme.
Part II
Articles 7 and 8
Paragraphs 30 and 31 of the concluding observations
71.Information on women’s representation in both chambers of the Federal Assembly of the Russian Federation can be found in table 1.
72.In the Russian Federation, women have the opportunity, on equal terms with men and without any restrictions, to represent the country at the international level and to participate in the work of international organizations and United Nations peacekeeping missions.
73.The proportion of female employees with diplomatic rank in the Central Office of the Ministry of Foreign Affairs relative to the total number of employees with diplomatic rank in the Office was as follows: 34.74 per cent in 2021; 34.47 per cent in 2022; 33.07 per cent in 2023; 33.66 per cent in 2024; and 35.27 per cent in 2025.
74.The number of female employees holding senior positions (starting from head of department) in the Central Office of the Ministry of Foreign Affairs was as follows: 75 in 2021; 82 in 2022; 93 in 2023; 97 in 2024; and 113 in 2025.
75.The proportion of female employees with diplomatic rank in Russian missions abroad relative to the total number of employees with diplomatic rank in Russian missions abroad was as follows: 17.5 per cent in 2021; 19 per cent in 2022; 19.51 per cent in 2023; and 19.9 per cent in 2025.
76.The number of women ambassadors, consuls general and minister counsellors/deputy permanent representatives were as follows: one ambassador, five consuls general, five minister counsellors and three deputy permanent representatives in 2021; two ambassadors, four consuls general, five minister counsellors and four deputy permanent representatives in 2022; two ambassadors, five consuls general, nine minister counsellors and four deputy permanent representatives in 2023; two ambassadors, four consuls general, 12 minister counsellors and four deputy permanent representatives in 2024; and two ambassadors, five consuls general, 13 minister counsellors and four deputy permanent representatives in 2025.
77.The number of Russian women in diplomatic positions in international organizations was as follows: two in 2021; five in 2022; eight in 2023; eight in 2024; and six in 2025.
78.The proportion of women among those hired for the first time to diplomatic positions in the Ministry of Foreign Affairs was as follows: 14.73 per cent in 2021; 12.03 per cent in 2022; 19.29 per cent in 2023; 16.27 per cent in 2024; and 16.38 per cent in 2025.
79.To build a successful career through immersion in professional activities and the development of professional skills, the Ministry of Science and Higher Education has, since 2021, been implementing the School of Mentoring nationwide project, aimed at supporting students at the beginning of their careers by creating a motivating and supportive mentoring environment. Students, post-graduate students and academics from all regions of the Russian Federation can participate in the project. Through the project, students have the opportunity to collaborate with leaders and mentors in various fields, learn more about their professional experience and receive their support and expert guidance regarding future professional development in all covered fields.
80.The work of the all-Russian public-State organization Women’s Union of Russia in this area is noteworthy. In 2024, the Ministry of Digital Development, Communications and Mass Media provided this organization with a subsidy from the federal budget for the development and running of the social project on the Women of Russia online portal (https://womenofrussia.online). One of the purposes of the portal is to enhance the public status of women and their role in the political, economic, social and cultural life of the country. In 2024, in the portal, 130 pieces of content (broadcasts, programmes and podcasts) were shared, 241 online consultations with experts and 26 educational webinars were held and 1,212 articles and publications were made available.
81.The Women’s Union of Russia is, among other things, implementing a programme to guarantee equal rights and opportunities for men and women, the aims of which are as follows: to support the implementation of the Strategy for Women; to ensure equal rights, freedoms and opportunities for women in various spheres of society; to eliminate discriminatory barriers based on sex; and to create conditions for the advancement of women and the fullest realization of their creative potential and talent.
Paragraphs 32 and 33 of the concluding observations
82.Russia does not accept the classification of Crimea, the city of Sevastopol and the Donetsk and Lugansk People’s Republics as territory of Ukraine on the basis of General Assembly resolutions 75/192 and 75/29. Their accession to Russia was the result of referendums held in Crimea and the city of Sevastopol on 16 March 2014 and in the Donetsk and Lugansk People’s Republics on 23–27 September 2022. In this regard, making the observation without taking into account the freely expressed will of the people of Crimea, the city of Sevastopol and the Donetsk and Lugansk People’s Republics, including women, is contrary to article 7 of the Convention, which stipulates the right of women to vote in all elections and public referendums.
83.The Republic of Abkhazia and the Republic of South Ossetia are independent sovereign States. Requests for information on the implementation of the provisions of the Convention in the territory of those two countries should be addressed directly to their Governments.
84.Security Council resolution 1325 (2000) applies exclusively to situations of armed conflict and therefore does not apply to the situation in the territory of the Russian Federation. The artificially broad application of resolution 1325 (2000) is unacceptable and has no proper basis. With regard to the development of so-called national action plans for the implementation of resolution 1325 (2000), such activities should be carried out on a voluntary basis by States affected by armed conflict or undergoing post-conflict reconstruction. If any other countries also wish to develop such national plans, that is certainly their right, but not their obligation.
Article 9
Paragraphs 34 and 35 of the concluding observations
85.In 2022, the Government of the Russian Federation approved comprehensive action plan No. 11932p-P44 of 12 October 2022 for the social and cultural development of Roma people in the Russian Federation. As part of the implementation of paragraph 1 of the comprehensive plan, the Ministry of Internal Affairs is engaged in ongoing work to identify places where Roma communities have settled and to provide legal assistance with the issuance of passports certifying the identity of Russian citizens in the territory of the Russian Federation.
Part III
Article 10
Paragraphs 36 and 37 of the concluding observations
86.Article 43 of the Constitution states that everyone has the right to education. In addition, everyone has the right to receive free higher education on a competitive basis at State or municipal educational establishments and in enterprises. In accordance with article 3 of Federal Act No. 273-FZ of 29 December 2012 on education in the Russian Federation, State policy and legal regulations regarding education are based, among other things, on the principles of ensuring the right of all to education and prohibiting discrimination in education (see also annex 1).
87.In addition, on the basis of article 5, paragraph 5, of Federal Act No. 273-FZ, with the aim of ensuring the right of everyone to education, federal authorities, authorities of the constituent entities of the Russian Federation and local authorities create the conditions necessary to provide quality education without discrimination for persons with disabilities, to address developmental and social adaptation challenges, and to deliver early remedial assistance using special educational approaches and the most appropriate languages, modes and means of communication for those persons. Such conditions should, as far as possible, help those persons to obtain an education of a certain level and in a certain field, and should support their social development, including through the organization of inclusive education for persons with disabilities. In addition, full or partial financial support is provided for persons in need of social support during their education, in accordance with the laws of the Russian Federation.
88.Paragraph 23 of the plan for the implementation of the Strategy for Women provides for improving digital literacy among girls and women and enhancing digital skills in the fields of the digital economy and investment as part of the Information Security federal project under the Digital Economy of the Russian Federation national programme, including through the creation and development of an online platform for basic education in investment.
89.The Ministry of Digital Development, Communications and Mass Media, together with the independent non-profit organization Digital Economy and the Ministry of Education, and in partnership with companies leading the digital transformation, promotes the development of digital literacy among girls and women by implementing a number of measures, including:
–Developing cyberliteracy skills, under the Digital Literacy national project (https://digital-likbez.datalesson.ru/);
–Providing schoolchildren with education and career guidance in the field of digital technologies, under the Digital Lesson (https://урокцифры.рф/) and Digital Day (https://урокцифры.рф/camp) national educational projects;
–Assisting the Government in developing unified approaches and strategies for disseminating best practices and discussing key issues related to digital literacy and cyberhygiene with large segments of the population, through the Expert Council on Digital Literacy and Cyberhygiene;
–Organizing expert events on digital literacy in forums and other venues.
90.In 2024, interactive simulation classes under the Digital Lesson project were completed more than 22.2 million times, with girls completing them more than 16 million times (72.2 per cent). Girls not only make up the majority of participants in activities aimed at raising awareness of information technology, but their interest in developing their digital skills is also growing.
91.Digital Day is an educational project aimed at introducing children in summer camps to the world of information technology. In the summer of 2024, about 2,300 children’s camps and organizations across the Russian Federation joined the project, making it possible to reach about 300,000 children. The project itself is seen as an effective tool for providing career guidance and increasing digital literacy, especially among girls, during the summer holidays.
92.As part of a federal project to develop human resources in the information technology industry under the Digital Economy of the Russian Federation national programme, the Ministry of Digital Development, Communications and Mass Media implemented the Code of the Future project during the period 2022–2024. This project is aimed at providing career guidance for schoolchildren in grades 8 to 11 and students attending colleges and technical schools specializing in information technology, and at increasing their motivation to continue education in secondary vocational and higher education programmes in the field of information technology. As part of the Code of the Future project, 31,763 female participants (32 per cent) in the 2022/23 school year and 95,433 (39 per cent) in 2023/24 enrolled in training on modern programming languages.
93.Paragraph 29 of the plan for the implementation of the Strategy for Women provides for the provision of career guidance to girls and women, including with an emphasis on education and employment in technical fields.
Article 11
Paragraphs 38 and 39 of the concluding observations
94.In conjunction with the State policy on the promotion of equality between women and men, the Russian Federation is implementing measures to protect motherhood and childhood, including specific measures to regulate women’s labour. The specifics of regulating women’s labour are set out in chapter 41 of the Labour Code, which establishes certain restrictions on the use of women’s labour in harmful and/or hazardous working conditions, and provides for additional safeguards and benefits for pregnant women and women with young children.
95.A list of production processes, jobs and occupations with harmful and/or hazardous working conditions in which the use of women’s labour is restricted was approved under Ministry of Labour Order No. 512n of 18 July 2019. The list is gradually being reduced.
96.Hiring is carried out regardless of sex, race, nationality, origin, financial status, official capacity, place of residence, religion, beliefs or membership of public unions.
97.On 25 February 2024, Federal Act No. 12-FZ of 14 February 2024 on amendments to the Labour Code of the Russian Federation entered into force, in accordance with which article 261, paragraph 4, of the Labour Code was amended to prohibit the termination by employers of the employment contracts of single mothers raising a child under 16 years of age or of other persons raising a child without a mother. Female employees are guaranteed a number of benefits, which also apply to foreign women.
98.In Russia, women make up almost half of the total labour force. The female employment rate increased from 53.4 to 55.1 per cent in the period 2024–2025.
99.Women make up the majority of those employed in education (83 per cent), healthcare and social services (80 per cent), hospitality and catering (74 per cent), finance and insurance (69 per cent), culture, sports, leisure and entertainment (67 per cent) and trade (62 per cent). Information on employed women by type of residential area and primary occupation is presented in table 2.
100.Women are the heads of about 30 per cent of small and medium-sized businesses, amounting to more than 1.7 million businesses. Women account for 90 per cent of entrepreneurs in the social sector and 58 per cent in the service sector.
101.Women make up the majority, representing over 58 per cent, of the rapidly growing creative industry sector.
102.The proportion of women in public and civil service positions is increasing. More than 70 per cent of civil servants are now women. Women make up 78 per cent of the staff of local authorities. More than 80 per cent of those working in judicial bodies and prosecutor’s offices are women.
103.The difference in pay between men and women is due to various reasons, one of which is a preference for more flexible or reduced working hours and workloads (with corresponding remuneration) to allow more time for child-rearing and family tasks. The difference in pay between men and women is therefore not due to sex, but to the complexity of the work and to working conditions.
104.Since 2025, the Mother Entrepreneur programme has been implemented as part of a federal project to support small and medium-sized enterprises and individual entrepreneurial initiative under the Efficient and Competitive Economy national project.
105.The programme was created to help women to learn entrepreneurial skills, develop sustainable business models and receive financial support to start and develop their own businesses. The participants are trained for five days, and the programme culminates with the presentation of projects. The participants’ best projects at the regional stage receive grant support, which was increased to 150,000 roubles in 2025, as well as the opportunity to advance to the federal stage and compete for grants of 1 million roubles, 500,000 roubles and 250,000 roubles.
106.Information on the number of women on parental leave by type of economic activity is provided in table 3.
Article 12
Paragraphs 40 and 41 of the concluding observations
107.The expected outcomes of the implementation of the Strategy for Women by 2030 include reduced maternal mortality and increased life expectancy for women.
108.To achieve those outcomes, the activities outlined in section II of the plan for implementing the Strategy, entitled “Preserving the health of women of all ages and creating conditions to enhance the role of women in building a healthy society”, are being implemented with the aim of reducing maternal and infant mortality and improving reproductive health. Life expectancy for women had reached 78.2 years in 2019 and increased to 78.74 years by 2024. The gap in life expectancy between urban and rural women narrowed from 1.3 to 0.8 years in 2021.
109.Maternal mortality rates have been reduced in the Russian Federation by increasing the availability of quality and timely medical care. In accordance with article 7, paragraph 4, of Federal Act No. 323-FZ, the State authorities of the Russian Federation, the authorities of the constituent entities of the Russian Federation and local authorities are, in line with their mandates, developing and implementing programmes to support the prevention, early detection and treatment of diseases, reduce maternal and infant mortality, and encourage children and their parents to lead healthy lives.
110.Modern methods of diagnosis, treatment and rehabilitation are being introduced for the early detection of diseases in children, including screening programmes starting before birth, followed by expanded neonatal and prenatal screening for hereditary and congenital diseases.
111.Early prenatal screening aimed at identifying the risk of chromosomal abnormalities, fetal malformations, fetal growth restriction, preterm birth and pre‑eclampsia is carried out in all constituent entities of the Russian Federation. According to federal statistical monitoring data for 2024, 95.8 per cent of women who registered at a maternity clinic before 14 weeks of pregnancy underwent an assessment of fetal antenatal development between 11 and 14 weeks of pregnancy.
112.Since 2020, early screening during the first trimester of pregnancy has been implemented in the Russian Federation to identify the risk of preterm birth, pre‑eclampsia and fetal growth restriction. Following the introduction of screening to identify the risk of preterm birth, the frequency of preterm births has been decreasing: in 2024, it stood at 5.8 per 100 births, while the frequency of extreme preterm births at 22–28 weeks was 0.46 per 100 births.
113.To enable the early detection of severe hereditary and congenital diseases, neonatal screening in the Russian Federation covered two hereditary and congenital diseases from 1993 to 2006. Since 2006, neonatal screening has covered five hereditary and congenital diseases. From 1 January 2023, neonatal screening was expanded to cover more than 40 congenital and hereditary diseases. Neonatal screening makes it possible to diagnose diseases promptly, within the first days of a child’s life, and begin treatment, including medication, thereby helping to reduce infant mortality and disability rates among children.
114.All children with diagnosed diseases are referred to medical facilities for observation and are provided with medicines and specialized therapeutic foods, including through the Circle of Goodness Foundation for children with severe life-threatening and chronic diseases, including rare (orphan) diseases. Each year, screening programmes cover more than 95.0 per cent of all newborns.
115.More than 69,900 health workers underwent professional development training in the fields of perinatology, neonatology and paediatrics in simulation centres in the period 2019–2024.
116.Each year, more than 97.5 per cent of children aged 15 to 17 years undergo preventive medical examinations aimed at preserving their reproductive health.
117.Measures are being taken to ensure and increase the availability of the legal, psychological, medical and social assistance services provided by medical facilities to pregnant women in difficult situations.
118.In 2024, legal, psychological, medical and social assistance was provided to pregnant women and women facing reproductive decisions in 900 medical and social assistance offices at women’s clinics and medical and social support centres for pregnant women in difficult situations.
119.Pre-abortion counselling is provided with consideration for the life circumstances of the pregnant woman and for the medical indications and contraindications for carrying the pregnancy to term, and is aimed at ensuring free and informed choice while addressing the woman’s personal concerns. A new programme of motivational questionnaires providing information on federal and regional social support measures for pregnant women and families with children, developed by the Ministry of Health in cooperation with the independent non-profit organization Agency for Strategic Initiatives to Promote New Projects, has proved to be a highly effective tool for encouraging women facing reproductive decisions to continue their pregnancy.
120.Inter-agency cooperation in the provision of medical and social assistance has been strengthened among medical facilities and social service organizations, including social services, employment agencies and traditional religious communities. Medical facilities in the Russian Federation cooperate with crisis centres for pregnant women, social shelters and hostels, and socially oriented non-profit organizations.
121.Between 2022 and 2024, the number of elective medical abortions before 12 weeks of pregnancy per 1,000 women aged 15–49 years decreased by 13.4 per cent. Each year, about 95 per cent of patients seeking a referral for an abortion at a medical facility receive pre-abortion counselling, which helps to preserve more than 41,000 pregnancies annually.
122.Continuous improvements are made to the laws of the Russian Federation with the aim of encouraging individuals to refrain from illegal drug use and to voluntarily seek treatment for drug addiction and medical and social rehabilitation in medical and rehabilitation facilities.
123.Amendments have been introduced to criminal laws to establish a system of alternative punishment in the form of treatment for drug addicts. For example, article 82.1 (Deferment of sentences for drug addicts) has been added to the Criminal Code, providing for the deferment of the actual serving of a sentence until completion of a course of treatment, followed by release from serving the sentence. Under article 72.1 (Sentencing of a person recognized as a drug addict) of the Criminal Code, the court has the authority to impose an additional obligation on drug addicts or drug users to undergo treatment and/or rehabilitation.
124.In addition, the criminal laws contain provisions allowing for the release of individuals from criminal liability if they voluntarily hand over controlled substances and take active steps that contribute to the detection or prevention of crimes related to the illegal drug trade, the identification of individuals who have committed such crimes or the discovery of property obtained through criminal means. Individuals may also be released from criminal liability for a first-time minor offence if they turn themselves in and actively assist in the detection or prevention of crimes related to the illegal drug trade.
125.Article 80 of the Penalties Enforcement Code stipulates that men and women serving custodial sentences at correctional facilities should be held separately, as should adults and minors. Individuals sentenced to imprisonment for the first time are held separately from those who have previously served a sentence. In addition, the Penalties Enforcement Code provides additional rights and safeguards for convicted women, including those accompanied by children.
126.About 7,000 women living with HIV are currently held in institutions of the penal system of the Russian Federation. The provision of medicines to suspected, accused or convicted women living with HIV is funded from the federal budget. The absence of medicine shortages made it possible to increase antiretroviral therapy coverage from 40 per cent in 2017 to 96 per cent in 2024.
127.Immunological laboratories operate in 55 medical units of the Federal Penitentiary Service, serving 85 local offices of the Service. The full cycle of immunological research, from screening for HIV, viral hepatitis and concomitant and opportunistic infections to the assessment of the effectiveness of the therapy provided, is carried out at 40 such laboratories.
128.Penal institutions have organized health-related educational activities, released thematic films and distributed informational brochures. Before release, convicted women are given flyers with contact information for social protection institutions, employment agencies and rehabilitation centres where they can seek medical, social and psychological assistance.
129.Overall, the measures implemented by the local offices of the Federal Penitentiary Service make it possible to maintain control over the prevalence of HIV infection among suspected, accused and convicted women. Between 2020 and 2024, the number of women living with HIV in penal institutions remained at the same level, accounting for 19 per cent of the total number of women held in penal institutions.
130.Specialized medical care for convicted women suffering from drug addiction disorders is a priority of the medical service of the Federal Penitentiary Service and is provided in accordance with the principles of humanity and respect for human rights. The principle of voluntary treatment for patients with drug addiction disorders – an important achievement of Russian psychiatry – is fully upheld in penal institutions.
131.The framework for the development of the penal system of the Russian Federation in the period up to 2030, approved by Government Order No. 1138-r of 29 April 2021, includes provisions for improving laws on detention conditions, including for suspected and accused women who have minor children. Federal Act No. 350-FZ of 25 October 2024 on amendments to article 82 of the Criminal Code and article 398 of the Code of Criminal Procedure and Federal Act No. 351-FZ on amendments to article 175 of the Penalties Enforcement Code introduced provisions for the deferment of the actual serving of a sentence for women sentenced to imprisonment who are pregnant or have a child under 14 years of age.
Article 13
132.Information on the system of State benefits established at the federal level and on additional social support and assistance measures for certain categories of the population at the regional level is provided in the ninth periodic report (paras.159‑171) and the eighth periodic report (paras. 205–208).
Article 14
Paragraphs 44 and 45 of the concluding observations
133.In accordance with the procedure set out in Federal Act No. 82-FZ of 30 April 1999 on guarantees of the rights of small-numbered Indigenous Peoples of the Russian Federation (as amended in 2020) for registering persons belonging to small-numbered Indigenous groups, the Federal Agency for Ethnic Affairs has been providing this State service since December 2020. Citizens belonging to small-numbered Indigenous groups of the Russian Federation submit an application to the Agency for inclusion in the list, together with a document confirming their ethnic affiliation or family relationship with a person belonging to such a group.
134.During the reporting period, more than 100,000 people were included in the list of persons belonging to small-numbered Indigenous groups of the Russian Federation, of whom more than half were women. For example, women accounted for 58 per cent of those living in Khabarovsk krai; 57 per cent in Kamchatksky krai, Khanty-Mansiysk Autonomous Okrug – Ugra and Sakha (Yakutia) Republic; and 54 per cent in Yamalo-Nenets Autonomous Okrug.
135.Information from the list is used by State authorities to provide citizens with targeted socioeconomic support, including social benefits and pensions, medical services, access to natural resources and other measures as part of inter-agency cooperation. Since 2022, State authorities have been prohibited from requiring citizens to provide information that is already included in the documents confirming that they belong to small-numbered Indigenous groups of the Russian Federation.
136.A framework for the sustainable development of small-numbered Indigenous Peoples of the North, Siberia and the Far East of the Russian Federation for the period up to 2036 was approved by Government Order No. 1161-r of 8 May 2025. Under the framework, the priorities for achieving the goal of preserving the ethnocultural heritage and traditions of small-numbered Indigenous Peoples include the preservation and strengthening of traditional spiritual and moral values, and the promotion of a positive image of women as mothers and of the traditional family of small-numbered Indigenous Peoples.
Part IV
Article 15
Paragraphs 46 and 47 of the concluding observations
137.The Russian Federation has been consistently pursuing a State policy aimed at preserving and strengthening traditional values. Under Presidential Decree No. 809 of 9 November 2022, traditional values are understood to mean moral guidelines that shape the worldview of Russian citizens and are passed down from generation to generation, forming the basis of national identity and the country’s unified cultural space, strengthening unity among citizens and finding their unique, distinctive expression in the spiritual, historical and cultural development of the multi-ethnic people of Russia.
138.Legal protection of these values in the Russian Federation is ensured through a number of legislative Acts in various spheres. For example, Federal Act No. 478-FZ of 5 December 2022 on amendments to the Federal Act on information technologies and information protection and certain legislative Acts of the Russian Federation, which was adopted as part of the consistent State policy on preserving traditional values, prohibits the promotion of non-traditional sexual orientation and sex change. It is important to note that sexual preferences as such (with the exception of paedophilia) are not subject to administrative or criminal liability.
Paragraphs 50 and 51 of the concluding observations
139.In accordance with article 95 of Federal Act No. 197-FZ of 19 July 2018 on service in the penal system of the Russian Federation and on amendments to the Act of the Russian Federation on institutions and authorities enforcing criminal penalties in the form of imprisonment, the penal system carries out both internal and external monitoring of compliance with Russian laws on service in the system, as well as prosecutorial supervision of the enforcement of those laws.
140.For monitoring purposes, the Federal Penitentiary Service organizes departmental inspections to ensure the compliance of penal system employees with the laws of the Russian Federation on service in the system; collects information on compliance by penal system employees with those laws; and takes measures to eliminate shortcomings identified in the compliance of penal system employees with those laws. Prosecutorial supervision of compliance with the laws on service in the penal system is carried out by the Prosecutor General of the Russian Federation and subordinate prosecutors in accordance with the laws of the Russian Federation.
141.Public monitoring of the protection of human rights in penal institutions is carried out by public monitoring commissions, established in the constituent entities of the Russian Federation, and their members in accordance with the procedure set out in the laws of the Russian Federation. When carrying out public monitoring of the protection of human rights, members of the commission have the right to speak with suspects, accused persons and convicted persons in conditions that allow representatives of the penal institution to see but not hear them.
142.In addition, monitoring of the activities of the penal system is carried out by the Federal Assembly of the Russian Federation, the President of the Russian Federation, the Government of the Russian Federation and the legislative bodies and executive authorities of the constituent entities of the Russian Federation.
143.Act No. 5473-I of 21 July 1993 on institutions and authorities of the penal system of the Russian Federation contains a list of persons who are permitted to visit penal institutions and pretrial detention centres for monitoring purposes without special authorization. Other individuals may visit penal institutions and pretrial detention centres only with special authorization from the management of those institutions or from the local offices of the penal system, in accordance with the procedure established by the federal executive authority responsible for developing and implementing State policy and regulations in the field of penalties enforcement.
144.The Commissioner for Human Rights in the Russian Federation and the commissioners for human rights in the constituent entities of the Russian Federation, when exercising their authority, have the right to speak privately with convicted persons and individuals held in custody in conditions that allow representatives of the penal institution or pretrial detention centre to see but not hear the conversation.
145.The legal framework for governmental and non-governmental free legal aid in the Russian Federation is set out in Federal Act No. 324-FZ of 21 November 2011 on free legal aid in the Russian Federation. Article 12, paragraph 1, of the Penalties Enforcement Code affirms the right of convicted persons to receive information about their rights and obligations and about the procedure and conditions for serving the type of punishment imposed by the court. In addition, article 95 of the Penalties Enforcement Code regulates the procedure for acquiring and storing books and writing materials by persons sentenced to imprisonment.
146.In accordance with article 6 of the Code of Civil Procedure, justice in civil cases is administered on the basis of equality before the law and the court for all citizens, regardless of sex, race, nationality, language, origin, financial status, official capacity, place of residence, religion, beliefs, membership of public unions or other circumstances.
Article 16
Paragraph 57 of the concluding observations
147.Pursuant to article 13 of the Family Code, the minimum age for marriage is set at 18 years. In accordance with article 13, paragraph 2, of the Family Code, if there are valid reasons, the local authorities in the place of residence of persons wishing to marry may, at their request, allow them to marry once they have reached 16 years of age. Currently, a number of constituent entities of the Russian Federation have laws in place that allow, on an exceptional basis and under special circumstances, people under 16 years of age to marry.
148.In line with the position expressed by the Constitutional Court in its Decision No. 568-O-O of 21 October 2008, the federal legislator, on the basis of article 72, paragraph 1 (k), of the Constitution and the assumption that the age of majority implies attaining biological and psychological maturity as a condition for entering into marriage, established the minimum age of marriage at 18 years in article 13 of the Family Code. At the same time, guided by the constitutionally protected interests of the family and the child, the federal legislator provided for the right of the local authorities in the place of residence of persons wishing to marry, at their request and for valid reasons, to allow them to marry once they have reached 16 years of age (paras. 1 and 2), as well as the right of the constituent entities of the Russian Federation to set out in their own laws the procedure and conditions under which, on an exceptional basis and under special circumstances, persons under the age of 16 years may be allowed to marry.
149.Determining the criteria for recognizing the reasons given by underage persons wishing to marry as valid and thus allowing persons who have reached 16 years of age to marry is the responsibility of the local authorities in the place of residence of the persons wishing to marry. In practice, such reasons typically include pregnancy, the birth of a child to the persons wishing to marry or an immediate threat to the life of one of the persons wishing to marry.
150.In accordance with article 27 of the Civil Code, a minor who has reached the age of 16 years may be declared to have full legal capacity if he or she is working under an employment agreement, including a contract, or is carrying out entrepreneurial activity with the consent of his or her parents, adoptive parents or guardian. Under article 56 of the Family Code, children are entitled to the protection of their rights and legitimate interests. A minor who has been declared to have full legal capacity under the law before reaching the age of majority is entitled to fulfil his or her rights and obligations independently, including the right to marry.
151.Article 27 of Federal Act No. 143-FZ of 15 November 1997 on civil status establishes the procedure for State registration of marriage in civil registry offices, according to which the personal presence of both persons entering into marriage and their mutual and free consent are mandatory conditions, thus ruling out any possibility of forced marriage in civil registry offices. If one of the persons wishing to marry states, by his or her free will, that he or she does not wish to enter into the marriage, the marriage will not be registered by the State.
152.In accordance with article 14, paragraph 1, of the Constitution, the Russian Federation is a secular State. On the basis of the interconnected provisions of article 12, paragraph 1, of the Family Code, which stipulates that marriage requires the man and woman entering into it to give their mutual and free consent and to be of marriageable age, and the second subparagraph of article 14 of the Family Code, which prohibits marriage between persons of whom at least one is already in another registered marriage, the State does not recognize the possibility of entering into polygamous marriages.
153.In accordance with the constitutional principle of the secular nature of the State, the Constitutional Court, when considering an appeal against a refusal to register a marriage with two women (brides), stated that religious tenets and the laws of other countries allowing polygamous marital unions, as well as any alternative approach to resolving the issue, cannot influence the State policy of the Russian Federation in the sphere of family relations. Such relations are based on the principle of monogamy, in accordance with which marriage is understood as the biological union of only one man and one woman and multiple simultaneous marriages are therefore not allowed (Decision No. 851-O-O of 18 December 2007).
154.The concepts of “polygamy” and “polygamous marriage” are not enshrined in law. The current Criminal Code does not contain provisions establishing criminal liability for bigamy or polygamy, which were included in the Criminal Code of the Russian Soviet Federative Socialist Republic of 1960 (chap. 11, “Crimes that are vestiges of local customs”, art. 235). There is also no administrative liability for entering into a marriage without dissolving the previous one.
155.If the first spouse files a claim, a new marriage is declared invalid from the moment of its conclusion (Family Code, art. 27), with corresponding consequences under civil law.
Paragraph 58 of the concluding observations
156.In the Russian Federation, information on the situation of women is collected on an ongoing basis (see annex 2).
Paragraph 59 of the concluding observations
157.It is unacceptable that the Committee’s concluding observations following the consideration of the eighth periodic report contain a reference to provisions that were not discussed during the consideration of that document. The amendment to article 20, paragraph 1, of the Convention has lost its relevance and no longer needs to be ratified following the adoption of General Assembly resolution 68/268, entitled “Strengthening and enhancing the effective functioning of the human rights treaty body system”. Paragraphs 26 and 27 of the resolution contain a detailed description of the method to be used for the allocation of meeting time to the treaty bodies.
Paragraph 62 of the concluding observations
158.The preparation of periodic reports on the implementation of the provisions of the Convention on the Elimination of All Forms of Discrimination against Women should be guided exclusively by the articles of that international treaty. The issue of accession to other international treaties does not fall within the competence of the Committee on the Elimination of Discrimination against Women, as it is not covered by the provisions of that Convention.