Twenty Years of Parliamentary Gender Equality Mechanisms in Serbia
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Prof. Marijana Pajvančić, PhD Prof. Nevena Petrušić, PhD Maja Sedlarević, MA Twenty Years of Parliamentary Gender Equality Mechanisms in Serbia
Authors: Prof. Marijana Pajvančić, PhD Prof. Nevena Petrušić, PhD Maja Sedlarević, MA
Publisher: OSCE Mission to Serbia
Design and layout: Milica Dervišević
Printed by: Jovšić Printing Centar
Print run: 100 copies
November 2023
The printing of this publication was made possible by the OSCE Mission to Serbia.
The views expressed herein are solely those of the authors and do not necessarily represent the official position of the OSCE Mission to Serbia.
All terms used in the text in the masculine grammatical gender include both the masculine and feminine genders of the persons to whom they refer.
2 Contents
Prof. Marijana Pajvančić, PhD Overview of the Process of Formation of Institutional Gender Equality Mechanisms in the Republic of Serbia.........................................7
Prof. Nevena Petrušić, PhD Gender Equality Mechanism of the National Assembly of the Republic of Serbia in 2003–2023.............................................................................25
Maja Sedlarević, MA Gender Equality Committee of the Assembly of Ap Vojvodina in 2003–2023..............................................................................................................................49
3 FOREWORD The very idea of women in politics was once unthinkable. In the meantime, much has changed and undeniably great progress has been made, but this does not mean that we can boast that we have achieved full equality. Even today, it is not easy to be a woman in politics due to the very fact that, unlike a man, you have to prove more convincingly that you are worthy of the position you hold.
In recent years, Serbia has taken significant steps to increase the participation of women in public and political life. With more than 30% of women MPs in the national parliament and a large number of women in the highest executive bodies, Serbia has become one of the lead- ers in this regard in Europe. However, quotas alone are not enough. It is evident that the num- ber of women in politics is increasing, but mostly in executive positions – currently only 21 women are presidents of cities or municipalities, and 34 women are presidents of city or municipality assemblies. Women bring new ideas and perspectives into political life, open dialogues and discussions on many topics that were not even present in public life. That is why women in politics are particularly valuable and have a great potential that we as a society must use and understand in the right way.
Back in 1918, in the elections for the Great National Assembly in Novi Sad, women were the first in Europe to have the right to vote, and elected seven women MPs. The presence of women in parliament was for a long time more an exception than a rule, and since then, the National Assembly as the highest legislative body has shown that it can be a mirror of soci- ety and a place where the right to equality is respected. An important step was the introduc- tion of quotas, but women in the parliament showed political maturity and responsibility, and took a step further – they united through the Women’s Parliamentary Network, with the aim of achieving higher goals. In 2013, female MPs joined together for the first time with the intention to go beyond party programmes and differences, and, through the influence of the Women’s Parliamentary Network, to reach much further beyond the parliamentary benches and impact the change of life for the better for many women in Serbia, especially when it comes to the position of marginalised women. Increasing the number of women in the places where decisions are made, both at the level of the Republic and the local level, as well as in the positions where decisions are made on finances, security and all those issues that have been reserved mainly for men until now, remains a big challenge. On one occasion, I inferred together with the Secretary General of the OSCE Helga Schmid: “Without women at the table, there is neither peace nor stability – neither at the table nor outside it”.
5 The Commissioner for Protection of Equality, as a national institution for the fight against dis- crimination and the promotion of equality, co-operates, within the National Assembly, first of all with the parliamentary Committee on Human and Minority Rights and Gender Equal- ity, as well as with the Women’s Parliamentary Network, but also avails of all other platforms such as public hearings, conferences, debates and the like. We regularly examine the posi- tion of women and monitor progress in this area through the analysis of women’s participa- tion in public and political life, deeply aware that women’s participation is a prerequisite for their overall economic and social inclusion. If there are no women in political decision-mak- ing positions, we have no chance to pursue quality public policies. Gender equality is a matter of sustainable development and, ultimately, a matter of our vital national interests. There is no democracy without the active participation of women in politics and focusing on the imple- mentation of the principle of full equality of women and men in all social areas. That is pre- cisely why parliamentary mechanisms for achieving gender equality are significant, as they provide women who have become MPs with an opportunity to use their personal example to encourage other women to get involved in political or public life. A clear example speaks volumes.
Brankica Janković, Commissioner for Protection of Equality
6 Prof. Marijana Pajvančić, PhD
OVERVIEW OF THE PROCESS OF FORMATION OF INSTITUTIONAL GENDER EQUALITY MECHANISMS IN THE REPUBLIC OF SERBIA The process of forming institutional gender equality mechanisms unfolded under the influ- ence of several factors whose cumulative and synergistic effects shape the environment in which the functioning of institutional mechanisms is possible. These factors include:
· Increasing the representation of women in public authorities, primarily in directly elected representative bodies of male and female citizens. · The defining of international gender equality standards, including gender equality mechanisms as one of the standards and the transposition of these standards in national legislation. · Comparative practice, experiences and examples of good practice as an incentive. · The political will and readiness of political actors (political parties, public authorities) to accept and establish these new institutions in the system of public authorities.
1 International documents on gender equality mechanisms
The impetus for the formation of institutional gender equality mechanisms (hereinafter: gen- der equality mechanisms) were numerous universal and regional international documents. Gender inequality has been recognised as a global problem.1 At the First World Conference on Women (Mexico City, 1975), the Decade for Women was declared and the World Action Plan was adopted, recognising gender equality mechanisms as instruments for achieving equal opportunities for women2, which resulted in the establishment of national gender equality
1 Back in 1962, the UN Commission on the Status of Women pointed out the importance of setting up national commissions on the status of women. See: Mršević, Z. (2011) Ka demokratskom društvu – rodna ravnopravnost (Towards Democratic Society – Gender Equality), Institute of Social Sciences, p. 99. 2 See: Mršević, Z. (2001) Standardi i mehanizmi za rodnu ravnopravnost u demokratskim zemljama (Gender Equality Standards and Mechanisms in Democratic Countries), Belgrade, OSCE; Mršević, Z. Mehanizmi za rodnu ravnopravnost (Gender Equality Mechanisms), GENERO no. 12/2008 p. 7–22.
7 mechanisms in more than 90% of countries in the world.3 The UN General Assembly adopted the Convention on the Elimination of All Forms of Discrimination against Women as a key document in the field of gender equality.4 At the Fourth World Conference on Women (Bei- jing, 1995), the Beijing Declaration and Platform for Action were adopted5, emphasising the importance of gender equality mechanisms and essentially changing the approach to gender equality, with a focus on integration of the gender perspective into the process of creation and participation in decision-making on public policies. One of the prerequisites for this impor- tant change is the formation and functioning of gender equality mechanisms. The Platform for Action states that gender equality mechanisms formed at national levels are different and that their work is hampered by numerous obstacles such as: insufficient political support of the government, marginalisation of these bodies in the government structure, unclear mandates that make work difficult, lack of adequate staff, lack of training on gender equality, lack of data on gender equality, as well as financial resources and other logistics needed for their work.6
Several universal international documents on gender equality in various fields have been adopted. In this context, we single out those that explicitly mention gender equality mecha- nisms, such as the Plan of the Inter-Parliamentary Union to Correct Present Imbalances in the Participation of Men and Women in Political Life (1992)7, Universal Declaration on Democ- racy (1997)8, Worldwide Declaration of the International Union of Local Authorities (1998)9 etc.
3 Report of the World Conference to Review and Appraise the Achievements of the United Nations Decade for Women: Equality, Development and Peace, held on 15–26 July 1985, adopted in Nairobi in June 1992. Source: Ravnopravnost spolova u međunarodnim dokumentima (Gender Equality in International Documents), Gender Equality Agency of Bosnia and Herzegovina, Sarajevo 2008. p. 104–105. 4 Adopted on 18 December 1979, ratified in 1981, “Official Gazette of the SFRY – International Treaties”, No 11/1981, available at: https://www.paragraf.rs/propisi/zakon_o_ratifaciji_konvencije_o_eliminisanju_svih_ oblica_diskriminacije_zena.html. 5 Available at: http://www.e-jednakost.org.rs/kurs/kurs/download/pekinska_deklaracija.pdf. For more information see: Pajvančić, M. and Petrušić, N. Značaj institucionalnih mehanizama za ostvarivanje rodne ravnopravnosti (Importance of Institutional Mechanisms for Achieving Gender Equality), Proceedings of the Faculty of Law in Niš, No 67/2014. p. 26–27. 6 Chapter H, Strategic Objective H.1. points 156–210 Platforms for Action. Source: Op. cit. p. 70–71. After 25 years since the adoption of the Beijing Declaration and Platform for Action, the Republic of Serbia prepared the National Report on the Progress in the implementation of these documents, including gender equality mechanisms, p. 76–81. Available at: https://www.rodnaravnopravnost.gov.rs/sites/default/files/2020-04/ Nacionalni%20pregled%20Pekinska%20deklaracija%20SRB.pdf. 7 The plan lists four key activities: explicitly guaranteeing the equality of men and women in the constitution or an act of constitutional force; adoption of a special law that ensures the principle of equality; formation of gender equality mechanisms, and gender-sensitive language in legislation. See: Mršević, Z. (2008) Op. cit. p. 12–14. 8 Article 4 of the Universal Declaration on Democracy: “The achievement of democracy presupposes a genuine partnership between men and women in the conduct of the affairs of society in which they work in equality and complementarity, drawing mutual enrichment from their differences“. Inter-Parliamentary Council, 161st session (Cairo, 16 September 1997), available at: http://www.parlament.gov.rs/upload/documents/ Univerzalna%20Deklaracija%20o%20demokratiji%20LAT.pdf. 9 See: Mršević, Z. (2008) Op. cit. p. 12–14.
8 At the regional level (Europe)10, numerous documents on gender equality were adopted. The essential change was introduced by the Declaration on Equality of Women and Men (1988)11 – which stipulates the equality of women and men as the fundamental principle integrated into all human rights, and defines gender discrimination as the violation of fundamental human rights – as well as documents of the European Commission from 199612 and the Council of Europe from 196613 on gender mainstreaming in public policies. In several documents of the Council of Europe, the OSCE and the European Union adopted after 2000, gender equal- ity mechanisms14, as part of the public authority system, are recognised as important instru- ments15, aimed at improving gender equality, ensuring co-ordination and co-operation in order to integrate gender equality into public policies16, creating conditions and measures for equal participation in political and public life17, strengthening of independent institutions in the field of human rights protection and gender equality18 etc.
10 The first Council of Europe Committee for the promotion of equality of women and men was established in 1979. For more information on gender equality mechanisms in EU states, see: Effectiveness of Institutional Mechanisms for the Advancement of Gender Equality. Review of the Implementation of the Beijing Platform for Action in the EU Member States, 24 August 2014, available at: http://eige.europa.eu/sites/default/files/ MH0213481ENC_0.pdf. 11 The Declaration was adopted by the Committee of Ministers of the Council of Europe on 16 November 1988. 12 Document of the European Commission: Incorporating Equal Opportunities For Women And Men Into All Community Policies And Activities COM (96) 67 final. Available at: http://eur-lex.europa.eu/legal-content/ EN/TXT/PDF/?uri=CELEX: 51996DC0067&from=EN. 13 Council of Europe document Gender Mainstreaming: Conceptual Framework, Methodology and Presentation of Good Practices, Expert Group Final Report, (EG-S-MS), Council of Europe, EG (99) 3, Strasbourg, February 1999. Available at: https://www.unhcr.org/3c160b06a.pdf. 14 E.g. Recommendation of the Council of Europe R (2000) adopted on 13 May 2000 at the 710th meeting of deputy ministers. Source: Ravnopravnost spolova u međunarodnim dokumentima – Vijeće Evrope (Gender Equality in International Documents – Council of Europe), Gender Equality Agency of Bosnia and Herzegovina, Sarajevo 2008, p. 89–97; Recommendation of the Council of Europe No (2003) 3, adopted on 12 March 2003 at the 831st meeting of the Ministers’ Deputies. Source: Op. cit. 2008, p. 115–123. 15 Recommendations adopted at the Conference Gender Mainstreaming: a step into the 21st century, held in Athens on 16–18 September 1999. Source: Op. cit. 2008, Chapter II, p. 141. 16 Recommendation of the Council of Europe R (2000), Chapter VII. Measures for co-ordination and co- operation, point 50(i): “Set up a co-ordinating mechanism responsible for drawing up the national policy on combating trafficking and organising a multidisciplinary approach to the issue”. Source: Op. cit. 2008. p. 96. 17 Recommendation (2003) 3 on balanced participation of women and men in political and public decision- making, adopted by the Committee of Ministers of the Council of Europe on 12 March 2003, at the 831st meeting of the Ministers’ Deputies. Appendix to the Recommendation, chapter A, point 16 – member states should “set up, support and strengthen the work of the national equality machinery in bringing about balanced participation in political and public life”. Source: Op. cit. 2008. p. 96. 18 The twelfth meeting of the Committee of Ministers of the Council of Europe, 6–7 April 2004, MC.DEC/14.04 – the OSCE Action Plan for the Promotion of Gender Equality in the Annex of Chapter IV, Item 42 recommends member states to “establish or strengthen existing mechanisms for ensuring gender equality”, with an emphasis on independent human rights institutions, and in Chapter V, point 44 (g) expresses the readiness of the Council of Europe to, as one of the priorities, support the building-up of national gender equality mechanisms as democratic institutions for advancing gender equality. Source: Op. cit. 2008. p. 64 and 66.
9 2 Gender equality mechanisms in Serbia – process initiation and formation
The impetus for the formation of gender equality mechanisms in Serbia were the conclusions from the women’s conference held in Palić19 and the increased number of female MPs in the National Assembly after the elections held in December 2000. In such circumstances, the focus of activities on achieving gender equality was shifted to institutions. At that moment, the legal system lacked the necessary institutional prerequisites for realising the right to equal participation of women and men in the creation of and decision-making on public policies important for gender equality.20 The work on the formation of gender equality mechanisms began at the conference “Perspectives of Women in the New Political Context”.21 Proposals for the formation of gender equality mechanisms were based on the need for system institutions at all levels of government (assemblies, executive bodies, independent human rights institu- tions22) to establish bodies responsible for gender equality, and they relied on international documents and experiences in other countries.23 Support for the formation of these mecha- nisms and the activities of the first mechanisms established at the local level was provided by the OSCE Mission to Serbia.
19 The conference was held in February 2000. 20 At the time of the Conference, the gender equality mechanism existed only in the federal government (the Yugoslav Commission for Co-operation with UNICEF and the Advancement of the Position of Women) and in AP Vojvodina (member of the Executive Council of AP Vojvodina in charge of women’s issues). The status of the Yugoslav Commission for Co-operation with UNICEF and the Advancement of the Position of Women and its position in the federal administration are unclear. The Regulation on the Formation of Federal Ministries and Other Federal Bodies and Organisations and Services of the Federal Government (“Official Gazette of the FRY”, No 41/2001), as well as the Rules of Procedure of the Federal Government (“Official Gazette of the FRY”, No 41/2001) do not mention this Commission. 21 The conference was held on 22 June 2001 with the support of the OSCE Mission to Serbia and Star Network. For more information see: Pajvančić, M. Ravnopravnost polova – reprezentovanje u skupštinama i institucionalni mehanizmi (Gender Equality – Representation in Assemblies and Institutional Mechanisms), Conference Proceedings (ed. Šijački, Z.) .) “Pet godina posle“ (“Five Years Later”), Provincial Gender Equality Institute, Novi Sad, 2006, p. 16–23; Šijački, Z. Мehanizmi za rodnu ravnopravnost i njihova uloga (Gender Equality Mechanisms and Their Role) [electronic version], available at: http://www.e-jednakost.org.rs/kurs/ kurs/download /mehanizam_za_rodnu_ravnopravnost.pdf. 22 For more information see: Orlović, S. Nezavisna tela, četvrta grana vlasti ili kontrolor vlasti (Independent Bodies, the Fourth Branch of Government or the Controller of Government), Proceedings (ed. Pavlović, V. and Stojiljković, Z.) “Savremena država: struktura i socijalne funkcije“ (“Modern State: Structure and Social Functions”), Konrad Adenauer Stiftung, Faculty of Political Sciences, Centre for Democracy , Belgrade, 2010, p. 231–269. 23 For more information see: Pajvančić, M. Pravni okvir ravnopravnosti polova (Legal Gender Equality Framework), Novi Sad, Provincial Gender Equality Institute, 2008. Available at: https://ravnopravnost.org.rs/ wp-content/uploads/2017/03/1-Pravni-okvir-ravnopravnosti-polova.pdf.
10 3 Gender equality mechanisms in representative bodies
The primary activity focused on forms of institutional action in assemblies. Different possi- bilities (permanent or temporary working bodies in assemblies, groups of women parliamen- tarians/councillors, etc.) and their advantages and disadvantages were considered. The pre- vailing view was that the optimal solution was the formation of a permanent working body responsible for gender equality in assemblies. The advantages of this solution were reflected in the following:
1) The Assembly is a body representing male and female citizens. It is the highest author- ity that makes the most important decisions. Its working bodies have an important role in decision-making, submitting proposals and initiatives. The permanent working body for gender equality has a more favourable position in decision-making than the position held by male and female MPs as individuals.
2) A strong composition of the permanent working body made up of male and female MPs elected in direct elections. A direct election meets an important standard for the status of gender equality mechanisms, which requires that representatives in these bodies be appointed through a democratic process in order to be considered legitimate representa- tives of their groups.
3) Publicity of work of the Assembly and its working bodies, owing to which the field of gen- der equality is accessible to the general public.
The next step were the changes to the normative framework. Permanent working bodies for gender equality in the National Assembly, the Assembly of AP Vojvodina and the assemblies of local self-governments were formed through the amendments to the Rules of Procedure.24 The Gender Equality Committee was set up as a permanent working body of the National Assembly.25 The Committee considers proposals of laws and other regulations from the aspect of gender equality and monitors the conduct of policy, execution of laws and other regulations related to gender equality. The Gender Equality Committee26 was established in the Assembly of AP Vojvodina as a permanent working body that considers proposals, decisions and gen-
24 The formation of local gender equality mechanisms was supported by the OSCE Mission, with whose help the first forms of institutionalised action to achieve gender equality at the local level were set up. This activity was also supported by the Ministry of Public Administration and Local Self-Government. 25 The Committee was set up in 2003. Article 68 of the Rules of Procedure of the National Assembly of the Republic of Serbia, “Official Gazette of RS”, No 57/2003. 26 The Committee was set up in 2002. Articles 20 and 69 of the Rules of Procedure of the Assembly of AP Vojvodina, “Official Gazette of AP Vojvodina”, No 23/2002.
11 eral acts from the aspect of gender equality and monitors the conduct of policy, execution of decisions and regulations relating to gender equality. The Gender Equality Law of 2021 stip- ulates that a permanent working body for gender equality be established in the Assembly of AP Vojvodina.27
4 Gender equality mechanisms in executive authorities
In parallel with the establishment of working bodies in assemblies, the process of forming gender equality mechanisms in the executive authorities was also taking place.
Achieving gender equality presupposes direct participation in the creation of regulations and public policies. Hence the need to establish gender equality mechanisms also within the framework of executive authorities. The advantages of such form of institutional action are: the possibility of submitting proposals and launching initiatives; involvement in the prepa- ration of regulations; direct influence on the creation of content and drafting of regulations; timely response to regulatory proposals prepared by administrative bodies; monitoring of implementation and supervision of the implementation of regulations; assistance of profes- sional services; the possibility of engaging male/female experts; co-operation with civil society organisations; intersectoral co-operation, which is particularly important for gender equality given its multisectoral nature; budget funds available to the executive branch etc.
Pursuant to the Decision of the Government of the Republic of Serbia, the Council for Equal- ity of Sexes was established in the executive bodies at the national level as a working body of the Government. Its composition was determined (representatives of a certain number of ministries and experts)28, and its competencies were defined: proposing measures and inter- sectoral co-operation in the field of gender equality; consideration of compliance of laws with international conventions on women’s rights and initiatives to eliminate discrepancies; mon- itoring the implementation of laws and international documents against sex discrimination and proposing measures for their implementation; monitoring the situation in the field of gender equality, proposing and undertaking measures and evaluating the effects of measures to achieve gender equality; initiating a programme of gender-sensitive statistics; monitoring the representation of women in elected and appointed positions; monitoring and analysing the criteria for selection and appointment to public positions; initiating the removal of obsta- cles in the elections and appointments of the less represented sex; education of employees in
27 Article 62, paragraph 2 of the Gender Equality Law, “Official Gazette of RS”, No 51/2021. 28 The decision was made in February 2003, “Official Gazette of RS”, No 13/03, 83/04, 3/05. government bodies in order to promote gender equality; initiating programmes and propos- ing measures for training women to participate in political life, etc. In 2009, the Council for Equality of Sexes grew into the Gender Equality Council, and ceased to exist after the elec- tion of the Government in 2014. In the same year, the Government formed the Co-ordina- tion Body for Gender Equality29, competent to co-ordinate the work of the public administra- tion in relation to gender equality30, within which an expert group was formed that carries out professional activities related to gender equality.31 With the adoption of the Gender Equal- ity Law in 202132, for the first time, all gender equality mechanisms were regulated by law.33 According to the new legal solutions34, the Government of the Republic of Serbia is compe- tent to: create, implement, monitor and improve gender equality policies, ensure the compli- ance of policies and measures undertaken in the field of gender equality with Serbia’s inter- national obligations; develop and pursue an active policy of equal opportunities in all spheres of social life, which ensures the equal participation of women and men in all stages of plan- ning, preparation, making and implementing decisions that affect the position of women and men; define measures aimed at creating equal opportunities for exercising the rights and free- doms of women and men, preventing and eliminating gender-based discrimination; adopt the National Strategy for Gender Equality and the Action Plan for its implementation; establish the Co-ordination Body for Gender Equality35, with the task of streamlining and co-ordinat- ing the work of government bodies related to gender equality, consider all issues important for gender equality and improve the state of gender equality; establish the Gender Equality Coun- cil36 as an advisory body of the Government in which civil society is involved; perform other tasks in this area. Within the Co-ordination Body for Gender Equality, a professional group was formed, involving representatives of other public authorities, the economy, the academia and the non-governmental sector.37
29 The Co-ordination Body was formed on 30 September 2014 by the Decision of the Government of the Republic of Serbia. Available at: https://www.mgsi.gov.rs/lat/dokumenti/odluka-o-forminjanu-koordinajano- tela-za-rodnu-ravnopravnost. 30 Item 2 of the Decision on the Formation of the Co-ordination Body for Gender Equality. 31 Item 5 of the Decision on the Formation of the Co-ordination Body for Gender Equality. 32 “Official Gazette of RS”, No 52/2021. 33 Article 59 of the Gender Equality Law. 34 Article 60 of the Gender Equality Law. 35 Article 59, paragraph 1, item 3) and Article 60, paragraph 1, item 5) of the Gender Equality Law. The Co- ordination Body was formed by the Government Decision of 31 October 2022, which regulates the competences of the Co-ordination Body and the manner of its work. Available at: https://www.rodnaravnopravnost.gov. rs/sites/default/files/2023-01/Odluka%20o%20osnivanju%20Koordinačnje%20tela%20za%20rodnu%20 ravnopravnost.pdf. 36 Article 60, paragraph 1, item 5) of the Gender Equality Law. 37 The expert group was formed on 6 February 2023. Available at: https://rtv.rs/sr_lat/drustvo/koordinaciono- telo-za-rodnu-ravnopravnost-rezime-2022.-i-planovi-za-2023._1415416.html.
13 The first gender equality mechanism within executive authorities was set up in AP Vojvodina in 2001, when a female member responsible for gender equality was elected to the Execu- tive Council of AP Vojvodina.38 The Gender Equality Council as an advisory body, consisting of male/female representatives of provincial administration bodies and male/female experts, was established in 2003. The Council participates in promoting, creating and monitoring programmes, actions and policies that improve the position of women; lobbies for projects related to gender equality; monitors the implementation of regulations and proposes meas- ures to improve gender equality; encourages activities in the field of gender equality in public, social and economic life; provides expert assistance to the Executive Council of AP Vojvodina, administrative bodies and civil society organisations in creating programmes for integrating the gender perspective into regulations, public policies and social life; collects and processes gender-sensitive statistical data; encourages the connection of institutions, public services, civil society organisations and individuals working in the field of gender equality, etc.
The Gender Equality Law39 regulates for the first time the gender equality mechanisms formed by the bodies of the autonomous province within their competences and determines their composition, method of election, scope and method of work. The Law prescribes that the Pro- vincial Government sets up the Co-ordination Body for Gender Equality40 of the provincial government for the purpose of harmonising the views of provincial administration authorities and organisations, other provincial organisations and services and the Gender Equality Coun- cil 41 as an advisory body of the Provincial Government and envisages the possibility that, in addition to these mechanisms, other bodies dealing with gender equality can be formed.42 There is also the Gender Equality Institute in AP Vojvodina43, entrusted with professional and analytical work; preparation and implementation of educational programmes; co-operation with gender equality mechanisms and relevant international bodies; publishing, etc.
38 See Pajvančić, M. op. cit, 2006, p. 18. 39 Article 59, paragraph 1, item 4) and Article 62 of the Gender Equality Law. 40 Article 62, paragraph 3, item 1) of the Gender Equality Law. The Co-ordination Body for Gender Equality of the Provincial Government was established on 7 September 2022. The Decision on the Establishment of the Co-ordination Body for Gender Equality of the Provincial Government, “Official Gazette of AP Vojvodina”, No 38/2022. 41 Article 62, paragraph 3, item 2) of the Gender Equality Law. 42 Article 62, paragraph 4 of the Gender Equality Law. 43 The Institute was formed in 2004, “Official Gazette of AP Vojvodina”, No 14/2004.
14 5 Gender equality mechanisms in administrative bodies
Gender equality mechanisms are also set up in administrative bodies.
At the level of the Republic, the Sector for Gender Equality was established in the Ministry of Labour and Social Policy in 200744. In 2008, it was replaced by the Directorate for Gender Equality45, which was abolished in 201446. In the Ministry of Labour, Employment, Veteran and Social Affairs, the Sector for Gender Equality was re-established. After the formation of the Ministry for Human and Minority Rights and Social Dialogue in 202047, gender equality, anti-discrimination policies and promotion of gender equality are the responsibility of that Ministry. The new Gender Equality Law regulates for the first time the gender equality mecha- nisms within public administration bodies and explicitly states that ministries and other pub- lic administration bodies responsible for areas in which general and special measures to pro- mote gender equality are determined and implemented represent gender equality mecha- nisms.48 Accordingly, in a separate article49, the Law regulates that all ministries and other public authorities integrate gender equality when creating, implementing, monitoring and improving sectoral policies, formulating laws, other regulations and activities in the domain of their competence, especially in areas where general and special measures for the promo- tion of gender equality are implemented. This provision is particularly significant considering the multisectoral nature of gender equality, as it mandates that a gender component be inte- grated into all sectoral public policies and regulations.
At the level of AP Vojvodina, in the provincial administration bodies from 2002 the Provincial Secretariat for Labour, Employment and Gender Equality50 was responsible for gender equal- ity. It was the first gender equality mechanism in provincial administration bodies. This Sec- retariat formed the Gender Equality Council as an advisory body in 2003.51 Since 2016, gen- der equality has been under the jurisdiction of the Provincial Secretariat for the Economy, Employment and Gender Equality52, and after 2016, under the jurisdiction of the Provincial Secretariat for Social Policy, Demography and Gender Equality.53
44 “Official Gazette of RS”, No 43/2007. 45 Law on Ministries, “Official Gazette of RS”, No 65/2008. 46 Law on Ministries “Official Gazette of RS”, No 44/2014. 47 Article 12 of the Law on Ministries, “Official Gazette of RS”, No 128/2020. 48 Article 59, paragraph 1, item 2) of the Gender Equality Law, “Official Gazette of RS”, No 51/2021. 49 Article 61 of the Gender Equality Law. 50 Articles 18 and 33 of the Decision on Provincial Administration, “Official Gazette of APV”, No 3/2002. 51 “Official Gazette of APV”, No 1/2003. 52 “Official Gazette of APV”, No 37/2014. 53 Articles 32 and 35a of the Provincial Assembly Decision on Provincial Administration, “Official Gazette of APV”, No 37/2016.
15 The status of gender equality mechanisms within executive bodies and public administra- tion was unstable. Dynamic, continuous and essential changes in the status, competences and composition of these bodies testify to this. The key problems are their status, competences, personnel and financing, and the position of these bodies is particularly important, because the executive authorities prepare regulations and planning documents that define the direc- tions of public policies, monitor and control their implementation. Gender equality mecha- nisms are regulated by the Law on Government and the Law on Ministries, and at the level of the autonomous province by other relevant regulations, which are often changed after elec- tions and the formation of a new government. This had a significant impact on the stability of the status and content of jurisdiction of gender equality mechanisms in executive bodies and the public administration.54 The novelties in the Gender Equality Law of 2021, which for the first time comprehensively regulates all gender equality mechanisms, including gender equal- ity mechanisms within the framework of executive power and public administration, create normative assumptions for the stability of the position of these bodies in the structure of pub- lic authorities.
6 Gender equality mechanisms at the local level
The process of forming gender equality mechanisms started at the local level back in 2002.55 During the next three years, they were formed in more than 50 municipalities in Serbia, 15 of which in AP Vojvodina. Local gender equality mechanisms were formed in different ways (pursuant to the municipal statute, municipal assembly decision, mayor’s decision, etc.) and had different statuses in the structure of local government bodies (gender equality commis- sions in the assembly of local self-government units, persons in charge of gender equality, councils for gender equality within local government bodies, etc.). Until the adoption of the
54 See: Đorđević, Lj. Analiza Zakona o ravnopravnosti polova (Analysis of the Law on the Equality of Sexes), UNDP, Belgrade, 2010. Available at: www.undp.org, Pajvančić, M., Petrušić N., Jašarević S. Komentar Zakona o ravnopravnosti polova (Commentary on the Law on the Equality of Sexes), Belgrade, Centre of Modern Skills, 2010. Available at: http://www.kss.org.rs/news/2013/09/src/1309komentar_zakona_o_ravnopravnosti_ polova.pdf. 55 The programme for the formation of local gender equality mechanisms, which was supported by the OSCE Mission to Serbia and Montenegro, covered the following municipalities: Kruševac, Niš (district), Prokuplje, Kikinda, Velika Plana, Zrenjanin (district), Požarevac, Zaječar, Valjevo, Užice, Knjaževac, Bor, Kragujevac, Sremska Mitrovica, Novi Sad, Zrenjanin (city), Belgrade, Topola, Aranđelovac, Čačak, Sombor, Subotica, Niš (city), Kučevo, Novi Bečej, Aleksinac, Pirot, Jagodina, Loznica, Boljevac, Negotin, Kladovo, Majdanpek, Senta, Žitište, Kovačica, Nova Crnja, Vrbas, Sečanj, Irig, Sjenica, Prijepolje, Lebane, Medveđa, Tutin, Bujanovac, Preševo, Priboj, municipality of Medijana (Niš), Novi Beograd. Source: Gender Equality, OSCE, Belgrade, 2005, p. 22.
16 Law on the Equality of Sexes in 200956, which, for the first time, regulated only local gen- der equality mechanisms with a general norm57, whose adoption was preceded by the activ- ities of civil society organisations and male/female experts who drafted the model law58, the emphasis of the activity was on staff education and the preparation of instructional materials (handbooks, manuals, guidelines, etc.)59 in order to encourage and facilitate the work of these bodies. These activities have continued until today.60 The impetus for improving the work of local gender equality mechanisms was the adoption of the European Charter for Equal- ity of Women and Men in Local Life61 and the Declaration on Respect for the Gender Equal-
56 For more information see: Pajvančić, M. Analiza procesa usvajanja zakona iz oblasti rodne ravnopravnosti (Analysis of the Process of Adoption of Laws in the Field of Gender Equality), Proceedings (ed. Stojiljković, Z., Lončar J., Spasojević D. “Političke stranke i zakonodavna aktivnost Narodne skupštine Republike Srbije“ (“Political Parties and Legislative Activity of the National Assembly of the Republic of Serbia”), Faculty of Political Sciences, Belgrade, 2012, pp. 79–135. Available at: https://www.fpn.bg.ac.rs/wp-content/uploads/ Politicke-stranke-i-zakonodavna-aktivnost.pdf. 57 Article 39 of the Law on the Equality of Sexes, “Official Gazette of RS”, No 104/2009. 58 See: Ka zakonu o ravnopravnosti polova (Towards the Law on the Equality of Sexes), Provincial Gender Equality Institute, Novi Sad, 2006 and Proceedings (ed. Pajvančić, M.) U susret zakonu o ravnopravnosti polova – evropska budućnost Srbije (Towards the Law on the Equality of Sexes – the European Future of Serbia), (conference held on 16 March 2006), Freedom House, CMV, BEFPE, Belgrade, 2006. 59 See: Pajvančić, M. Anđelković, M. Maletin, B. Šijački, Z. Ravnopravnost u našoj opštini (Equality in Our Municipality), Gender Equality Institute, Novi Sad, 2007. Available at: http://www.rodna_ravnopravnost_u_ nasoj_opštini.pdf; Institucionalni mehanizmi ravnopravnosti polova – mogućnosti na lokalnom nivou (Institutional Gender Equality Mechanisms – Opportunities at the Local Level), Proceedings “Žene to mogu – kako skrojiti politiku jednakih mogućnosti” (“Women Can Do It – How to Tailor a Policy of Equal Opportunities”), Belgrade, 2007; Pajvančić, M.: Institucionalni mehanizmi ravnopravnosti polova na lokalnom nivou (Institutional Gender Equality Mechanisms at the Local Level), op. cit. 2008, p. 93–99, Pajvančić, M., Ravnopravnost polova u političkom životu (Gender Equality in Political Life). Available at: http://www. rs.cest.gov.ba/index. php/seminari-2011/2414banja-luka-application-of-the-law-on-gender-equality/554- material-mpajvancic-iv/file; Putevi za ostvarivanje rodne ravnopravnosti i jednakih mogućnosti – od ideje do prakse (Paths to Achieve Gender Equality and Equal Opportunities – From Idea to Practice) – Manual for Officials and Local Self-Government Bodies in Charge of Gender Equality, (ed. Petrušić, N.), OSCE, Belgrade, 2007. Available at: http://www.skgo.org/storage/app/uploads/public/152/095/842/1520958426_Rodna_ ravnopravnost_11_05.pdf. 60 See: Vladisavljević, A. Praktičan alat za rodno odgovorno budžetiranje u tri koraka (A Practical Tool for Gender Responsible Budgeting in Three Steps), 2011. Available at: http://www.resurscentar.rs/rc_files/downloads/ rob3_alat_za_rodno_odgovorno_budzetiranje_u_3_koraka.pdf, Babović, M. Vuković, O. Subotički, I. Prohaska, J. Janković, G. Rodna ravnopravnost na lokalnom nivou (Gender Equality at the Local Level), training programme at the local level, 2013. Available at: http://www.secons.net/admin/app/ webroot/files/ publications/ Rodnaravnopravnostnalokalnomnivou-priru%C4%8Dnik.pdf, Baćanović, V. Nacrt programa za unapređenje kapaciteta lokalnih mehanizama za rodnu ravnopravnost (Draft Programme for Improving the Capacity of Local Gender Equality Mechanisms), 2016. Available at: genderhub.org.rs, Nikolin, S. Vladisavljević, A. Rodno odgovorno budžetiranje (ROB) nova zakonska obaveza u sistemu upravljanja javnim finansijama u Republici Srbiji (Gender Responsible Budgeting (GRB) is a New Legal Obligation in the System of Public Finance Management in the Republic of Serbia) – manual, 2017. Available at: http://217.169.210.134/ storage/app/media/dobro-upravlenje/pubs/Prirucnik%20za%20uvodnjeje%20ROB.pdf etc. 61 European Charter for Equality of Women and Man in Local Life. Adopted by the Council of European Municipalities and Regions in 2006. Available at: https://eca.unwomen.org/en/digital-library/ publications/2016/08/the-european-charter-for-equality-of-women-and-men-in-local-life.
17 ity Principle at the Local Level of the Standing Conference of Towns and Municipalities62, as well as numerous continuous activities of the Standing Conference of Towns and Munic- ipalities related to the support and improvement of the work of local gender equality mech- anisms.63 Insights into their work and the difficulties they face are provided by research into the gender equality mechanisms at the local level.64 The Gender Equality Law adopted in 2021 also regulates gender equality bodies established at the local level65 and delegates the right to the assemblies of local self-government units to more closely regulate the election, com- petences and working methods of these bodies through their acts.66 In the assembly of the local self-government unit, the Commission for Gender Equality was formed as a permanent working body of the assembly, which is composed of male/female councillors, and which is responsible for considering, from a gender perspective, all acts that are referred to the assem- bly for consideration and adoption.67 The Gender Equality Council is set up in the adminis- trative bodies68, and consists of nominated or appointed persons, representatives of institu- tions, bodies and organisations in areas important for gender equality and the prevention and suppression of gender-based violence. Persons in charge of gender equality in local govern- ment bodies must also participate in the work of the Council, and provide the Council with professional and administrative-technical support in its work. The Gender Equality Council is responsible for initiating and proposing measures to improve gender equality. Bodies for
62 Available at: http://euintegracije.skgo.org/upload/Document/Doc/2013_01/Deklaracija_SKGO_o_rodnoj_ ravnopravnosti.pdf. 63 For more information see: Aleksov, R. Rodna ravnopravnost kroz SKGO akciju (Gender Equality Through SCTM Action), SCTM, 2015. Available at: http://www.skgo.org/storage/app/uploads/ public/152/095/870/1520958706_2205_Final_200x200_RR_PRINT_FINAL.pdf, Baćanović, V.: Uvođenje rodne perspektive i pristupa zanovanog na ljudskim pravima u komponente programa ”Podrška lokalnim samoupravama u Srbiji na putu ka EU“ (Introducing a Gender Perspective and an Approach Based on Human Rights in the Components of the Programme “Support to Local Self-Governments in Serbia on the Path to the EU”). Available at: http://www.skgo.org/storage/app/uploads/public/152/095/876/1520958761_SKGO_ analiza_2016_izvestaj_sa_preporukama_FINAL_73522.pdf; SCTM Gender Equality Network. Available at: http://www.skgo.org/mreze/312 and http://euintegracije.skgo.org/sr/submodules/documents/. 64 See: Baćanović, V. Božanić, D. Pajvančić, M. Maletin, B. Jačanje kapaciteta institucionalnih mehanizama za rodnu ravnopravnost i sprovođenje politike jednakih mogućnosti na lokalnom nivou (Strengthening the Capacities of Institutional Gender Equality Mechanisms and Implementation of the Policy of Equal Opportunities at the Local Level), Women’s Support Centre, Kikinda 2012. Available at: https://cpz.rs/ Dokumenti/Publikacija-Resultati-PDF.pdf, Prvi izveštaj Ženske platforme za razvoj Srbije 2017–2018. godina (The First Report of the Women’s Platform for the Development of Serbia for 2017–2018). Available at: https:// library.fes.de/pdf-files/bueros/belgrad/12991.pdf; Baćanović, V. Nacrt programa za unapređenje kapaciteta lokalnih mehanizama za rodnu ravnopravnost, 2016 (Draft Programme for Improving the Capacity of Local Gender Equality Mechanisms for 2016). Available at: genderhub.org.rs. 65 Article 63 of the Gender Equality Law, “Official Gazette of RS”, No 51/2021. 66 Article 63, paragraph 3 of the Gender Equality Law, “Official Gazette of RS”, No 51/2021. 67 Article 63, paragraph 1, item 1) of the Gender Equality Law. 68 Article 63, paragraph 1, item 2) of the Gender Equality Law.
18 gender equality co-operate with each other as well as with other gender equality bodies at the level of the local self-government unit, the autonomous province and the Republic.69
7 Persons responsible for gender equality in public authorities
An important support for the improvement of gender equality and the work of gender equal- ity mechanisms are persons in charge of gender equality in public authorities at all levels. After the adoption of the Law on the Equality of Sexes in 200970, which stipulates the possibility of appointing employees for gender equality and performance of activities in this area in local self-government bodies, within the framework of the existing organisation and the act on internal organisation and job classification71, administrative bodies at the local level, and then at the national and provincial levels, determined the person in charge of gender equality by their decisions. Practice has shown that this is necessary given the multisectoral nature of gen- der equality. The new Gender Equality Law, starting from the obligation of public authorities at all levels, to participate in the achievement of gender equality within their competences72, regulates the obligation of public authorities that have more than 50 employees and engaged persons to determine from among their employees the person in charge of gender equality in accordance with their act on internal organisation and job classification73, as well as the tasks performed by these persons, which include: monitoring the implementation of policies and measures for achieving and improving gender equality under the remit of the body in which they are employed; monitoring the status of the sex structure of employees and engaged per- sons in the body in which they are appointed and reporting on the achieved level of gender equality in areas within the body’s purview; co-operation with the Ministry and bodies for gender equality on issues important for achieving and improving gender equality; preparation of data, analysis of materials needed for the work of bodies for gender equality, etc.74
8 Mechanisms for the protection of the right to gender equality
Gender equality mechanisms are complemented by independent institutions in the field of human rights protection, especially the Protector of Citizens and the Commissioner for Pro- tection of Equality.
69 Article 63, paragraph 2 of the Gender Equality Law. 70 “Official Gazette of RS”, No 104/2009. 71 Article 39, paragraph 4 of the Law on the Equality of Sexes. 72 Article 59, paragraph 1, item 6) of the Gender Equality Law. 73 Article 64, paragraph 1 of the Gender Equality Law. 74 Article 64, paragraph 4, items 1) to 6) of the Gender Equality Law.
19 At the national level, in 2005, the Protector of Citizens was established75. After the adoption of the Constitution of the Republic of Serbia in 200676, the Protector of Citizens became a consti- tutional institution. Within this institution, during the transfer of authority to deputies, spe- cialisation was ensured for the performance of activities, which also includes the field of gen- der equality.77 In 2012, the Protector of Citizens established the Gender Equality Council as a permanent expert advisory body78, but a few years later this body was abolished.
After the adoption of the Law on the Prohibition of Discrimination in 201079, the Commis- sioner for Protection of Equality was established as an autonomous, independent and special- ised state authority that provides protection against discrimination, including gender-based discrimination80. The establishment of this body testifies to Serbia’s commitment to accept the recommendations of international institutions81 and form independent bodies for protection from discrimination, including gender-based discrimination82.
The first independent mechanism for the protection of human rights and the right to gender equality through the scrutiny of the legality of work of the public administration is the Provin-
75 Article 1 of the Law on the Protector of Citizens, “Official Gazette of RS”, No 79/2005 and 54/2007. For more information about the activities of the Protector of Citizens in the field of gender equality and special reports on gender equality see: http://www.ombudsman.rodnaravnopravnost.rs. 76 Article 138 of the Constitution of the Republic of Serbia, “Official Gazette of RS”, No 98/2006. 77 Article 6, paragraph 2 of the Law on the Protector of Citizens, “Official Gazette of RS”, No 105/2021. For more information about activities in the field of gender equality see: https://www.ombudsman.rs/index.php/ izvestaji/posebnii-izvestaji. 78 Among the Council’s activities, we highlight the work on the Model Gender Equality Law. See: Model zakona o rodnoj ravnopravnosti (Model Gender Equality Law), Heinrich-Böll-Stiftung, Belgrade, 2017, available at: https://rs.boell.org/sites/default/files/zrr.pdf, and Special Report on the Representation of Women in Decision-Making Positions and the Activities of Local Gender Equality Mechanisms in Local Self-Government Units. Available at: https://ombudsman.rs/attachments/article/5901/Zastitnik%20gradjan_srpski.pdf. 79 “Official Gazette of RS”, No 22/2009. 80 See: Petrušić, N. Pravni status i pozicija Poverenika za zaštitu ravnopravnosti u arhitekturi nacionalnih institucionalnih mehanizama za rodnu ravnopravnost (Legal Status and Position of the Commissioner for Protection of Equality in the Architecture of National Institutional Gender Equality Mechanisms), Proceedings “Pravni sistem i zaštita od diskriminacije” (“Legal System and Protection from Discrimination”), Vol. 1, Faculty of Law, Kosovska Mitrovica, p. 65–86. 81 See: ECRI General Policy Recommendation No 2 on Specialised Bodies to Combat Racism, Xenophobia, Antisemitism and Intolerance, Available at: http://www.coe.int/t/dghl/ monitoring/ecri/default_en.asp. For more information see: Petrušić N, Krstić I, Marinković T. Komentar zakona o zabrani diskriminacije (Commentary on the Law on Prohibition of Discrimination), Judicial Academy, Belgrade 2014. 82 In terms of the activities of the Commissioner for Protection of Equality, we highlight Poseban izveštaj Poverenika za zaštitu ravnopravnosti o diskriminaciji žena (Special Report of the Commissioner for Protection of Equality on Discrimination against Women), Commissioner for Equality, Belgrade, 2015. For more information about the activities of the Commissioner for Protection of Equality see: http://ravnopravnost. gov.rs/rs/izvestaji.
20 cial Ombudsman established in AP Vojvodina in 200283 and elected in 2003. One of the dep- uty ombudsmen, along with a description of his responsibilities, is selected for the area of gen- der equality. By amending the regulations governing this institution in 201484, the decision to elect one of the deputy ombudsmen for gender equality was retained, but not the provision specifying his competences.85
...
The experience of the past twenty years testifies to the desirable direction of action. We high- light three priorities:
1. Harmonisation with new legal solutions, which includes the adoption of all normative acts prescribed by law: regulations for the implementation of laws adopted by the Ministry for Human and Minority Rights and Social Dialogue, regulations adopted by the authorities of the Autonomous Province of Vojvodina within their competences, regulations adopted by the bodies of local self-government units, regulations adopted by public administra- tion bodies and all other public authorities within their competences, regulations adopted by employers, including acts adopted by political parties, trade unions and civil society organisations that regulate their internal organisation, gender equality mechanisms and the formation of these mechanisms.
2. Focusing on the effectiveness of instruments of implementation, monitoring, supervision and control (responsibility for the implementation of public policies) and protection of rights.
3. An intersectoral approach to gender equality in the operation of institutions (system assumptions and procedures that enable co-ordination and harmonisation of activities) in the design and use of instruments and the definition of parameters that set frameworks and operational plans for the implementation of gender equality policies.
83 Decision on the Provincial Ombudsman, “Official Gazette of APV”, No 23/2002, 5/2004, 16/2005 and 18/2009. For more information about activities in the field of gender equality see: https://www.ombudsnapv.org/riv/ index.php/istrazivanja.htm and https://www.ombudsnapv.org/riv/index.php/dokumenti/posebni-izvestaji. html. 84 Provincial Assembly Decision on the Provincial Protector of Citizens – Ombudsman, “Official Gazette of APV”, No 37/2014. 85 Article 8, paragraph 1 of the Provincial Assembly Decision on the Provincial Protector of Citizens – Ombudsman.
21 ANNEXES:
GENDER EQUALITY MECHANISMS AT THE NATIONAL LEVEL
Committee for Human and Minority Rights and Gender Equality National Assembly Women's Parliamentary Network
Co-ordination Body for Government of the Gender Equality Republic of Serbia Gender Equality Council
Ministry for Human and Minority Rights and Social Dialogue Ministries
Line ministries
Public authorities of the Republic
Persons in charge of gender equality in public authorities of the Republic
Protector of Citizens Independent human rights institutions Commissioner for Protection of Equality
22 GENDER EQUALITY MECHANISMS AT THE LEVEL OF THE AUTONOMOUS PROVINCE
Gender Equality Committee
Assembly of AP Vojvodina Women's Parliamentary Network
Co-ordination Body for Gender Equality Provincial government
Gender Equality Council
Provincial Secretariat for Social Policy, Demography and Provincial secretariats Gender Equality
Line secretariats
Public authorities at the autonomous province level
Persons in charge of gender equality in public authorities in the autonomous province
Provincial Ombudsman
Gender Equality Institute
23 GENDER EQUALITY MECHANISMS AT THE LOCAL LEVEL
Gender Equality Commission
Municipal/city assembly
Women's Councilor Network
Gender equality mechanisms in local Gender Equality Council government bodies
Persons in charge of gender equality in local self-government bodies
Local Ombudsman Prof. Nevena Petrušić, PhD
GENDER EQUALITY MECHANISM OF THE NATIONAL ASSEMBLY OF THE REPUBLIC OF SERBIA IN 2003–2023
1 Introductory remarks
Institutional gender equality mechanisms86 are the key factors of the effective implementation of the gender equality policy. In Serbia, their formation began after the democratic changes in 2000, and that process unfolded with many obstacles, wanderings and hesitations, with frequent changes in the status and structure of institutional mechanisms.87 The experiences gained were, however, valuable during the creation a branched system of institutional mech- anisms at the national, provincial and local levels, which was normatively shaped by the Gen- der Equality Law of 2021.88
In Serbia, one of the first national institutional gender equality mechanisms was the Gen- der Equality Committee of the National Assembly of the Republic of Serbia, established in 2003 as a permanent working body of the National Assembly.89 In 2012, its responsibility was taken over by the Committee on Human and Minority Rights and Gender Equality of the National Assembly of the Republic of Serbia.90 Since 2003, when the Gender Equality Coun-
86 The term “institutional gender equality mechanisms” refers to bodies in charge of the promotion of gender equality and support for the inclusion of gender equality in general policies in all areas. They usually consist of a central government body complemented by an inter-sectoral co-ordination structure for gender equality and contact persons or centers responsible for the inclusion of gender equality in ministries. See: EIGE’s Gender Equality Glossary & Thesaurus. Available at: https://eige.europa.eu/publications-resources/thesaurus/ overview (accessed on 27 July 2023). 87 Pajvančić, M. Petrušić, N. Značaj institucionalnih mehanizama za ostvarivanje rodne ravnopravnosti (Importance of Institutional Mechanisms for Achieving Gender Equality), Proceedings of the Faculty of Law in Niš, 2014, No 67, p. 25–44. 88 “Official Gazette of RS”, No 52/2021. 89 Article 68g of the Rules of Procedure of the National Assembly of the Republic of Serbia, “Official Gazette of RS”, No 57/2003. This permanent working body was one of the 29 permanent working bodies of the National Assembly (see Article 44 of the Rules of Procedure of the National Assembly). 90 Article 52 of the Rules of Procedure of the National Assembly of the Republic of Serbia, “Official Gazette of RS”, No 20/2012. The Committee was one of 19 committees of the National Assembly.
25 cil was founded, until today, in all convocations91 the National Assembly has had a permanent working body that is active in the field of gender equality (hereinafter: the parliamentary gen- der equality mechanism). The formation and operation of the parliamentary mechanism are one of the important steps towards a gender-sensitive parliament, which is a parliament that “values and prioritizes gender equality as a social, economic and political objective and reori- ents and transforms a parliament’s institutional culture, processes and practices, and outputs towards these objectives”.92
Twenty years of continuous work of the parliamentary gender equality mechanism repre- sents a kind of jubilee and an occasion for summarising its activities in regard to gender main- streaming in public policies and the promotion of gender equality. The aim of this section is to examine and analyse the activities of the parliamentary gender equality mechanism in the twenty-year period of its operation. The results of the analysis can contribute to broader understanding of the institutional framework of gender equality in Serbia and underpin fur- ther and deeper research.
This section is based on publicly available data on the composition and work of the Gender Equality Committee and the Committee on Human and Minority Rights and Gender Equal- ity, published on the website of the National Assembly.93 The key source of data are the sum- marised minutes (notes) from sessions and information on public hearings94 organised by the
91 In the 2003–2023 period covered by the research, the National Assembly had nine convocations: V convocation of the National Assembly of the Republic of Serbia (22 January 2001 – 27 January 2004); VI convocation of the National Assembly of the Republic of Serbia (27 January 2004 – 14 February 2007); VII convocation of the National Assembly of the Republic of Serbia (14 February 2007 – 11 June 2008); VIII convocation of the National Assembly of the Republic of Serbia (11 June 2008 – 31 May 2012); IX convocation of the National Assembly of the Republic of Serbia (31 May 2012 – 16 April 2014); X convocation of the National Assembly of the Republic of Serbia (16 April 2014 – 3 June 2016); XI convocation of the National Assembly of the Republic of Serbia (3 June 2016 – 3 August 2020); XII convocation of the National Assembly of the Republic of Serbia (3 August 2020 – 1 August 2022); XIII (current) convocation of the National Assembly of the Republic of Serbia (from 1 August 2022). 92 Childs, S. Palmieri, S. Gender-sensitive parliaments: feminising formal political institutions, Chapters, in: Sawer, M. Banaszak, A. L. True, J. Kantola, J. (ed.), Handbook of Feminist Governance, chapter 14, pages 174–188, Edward Elgar Publishing, 2023. Cited according to: Realizing Gender Equality in Parliament. A Guide for Parliaments in the OSCE Region, OSCE Mission to Montenegro, Podgorica, 2022, p. 7. 93 Available at: http://www.parlament.gov.rs/. 94 Public hearings are a form of work at the National Assembly of the Republic of Serbia and one of the forms of direct participation of citizens in the exercise of public authority, which enables citizens to be directly involved in the legislative process and decision-making on laws. The rules on public hearing were for the first time regulated by Articles 83 and 84 of the Rules of Procedure of the National Assembly from 2010 (“Official Gazette of RS”, No 52/2010). For more information about public hearings see: Pajvančić, M. Javno slušanje – oblik rada Narodne skupštine (Public Hearing – Form of Work of the National Assembly), Proceedings of the Faculty of Law, Novi Sad 2012, vol. 46, No 3, p. 7–18; Orlović S. Javna slušanja kao institucija parlamentarne prakse (Public Hearings as an Institution of Parliamentary Practice), Belgrade, UNDP, 2007.
26 Committee.95 The minutes contain basic data on the topics of the sessions, as well as a sum- mary of the discussions and adopted conclusions, while the information on public hearings is somewhat more substantial.96
The website of the National Assembly contains information on the composition of the Com- mittee and summarised minutes (notes) and information from sessions and public hearings of the Committee within all convocations of the National Assembly, with the exception of data relating to the work of the Gender Equality Committee during the fifth convocation of the National Assembly (2001–2004). Due to this, it was not possible to analyse the work of the Committee in the one-year period of its activity, from 2003, when it was founded, until 2004, when the mandate of the fifth convocation of the National Assembly expired.
The research results are systematised in three parts. The first part consists of an analysis of the work of the parliamentary gender equality mechanism in each of the eight convocations of the National Assembly and a critical overview of the role it plays in the implementation and promotion of gender equality. In the second part, the data on the gender structure of the par- liamentary gender equality mechanism are presented and critically analysed. The third part consists of concluding remarks, in which the key findings of the research are compiled and summarised.
95 Minutes from Committee sessions sometimes do not contain all the information prescribed by Article 76 of the Rules of Procedure of the National Assembly from 2002, i.e. Article 81 of the current Rules of Procedure of the National Assembly. Some minutes lack complete information on the oral and written proposals presented, as well as on the positions taken by the Committee. The information on a public hearing is more comprehensive and provides an insight into the topic of the public hearing, the statements made and the positions taken by the participants of the public hearing, and can be a model for drawing up the minutes of regular Committee sessions. 96 Minutes from sessions and information about public hearings were written in gender-insensitive language, which is unacceptable, since this is a parliamentary gender equality mechanism, which is expected to be one of the promoters of the use of gender-sensitive language in parliamentary and public communication.
27 2 Overview and analysis of the work of the parliamentary gender equality mechanism
2.1 Work of the parliamentary gender equality mechanism in the sixth convocation of the National Assembly (2004-2007) In the 2004–2007 period, the Gender Equality Committee (hereinafter: the Committee) acted as a permanent working body of the National Assembly.97 The committee held 27 sessions, the largest number of which was devoted to the consideration of drafts and proposals of laws.
The work of the Committee in this period was marked by activities aimed at considering dif- ferent versions of the Draft Law on the Equality of Sexes, and it received proposals and com- ments from individual ministries. As many as eleven sessions of the Committee were entirely devoted to this Law. The Committee initiated the adoption of this Law with the decision made at the seventh session held on 28 July 2004. As stated in the minutes from this session, the Committee “by the majority of votes accepted the proposal to draft a special law on the equal- ity of sexes, similarly to modern European legislation and neighbouring countries”. Differ- ent versions of the draft law were discussed at as many as nine sessions, and at the last sev- enteenth session on 27 June 2006, the Proposed Law on the Equality of Sexes was considered and supported in principle.
Several proposed laws were also considered at sessions: the Proposed Family Law (XI ses- sion of 23 December 2004), Proposed Criminal Code (XVIII session of 12 September 2005) and Proposed Law Amending the Law on Financial Support for Families with Children (VIII session of 21 September 2004). It is also important to mention the conclusion of the Com- mittee adopted at its XV session on 16 May 2005 – in their parliamentary groups, members of the Committee should launch an initiative to amend the Law on the Election of Members of Parliament, which would regulate the representation of the less represented gender in the legislature.
In addition to considering the draft laws, the Committee dealt with other issues important for gender equality. As particularly significant, we single out: activities on the formation of the Subcommittee for Children’s Rights (XIII session of 18 February 2005), which was a forerun-
97 According to the provisions of Article 68g of the then valid Rules of Procedure of the National Assembly of the Republic of Serbia, the Committee was in charge of considering the proposals of laws, other regulations and general acts from the point of view of improving and achieving gender equality, analysing the conduct of policy, implementation of laws, other regulations and general acts by the Government of the Republic of Serbia and other bodies and officials accountable to the National Assembly, from the point of view of respect for gender equality.
28 ner of the Committee for Children’s Rights, which has been operating as a special permanent working body of the National Assembly since 2012.
At the meetings of the Committee, some specific problems of gender discrimination faced by groups and individuals were discussed. Thus, for example, at the XVII session of 11 July 2005, the Committee discussed the problem of discrimination against women employed in the “Ipol Seval” aluminium rolling mill A.D. Sevojno in connection with the implementation of the social programme. The Committee requested from the Ministry of Labour, Employment and Social Policy to review the findings of the Labour Inspection Department regarding the legal- ity of the implementation of the social programme and determine the potential responsibility of the competent inspector and to report to the Committee thereon, and recommended that the Privatisation Committee should consider the problem of company employees and ena- ble trade union representatives of the company to oversee the implementation of the social programme.
The Committee’s activities on establishing co-operation with other institutional mechanisms and increasing its visibility are significant. With this aim, the Committee prepared a project proposal with which it applied for development support from the OSCE, within which visits to local committees and commissions for gender equality were planned, as well as forums in local communities.98
At the XXI session held on 17 February 2006, at the invitation of the Committee, Sonja Lokar, a member of the Working Group for Gender Equality of the Stability Pact, took part in the work and pointed out the gender dimensions of unemployment and insufficient representa- tion of women in political life. At the session, the Committee discussed “the degradation of the female workforce, which occurred simultaneously with the degradation of the areas in which women are most represented”, the solutions reached by individual countries of the European Union, as well as “the need to reach a consensus on these issues so as to solve the problem of unemployment through constant education”.
At the XXVI session held on 30 May 2006, members of the Association of Women – Aviators of Serbia and Montenegro took part in the work, informing the Committee about discrimina- tion against women aviators.
The activity of the Committee on improving knowledge and raising the awareness of male/ female MPs about gender discrimination should also be mentioned. The Committee made
98 The project proposal was adopted at the 5th session of the Committee, held on 14 May 2004.
29 the decision that male/female MPs should participate in education about gender equality and forms of discrimination, organised by the Voice of Difference – Group for the Promotion of Women’s Political Rights, in co-operation with the Embassy of the Kingdom of Norway.99
It is evident that the Committee was open to co-operation with international organisations and civil society, as evidenced by the fact that as many as nine sessions were attended by male/ female representatives of international and non-governmental organisations, professional associations, the academia, other institutional mechanisms and government bodies, at the invitation of the Committee. In fact, a large number of sessions were held with the direct sup- port of international organisations, within the framework of projects that they implemented in co-operation with government bodies and civil society organisations. During this period, the Committee considered various forms of structural discrimination against women.
2.2 Work of the parliamentary gender equality mechanism in the seventh convocation of the National Assembly (2007–2008) In the VII convocation of the National Assembly, the role of the parliamentary gender equal- ity mechanism was performed by the Gender Equality Committee, whose status and jurisdic- tion remained the same. The Committee held nine sessions. In the Work Plan of the Com- mittee, which was adopted at the III session held on 14 September 2007, “initiating the adop- tion of the Law on the Equality of Sexes” was determined as a priority task, as well as work on issues related to the education and professional development of women, their position in the labour market and handling citizen complaints relating to gender discrimination. In addition, the Plan envisages controlling the work of the Government and other bodies in the part that concerns the implementation of gender equality.
One of the problems to which the Committee paid special attention concerned sensational- ist media reports that insult the dignity and human rights of women, especially victims of vio- lence. As many as four sessions were dedicated to this topic.
At the III session, the decision was made to form a working group that will prepare a letter to all media and state institutions that are responsible for the field of the media. As stated in the minutes, this letter should be signed by “all members of the Committee, with the request to send them a notice about what certain media outlets and state institutions have done regard- ing the problem”.
99 The decision was made at the 5th session of the Committee held on 14 May 2004.
30 Media reporting was the topic of the IV session of the Committee on 26 September 2007. At this session, the increasingly frequent abuse of information in the media, which violates human rights, was pointed out. The conclusion was adopted that the Committee should send a letter of protest to the media and journalists’ associations in which it strongly reacted against the phenomena of victims of violence being exposed to humiliation and their dignity being violated. The direct reason for sending the protest letter were the current cases of publication of photos of victims of domestic violence and rape in the media. In addition, the Committee took the position that in the coming period “it will monitor the behaviour of the media and initiate changes to the regulations in order to prevent the abuse and manipulation of victims for sensationalistic purposes” and called on journalists’ associations to respond in a timely manner to the occurrences of unprofessional behaviour of journalists and violations of the code of ethics. There is no information on whether the note and the protest letter were sent to journalists, nor on whether media outlets and competent authorities notified the Commit- tee about the measures taken.
At the V session of the Committee on 3 October 2007, the topic was the media. The immedi- ate cause was the show “48-Hour Wedding”, with the bride, the groom and the bride’s mother presenting slapping and beating women as a socially desirable pattern of behaviour, as well as the reactions of the director of Radio Television Serbia (RTS) to the criticism of an MP, who described the show as an “extraordinary socio-psychological study” – the director stated that the MP’s criticism was a political attack on him. On this occasion, the Committee sent a request to the then RTS director to resign, as well as the request to the RTS Board of Directors to relieve the director of his duties if he refused to resign.
The Committee discussed the problem of violence against women on several occasions. The VIII session of the Committee, held on 27 November 2007 in the form of a round table on the occasion of 25 November, the International Day for the Elimination of Violence Against Women, was dedicated to the causes and consequences of violence against women. The Pres- ident of the National Assembly, representatives of government bodies and non-governmental organisations participated in the work of the round table. Data on the prevalence of violence against women, especially domestic violence, were presented at the round table, and after sev- eral hours of discussion, it was concluded that the problems of domestic violence and vio- lence against women “require a multi-layered approach, improving the efficiency and prompt- ness of judicial authorities, provision of psychological and other professional assistance to vic- tims, as well as better work on violence prevention”. At the IX session of the Committee, held on 5 December 2007, the Proposal of the Declaration on the Elimination of all Forms of Vio-
31 lence against Women was considered and defined, and was referred to the regular parliamen- tary procedure.100
By exercising its control function, at the VII session of 6 November 2007, the Committee con- sidered the Report on the Work of the Gender Equality Council of the Government of the Republic of Serbia in the Mandate from 2004 to 2007, and got acquainted with the priorities of the Sector for Gender Equality of the Ministry of Labour and Social Policy in the field of gender equality.
One of the specific problems dealt with by the Committee concerns the petition of the pres- ident of the municipal assembly of Knić regarding the initiative of a group of councillors that she should be relieved of her duties, which is explained by the fact that “the elected person in the position of the president of the municipal assembly of Knić went on a one-year maternity leave and with her departure paralysed the work of the municipal assembly of Knić”. The Com- mittee made the decision to send an urgent request to the Ministry of Public Administration and Local Self-Government and the Ministry of Labour and Social Policy to re-examine the case and provide feedback to the Committee.
2.3 Work of the parliamentary gender equality mechanism in the VIII convocation of the National Assembly (2008–2012) In the VIII convocation of the National Assembly, there were no changes regarding the sta- tus and competences of the Gender Equality Committee. During the four-year mandate, the Committee held 37 sessions, which were devoted to various current topics important for achieving gender equality.
One of the main characteristics of the work of the Committee in the 2008–2012 period was that the work was carried out according to pre-determined annual work plans, and that reports were drawn up on the Committee’s one-year work,101 which was not the practice of the Committee in the earlier period.
Another important characteristic of the Committee’s work is reflected in the activities aimed at strengthening the gender competences of male/female members of the Committee, which are necessary for the implementation of gender-sensitive supervision. To that end, three ses- sions of the Committee in the form of seminars, organised with the support of the OSCE Mis-
100 There is no information on whether this declaration was ever adopted by the National Assembly. 101 Plans of the parliamentary gender equality mechanism and reports on their implementation are not publicly available, so they were not the subject of analysis.
32 sion and with the engagement of female experts on gender issues, were dedicated to intro- ducing a gender perspective into the work of the National Assembly. This was the form, for example, of the XXXIII session (12 October 2012), where the process of mainstreaming gen- der equality in all stages of the policy development process, from creation to implementation, was presented to the Committee members. Experiences and good examples from compara- tive parliamentary practice were discussed, as well as the work and experiences of the Gender Equality Committee of the National Assembly. At the XXXV session (9 November 2011), the Committee was informed about the results of the gender analysis of the National Employment Strategy, i.e. the practical application of gender analysis – a key tool for gender mainstreaming in public policies. At the XXVII session (10 November 2010), female gender equality experts informed the Committee male/female members of examples of good practice in introducing the principles of gender equality into public policies, plans and budgets.
In the 2008–2012 period, a large number of Committee sessions had the form of round tables dedicated to various topics. The XXXVIII session of the Committee (4 April 2012), held in the form of a round table, was dedicated to marking the action “Month of Roma Women’s Activism”. The XXXI session of the Committee (7 April 2011), held in the form of a round table on the occasion of the International Roma Day, was also dedicated to the position of Roma women in Serbia. At the XXIII session (28 September 2009) held in Niš, the Proposal of the Law on the Equality of Sexes was presented and arguments were given in support of its adoption.
The Committee also organised several public hearings, on the occasion of marking the Inter- national Day for the Elimination of Violence Against Women. Thus, on 25 November 2010, the Committee organised the public hearing “The role of the media in the fight against vio- lence against women”. During the public hearing, alarming data on the number of murdered women and the prevalence of violence against women were presented. Male/female repre- sentatives of media associations pointed out that the media “depict circumstances in society and that representatives of the media, as creators of public opinion, should also participate in such gatherings”. In the following year, on the same occasion, the Committee organised a pub- lic hearing “Interdepartmental co-operation and support mechanisms for victims of violence”. This event brought together a large number of male/female representatives of relevant minis- tries, the police, the civil sector and the academia. The need to further strengthen co-opera- tion with independent bodies, the non-governmental sector and awareness raising about vio- lence against women was pointed out. Public hearings certainly contributed to making the problem of violence against women more visible, but it is questionable how much they influ- enced the improvement of the social response to violence against women.
33 A significant part of the Committee’s activities was devoted to considering the reports of competent authorities and independent bodies, as well as their work plans.102 The Commit- tee considered useful the reporting of independent bodies on the implementation of certain laws, pointed out the challenges in preparing state reports on the implementation of interna- tional treaties, as well as the problems of the division of the non-governmental sector in terms of participation in the preparation of reports. During the consideration of individual reports, the Committee made proposals regarding priority topics. Thus, at the XXIX session held on 8 March 2011, when the Report on the Work of the Directorate for Gender Equality of the Min- istry of Labour and Social Policy for the Period January–December 2010 was considered, the Committee positively assessed the work of the Directorate and the co-operation between the Committee and the Directorate and highlighted the need to pay more attention to the position of women in the countryside and to monitoring the implementation of the Law on the Equal- ity of Sexes in local self-governments.103
One of the characteristics of the work of the Committee is the holding of meetings outside the seat. The XXVI session (20 September 2010), in the form of a round table, was held in Žitište, and was dedicated to the position of women in the countryside. At the next session held on 22 September 2010, the Committee adopted several conclusions: the establishment of better co-operation at all levels of government and the engagement of all relevant actors in order to improve the economic position of women in the countryside, and informing them as well as possible and amending the legal regulations that would make it possible for women in rural areas, based on work in a rural household, to exercise certain rights as from employment, including the right to benefits during pregnancy and after childbirth, as well as rights aris- ing from pension and disability insurance. The XIII session of the Committee was held out- side the seat.
102 At XXI session (1 June 2010), Redovni izveštaj Zaštitnika građana za 2009. godinu (Regular Report of the Protector of Citizens for 2009) was considered, in the part concerning gender equality and the protection of the rights of persons with disabilities. At XXX session of the Committee (10 March 2011), the Committee considered Objedinjeni II i III periodični izveštaj o primeni Konvencije o eliminaciji svih oblika diskriminacije žena (CEDAW) (Combined II and III Periodic Reports on the Implementation of the Convention on the Elimination of All Forms of Discrimination Against Women (CEDAW))”. At the XXIX session held on 8 March 2011, Izveštaj o radu Uprave za rodnu ravnopravnost Ministarstva rada i socijalne politike za period januar– decembar 2010. godine (Report on the Work of the Directorate for Gender Equality of the Ministry of Labour and Social Policy for the Period January–December 2010) was considered. At the XXI session (13 April 2010), the activity plans of the Directorate for Gender Equality for 2010 and the Gender Equality Council for 2010 were considered and adopted. 103 At this session, the Committee sent an invitation to all political parties that did not draw up an action plan with special measures for encouraging and improving the equal representation of women and men in their bodies and did not submit it to the Committee. This obligation referred to political parties whose male/female candidates were elected as members of parliament, i.e. councillors, as prescribed by Articles 35, paragraphs 4 and 5 of the Law on the Equality of Sexes (“Official Gazette of RS”, No 104/2009).
34 The Committee’s agenda also included consideration of proposed laws. At the XXV session (20 July 2010), the Proposed Law Amending the Law on Pension and Disability Insurance was discussed in general, and at the XIX session (10 December 2009) the Proposed Law on the Budget of the Republic of Serbia for 2010 – Section 21 was discussed. As many as five sessions of the Committee, one of which took the form of a round table, were devoted to the consider- ation of the Proposed Law on the Equality of Sexes. At the XVII session (18 November 2009), the Committee supported the Proposed Law and the amendments that were accepted by the Government, and formulated six of its own amendments. The topic of the XI session (27 May 2009) was the Proposed Law on Military, Labour and Material Obligation, from the perspec- tive of achieving gender equality. The data from the minutes show that the Proposed Law on the Equality of Sexes was the only law to which the Committee gave its amendments, while there were no amendments or comments regarding the proposals of other laws.
In accordance with its powers, on two occasions the Committee considered and condemned the sexist and offensive behaviour of public officials towards MPs: at the VI session (10 April 2009) it condemned the “inappropriate speech of MP Tomislav Nikolić at the session of the National Assembly on 13 February 2009, in his address to MP Gordana Pop-Lazić”, and at the XII session (13 April 2010), he “most strongly condemned the verbal violence of MP Velimir Ilić against MP Jelena Trivan, in the show “Upitnik”, broadcast on the RTS public broadcaster, on 12 April.
It is worth noting that the Committee also considered two individual petitions: a petition from a single mother from Belgrade and the president of the SOS hotline for women and children victims of violence from Belgrade regarding the lack of space to work.104
2.4 Work of the parliamentary gender equality mechanism in the ninth convocation of the National Assembly (2012–2014) The role of the parliamentary gender equality mechanism in the 2012–2014 period was per- formed by the Committee on Human and Minority Rights and Gender Equality (hereinafter: the Committee), in the status of a permanent working body of the National Assembly. The
104 In regard to the petition of the single mother, the Committee suggested to the petitioner that she should initiate a labour dispute against the company where she worked, or that she should address the city’s Protector of Citizens (XXV session, 20 July 2010). Regarding the petition of the president of the SOS hotline for women and children victims of violence regarding the lack of space for work, the Committee decided to “contact the representatives of the SOS hotline and find out what specific help the Committee could provide, with the idea that, if necessary, the Committee should send a letter to the President of the National Assembly to temporarily provide this organisation with premises for work in the building of the National Assembly”. This petition was the reason for the conclusion that the operation of the SOS hotline should be solved systematically.
35 responsibilities of this body in the field of gender equality are identical to those of the former Gender Equality Committee.105
In the two-year mandate, the Committee held 23 sessions and organised six public hearings, of which only eight sessions and three public hearings were devoted to topics in the domain of gender equality, which is slightly more than a third of the Committee’s overall activities. In this regard, it should be borne in mind that the agenda of three of the total eight sessions of the Committee concerned only the decision on organising a public hearing, so that, in prac- tice, only five sessions were devoted to considering topics in the field of gender equality. On the other hand, at sessions and public hearings, the Committee considered several topics in the field of human and minority rights that have a pronounced gender dimension, such as, for example, prevention of torture, patients’ rights, international adoption, etc., but, according to data from minutes, they were not considered from a gender perspective. On the occasion of the International Day in Support of Victims of Torture, the Committee, in co-operation with the Committee on the Judiciary, Public Administration and Local Self-Government, organ- ised a public hearing on the topic “Report of the National Mechanism for the Prevention of Torture for 2012”.106 Although it is known that women, particularly those from multiple dis- criminated groups, face specific problems in prison, as well as in psychiatric and social insti- tutions, during the discussion the issues related to torture against women were not examined by male/female participants. Given the said, it can be concluded that the Committee focused much more on human and minority rights and that topics in the field of human and minority rights were not considered from a gender and intersectional perspective.
All sessions and public hearings were held at the seat of the Committee, so the practice of holding meetings outside the seat, which existed in the previous period, was discontinued.
105 According to the provisions of Article 52 of the Rules of Procedure of the National Assembly, the Committee on Human and Minority Rights and Gender Equality considers the draft of a law and other general act and other issues in the field of: exercise and protection of human rights and freedoms and the rights of the child; implementation of ratified international treaties regulating the protection of human rights; exercising the freedom of religion; the position of churches and religious communities; exercise of the rights of national minorities and inter-ethnic relations in the Republic of Serbia. The Committee co-operates with national minority councils. The Committee considers the draft of a law and other general act from the point of view of promoting and achieving gender equality, examines the state of policy making, the implementation of laws and other general acts by the Government and other bodies and officials accountable to the National Assembly, from the point of view of respect for gender equality. The Committee also performs other tasks, in accordance with the law and these Rules of Procedure. The subject of analysis in this document are only the Committee’s activities in the field of gender equality. 106 The public hearing was organised with the support of the United Nations Development Programme (UNDP) and the Swiss Agency for Development and Co-operation, through the project “Strengthening the Oversight Role and Transparency of the National Assembly”, implemented in co-operation with the National Assembly of the Republic of Serbia.
36 In this mandate, the Committee continued with the practice of adopting annual work plans. However, the work reports were not considered by the Committee, and there is no informa- tion on whether they were compiled at all.
The Committee’s work in the field of gender equality was marked by public hearings, which drew the public’s attention to certain challenges in achieving gender equality.
The first public hearing was held on 26 November 2012, on the occasion of the International Day for the Elimination of Violence Against Women, on the topic “Fighting Domestic Vio- lence”. The event brought together the male/female representatives of numerous government bodies, independent bodies and international and non-governmental organisations. Data on the prevalence of violence against women in the family were presented and the activities undertaken to combat this violence were presented. The female representatives of women’s organisations pointed out the need for the National Assembly to improve, through amend- ments, the legislative proposals that are in the procedure and to more effectively perform the oversight function regarding the implementation of laws that regulate the protection of women from violence. It was concluded that it was necessary to urgently ratify the Istanbul Convention, amend the Criminal Code and set up a government team that will adequately deal with the problem of domestic violence.
The second public hearing was held on 3 December 2013, on the topic: “National Implemen- tation of the Recommendations of the CEDAW Committee of the United Nations and the CAHVIO Convention of the Council of Europe (Istanbul Convention)”. The public hearing was part of the project “Strengthening the Oversight Role and Transparency of the Parlia- ment”, which was carried out by UNDP and the Swiss Agency for Development and Co-oper- ation, in co-operation with the National Assembly. According to information from the pub- lic hearing, this event brought together the male/female representatives of numerous interna- tional organisations and government authorities, who pointed out the need for better imple- mentation of international treaties, as well as the role of the National Assembly in monitoring their implementation. There were several female speakers from the non-governmental sec- tor at the event.
“Women’s entrepreneurship in Serbia” was the topic of the third public hearing held on 26 November 2013, with the support of the German GIZ and the Association of Business Women of Serbia. At this event, which brought together male/female representatives of gov- ernment bodies and women’s organisations, numerous data were presented about the insuf- ficient number and bad position of female entrepreneurs, and the need for wider encourage-
37 ment of female entrepreneurship and the creation of a favourable environment for the work of small and medium-sized enterprises were pointed out.
The fourth public hearing on the topic “Aging – Years of Life: From Privilege to Discrimina- tion” was held on 26 October 2015. The organisers of the public hearing were the Committee and the Commissioner for Protection of Equality, and support was provided by the USAID Judicial Reform and Government Accountability Project. The focus of the public hearing was on different forms of discrimination based on age in different areas, but in light of the infor- mation from this public hearing, it can be concluded that a broader intersectional approach in looking at discrimination against the elderly was missing.
The Committee’s agenda also included the annual reports of independent human rights bod- ies, which the Committee supported, adopting the conclusions that were sent to the National Assembly for consideration.
During its mandate, the Committee considered and supported two proposed laws: the Pro- posed Law on Ratification of the Amendment to Article 20, Paragraph 1 of the Convention on the Elimination of All Forms of Discrimination Against Women and the Proposed Law on Ratification of the Council of Europe Convention on preventing and combating violence against women and domestic violence (XXI session, 11 July 2013).
One of the topics that the Committee considered were the gender dimensions of disaster risk reduction. At the IV session of the Committee, in the form of a round table, which was held on the occasion of the International Day for Disaster Risk Reduction on 12 October 2012, on the topic “Women and Girls: Invisible Power in Strengthening Resilience”, the Study on Gen- der and Disaster Risk Reduction in the Republic of Serbia, prepared by UNDP, was presented. During the discussion, the achieved results were pointed out and it was concluded that there is a need for greater inclusion of women in all phases of work on disaster risk reduction, as well as for more effective gender mainstreaming in this area.
2.5 Work of the parliamentary gender equality mechanism in the tenth convocation of the National Assembly (2014–2016) In the two-year period, the role of the parliamentary gender equality mechanism continued to be performed by the Committee on Human and Minority Rights and Gender Equality, whose status and competences remained the same.
38 In this period, the Committee held 43 sessions, almost double the number of sessions that were held in the previous two-year period. The fact that only 15 sessions were dedicated to topics in the field of gender equality, which, as in the previous convocation, made up about 34% of the total number of sessions, cast a shadow on such intensive work of the Commit- tee. On the other hand, the Committee discussed at sessions a number of topics related to the exercise of human and minority rights, but an inspection of the minutes from these sessions shows that they were discussed in a gender-neutral manner, without considering their gender dimensions. Such an approach, for example, was applied in the consideration of topics con- cerning the position of persons with disabilities, the elderly and persons discriminated on var- ious grounds. On 3 December 2015, on the occasion of the International Human Rights Day, a joint session was held on the topic “Inclusion of persons with disabilities – accessibility and empowerment”. It was organised by the Committee on Human and Minority Rights and Gen- der Equality and the Committee on Labour, Social Issues, Social Inclusion and Poverty Reduc- tion. However, there was no consideration of the position of women and girls with disabilities, and a focus was placed on the problems of inaccessibility in the context of social inclusion. A similar approach was applied at the XXVII session of the Committee (3 December 2014) when, on the occasion of the International Day of Persons with Disabilities, the “Road Map of Deinstitutionalisation in the Republic of Serbia” of the Protector of Citizens was presented.
The work of the Committee within the X convocation of the National Assembly was also marked by the holding of sessions outside the Committee seat, which contributed to the visi- bility of the Committee and the improvement of co-operation with local authorities. Two ses- sions held outside the Committee’s seat were dedicated to topics in the field of gender equal- ity: the XV session held on 18 November 2014 in Vrnjačka Banja and the XXXVI session held on 27 November 2015 in Zrenjanin. In addition, a joint session of the parliamentary and pro- vincial gender equality mechanism was held for the first time (10 December 2015). The rea- son for holding the joint session was the marking of the International Human Rights Day, and the session was dedicated to considering achievements and perspectives in the fight against violence against women. At the session, the need to harmonise domestic legislation with the Istanbul Convention was emphasised, as well as the importance of co-operation between the two committees and the need to exchange experiences, especially in terms of expanding the network of mechanisms for the protection of gender equality, strengthening support and pro- tection of victims, economic empowerment of women and better co-ordination between all institutions.
39 The Committee considered the annual and special reports of independent human rights bodies.107
The topic of violence against women was the focus of several Committee sessions. At the XXXVI session (27 November 2015), which marked the International Day for the Elimina- tion of Violence Against Women, in which representatives of numerous government and pro- vincial and local self-government bodies participated, the so-called “Zrenjanin model” in the fight against domestic violence, as an example of good practice, was presented. The alarm- ing data on 36 murdered women during 2015 were presented and it was concluded “that the Committee, at one of the next sessions [...] will make relevant conclusions that will be referred to the competent institutions for further action”. At the XVIII session of the Committee (10 December 2014), on the occasion of the International Human Rights Day, the Model Gen- der Equality Law of the Protector of Citizens was presented, including the most significant innovations that can improve the practical application of the gender equality principle in spe- cial areas covered by law. The protection of women from violence was also the topic of the XVI session of the Committee (25 November 2014), when the Special Report of the Protec- tor of Citizens on the Implementation of General and Special Protocols for the Protection of Women from Violence was considered. At the meeting that brought together representatives of government authorities and the non-governmental sector, information was presented on how to implement the protocol, especially at the local level, while pointing out the key chal- lenges in co-operation and co-ordinated action of institutions. The role of gender equality mechanisms and the actions of competent authorities in cases of domestic and partner vio- lence were the topic of the XV session of the Committee, which was held with the support of the OSCE Mission in Vrnjačka Banja on 18 November 2014. It was stated that an effective leg- islative framework and its effective implementation, preventive measures and elimination of the causes of violence are important for the achievement of gender equality and for the pur- pose of preventing violence against women.108
107 At the XXVII session held on 5 May 2015, on the occasion of the fifth anniversary of the institution of the Commissioner for Protection of Equality, the Special Report of this body on discrimination against women was considered. At the VI session (30 May 2014) the Regular Annual Report of the Protector of Citizens for 2013 was considered, and at the V session (29 May 2014) the Regular Annual Report of the Commissioner for Protection of Equality was considered. 108 In addition to Committee male/female members, the Gender Equality Head of the Protector of Citizens, representatives of the municipalities of Vrnjačka Banja and Novi Pazar, representatives of social welfare centres from Niš, Kraljevo, Kruševac and Vrnjačka Banja, representatives of the Gender Equality Council from Novi Pazar and Kraljevo, representatives of the Kraljevo and Kruševac police administrations and representatives of numerous non-governmental organisations took part.
40 At the beginning of its four-year mandate, the Committee formed several special working groups, including a working group for gender equality (IX session, 15 October 2014). How- ever, there is no information about the tasks, nor about any activities of this working group.
2.6 Work of the parliamentary gender equality mechanism in the eleventh convocation of the National Assembly (2016–2020) Within the framework of the XI convocation of the National Assembly, the role of the par- liamentary gender equality mechanism was performed by the Committee on Human and Minority Rights and Gender Equality, and there were no changes in its status and competence.
In the 2016–2020 period, the Committee worked according to pre-prepared annual work plans, but the reports on their implementation were not considered by the Committee, nor is there any information in the minutes about whether they were prepared.
The Committee held a total of 25 meetings and organised four public hearings. As in the pre- vious four-year period, a significantly smaller part of the Committee’s activities was dedicated to gender equality, and certain topics in which the gender dimension is particularly signifi- cant, such as migration, the position of persons with disabilities, persons discriminated on various grounds and the elderly, were generally viewed in a gender-neutral manner. Thus, for example, the XXV session of the Committee, held on 2 December 2019, in co-operation with the Committee on Labour, Social Issues, Social Inclusion and Poverty Reduction, on the occa- sion of the International Day of Persons with Disabilities, was held on the theme “Accessible Future”. According to the available data, a gender-sensitive approach was not applied in the analysis of this topic, so there was no consideration of the position of women and girls with disabilities.
In exercising its role in the legislative process, at the IX session (14 November 2016), the Committee considered in principle the Proposed Law on the Prevention of Domestic Vio- lence and the Proposed Law Amending the Criminal Code, which introduced new criminal offenses for the purpose of harmonisation with the Istanbul Convention: stalking, sexual har- assment, forced marriage, genital mutilation, and envisaged stricter penalties for perpetrators of domestic violence. The Committee supported both proposals.
41 In this four-year mandate as well, the Committee considered the reports of independent human rights bodies and government authorities.109
A significant activity of the Committee was the organisation of public hearings, but only one of them was dedicated to the gender issue. It was the public hearing on the topic “Prevention of Violence Against Women”, held on 26 November 2019. The results of the research on vio- lence against women conducted by the OSCE Mission were presented and it was pointed out that, despite improvements in the legislative framework, not enough was done to prevent vio- lence against women, in which early education on gender equality, improvement of co-ordi- nated and efficient operation of all system institutions in ensuring protection against violence play a significant role.
On the occasion of the International Roma Day, the Committee devoted its XV session (3 April 2018) to the topic “The Right to Choose a Partner and Draw Attention to Child Marriage in the Roma Population”. The session was organised in co-operation with the Roma Women’s Centre “Bibija”, as part of the “Month of Roma Women’s Activism” campaign. The results of the research “Child Marriages in the Roma Population in Serbia” were presented at the session. In the discussion, the problem of child marriage was discussed comprehensively and from a gen- der perspective, and examples of good practice of integrating Roma men and women into the local community were pointed out, as well as the importance of raising the educational level of the Roma population, especially women, for whom education opens perspectives for a digni- fied life, employment and health protection. It was concluded that the Committee would con- tinue to pay attention to the problem of child marriage in the coming period, as well as that it is necessary to work on empowering the Roma population and enforcing the law, and on attracting greater interest of society to resolve the problem of child marriage.
2.7 Work of the parliamentary gender equality mechanism in the twelfth convocation of the National Assembly (2020–2022) As in the previous period, in the two-year period of the XII convocation of the National Assembly, the role of the parliamentary gender equality mechanism was performed by the Committee on Human and Minority Rights and Gender Equality, in an unchanged status.
109 At the XVI session (22 May 2018), the Regular Annual Report of the Commissioner for Protection of Equality for 2017 was considered; at the XIV session (13 February 2018), the Report of the Republic of Serbia within the third cycle of the Universal Periodic Review was considered; and at the IV session (22 September 2016) the Report of the Commissioner for Protection of Equality for 2015 was considered.
42 In the 2020–2022 period, the Committee held 13 sessions. The good practice of holding pub- lic hearings was not continued, nor were Committee sessions held outside its seat. According to the available data from the minutes, the Committee did not adopt annual work plans, nor did it prepare reports on its work.
Of total 13 sessions, seven sessions were devoted to topics in the field of gender equality. Thus, for the first time, the issues of gender equality were dominant in the work of the Committee.
Two sessions of the Committee were devoted to consideration of the Proposed Law Amend- ing the Law on the Prohibition of Discrimination and the Proposed Gender Equality Law. At the VII session (14 May 2021), these proposals were discussed in principle and the Committee supported their adoption. At the VIII session (20 May 2021), the proposals were considered in detail. MPs submitted ten amendments to the Proposed Law Amending the Law on Prohibi- tion of Discrimination, and the Committee proposed accepting three amendments and addi- tionally submitted its own three amendments. Sixty-nine amendments to the Proposed Gen- der Equality Law were submitted, and the Committee proposed to the National Assembly to accept 17 amendments and reject the others.
One of the topics that the Committee paid attention to was the implementation of the Law on Prevention of Discrimination of Persons with Disabilities and the Law on Employment and Professional Rehabilitation of Persons with Disabilities. At the III session of the Committee (3 December 2020), the Draft Report on the Post-Legislative Scrutiny of the Law on Prevention of Discrimination Against Persons with Disabilities and the Law on Employment and Profes- sional Rehabilitation of Persons with Disabilities was presented.110 The Report is gender-neu- tral, and so was the discussion on the application of these laws, and therefore an assessment of their effects on women and girls with disabilities did not take place.
Five sessions of the Committee were devoted to considering the reports of independent human rights bodies and work plans and reports on the work of government bodies.111 In the discussion about the report and work plans, there were no critical remarks or suggestions.
110 The report was prepared within the regional programme of the Westminster Foundation for Democracy. 111 At the XII session (22 December 2021), the Regular Annual Report of the Protector of Citizens for 2020 and the Regular Annual Report of the Commissioner for Protection of Equality for 2020 were considered. At the XI session (19 November 2021), three reports of the Ministry of Human and Minority Rights and Social Dialogue for the periods: January–March, April–June and July–September 2021 were considered. At the V session (17 December 2020), the Committee considered the Regular Annual Report of the Commissioner for Protection of Equality for 2019, and at the IV session (17 December 2020) the Regular Annual Report of the Protector of Citizens for 2019 was considered. At the II session (16 November 2020), the activity plan of the Ministry of Human and Minority Rights and Social Dialogue was considered.
43 2.8 Work of the parliamentary gender equality mechanism in the XIII convocation of the National Assembly (2022–2023) In the current XIII convocation of the National Assembly, the Committee held four sessions and organised one public hearing. According to the data from minutes, the work plans and the report on operation for 2022 were not adopted.
The information on the work of the Ministry for Human and Minority Rights and Social Dia- logue (III session, 28 March 2023) was considered at sessions. The Committee accepted this information and the reports of independent human rights bodies.112
On the occasion of the International Roma Day, the Committee, in co-operation with the Roma Women’s Network of Serbia, organised a public hearing on 5 April 2023 on the topic: “Every Child has the Right to Childhood, Let’s Stop Child Marriage”. At this event, which brought together a large number of female/male representatives of government authorities, international and non-governmental organisations, the results of the work of the National Coalition against Child Marriage, the Roma Women’s Network on Child Marriage, and the Initiative for the Change of Normative-Legal Acts in the Republic of Serbia of Importance for the Prevention of Child Marriages were presented. The causes of child marriages in the Roma population and the need to improve the position of the youngest Roma women were empha- sised at the event, which necessitates a clear policy and intersectoral co-operation, with the full participation of the Roma community and society.
3 Composition of the parliamentary gender equality mechanism of the National Assembly of the Republic of Serbia
During the twenty-year operation of the parliamentary gender equality mechanism, the num- ber of its male/female members changed. The Gender Equality Committee had 15 mem- bers,113 while the Committee on Human and Minority Rights and Gender Equality had 17 members.114
112 The following were considered: the Regular Annual Report of the Protector of Citizens for 2021 and Regular Annual Report of the Commissioner for Protection of Equality for 2021 (II session, 22 December 2022). No conclusions have yet been adopted regarding these reports. 113 Article 68, paragraph 3 of the Rules of Procedure of the National Assembly. The number of male/female members of the then committees was not the same. Some committees had 25 members, some 21, some 17, the most committees had 15 members, and there were also committees with 11 male/female members (See Articles 45–68g of the Rules of Procedure of the National Assembly). 114 According to the current Rules of Procedure of the National Assembly, all Committees have 17 male/female members, with the exception of the Security Services Control Committee, which has 9 male/female members. (See Articles 48–66 of the Rules of Procedure of the National Assembly).
44 The composition of the parliamentary gender equality mechanism mostly reflected the polit- ical structure of the National Assembly in a concrete convocation.115
The gender structure of the parliamentary gender equality mechanism was not constant. When it comes to the chairwomen/chairmen of the parliamentary mechanism, the available data indicate the following:
Name and surname of the chairman/ Number Period chairwoman
1 2003 - 2004 Lejla Ruždić Trifunović, Democratic Party
2 2004 - 2007 Lejla Ruždić Trifunović, Democratic Party
3 2007 - 2008 Elena Božić Talijan, Serbian Radical Party
4 2008 - 2012 Gordana Paunović Milosavljević, Serbian Radical Party
5 2012 - 2014 Meho Omerović, Social Democratic Party of Serbia
6 2014 - 2016 Meho Omerović, Social Democratic Party of Serbia
Meho Omerović, Social Democratic Party of Serbia, 7 2016 - 2020 from 17 July 2019 Jasmina Karanac, Social Democratic Party of Serbia
115 The website of the National Assembly lacks data on the composition of the Gender Equality Committee in the 5th and 6th convocations of the National Assembly.
45 Name and surname of the chairman/ Number Period chairwoman
8 2020 - 2022 Muamer Bačevac, Social Democratic Party of Serbia
9 from 2022 Muamer Bačevac, Social Democratic Party of Serbia
The above data show that during the twenty years of operation of the parliamentary mecha- nism, the number of women and men at the head of the Committee was equal. As regards the gender structure of the male/female members of the Committee, it changed over time, but women were constantly represented in a higher percentage, and in certain periods in a signif- icantly higher percentage compared to their representation in the National Assembly. How- ever, there is a noticeable trend of a rising number of men in the composition of the Commit- tee: in 2008–2012 there were only two men, in 2012–2014 there were six men, including the chairman of the Committee, in 2014–2016 there were four men, including the chairman, in 2016–2020 two men, in 2020–2022 seven men, while an almost complete gender balance has been achieved in the composition of the current Committee, in which there are eight men out of a total of 17 male/female members. It can be assumed that the improvement of the Com- mittee’s gender structure towards establishing a gender balance is an expression of increased understanding that gender equality is not a “women’s issue”, but the question of sustainable social development and respect for human rights, which is equally important for both women and men. However, further and more in-depth studies are needed to confirm this assumption.
4 Concluding remarks
The establishment of a parliamentary gender equality mechanism was one of the important steps towards a gender-sensitive parliament, which is a parliament that includes a gender per- spective in all its roles – legislative, supervisory and representative.
An analysis of the twenty-year work of the parliamentary gender equality mechanism shows that there have been significant fluctuations in terms of the scope and content of its activi- ties. This was influenced by various factors, including the personal interest and commitment to the idea of gender equality of the persons at the head of the parliamentary mechanism, as well as its male/female members. The dynamics of the work of the mechanism of the National Assembly reflects the dynamics of the implementation of gender equality policy in Serbia. The increased intensity of its activities is noted during the work on laws on gender equality, espe- cially the Law on the Equality of Sexes, as well as during the implementation of projects and development programmes of international organisations.
Law proposals that were the subject of consideration at the sessions of the parliamentary gen- der equality mechanism show that its influence on gender mainstreaming in legislation had a modest scope. The reasons should be sought in the lack of understanding of the multisec- toral nature of gender equality and the need for the gender perspective to be integrated into all laws, including those that are gender-neutral at first glance, such as laws in the field of edu- cation, energy, economy and other areas. Due to the lack of recognition of the gender dimen- sions of these laws, they were not considered at the sessions of the parliamentary mechanism. It can be assumed that one of the causes of such a situation is insufficient professional support for the Committee in conducting the gender analysis, gender impact assessment and applica- tion of other methods and tools for gender mainstreaming in legislation.
Since 2012, the role of the parliamentary mechanism has been performed by the Committee on Human and Minority Rights and Gender Equality. Although the unification of these three areas provides the opportunity to consider gender equality issues in the context of human rights, it seems that in practice this model has not confirmed its effectiveness, because when considering topics in the area of human and minority rights, their gender and intersectional perspective was mostly absent.
In exercising its oversight function, the parliamentary gender equality mechanism achieved, viewed as a whole, limited results. This is evidenced by the small number of plans and reports on the work of executive authorities that the parliamentary mechanism considered, as well as the fact that it accepted them without an in-depth analysis and discussion. The weak results are a kind of reflection of negative trends in the oversight of the National Assembly over the work of executive authorities.
During the twenty-year operation of the institutional mechanism, the practice of public hear- ings was not constant, nor of the same intensity. Although they were mostly organised to mark international holidays and were within the framework of projects of international organisa- tions, which gave the public hearings a festive tone, their holding contributed to greater visi- bility of various forms of gender discrimination and the parliamentary mechanism itself. The visibility of the parliamentary mechanism was also supported by the holding of sessions out- side the seat, but their number is relatively modest.
47 The transparency of the work of the parliamentary mechanism was at a relatively satisfactory level. The practice of holding sessions in the form of round tables, in which representatives of independent human rights bodies, the non-governmental sector and the academic commu- nity participated, contributed to this. In addition, the level of transparency has been signifi- cantly increased with the introduction of the practice of publishing recordings of Committee sessions, which began in 2012.
The co-operation of the parliamentary gender equality mechanism with other permanent working bodies of the National Assembly was not developed to a greater extent, as evidenced by the small number of joint sessions organised in co-operation with other committees.
The composition of the parliamentary gender equality mechanism mainly reflected the polit- ical structure of the National Assembly in a concrete convocation, according to Article 28 of the Law on the National Assembly. Women and men were at the head of the parliamentary mechanism for an equal period of time – ten years respectively. The representation of women was higher than the representation of men, with an evident trend of gradual establishment of a gender balance.
Despite positive developments, in Serbia, gender inequalities, accumulated over centuries and deeply woven into social structures, are still present in all spheres of public and private life. In the upcoming process of gender mainstreaming in laws and public policies, which will undoubtedly, as so far, be accompanied by numerous challenges and obstacles, the role of the parliamentary mechanism will continue to be very important. Not only positive, but also negative experiences gained during twenty years of work are valuable for its future activities, because they provide insight into the assumptions that must be ensured so that the contribu- tion of the parliamentary mechanism to the advancement of gender equality becomes greater, more efficient and more effective.
48 Maja Sedlarević, MA116
GENDER EQUALITY COMMITTEE OF THE ASSEMBLY OF AP VOJVODINA117 IN 2003–2023
1 INTRODUCTION
In the Autonomous Province of Vojvodina, from the moment of democratic changes (in 2000), the issue of gender (in)equality was immediately tackled strongly and decisively by the institu- tionalisation of this issue. All mechanisms were established and all acts under the jurisdiction of the autonomous province were passed. It is assumed that this would not have happened if women activists and politicians had not entered the institutions from the streets and contin- ued their struggle there.
The formation and work of the Gender Equality Committee of the Assembly of AP Vojvodina cannot be analysed outside the context in which it was created. Institutional gender equality mechanisms were established in AP Vojvodina in the period from 2000 to 2004,118 which, in accordance with the competences of the province, could be set up: the Provincial Secretar- iat for Labour, Employment and Gender Equality; Gender Equality Council; Gender Equal- ity Committee of the Assembly of AP Vojvodina; Deputy Provincial Ombudsman in charge of gender equality; Provincial Gender Equality Institute. The Gender Equality Committee of the Assembly of AP Vojvodina was established in 2003 and it is its twentieth anniversary this year.
The need to establish institutional mechanisms both in the assemblies and in the executive branch was recognised in light of the opportunities ensured by the institutionalisation of gen-
116 majasedlarevic@yahoo.com. The author was a provincial MP in the mandates of 2004–2008, 2008–2012, 2012–2016 and 2016–2020 and Vice-President of the Assembly of AP Vojvodina from 2008 to 2012. 117 We would like to thank the Service of the Assembly of AP Vojvodina for their committed effort in collecting and preparing the material that was given to us for the purpose of this research. 118 In this paper, the terms “equality of sexes” and “gender equality” are equated. The author indicates a clear difference between the terms “sex” and “gender” and holds that it is more correct to use the term “gender equality”. However, one must take into account the timeframe in which the Gender Equality Committee and other provincial mechanisms were established, and that the term “equality of sexes” (which has remained in the name of the provincial mechanisms to this day and has not been changed) was then dominantly used, while the term “gender equality” came to life and began to be dominantly used later. These two terms are used equally in the paper and have the same meaning.
49 der equality in both the parliamentary and the executive branch of the government because it enables the submission of proposals, the launching of initiatives, involvement in the prepara- tion of laws119, direct influence on the drafting of laws, responding to proposed laws prepared by ministries, monitoring the implementation of laws, assistance of expert services, the pos- sibility of engaging male/female experts, co-operation with the civil sector, interdepartmental co-operation, which is extremely important for gender equality, budgetary resources available to the executive branch, gender-sensitive budgeting and the like.
In 2002, the Autonomous Province of Vojvodina laid the institutional foundations for gen- der equality with the establishment of the Provincial Secretariat for Labour, Employment and Gender Equality and the Gender Equality Committee of the Assembly of AP Vojvodina in Jan- uary 2003, and in the same year with the establishment of the Provincial Ombudsman, which, from the very start, in addition to deputies, also had a deputy for gender equality. Good prac- tice continued in 2004 with the adoption of the Declaration on Gender Equality and the Deci- sion on Gender Equality, and the establishment of a special institution which, as an expert body, deals with gender equality – the Provincial Gender Equality Institute. Even today, twenty years later, these mechanisms are actively advocating the strengthening of local mech- anisms, achievement of gender equality and introduction of the principle of equal opportu- nities in all public policies, which will be partly shown in this document, at least as far as the Gender Equality Committee of the Assembly of AP Vojvodina is concerned.
2 ESTABLISHMENT OF THE GENDER EQUALITY COMMITTEE OF THE ASSEMBLY OF AP VOJVODINA
The Assembly of the Autonomous Province of Vojvodina, as the highest representative body of the Province, through the amendments to the Rules of Procedure of the Assembly of AP Vojvodina, ensured the establishment of the Committee for the purpose of considering and analysing issues within the competence of the Assembly of AP Vojvodina, proposing of acts, examining the situation in certain areas and performing other tasks. At the session held on 23 December 2002, the Rules of Procedure of the Assembly of AP Vojvodina were adopted, and entered into force on 8 January 2003.120
119 The Assembly of AP Vojvodina is the authorised proposer of laws, Article 107, paragraph 1 of the Constitution of the Republic of Serbia. 120 “Official Journal of AP Vojvodina”, 23/2002, available at: www.paragraf.rs, accessed on 12 July 2023.
50 The Gender Equality Committee was established on 22 April 2003, by the election of the chairperson and female and male members of the Committee.121 The President of the Assem- bly, in agreement with the heads of parliamentary groups, i.e. MPs – representatives of polit- ical parties represented in the Assembly, proposes candidates for chairpersons and members of the Committee, proportionately to the number of MPs that those political parties have in the Assembly.122 The Committee “considers proposals of decisions and general acts from the point of view of improving and achieving gender equality”. The Committee examines the state of policy conduct, execution of decisions and general acts by the Executive Council from the point of view of respect for gender equality.”123 The Rules of Procedure of the Assembly of AP Vojvodina were changed several times from 2003 to 2023. The current Rules of Procedure124 stipulate that ”the Gender Equality Committee considers proposals of programmes, decisions and general acts in the field of equality between women and men, considers analytical and other materials in the field of equality between women and men, considers acts from the point of view of improving the equality of women and men, examines the conduct of politics, the execution of decisions and general acts by the Provincial Government from the point of view of equality and other issues in the field of gender equality”.125
Shorthand notes from the Committee sessions are kept in the form of minutes containing basic information about topics and discussions, and were not a fruitful source of data for the analysis.126
3 ANALYSIS OF THE WORK OF THE GENDER EQUALITY COMMITTEE
The work of the Gender Equality Committee was followed through six mandates: 2000–2004, 2004–2008, 2008–2012, 2012–2016, 2016–2020 and 2020–2024.
121 Decision Amending the Decision on the Election of the Chairperson and Members of the Committee of the Assembly of AP Vojvodina (No: 020-5 of 22 April 2003). 122 Article 30 of the then Rules of Procedure of the Assembly of AP Vojvodina. 123 Article 69 of the then Rules of Procedure of the Assembly of AP Vojvodina. 124 Available at: https://www.skupstinavojvodine.gov.rs/Strana.aspx?s=poslovnik&j=SRL, accessed on 13 July 2023. 125 Article 74 of the Rules of Procedure of the Assembly of AP Vojvodina. 126 The minutes are the source on which the analysis relies; they are kept in the archive of the Assembly of AP Vojvodina in hard copy and in electronic form.
51 Work of the Gender Equality Committee in the mandate of 2000 (2003)–2004
In 2003, the Committee held three sessions, and in 2004 (before the end of that mandate) two more sessions. Sixteen items of the agenda were discussed at five sessions: the Information on the national and gender structure, level of education, manner and date of entering into employment in provincial, municipal and city administration bodies in the territory of AP Vojvodina, Information on the position of women in AP Vojvodina for the 2002–2003 period, work report and work plan of the Provincial Secretariat for Labour, Employment and Gender Equality, as well as the work plan of the Secretariat. The Declaration on Gender Equality, the Proposal of the Decision on Gender Equality, and the Proposal of the Decision on the Estab- lishment of the Provincial Gender Equality Institute were adopted, laying the foundation for systemic development and improvement of gender equality in AP Vojvodina.
Table 1
Session Date Agenda
1. Election of the Deputy Chairperson of the Committee
2. Information on the state of gender equality 1 8/7/2003 3. Information on the state of employment and unemployment in AP Vojvodina in the period January–December 2002 with data for the period January–March 2003
1. Consideration of the Proposed Decision on Gender Equality (working version)
2. Consideration of the Proposal of the Decision on the Establishment of the Fund for Encouraging Women’s Entrepreneurship (working version)
3. Report on the Activities of the Provincial 2 20/10/2003 Secretariat for Employment and Gender Equality between two sessions of the Gender Equality Council
4. Report on the planned activities of the Provincial Secretariat for Labour, Employment and Gender Equality until the end of 2003 and the first half of 2004
52 Session Date Agenda
1. Information on national and gender structure, level of education, method and date of establishment 3 16/12/2003 of employment in provincial, municipal and city administration bodies in the territory of AP Vojvodina
1. Proposal of the Declaration on Gender Equality
2. Proposal of the Decision on Gender Equality 4 5/8/2004 3. Proposal of the Decision on the Establishment of the Provincial Gender Equality Institute
1. Information on the position of women in 5 14/9/2004 Vojvodina in 2002/2003
Despite the fact that the Committee considered information that contained a comprehensive analysis of the position of women in Vojvodina and made important decisions regarding the achievement of gender equality in AP Vojvodina, there were no persons interested in partici- pating in the discussion or only some female/male members actively participated. This shows the attitude of some female/male members of the Committee towards the sessions and work of the Committee as a bureaucratic procedure in which they have no obligation to actively participate in the consideration of a document, no matter how relevant it is for the field that the Committee deals with. The analysis of the data from the minutes of Committee sessions indicates the following:
1) Only four male/female members (out of 11) were present at all sessions.
2) Two male/female members of the Committee did not attend any session, and one of them was a woman.
3) At each session of the Committee, only one member of the Committee (chairman) took part in the discussion.
4) As many as five male/female members of the Committee never participated in the discus- sion, two of whom were women. This indicates the lack of interest of certain male/female members in this area and an irresponsible attitude towards the obligations that member-
53 ship in the parliamentary committee implies. The fact that women also have such an atti- tude shows that they are not sensitised to gender issues.
5) Gender-sensitive language was not used in any minutes; apart from female members of the Committee, the provincial secretary for Labour, Employment and Gender Equality and member of the Executive Council Jelica Rajačić Čapaković was present at all sessions, and at every session female representatives of other secretariats and/or institutions of the pro- vincial administration participated, but their functions were not specified in the feminine gender.
Work of the Gender Equality Committee in the 2004-2008 mandate
In this period, the Gender Equality Committee of the Assembly of AP Vojvodina held 14 ses- sions and discussed a total of 44 agenda items. In addition to considering the annual reports of the provincial ombudsman, reports on the work of the Provincial Secretariat for Labour, Employment and Gender Equality and the Provincial Gender Equality Institute, the infor- mation on the representation of women and men in representative and administrative bod- ies in AP Vojvodina after the local and provincial elections in 2004 was considered, as well as the information on representation of women and men in public enterprises in AP Vojvodina, information on the development of local gender equality mechanisms, information on the number of illiterate women in the territory of AP Vojvodina and measures to reduce the illiteracy rate, information on employment and unemployment of women and men in AP Vojvodina, international co-operation and Committee activities. At the tenth session, held on 11 May 2007, the Proposed Law on the Equality of Sexes was defined and was later referred to the National Assembly of the Republic of Serbia by the Assembly of AP Vojvodina, as the authorised proposer.
54 Table 2
Session Date Agenda
1. Election of the Deputy Chairperson of the Committee
2. Annual Report of the Provincial Ombudsman for 2004
3. Information in the field of employment of women in Vojvodina in the period January–September 2004
1 21/2/2005 4. Report on Work of the Provincial Secretariat for Labour, Employment and Gender Equality in the field of gender equality for 2004
5. Information on the representation of women and men in representative bodies and public administration bodies in AP Vojvodina after the local and provincial elections in 2004
1. Information on the activities of the Provincial Secretariat for Labour, Employment and Gender Equality in connection with the development of the Draft Law on the Equality of Sexes
2 27/6/2005 2. Information on the development of local gender equality mechanisms
3. Information of the Provincial Ombudsman regarding solving the problem of domestic violence (three pieces of information)
1. Defining the Proposed Decision on the Appointment of the Director of the Provincial Gender Equality Institute
2. Defining the Proposed Decision on the Appointment of the Chairperson and Members 3 14/9/2005 of the Managing Board of the Provincial Gender Equality Institute
3. Defining the Proposed Decision on the Appointment of the Chairperson and Members of the Supervisory Board of the Provincial Gender Equality Institute
55 Session Date Agenda
1. Consideration of the Statute of the Provincial 4 11/11/2005 Gender Equality Institute
1. Consideration of the Proposed Decision Amending the Decision on the Establishment of the Provincial Gender Equality Institute
2. Information on the number of illiterate women in AP Vojvodina and measures to reduce the rate of 5 9/3/2006 illiterate women
3. Information on co-operation of the Provincial Secretariat for Labour, Employment and Gender Equality with international and other foreign and domestic organisations and institutions in the field of gender equality
1. Information on the state of employment and 6 9/5/2006 unemployment in AP Vojvodina in the period January–December 2005
1. Defining the Proposed Decision Amending the Decision on the Appointment of the Chairperson and Members of the Managing Board of the Provincial Gender Equality Institute in Novi Sad
7 25/9/2006 2. Excerpt from Information on the state of employment and unemployment in AP Vojvodina in the period January–June 2006
3. Annual Report of the Provincial Ombudsman for 2005
1. Preparation for the organisation of the international meeting of female representatives of the Danube region and cities with topics related to the 8 14/2/2007 protection of women’s rights (21 and 22 March 2007 in the Assembly of AP Vojvodina); formulation of topics for the said meeting
9 18/5/2007 1. Report of the Provincial Ombudsman for 2006
56 Session Date Agenda
10 11/5/2007 1. Defining the Proposed Law on the Equality of Sexes
1. Defining the Proposed Decision on the Dismissal of the Director of the Provincial Gender Equality Institute 11 14/5/2007 2. Defining the Proposed Decision on the Appointment of the Director of the Provincial Gender Equality Institute
1. Report on Work of the Provincial Gender Equality 12 15/6/2007 Institute for 2006
1. Information on the representation of women and men in public enterprises in AP Vojvodina with the opinion and recommendation of the Provincial Ombudsman
2. Information on the activities of women’s non- 13 22/11/2007 governmental organisations in AP Vojvodina
3. Preparation for the Parliamentary Conference of the Assembly of AP Vojvodina against violence against women scheduled for 26 November 2007 – Support for the Council of Europe campaign
1. Consideration of the Information on gender equality in provincial bodies with conclusions
14 14/3/2008 2. Consideration of the concluding comments of the Committee on the Elimination of Discrimination against Women on the initial report of the Republic of Serbia
Unlike the previous one, in this mandate a discussion was conducted at each session, but only some female/male members participated in it. In addition to male/female members of the Committee, female/male representatives of other gender equality mechanisms in AP Vojvodina attended all sessions. The assistant provincial secretary for Labour, Employment and Gender Equality127, provincial ombudsman and his deputy for gender equality, provin-
127 Jelica Rajačić Čapaković, Provincial Secretary for Labour, Employment and Gender Equality and member of the Executive Council of AP Vojvodina in 2000–2004 (author’s note).
57 cial secretary for Labour, Employment and Gender Equality, director of the Provincial Gender Equality Institute and others were most often present. The analysis of the data from the min- utes of Committee sessions indicates the following:
1) All female/male members of the Committee were present at only two sessions.
2) There was discussion at all sessions; the most active in discussions, proposing of top- ics and giving guidelines for work were the chairwoman and deputy chairwoman of the Committee.
3) Three male/female members of the Gender Equality Committee, two of whom are women, never discussed at sessions.
4) In the minutes, gender-sensitive language is used inconsistently, but more consistently than in the previous mandate. It is noticeable that the position of the chairwoman and deputy chairwoman of the Committee, assistant provincial secretary, deputy ombudsman and director of the Institute are written in the feminine gender, but the position of the pro- vincial secretary for Labour, Employment and Gender Equality is stated in the masculine gender. In signing each minutes, the female Secretary of the Committee signs in the mas- culine gender. This means that the use of gender-sensitive language depends solely on the will and determination of the woman performing the function, because at that moment, the use of gender-sensitive language was not yet prescribed.
Work of the Gender Equality Committee in the 2008–2012 mandate
The Committee held nine sessions where 25 agenda items were considered. The Report of the Provincial Ombudsman and the Report on the Work of the Provincial Gender Equality Institute, the Report on the Implementation of the Strategy for Protection Against Domes- tic Violence and Other Forms of Gender-Based Violence in AP Vojvodina, the Report on the Research Programme on the Position of Rural Women in AP Vojvodina were considered. The Committee was the proposer of the Decisions on the Dismissal and Appointment of Mem- bers of the Managing and Supervisory Boards of the Provincial Gender Equality Institute, as well as the Decision on the Dismissal and Appointment of the Director of the Provincial Gen- der Equality Institute.
58 Table 3
Session Date Agenda
1 22/7/2008 1. Election of the deputy chairman of the Committee
1. Consideration of the Proposed Decision on the Strategy for Protection Against Domestic Violence and Other Forms of Gender-Based Violence in the Autonomous Province of Vojvodina for the Period from 2008 to 2012 2 18/9/2008 2. Consideration of the Report on Work of the Gender Equality Institute for 2007
3. Consideration of the Report of the Provincial Ombudsman for 2007
1. Consideration of the Report on Work of the Gender Equality Institute for 2008
2. Consideration of the Report of the Provincial Ombudsman for 2008
3 25/5/2009 3. Report on the Implementation of the Strategy for Protection Against Domestic Violence and Other Forms of Gender-Based Violence in AP Vojvodina for the period from 2008 to 2012
4. Report on the Research Programme on the Position of Rural Women in AP Vojvodina
59 Session Date Agenda
1. Proposed Decision on the Dismissal of the Chairperson and Members of the Managing Board of the Provincial Gender Equality Institute
2. Proposed Decision on the Appointment of the Chairperson and Members of the Managing Board of the Provincial Gender Equality Institute 4 11/2/2010 3. Proposed Decision on the Dismissal of the Chairperson and Members of the Supervisory Board of the Provincial Gender Equality Institute
4. Proposed Decision on the Appointment of the Chairperson and Members of the Supervisory Board of the Provincial Gender Equality Institute
1. Consideration of the Report on Work of the 5 17/3/2010 Gender Equality Institute for 2009
1. Consideration of the Report of the Provincial 6 13/5/2010 Ombudsman for 2009
1. Consideration of Information on the implementation of the Strategy for Protection Against Domestic Violence and Other Forms of Gender-Based Violence in AP Vojvodina in the period 2008–2012 7 17/12/2010 2. Consideration of Information on the activities of the Provincial Secretariat for Labour, Employment and Gender Equality in establishing a unique system of records on violence in the family context.
1. Report on the Work of the Provincial Gender Equality Institute for 2010
8 30/3/2011 2. Proposed Decision Amending the Decision on the Appointment of the Chairperson and Members of the Managing Board of the Provincial Gender Equality Institute in Novi Sad
1. Consideration of the Report of the Provincial 9 26/5/2011 Ombudsman for 2010
60 In the mandate period of 2008–2012, nine sessions of the Committee were held. Despite the important topics that were on the agenda, not all male/female members were present at any of the Committee’s sessions, nor did all those present participate in the discussions. As shown in the minutes, the then Provincial Secretary for Labour, Employment and Gender Equality was never present at the sessions of the Committee, and when the Provincial Secretariat for Labour, Employment and Gender Equality was in charge of one of the items on the agenda, a female assistant of the provincial secretary was present at the sessions. Unlike in the previous ones, in this mandate different information based on which the state of gender equality in AP Vojvodina could be seen was not considered. Only some female and male members actively participated in the discussions on the items on the agenda. Although it is far from a desirable state, it can be said that this represented a certain kind of progress compared to the first con- vocation, in which the chairman was the only one who participated in the discussions at cer- tain sessions. The analysis of the data from the minutes of Committee sessions indicates the following:
1) Five male/female members (out of 11) were present at all sessions.
2) One member of the Committee did not attend any session.
3) At each session, two female members and one male member took part in the discussion.
4) Four male/female members of the Committee never discussed at the sessions, including two women. This indicates the lack of interest of individual male/female members in this area and an irresponsible attitude towards the obligations that membership in the Com- mittee entails. The fact that women also have such an attitude shows that they are not sen- sitised to gender issues.
5) Gender-sensitive language is not used in the minutes, although at the ninth session of the Committee, as part of the discussion regarding the consideration of the Report of the Pro- vincial Ombudsman for 2010, it was emphasised that the Provincial Ombudsman made, and the Government of AP Vojvodina accepted the recommendation on gender-sensitive language in public use.
Work of the Gender Equality Committee in the 2012–2016 mandate
The Committee held 37 sessions, where 69 agenda items were discussed. The following were considered: the Proposal of the Provincial Assembly Decision on the APV budget, Proposed Decision on the Programme for the Protection of Women against Domestic and Partner Vio- lence in the APV for the 2015–2020 period and proposed amendments. The Committee was
61 the proposer of decisions on the dismissal and appointment of the Managing and Supervi- sory Boards of the Provincial Gender Equality Institute. The Committee attended public hear- ings on the occasion of marking: the International Day for the Elimination of Violence Against Women, the Human Rights Day, and the event “Independent Monitoring and Reporting on the Implementation of the National Action Plan (NAP) for the Implementation of Resolution 1325 of the United Nations Security Council”. Joint sessions were held with the Committee on Health, Social Policy and Labour on the topic “European Cervical Cancer Prevention Week”, the Committee on Budget and Finance on the topic “Integrating a Gender Perspective in the Budget Reform Towards Budget Policies that Effectively Contribute to Improving the Position of Women and Men in APV”, the Security Committee on the topic “Initiative of the Provin- cial Secretary for Economy, Employment and Gender Equality on the Occasion of the Cur- rent Tragic Events”, the Committee on Information on the topic “Gender-Sensitive Language and its Use and the Image of Women in the Media with a Focus on Gender Equality” and the Committee on Human and Minority Rights and Gender Equality of the National Assem- bly of the Republic of Serbia – “Achievements and Perspectives in the Fight Against Violence Against Women”. Considerations focused on the Model Gender Equality Law of the Protec- tor of Citizens, the Draft Gender Equality Law and the annual reports on the operation of the Provincial Gender Equality Institute, reports of the Ombudsman, as well as information on: held public hearings, a held meeting with representatives of the municipalities of the Jablanica district, activities and plans of the Provincial Secretariat for the Economy, Employment and Gender Equality in the prevention and protection against domestic violence and other forms of gender-based violence, the implementation of the NAP for the implementation of Resolu- tion 1325 of the United Nations Security Council in the Republic of Serbia, the reproductive health of men in AP Vojvodina and the like.
Table 4 Session Date Agenda
1 10/7/2012 1. Election of the Deputy Chairperson of the Committee
1. Consideration of the Report on Work of the Provincial 2 17/9/2012 Gender Equality Institute for 2011
3 1/10/2012 1. Report of the Provincial Ombudsman for 2011
1. Preparation for participation in the action “Sixteen 4 23/11/2012 Days of Activism Against Violence Against women”
62 Session Date Agenda
1. Marking the International Day for the Elimination 5 26/11/2012 of Violence Against Women “Fighting Domestic Violence”
1. Marking the International Human Rights Day 6 10/12/2012 “Execution of Judgments of the Court of Human Rights in the Case of Serbia”
1. Information about public hearings held on 26 November and 10 December 2012 in the National Assembly of the Republic of Serbia, which were attended by members of the Gender Equality 7 1/2/2013 Committee of the Assembly of AP Vojvodina
2. Information about the meeting held with representatives of the municipalities of the Jablanica district on 24 January 2013
8 25/3/2013 1. Use of gender-sensitive language
1. Report on Work of the Gender Equality Institute for 9 2/4/2013 2012
10 9/4/2013 1. Report of the Provincial Ombudsman for 2012
1. Analysis of research in services for women’s health 11 15/5/2013 care in AP Vojvodina
1. Independent monitoring and reporting on the 12 10/10/2013 implementation of the NAP for the implementation of Resolution 1325
1. Position of women in national minority councils in Serbia
13 29/10/2013 2. Information on the activities of the Women’s Parliamentary Network of the Assembly of AP Vojvodina
63 Session Date Agenda
1. Information on the activities and plans of the Provincial Secretariat for the Economy, Employment 14 13/11/2013 and Gender Equality in the prevention and protection against domestic violence and other forms of gender- based violence
1. Analysis of work and conclusions in 2013 15 23/12/2013 2. Preparation of work plan and programme for 2014
16 22/1/2014 1. European Cervical Cancer Prevention Week
1. Report on Work of the Provincial Gender Equality 17 3/4/2014 Institute for 2013
1. Information on the implementation of the National Action Plan for the implementation of Resolution 18 17/4/2014 1325 of the United Nations Security Council in the Republic of Serbia
1. Report of the Provincial Ombudsman for 2013
2. Initiative for the formation of the working group
19 16/5/2014 3. Launching the initiative for the introduction of gender statistics in the collection and processing of data on domestic violence in the Ministry of Internal Affairs of the Government of the Republic of Serbia
64 Session Date Agenda
1. Defining the Proposed Decision on the Dismissal of the Chairperson and Members of the Managing Board of the Provincial Gender Equality Institute in Novi Sad
2. Defining the Proposed Decision on the Appointment of the Chairperson and Members of the Managing Board of the Provincial Gender Equality Institute in Novi Sad 20 16/6/2014 3. Defining the Proposed Decision on the Dismissal of the Chairperson and Members of the Supervisory Board of the Provincial Gender Equality Institute in Novi Sad
4. Defining the Proposed Decision on the Appointment of the Chairperson and Members of the Supervisory Board of the Provincial Gender Equality Institute in Novi Sad
1. Convention on preventing and combating violence 21 9/9/2014 against women and domestic violence
1. Programme for the Protection of Women against Domestic and Partner Violence in AP Vojvodina 22 17/9/2014 for the period 2014–2020, with a focus on the Convention on preventing and combating violence against women and domestic violence
1. Gender budgeting – state and perspectives
23 12/11/2014 2. Information on the reproductive health of men in AP Vojvodina
1. Position of women and men in the Republic of Serbia 24 19/11/2014 in 2014
65 Session Date Agenda
1. Proposed Decision of the Provincial Assembly on the Budget of AP Vojvodina for 2015
25 18/12/2014 2. Proposed Decision on the Programme for the Protection of Women against Domestic and Partner Violence in AP Vojvodina for the period from 2015 to 2020
1. Amendment to the Proposed Decision on the Programme for the Protection of Women against 26 23/12/2014 Domestic and Partner Violence in AP Vojvodina for the period from 2015 to 2020
1. Integrating the gender perspective into the budget reform towards budget policies that effectively 27 21/1/2015 contribute to the improvement of the position of women and men in AP Vojvodina
1. Proposed Annual Work Programme of the Committee 28 19/2/2015
2. Model Gender Equality Law
1. European perspective of the development of gender 29 30/3/2015 equality and women’s empowerment
1. Report of the Provincial Protector of Citizens – 30 20/4/2015 Ombudsman for 2014
1. Report on Work and Final Account of the Provincial 31 22/5/2015 Gender Equality Institute for 2014
1. Consideration of the initiative of the provincial 32 22/5/2015 secretary for the Economy, Employment and Gender Equality regarding the current tragic events
66 Session Date Agenda
1. Gender-sensitive language and its use
33 23/6/2015 2. Image of women in the media with a focus on gender equality
1. Working meeting on the Proposed Gender Equality 34 29/7/2015 Law
35 10/11/2015 1. Consideration of the Draft Gender Equality Law
1. Achievements and perspectives in the fight against 36 10/12/2015 violence against women
37 29/12/2015 1. Analysis of work in 2015
The Committee was most active in this period. A total of 37 sessions were held, of which two sessions were held in the National Assembly of the Republic of Serbia in co-operation with the Committee on Human and Minority Rights and Gender Equality of the National Assembly of the Republic of Serbia128, while one joint session with this Committee was held in the Assem- bly of AP Vojvodina. In addition to participating in conferences in the National Assembly of the Republic of Serbia organised by the Committee on Human and Minority Rights and Gen- der Equality, the committees intensively co-operated on the consideration of the Draft Gender Equality Law and other topics related to this area. Intensive co-operation was established with four committees of the Assembly of AP Vojvodina (the Committee on Health, Committee on Security, Committee on Budget and Committee on Information) in connection with the gen- der aspect of topics under the remit of these committees, as well as active co-operation with regional representatives from Austria and Sweden on issues important for gender equality, when guests presented to female and male members of the Committee the situation of gender equality in their countries and examples of good practice from their regions. Due to the tragic events and the fact that 26 women were murdered by 22 May 2015 since the beginning of the year, a special session was convened129 on this topic. In this mandate, the Women’s Parliamen-
128 The session was attended by Meho Omerović, Committee’s Chairperson. 129 The session was attended by Miroslav Vasin, Provincial Secretary for Economy, Employment and Gender Equality and Vice-President of the Government of AP Vojvodina, Siniša Radaković, Chief of the Novi Sad Police Administration, Danica Todorov, Deputy Provincial Ombudsman for Gender Equality, Anita Beretić, Assistant Provincial Gender Equality Secretary and Vesna Šijački, director of the Provincial Gender Equality Institute.
67 tary Network (WPN) of the Assembly of AP Vojvodina was established, and the Commit- tee successfully and intensively co-operated with the WPN of the Assembly of AP Vojvodina, holding joint sessions, conferences on various topics and other joint activities, such as mark- ing the campaign “Sixteen Days of Activism Against Violence Against Women”. The analysis of the data from the minutes of Committee sessions indicates the following:
1) Not all male/female members of the Committee were present at any session.
2) Only at one session was the provincial secretary for the Economy, Employment and Gen- der Equality present, and in other cases when the subject of the session was within the pur- view of the Provincial Secretariat, the sessions were attended by the female assistant pro- vincial secretary in charge of gender equality.
3) Although not all male and female members of the Committee participated in the discus- sion, at each session the items on the agenda were discussed.
4) Unlike the previous convocations, the minutes in this mandate were written almost con- sistently in gender-sensitive language. The functions of the chairwoman and deputy chair- woman of the Committee, as well as female guests from other institutions (provincial ombudsman, deputy ombudsman in charge of gender equality, assistant provincial secre- taries, etc.) were written in the feminine gender. Slight deviations that can be observed in some places in the minutes can be considered unintentional errors.
Work of the Gender Equality Committee in the 2016–2020 mandate
The Committee held 13 (out of 15 scheduled) sessions, where 29 agenda items were discussed. The reports of the Provincial Protector of Citizens – Ombudsman and the Provincial Gender Equality Institute were discussed. The International Men’s Day and Human Rights Day were marked, and the Committee participated in the campaign against violence against women. The Committee was the proposer of the Decisions on dismissals and appointments of mem- bers of the Managing and Supervisory Boards of the Provincial Gender Equality Institute.
68 Table 5
Session Date Agenda
1. Election of the Deputy Chairman of the Gender 1 8/7/2016 Equality Committee
1. Report of the Provincial Protector of Citizens – Ombudsman for 2015 2 15/7/2016 2. Report on Work of the Provincial Gender Equality Institute for 2015
1. Current issues on the occasion of the International 3 18/11/2016 Men’s Day, 19 November
1. Information regarding the conclusion of the 4 9/12/2016 campaign “Sixteen Days of Activism Against Violence Against Women”
1. European Cervical Cancer Prevention Week
5 25/1/2017 2. Vaccination against human papillomavirus (HPV) infection
1. Annual Work Programme of the Committee for 2017
2. Information on the implementation of the 6 1/3/2017 Programme for the Protection of Women against Domestic and Partner Violence in AP Vojvodina in 2015 with conclusions
1. Report of the Provincial Protector of Citizens – Ombudsman for 2016 7 10/4/2017 2. Report on Work of the Provincial Gender Equality Institute for 2016
8 - - (no data)
69 Session Date Agenda
1. Appointment of persons for the implementation of the National Action Plan for the Implementation 9 6/7/2017 of Resolution 1325 of the United Nations Security Council – Women, Peace and Security in the Republic of Serbia (2017–2020)
10 - - (no data)
1. Proposed Decision on the Dismissal of the Chairperson and Members of the Managing Board of the Provincial Gender Equality Institute
2. Proposed Decision on the Appointment of the Chairperson and Members of the Managing Board of the Provincial Gender Equality Institute 11 10/11/2017 3. Proposed Decision on the Dismissal of the Chairperson and Members of the Supervisory Board of the Provincial Gender Equality Institute
4. Proposed Decision on the Appointment of the Chairperson and Members of the Supervisory Board of the Provincial Gender Equality Institute
1. Familiarisation with the programme “Sixteen Days of Activism Against Violence Against Women” 12 20/11/2017
2. Marking the International Men’s Day
1. Annual Report of the Provincial Protector of Citizens – Ombudsman for 2017 13 26/3/2018 2. Proposed Annual Work Programme of the Committee for 2018
70 Session Date Agenda
1. Report on Work of the Provincial Gender Equality 14 4/5/2018 Institute for 2017
1. Report of the Provincial Protector of Citizens – Ombudsman for 2018
2. Report on Work of the Provincial Gender Equality 15 9/4/2019 Institute for 2018
3. Proposed Annual Work Programme of the Gender Equality Committee for 2019
After the intensive work of the Gender Equality Committee in the previous mandate, 15 ses- sions were held in this mandate.130 In addition to regular activities within its competence, in co-operation with the Committee on Health of the Assembly of AP Vojvodina, the Committee considered topics in the field of women’s health and prevention, followed the implementation of the programme for the Protection of Women against Domestic and Partner Violence and, for the first time, appointed persons for implementation of the National Action Plan for the Implementation of Resolution 1325 of the United Nations Security Council – Women, Peace and Security in the Republic of Serbia (2017–2020) on behalf of AP Vojvodina. The analysis of the data from the minutes of Committee sessions indicates the following:
1) All male and female members of the Committee were present at three sessions.
2) The provincial secretary for social policy, demographic policy and social care for children was present at two sessions, and the female assistant provincial secretary or another male/ female representative of the Secretariat was present at other sessions.
3) A discussion was held at all sessions, but not all male and female members participated.
4) Co-operation with the Committee on Health continued and a joint session was organised.
130 The archive contains minutes from 13 sessions. This refers to items 8 and 10 in Table 5, given that there are no minutes from the 8th and 10th sessions of the Committee.
71 5) The work of the Committee in this mandate was characterised by frequent changes of the Committee’s secretary. As many as five were changed, which resulted in the lack of minutes from the eighth and tenth sessions. The use of gender-sensitive language largely depends on who takes the minutes of the session, i.e. who from the professional service is in charge of following a certain session.
Work of the Gender Equality Committee in the 2020–2024 mandate
In the current mandate, ending on 28 April 2023, the Gender Equality Committee held nine sessions, and 22 agenda items were discussed. The Committee considered the reports of the Provincial Protector of Citizens – Ombudsman and reports on the work of the Provincial Gender Equality Institute, determined the proposal of representatives of the Assembly of the Autonomous Province of Vojvodina for a female member and female deputy member of the Political Council for the Implementation of the National Action Plan for the Implementa- tion of Resolution 1325 of the United Nations Security Council – Women, Peace and Secu- rity in the Republic of Serbia and was the proposer of decisions on dismissals and appoint- ments of members of the Managing and Supervisory Boards of the Provincial Gender Equal- ity Institute.
Table 6
Session Date Agenda
1. Election of the Deputy Chairperson of the Committee 1 30/11/2020 2. Campaign “Sixteen Days of Activism Against Violence Against Women”
1. Consideration of the report of the Provincial Protector of Citizens – Ombudsman for 2019 2 5/2/2021 2. Proposal of the Annual Work Programme of the Committee for 2021
72 Session Date Agenda
1. Annual Report of the Provincial Protector of Citizens – Ombudsman for 2020
2. Report on Work of the Provincial Gender Equality 3 19/4/2021 Institute for 2019
3. Report on Work of the Provincial Gender Equality Institute for 2020
1. Proposed Decision on the Appointment of the 4 15/6/2021 Chairperson of the Managing Board of the Provincial Gender Equality Institute
1. Determining the proposal of representatives of the Assembly of AP Vojvodina for a member and deputy member of the Political Council for the 5 30/8/2021 implementation of the National Action Plan for the Implementation of Resolution 1325 of the United Nations Security Council – Women, Peace and Security in the Republic of Serbia
1. Proposal of the Appointment of the Chairperson and Members of the Managing Board of the Provincial Gender Equality Institute 6 26/10/2021 2. Proposal of the Appointment of the Chairperson and Members of the Supervisory Board of the Provincial Gender Equality Institute
1. Consideration of the Annual Report of the Provincial Protector of Citizens – Ombudsman for 2021 7 1/6/2022 2. Proposal of the Annual Work Programme of the Committee for 2022
1. Report on Work and Activities of the Provincial 8 24/6/2022 Gender Equality Institute for 2021
73 Session Date Agenda
1. Determining the proposal of representatives of the Assembly of the Autonomous Province of Vojvodina for a member and deputy member of the Political 9 30/1/2023 Council for the Implementation of the National Action Plan for the Implementation of Resolution 1325 of the United Nations Security Council – Women, Peace and Security in the Republic of Serbia
In the current convocation, at nine sessions held so far, the Committee mostly dealt with ongoing issues under its competence. No activity was observed that could be cited as innova- tion or specificity compared to the previous convocations. The analysis of the data from the minutes of Committee sessions indicates the following:
1) Only one session was attended by all male and female members of the Committee.
2) There were discussions, but a small number of female/male members of the Committee participate in them.
3) The Provincial Secretary for Social Policy, Demography and Gender Equality was never present at the sessions of the Committee – most often the female undersecretary attended the sessions instead of him. Even the Provincial Protector of Citizens – Ombudsman was never present at the Committee sessions. The female deputy in charge of gender equality attended instead of him.
4) The specificity of this convocation of the Committee is reflected in the fact that all the minutes are precisely and consistently written in gender-sensitive language, except when it comes to the function of the chairwoman (chairman) of the Gender Equality Committee, which is always indicated exclusively in the masculine gender, even though it is performed by a woman. This suggests that the MP who is the chairwoman of this working body insists that her function be stated in the masculine gender.
74 4 COMPOSITION OF THE GENDER EQUALITY COMMITTEE IN 2003–2023
Mandate 2000–2004.131 Chairman: Zlatko Milićević; Female and male members: 1. Gordana Čomić 2. Jelena Jevtić 3. Miroljub Lješnjak 4. Donka Stančić 5. dr Marija Popin 6. Zorica Bun- dalo 7. Telleki Julijana 8. Pavela Jano 9. Petar Pešić 10. Tođeraš Jonike.
Mandate 2004–2008.132 Chairwoman: Jadranka Beljan Balaban; Female and male members: 1. Zdenka Jokić 2. Seleši Đenđi 3. Petar Andrejić 4. Maja Sedlarević 5. Aleksandra Sujić 6. Milena Stupar Vasić 7. Velibor Radusinović, PhD 8. Takač Marta.
Later, in 2006, Gordana Kalnak was elected as a member of the Committee133.
Mandate 2008–2012.134 Chairwoman: Tanja Jovanović; Female and male members: 1. Seleši Đenđi 2. Vislavski Leona 3. Goran Ivić, PhD 4. Branislav Damjanov 5. Dane Pribić 6. Bohuš Jan 7. Dragana Latovljev 8. Milena Maksimović 9. Marija Radojčić 10. Jelena Milinić
Later, Jadranka Beljan-Balaban was elected as a member of the Committee instead of Dane Pribić135.
Mandate 2012–2016.136 Chairwoman: Stojanka Lekić; Female and male members: 1. Ilija Vojinović 2. Seleši Đenđi, MA 3. Darko Vukoje 4. Tanja Dokmanović 5. Nada Bodrožić 6. Vera Ugrčić Ilić 7. Goran Gonđa 8. Nataša Lalić 9. Takač Zoltan 10. Marijana Četojević.
Later, in 2014, instead of Marijana Četojević, Ivana Zečević was elected as a member of the Committee137, while in 2015 Kovač Tinde was elected as a member of the Committee instead of Takač Zoltan138.
131 Decision Amending the Decision on the Election of the Chairperson and Members of the Committee of the Assembly of AP Vojvodina (No 020-5 of 22 April 2003). 132 Decision on the Election of the Chairperson and Members of the Committee of the Assembly of AP Vojvodina (No: 020-19, 30 October 2004). 133 Decision Amending the Decision on the Election of the Chairperson and Members of the Committee of the Assembly of AP Vojvodina (No 020-19/2006, 12 December 2006). 134 Decision on the Election of the Chairperson and Members of the Committee of the Assembly of AP Vojvodina (No 020-14/08, 16 July 2008). 135 Decision Amending the Decision on the Election of the Chairperson and Members of the Committee of the Assembly of AP Vojvodina (No 020-14/08, 11 October 2010). 136 Decision on the Election of the Chairperson and Members of the Committee of the Assembly of AP Vojvodina (No 020-15/12, 22 June 2012). 137 Decision Amending the Decision on the Election of the Chairperson and Members of the Committee of the Assembly of AP Vojvodina (No 020-15/12, 19 June 2014). 138 Decision Amending the Decision on the Election of the Chairperson and Members of the Committee of the Assembly of AP Vojvodina (No 020-15/12, 8 April 2015).
75 Mandate 2016–2020.139 Chairwoman: Ana Tomanova Makanova; Female and male mem- bers: 1. Nada Milanović 2. Snežana Sedlar 3. Stojanka Lekić 4. Darko Vukoje 5. Mia Strajin 6. Rajka Lučar 7. Jelena Delić 8. Goran Gonđa 9. Maja Sedlarević, MA 10. Gizela Crkvenjakov.
Later, in 2016, Dragana Đurić Bulatović was elected as a member of the Committee, instead of Gizela Crkvenjakov.140.
Mandate 2020–2024.141 Chairwoman: Latinka Vasiljković; Female and male members: 1. Milica Božić 2. Buranj Hajnalka 3. Nataša Lalić 4. Stojanka Lekić 5. Smiljana Glamočanin Varga 6. Marina Nedeljković, PhD 7. Milan Subotin 8. Ivana Rosić 9. Vesna Furundžić 10. Gizela Crkvenjakov.
Later, in 2020, Goran Puzić was elected as a member of the Committee instead of Milan Sub- otin142, while in 2022, Jelena Lopušina was elected as a member of the Committee, instead of Smiljana Glamočanin Varga143.
139 Decision on the Election of the Chairperson and Members of the Committee of the Assembly of AP Vojvodina (No 020-13/2016, 20 June 2016). 140 Decision Amending to the Decision on the Election of the Chairperson and Members of the Committee of the Assembly of AP Vojvodina (No 020-13-2/16, 28 September 2016). 141 Decision on the Election of the Chairperson and Members of the Committee of the Assembly of AP Vojvodina (No 020-13/2016, 20 June 2016). 142 Decision Amending the Decision on the Election of the Chairperson and Members of the Committee of the Assembly of AP Vojvodina (No: 020-17-1/2020-01, 17 December 2020). 143 Decision Amending the Decision on the Election of the Chairperson and Members of the Committee of the Assembly of AP Vojvodina (Np: 020-17-1/2020-01, 28 June 2022). Table 7: Overview of the participation of women and men in the composition of the Committee by mandate
2004 - 2008 2003 - 2004
2020 - 2023 2008 - 2012
2016 - 2020 2012 - 2016 Mandate
Chairman/ 1/0 0/1 0/1 0/1 0/1 0/1 Chairwoman
Female 6 8 67 67 8 9 members
Male 4 2 43 43 2 1 members
Changes 0 1ž 1 f/1 m 1 f/1 f 1 f/1 f 1 m/1 m
1 f/1 m 1 f/1 f
Total 11 11 11 11 11 11
The overview of the decisions on the appointment of the chairman/chairwoman and mem- bers of the Gender Equality Committee of the Assembly of AP Vojvodina shows the following:
1) Only in the first mandate, when the Gender Equality Committee was formed, it was headed by a man, and in all other mandates the Committee was headed by women.
2) In the second mandate (2004–2008), the Chairwoman of the Committee was from the ranks of the minority partner in the ruling coalition (Jadranka Beljan Balaban from G17+), in the third mandate (2008–2012) the Chairwoman of the Committee was an MP from the ranks of the opposition (Tanja Jovanović from the Serbian Radical Party), in the fourth mandate (2012–2016) the Chairwoman of the Committee was from the opposition (Sto- janka Lekić from the Serbian Progressive Party), in the fifth mandate (2016–2020) the Chairwoman was from the opposition (Ana Tomanova Makanova from the Democratic Party), while in the current, sixth mandate, the Chairwoman of the Committee is an MP from the largest party in the ruling coalition (Latinka Vasiljković from the Serbian Pro- gressive Party).
77 3) In all mandates, female members are represented in greater numbers than male members.
4) The decisions were written exclusively in the masculine gender and the rule of using gen- der-sensitive language was not respected.
5 CONCLUSION
After twenty years of their operation, the Gender Equality Committee of the Assembly of AP Vojvodina and other gender equality mechanisms in AP Vojvodina demonstrate the will of the provincial administration to continuously deal with the improvement and achievement of gender equality in Vojvodina and the need to institutionally deal with the (in)equality of women and men, which is what we continue to witness.
The analysis of the work of the Gender Equality Committee shows the fluctuation of the sta- tus and activities of the Committee as a working body of the Assembly of AP Vojvodina, which depend on the person who leads it, the person’s interest in the topic, personal stance and the stance of the party the person comes from, as well as the female and male members of the Committee, their interest in the topic, regular attendance at meetings and participation in the discussion and work of the Committee. The relationship with the relevant provincial secretar- iat is also indicative (the Provincial Secretariat for Labour, Employment and Gender Equal- ity / Provincial Secretariat for the Economy, Labour and Gender Equality/ Provincial Secre- tariat for Social Policy, Demographic Policy and Social Care of Children / Provincial Secre- tariat for Social Policy, Demography and Gender Equality). The analysis of the minutes shows that in the first two mandates, the female provincial secretary, in addition to current issues and information on the state of gender equality in AP Vojvodina, regularly submitted work reports and spoke about the work plans of the Provincial Secretariat for Labour, Employment and Gender Equality, while in later mandates, those reports were absent, and, eventually, the competent provincial secretary never or almost never attends the sessions of the Commit- tee. This means that the borderline between the legislative and executive branches has been lost and it has been forgotten that the legislative branch is superior to the executive branch and that the competent Committee, as a parliamentary working body, should not only moni- tor but also supervise the work of the competent secretariat and other institutions in the field of gender equality.
Following the work of the Committee through the mandates by the number of sessions, top- ics that were dealt with and co-operation that was achieved (or did not take place at all) tes- tify to the status and activities of the Committee and co-operation with other gender equal- ity mechanisms. For instance, in one mandate (2012–2016), 37 sessions were held, co-oper-
78 ation was achieved with four other working bodies of the Assembly of AP Vojvodina and the competent committee of the National Assembly of the Republic of Serbia, the Women’s Par- liamentary Network was formed, while, for instance, in the current mandate, nine sessions have been held so far, where only ongoing issues under the competence of the Committee were considered, while no initiative, extraordinary activity or proposal for co-operation was on the agenda. It is noticeable that, in contrast to the first mandate, when the competent sec- retary attended each session, actively participated in the work of the Committee and submit- ted a report on her work to the Committee, later this was less and less the case, and in the current mandate, the Provincial Gender Equality Secretary never attended a session of the Gender Equality Committee. It is an example of the attitude of the executive branch, or its part, towards the Assembly of AP Vojvodina and its working bodies. These examples show that the work of the Gender Equality Committee cannot be viewed outside the context of the socio-political circumstances in which the Committee operates.
Two conclusions can be drawn in relation to the use of gender-sensitive language in the min- utes. First, the use of gender-sensitive language depends on the will of the person who takes the minutes (male/female Secretary of the Committee) and the person who presides over the session (chairman/chairwoman or deputy chairman/chairwoman), who together with the male/female secretary prepares the convocation and the minutes for consideration and adop- tion. Over time, the situation with the use of gender-sensitive language has improved and it is used more consistently in subsequent mandates. Second, the use of gender-sensitive lan- guage depends on the political will of the current political elite represented in the assembly, and the evidence for this is that after several mandates of gradual introduction and regular use of gender-sensitive language, gender-sensitive language is used in the minutes of the ses- sions of the Committee in the current mandate, except for the position of the current chair- woman, who insists on signing as: the chairman. Despite the adopted Gender Equality Law, which regulates the use of gender-sensitive language in the public sphere, the will to imple- ment the Law is lacking.
All the above is a reflection of the society in which we live. On the one hand, we witness inno- vative initiatives necessary for building a democratic and civil society (such as the Gender Equality Committee of the Assembly of AP Vojvodina and other gender equality mechanisms in AP Vojvodina), and on the other hand, we attest to patriarchal norms which are deeply embedded in society, are difficult to overcome, and hinder the processes of democratization.
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Dvadeset godina skupštinskih mehanizama za rodnu ravnopravnost u Srbiji
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Prof. dr Marijana Pajvančić Prof. dr Nevena Petrušić mr Maja Sedlarević Dvadeset godina skupštinskih mehanizama za rodnu ravnopravnost u Srbiji Autorke: Prof. dr Marijana Pajvančić Prof. dr Nevena Petrušić mr Maja Sedlarević
Izdavač: Misija OEBS-a u Srbiji
Dizajn i prelom: Milica Dervišević
Štampa: Jovšić Printing Centar
Tiraž: 100 primeraka
novembar, 2023.
Štampanje ove publikacije omogućila je Misija OEBS-a u Srbiji.
Stavovi izrečeni u publikaciji pripadaju isključivo autorkama i ne predstavljaju nužno zvaničan stav Misije OEBS-a u Srbiji.
Svi pojmovi koji su u publikaciji upotrebljeni u muškom gramatičkom rodu obuhvataju muški i ženski rod lica na koja se odnose.
2 Sadržaj
Prof. dr Marijana Pajvančić Osvrt na proces formiranja institucionanih mehanizama za rodnu ravnopravnost u Republici Srbiji..................7
Prof. dr Nevena Petrušić Parlamentarni mehanizam za rodnu ravnopravnost Narodne skupštine Republike Srbije 2003 – 2023.................................25
mr Maja Sedlarević Odbor za ravnopravnost polova Skupštine AP Vojvodine 2003 – 2023. godine............................................................................................................47
3 PREDGOVOR Sama ideja žena u politici nekad je bila nezamisliva. U međuvremenu, mnogo toga se pro- menilo i nesporno je ostvaren veliki napredak, ali to ne znači da se možemo pohvaliti da smo postigli punu ravnopravnost. Ni danas nije lako biti žena u politici zbog same činjenice da, za razliku od muškarca, morate uverljivije dokazivati da ste dostojni pozicije koju zauzimate.
Srbija je proteklih godina učinila značajne korake na planu povećanja učešća žena u javnom i političkom životu i sa više od 30 odsto poslanica u nacionalnom parlamentu i velikim bro- jem žena u najvišim organima izvršne vlasti postala jedan od lidera po ovom pitanju u Evropi. Međutim, kvote same po sebi nisu dovoljne. Evidentno je da se broj žena u politici pove- ćava, ali uglavnom na izvršilačkim pozicijama - trenutno je samo 21 žena predsednica grada ili opštine, a 34 žene su na mestima predsednica skupštine grada ili opštine. Žene u politički život unose nove ideje i perspektive, otvaraju dijaloge i diskusije na mnoge teme koje nisu ni bile prisutne u javnom životu. Zato su žene u politici posebna vrednost i veliki potencijal koji kao društvo moramo iskoristiti i razumeti na pravi način.
Davne 1918. godine žene su na izborima za Veliku narodnu skupštinu u Novom Sadu prve u Evropi imale pravo glasa i izabrale sedam poslanica. Prisustvo žena u parlamentu je potom dugo bilo više izuzetak nego pravilo, a od tada do danas, Narodna skupština kao najviše zako- nodavno telo pokazala je da može da bude ogledalo društva i mesto gde se poštuje pravo na ravnopravnost. Važan korak bilo je uvođenje kvota, ali su žene u parlamentu pokazale političku zrelost i odgovornost, i napravile korak dalje, jer su se kroz Žensku parlamentarnu mrežu udružile u interesu ostvarivanja viših ciljeva. Naime, poslanice su se 2013. godine prvi put udružile sa namerom da nadiđu stranačke programe i različitosti, ali i da kroz uticaj Žen- ske parlamentarne mreže dosegnu znatno dalje izvan skupštinskih klupa i utiču na promenu života na bolje mnogim ženama u Srbiji, naročito kada se radi o položaju žena koje su margi- nalizovane u društvu. Kao veliki izazov ostaje povećanje broja žena na mestima gde se donose odluke, i na republičkom i na lokalnom nivou, kao i na pozicijama sa kojih se odlučuje o finan- sijama, bezbednosti i svim onim pitanjima koja su do sada bila rezervisana uglavnom za muš- karce. Jednom prilikom sam konstatovala sa generalnom sekretarkom OEBS-a Helgom Šmid: „Bez žena za stolom nema ni mira ni stabilnosti – ni za stolom ni van njega“.
Poverenik za zaštitu ravnopravnosti kao nacionalna institucija za borbu protiv diskriminacije i unapređenje ravnopravnosti, u okviru Narodne skupštine sarađuje, pre svega, sa skupštinskim Odborom za ljudska i manjinska prava i rodnu ravnopravnost, kao i sa Ženskom parlamen- tarnom mrežom, ali koristi i sve druge platforme poput javnih slušanja, konferencija, debata i
5 slično. Kroz analizu učešća žena u javnom i političkom životu, redovno sagledavamo položaj žena i pratimo napredak u ovoj oblasti, duboko svesni činjenice da je učešće žena preduslov za njihovo sveukupno ekonomsko i društveno uključivanje. Ako nema žena na pozicijama poli- tičkih odlučivanja, nemamo ni šansu da vodimo kvalitetne javne politike. Rodna ravnoprav- nost je pitanje održivog razvoja i, u krajnjem slučaju, pitanje naših vitalnih nacionalnih inte- resa. Nema demokratije bez aktivnog učešća žena u politici i fokusiranja na primenu principa pune ravnopravnosti žena i muškaraca u svim društvenim oblastima. Upravo zato su skup- štinski mehanizmi za ostvarivanje rodne ravnopravnosti značajni jer pružaju ženama koje su postale poslanice mogućnost da svojim ličnim primerom ohrabre druge žene da se uključe u politički ili javni život. Jasan primer glasno govori.
Brankica Janković, poverenica za zaštitu ravnopravnosti
6 Prof. dr Marijana Pajvančić
OSVRT NA PROCES FORMIRANJA INSTITUCIONALNIH MEHANIZAMA ZA RODNU RAVNOPRAVNOST U REPUBLICI SRBIJI Proces formiranja institucionalnih mehanizama za rodnu ravnopravnost odvijao se pod utica- jem nekoliko faktora čije kumulativno delovanje i sinergijski efekat oblikuju ambijent u kome je funkcionisanje institucionalnih mehanizama moguće. Ovi faktori uključuju:
· Povećanje zastupljenosti žena u organima javne vlasti, u prvom redu u neposredno biranim predstavničkim telima građana i građanki. · Oblikovanje međunarodnih standarda rodne ravnopravnosti uključujući i mehanizme rodne ravnopravnosti kao jedan od standarda i uključivanje ovih standarda u nacionalno zakonodavstvo. · Komparativnu praksu, iskustva i primere dobre prakse kao podsticaj. · Političku volju i spremnost političkih aktera (političke stranke, organi javne vlasti) da prihvate i uspostave ove nove institucije u sistemu organa javne vlasti.
1. Međunarodni dokumenti o mehanizmima za rodnu ravnopravnost
Podsticaj formiranju institucionalnih mehanizama za rodnu ravnopravnost (u daljem tekstu mehanizmi rodne ravnopravnosti) bili su i brojni univerzalni i regionalni međunarodni doku- menti. Rodna nejednakost prepoznata je kao svetski problem.1 Na Prvoj svetskoj konferenciji o ženama (Meksiko Siti 1975. godine) proglašena je dekada žena i usvojen Svetski plan akcije u kome su mehanizmi rodne ravnopravnosti prepoznati kao instrumenti za ostvarivanje jed-
1 Komisija UN za status žena još 1962. godine ukazala je na značaj formiranja nacionalnih komisija za status žena. Videti: Mršević, Z. (2011) Ka demokratskom društvu – rodna ravnopravnost, Institut društvenih nauka, Beograd, str. 99.
7 nakih mogućnosti za žene2, što je rezultiralo osnivanjem nacionalnih mehanizama za rodnu ravnopravnost u više od 90% zemalja u svetu.3 Potom je Generalna skupština UN-a usvo- jila Konvenciju o eliminisanju svih oblika diskriminacije žena kao ključni dokument u obla- sti rodne ravnopravnosti.4 Na Četvrtoj svetskoj konferenciji o ženama (Peking 1995. godine) usvojene su Pekinška deklaracija i Platforma za akciju5 u kojima se naglašava značaj mehani- zama za rodnu ravnopravnost i suštinski menja pristup rodnoj ravnopravnosti koji se foku- sira na integrisanje rodne perspektive u proces kreiranja i učešće u odlučivanju o javnim poli- tikama. Jedan od preduslova za tu važnu promenu je formiranje i aktivnost mehanizama za rodnu ravnopravnost. U Platformi za akciju konstatuje se da su mehanizmi rodne ravnoprav- nosti formirani na nacionalnim nivoima različiti i da njihov rad otežavaju brojne prepreke kao što su: nedovoljna politička podrška vlasti, marginalizacija ovih tela u strukturi vlasti, neja- sni mandati koji otežavaju rad, nepostojanje adekvatnog osoblja, nedostatak obuka o rodnoj ravnopravnosti, nedostatak podataka o rodnoj ravnopravnosti, kao i finansijskih sredstava i druge logistike potrebne za njihov rad.6
Usvojeno je više univerzalnih međunarodnih dokumenata o rodnoj ravnopravnosti u razli- čitim oblastima. U ovom kontekstu izdvajamo one koji izričito navode mehanizmime rodne ravnopravnosti poput Plana međuparlamentarne unije za otklanjanje neravnoteže između
2 Videti: Mršević, Z. (2001) Standardi i mehanizmi za rodnu ravnopravnost u demokratskim zemljama, Beograd, OSCE; Mršević, Z. Mehanizmi za rodnu ravnopravnost, GENERO br. 12/2008 str. 7 – 22. 3 Izveštaj Svetske konferencije za revidiranje i ocenu dostignuća Decenije UN za žene: Ravnopravnost, razvoj i mir, održane 15. i 16. 6. 1985. godine usvojen u Najrobiju juna 1992. godine. Izvor: Ravnopravnost spolova u međunarodnim dokumentima, Agencija za ravnopravnost spolova BIH, Sarajevo 2008. str. 104 – 105. 4 Usvojena 18. 12. 1979. godine, potvrđena 1981. godine „Službeni list SFRJ - međunarodni ugovori“, br. 11/1981. dostupno na: https://www.paragraf.rs/propisi/zakon_o_ratifikaciji_konvencije_o_eliminisanju_ svih_oblika_diskriminacije_zena.html 5 Dostupno na: http://www.e-jednakost.org.rs/kurs/kurs/download/pekinska_deklaracija.pdf. Više: Pajvančić, M. i Petrušić, N. Značaj institucionalnih mehanizama za ostvarivanje rodne ravnopravnosti, Zbornik radova Pravnog fakulteta u Nišu, br. 67/2014. str. 26 – 27. 6 Poglavlje H, strateški cilj H.1. tačke 156 - 210 Platforme za akciju. Izvor: Op. cit. str. 70 – 71. Nakon 25 godina od usvajanja Pekinške deklaracije i Platforme za akciju Republika Srbija pripremila je Nacionalni izveštaj o napretku u primeni ovih dokumenata uključujući i mehanizme za rodnu ravnopravnost, str. 76 – 81. Dostupno na: https://www.rodnaravnopravnost.gov.rs/sites/default/files/2020-04/Nacionalni%20 pregled%20Pekinska%20deklaracija%20SRB.pdf
8 učešća muškaraca i žena u političkom životu (1992)7, Univerzalne deklaracije o demokratiji (1997)8, Svetske deklaracije Međunarodnog saveza lokalnih vlasti (1998)9 i dr.
I na regionalnom nivou (Evropa)10, usvojeni su brojni dokumenti o rodnoj ravnopravnosti. Suštinsku promenu trasiraju Deklaracija o ravnopravnosti žena i muškaraca (1988)11 koja polazi od ravnopravnost žena i muškaraca kao temeljnog principa integrisanog u sva ljudska prava, a rodnu diskriminaciju definiše kao kršenje osnovnih ljudskih prava, kao i dokumenti Evropske komisije iz 1996. godine12 i Saveta Evrope iz 1966. godine13 o urodnjavanju javnih politika. U više dokumenata Saveta Evrope, OEBS-a i Evropske unije usvojenih nakon 2000. godine mehanizmi rodne ravnopravnosti14, kao deo sistema javne vlasti, prepoznati su kao važni instrumenti15 čija aktivnost je usmerena na unapređenje rodne ravnopravnosti, obez- beđivanje koordinacije i saradnje u cilju integrisanja rodne ravnopravnosti u javne politike16,
7 U planu se navode četiri ključne aktivnosti: eksplicitno garantovanje jednakosti muškaraca i žena u ustavu ili aktu ustavne snage; donošenje posebnog zakona koji obezbeđuje princip jednakosti; formiranje mehanizama rodne ravnopravnosti i rodno senzitivan jezik u zakonodavstvu. Videti: Mršević, Z. (2008) Op. cit. str. 12 – 14. 8 Član 4. Univerzalne deklaracije o demokratiji „Postizanje demokratije podrazumeva iskreno partnerstvo između muškaraca i žena u vođenju poslova društva u kome rade u jednakim uslovima i u komplementarnosti, izvlačeći obostranu korist iz svojih razlika“. Interparlamentarni savet 161. sednica (Kairo, 16. 9. 1997. godine), dostupno na: http://www.parlament.gov.rs/upload/documents/Univerzalna%20Deklaracija%20o%20demokratiji%20LAT.pdf 9 Videti: Mršević, Z. (2008) Op. cit. str. 12 – 14. 10 U ovom konteksu pominjemo da je 1979. godine osnovan prvi Odbor Saveta Evrope za promociju ravnopravnosti žena i muškaraca. Više o mehanizama rodne ravnopravnosti u državama EU videti: Effectiveness of Institutional Mechanisms for the Advancement of Gender Equality Review of the implementation of the Beijing Platform for Action in the EU Member States, 24. 8. 2014. godine, dostupno na: http://eige.europa.eu/ sites/default/files/MH0213481ENC_0.pdf 11 Deklaraciju je usvojilo Veće ministara Saveta Evrope 16. XI 1988. godine. 12 Dokument Evropske komisije: Incorporating Equal Opportunities For Women And Men Into All Community Policies And Activities COM (96) 67 final. Dostupno na: http://eur-lex.europa.eu/legal-content/EN/TXT/ PDF/?uri=CELEX: 51996DC0067&from=EN 13 Dokument Saveta Evrope Gender Mainstreaming: Conceptual Framework, Methodology and Presentation of Good Practices, Expert Group Final Report, (EG-S-MS), Council of Europe, EG (99) 3, Strasbourg, February 1999. Dostupno na: https://www.unhcr.org/3c160b06a.pdf . 14 Npr. Preporuka Saveta Evrope R (2000) usvojena 13. 5. 2000. godine na 710. sastanku zamenika ministara. Izvor: Ravnopravnost spolova u međunarodnim dokumentima – Vijeće Evrope, Agencija za ravnopravnost spolova BIH, Sarajevo 2008 – str. 89 – 97; Preporuka Saveta Evrope br. (2003) 3, usvojena 12. 3. 2003. godine na 831. sastanku pomoćnika ministara. Izvor: op. cit. 2008, str. 115 - 123. 15 Preporuke usvojene na Konferenciji Integrisanje rodnog aspekta: Korak u 21. vek, održanoj u Atini 16 – 18. 9. 1999. godine. Izvor: op. cit. 2008, Poglavlje II, str. 141. 16 Preporuka Saveta Evrope R (2000) poglavlje VII - mere koje treba preduzeti sa ciljem koordinacije i kooperacije na polju rodne ravnopravnosti u tački 50(i) naglašava „uspostavljanje koordinacionog mehanizma koji će biti zadužen da, na nivou države, osmisli strategiju borbe protiv trgovine ljudima i uspostavi multidisciplinarni pristup ovom problemu“. Izvor: op. cit. 2008. str. 96.
9 stvaranje uslova i mera za ravnomerno učešće u političkom i javnom životu17, jačanje nezavi- snih institucija u oblasti zaštite ljudskih prava i rodne ravnopravnosti18 i dr.
2. Mehanizmi rodne ravnopravnosti u Srbiji – iniciranje procesa i formiranje
Podsticaj za formiranje mehanizama rodne ravnopravnosti u Srbiji bili su zaključci sa konfe- rencije žena održane na Paliću19 i povećan broj poslanica u Narodnoj skupštini nakon izbora održanih u decembru 2000. godine. U takvim okolnostima središte aktivnosti na ostvari- vanju rodne ravnopravnosti pomereno je u institucije. U tom trenutku u pravnom sistemu nisu postojale nužne institucionalne pretpostavke za ostvarivanje prava na ravnopravno uče- šće žena i muškaraca u kreiranju i odlučivanju o javnim politikama značajnim za rodnu rav- nopravnost.20 Rad na formiranju mehanizama rodne ravnopravnosti započet je na konferen- ciji Perspektive žena u novom političkom kontekstu.21 Predlozi za formiranje mehanizama rodne ravnopravnosti polazili su od potrebe da se u institucijama sistema na svim nivoima vla- sti (skupštine, organi izvršne vlasti, nezavisne institucije koje štite ljudska prava22) formiraju tela nadležna za rodnu ravnopravnost, a oslanjali su se na međunarodne dokumente i isku-
17 Preporuka (2003) 3 Odbora ministara zemalja članica Saveta Evrope o uravnoteženom učešću žena i muškaraca u političkom i javnom odlučivanju, usvojena 12. 3. 2003. godine na 831. sastanku pomoćnika ministara – Dodatak Preporuke, poglavlje A, tačka 16. poziva države članice da „formiraju, podrže i ojačaju nacionalne mehanizme za ravnopravnost kako bi kreirali ravnomernu participaciju u javnom i političkom životu“. Izvor: op. cit. 2008. str. 96. 18 Dvanaesti sastanak ministarskog saveta Saveta Evrope 6 – 7. 4. 2004, MC.DEC/14.04, OEBS-ov Akcioni plan za rodna pitanja u Aneksu poglavlja IV, tačka 42. preporučuje državama članicama da „uspostave ili ojačaju mehanizme za obezbeđivanje rodne ravnopravnosti“ uz akcenat na nezavisne institucije zaštite ljudskih prava, a u poglavlju V, tačka 44 (g) iskazuje spremnost Saveta Evrope da, kao jedan od prioriteta podrži izgradnju nacionalnih mehanizama za ravnopravnost polova kao demokratskih institucija za unapređenje rodne ravnopravnosti. Izvor: op. cit. 2008. str. 64 i 66. 19 Konferencija je održana u februaru 2000. godine. 20 U momentu održavanja Konferencije jedini mehanizаm za rodnu ravnopravnosti postojaо је pri saveznoj vladi (Jugoslovenska komisija za saradnju sa UNICEF-om i za unapređenje položaja žena) i u AP Vojvodini (članica Izvršnog veća AP Vojvodine zadužena za pitanja žena). Status Jugoslovenske komisije za saradnju sa UNICEF-om i za unapređenje položaja žena i njeno mesto u saveznoj administraciji je nejasno. Uredba o obrazovanju saveznih ministarstava i drugih saveznih organa i organizacija i službi savezne vlade („Službeni list SRJ“, br. 41/2001), kao ni Poslovnik o radu savezne vlade („Službeni list SRJ“, br. 41/2001) ne pominju ovu komisiju. 21 Konferencija je održana 22. 6. 2001. godine uz podršku Misije OEBS-a u Srbiji i Star Network-a. Više: Pajvančić, M. Ravnopravnost polova – reprezentovanje u skupštinama i institucionalni mehanizmi, Zbornik (ur. Šijački, Z.) „Pet godina posle“, Pokrajinski zavod za ravnopravnost polova, Novi Sad, 2006, str. 16 – 23; Šijački, Z. Мehanizmi za rodnu ravnopravnost i njihova uloga, [elektronska verzija], dostupno: http://www.e- jednakost.org.rs/kurs/kurs/download /mehanizam_za_rodnu_ravnopravnost.pdf. 22 Više: Orlović, S. Nezavisna tela, četvrta grana vlasti ili kontrolor vlasti, Zbornik (ur. Pavlović, V. i Stojiljković, Z.) „Savremena država: struktura i socijalne funkcije“ Konrad Adenauer Stiftung, Fakultet političkih nauka, Centar za demokratiju, Beograd, 2010, str. 231- 269.
10 stva u drugim zemljama.23 Podršku formiranju ovih mehanizama i aktivnostima prvih meha- nizama uspostavljenih na lokalnom nivou pružila je Misija OEBS-a u Srbiji.
3. Mehanizmi rodne ravnopravnosti u predstavničkim telima
Primarna aktivnost bila je usmerena na oblike institucionalnog delovanja u skupštinama. Raz- matrane su različite mogućnosti (stalna ili povremena radna tela u skupštinama, grupe par- lamentarki/odbornica i dr.), njihove prednosti i nedostaci. Preovladao je stav da je optimalno rešenje formiranje stalnog radnog tela nadležnog za rodnu ravnopravnost u skupštinama. Prednosti ovog rešenja ogledale su se u sledećem:
1) Skupština je predstavništvo građana i građanki. To je najviši organ vlasti koji donosi naj- značajnije odluke. Radna tela skupštine imaju važnu poziciju u odlučivanju, podnošenju predloga i inicijativa. Stalno radno telo za ravnopravnost polova ima povoljniju poziciju u odlučivanju od pozicije koju imaju poslanici i poslanice kao pojedinci.
2) Jak sastav stalnog radnog tela koga čine poslanici i poslanice izabrani na neposrednim izborima. Neposredan izbor zadovoljava važan standard za status mehanizama za rodnu ravnopravnost, koji nalaže da predstavnici u ovim telima budu postavljeni kroz demokrat- ski proces kako bi se smatrali legitimnim predstavnicima svojih grupa.
3) Javnost rada skupštine i njenih radnih tela koja omogućava da oblast rodne ravnopravnosti bude dostupna široj javnosti.
Naredni korak bile su promene normativnog okvira. Izmenama poslovnika formirana su stalna radna tela za ravnopravnost polova u Narodnoj skupštini, Skupštini AP Vojvodine i skupštinama lokalnih samouprava.24 Odbor za ravnopravnost polova formiran je kao stalno radno telo Narodne skupštine.25 Odbor razmatra predloge zakona i drugih propisa sa aspekta ravnopravnosti polova i prati vođenje politike, izvršavanje zakona i drugih propisa koji se odnose na ravnopravnost polova. Odbor za ravnopravnost polova26 obrazovan je u Skupštini
23 Više: Pajvančić, M. Pravni okvir ravnopravnosti polova, Novi Sad, Pokrajinski zavod za ravnopravnost polova, 2008. Dostupno na: https://ravnopravnost.org.rs/wp-content/uploads/2017/03/1-Pravni-okvir- ravnopravnosti-polova.pdf 24 Formiranje lokalnih mehanizama za ravnopravnost polova je podržala Misija OEBS-a uz čiju pomoć su formirani prvi oblici institucionalizovanog delovanja na ostvarivanju ravnopravnosti polova na lokalnom nivou. Ovu aktivnost podržalo je i Ministarstvo za državnu upravu i lokalnu samoupravu. 25 Odbor je formiran 2003. godine. Član 68. Poslovnika Narodne skupštine Republike Srbije, „Službeni glasnik RS“, br. 57/2003. 26 Odbor je formiran 2002. godine. Članovi 20. i 69. Poslovnika Skupštine AP Vojvodine, „Službeni list AP Vojvodine“, br. 23/2002.
11 AP Vojvodine kao stalno radno telo koje razmatra predloge, odluke i opšte akte sa aspekta rav- nopravnosti polova i prati vođenje politike, izvršavanje odluka i propisa vezanih za ravnoprav- nost polova. Zakonom o rodnoj ravnopravnosti iz 2021. godine propisano je da se u Skupštini AP Vojvodine formira stalno radno telo za rodnu ravnopravnost.27
4. Mehanizmi rodne ravnopravnosti u organima izvršne vlasti
Paralelno sa ustanovljavanjem radnih tela u skupštinama tekao je i proces formiranja mehani- zama rodne ravnopravnost u organima izvršne vlasti.
Ostvarivanje rodne ravnopravnosti pretpostavlja i neposredno učešće u kreiranju propisa i javnih politika. Otuda potreba da se ustanove mehanizmi rodne ravnopravnosti i u okviru organa izvršne vlasti. Prednosti ovog oblika institucionalnog delovanja su: mogućnost pod- nošenja predloga i pokretanja inicijativa; uključivanje u pripremu propisa; neposredan uticaj na kreiranje sadržaja i izradu propisa; blagovremeno reagovanje na predloge propisa koje pri- premaju organi uprave; praćenje primene i nadzor nad primenom propisa; pomoć stručnih službi; mogućnost angažovanja eksperata/ekspertkinja; saradnja sa organizacijama civilnog društva; međuresorska saradnja koja je posebno značajna za rodnu ravnopravnost zbog njene multisektorske prirode; budžetska sredstva kojima izvršna vlast raspolaže i drugo.
U organima izvršne vlasti na nacionalnom nivou Odlukom Vlade Republike Srbije formiran je Savet za ravnopravnost polova kao radno telo Vlade, utvrđen je njegov sastav (predstavnici određenog broja ministarstava i eksperti)28 i nadležnosti koje obuhvataju: predlaganje mera i međuresorsku saradnju u oblasti rodne ravnopravnosti; razmatranje usklađenosti zakona sa međunarodnim konvencijama o pravima žena i inicijative za otklanjanje nesklada; praće- nje primene zakona i međunarodnih dokumenata protiv diskriminacije po polu i predlaga- nje mera za njihovo sprovođenje; praćenje stanja u oblasti rodne ravnopravnosti, predlaganje i preduzimanje mera i ocenjivanje efekata mera za postizanje rodne ravnopravnosti; iniciranje programa rodno osetljive statistike; praćenje zastupljenosti žena na izbornim i imenovanim položajima; praćenje i analiziranje kriterijuma selekcije pri izboru i imenovanju na javne funk- cije; iniciranje otklanjanja prepreka u izborima i imenovanjima manje zastupljenog pola; edu- kacija zaposlenih u državnim organima u cilju promovisanja rodne ravnopravnosti; iniciranje programa i predlaganje mera za osposobljavanje žena za učešće u političkom životu i dr. Savet za ravnopravnost polova 2009. godine prerasta u Savet za rodnu ravnopravnost, a prestao je
27 Član 62. stav 2. Zakona o rodnoj ravnopravnosti, „Službeni glasnik RS“, br. 51/2021. 28 Odluka je doneta u februaru 2003. godine, „Službeni glasnik RS“, br. 13/03, 83/04, 3/05. da postoji nakon izbora Vlade 2014. godine. Iste godine Vlada je formirala Koordinaciono telo za rodnu ravnopravnost29 nadležno da koordinira rad državne uprave u vezi sa rodnom rav- nopravnošću30 u okviru koga je formirana i stručna grupa koja obavlja stručne poslove vezane za rodnu ravnopravnost.31 Usvajanjem Zakona o rodnoj ravnopravnosti 2021. godine32 po prvi put su zakonom regulisani svi mehanizmi rodne ravnopravnosti.33 Prema novim zakonskim rešenjima34 Vlada Republike Srbije je nadležna da: kreira, sprovodi, prati i unapređuje politike rodne ravnopravnosti, vodi računa o usaglašenosti politika i mera koje se preduzimaju u obla- sti rodne ravnopravnosti sa međunarodnim obavezama Srbije; razvija i vodi aktivnu politiku jednakih mogućnosti u svim sferama društvenog života, kojom se obezbeđuje ravnopravno učešće žena i muškaraca u svim fazama planiranja, pripreme, donošenja i sprovođenja odluka koje utiču na položaj žena i muškaraca; određuje mere u cilju stvaranja jednakih mogućnosti za ostvarivanje prava i sloboda žena i muškaraca, sprečavanje i otklanjanje rodno zasnovane diskriminacije; donosi Nacionalnu strategiju za rodnu ravnopravnost i Akcioni plan za njeno sprovođenje; obrazuje Koordinaciono telo za rodnu ravnopravnost35, sa zadatkom da usme- rava i koordinira rad državnih organa u vezi sa rodnom ravnopravnošću, razmatra sva pitanja značajna za rodnu ravnopravnost i unapređuje stanje rodne ravnopravnosti; obrazuje Savet za rodnu ravnopravnost36 kao savetodavno telo Vlade u koje je uključeno civilno društvo; obav- lja i druge poslove u ovoj oblasti. U okviru Koordinacionog tela za rodnu ravnopravnost for- mirana je i stručna grupa u čiji sastav ulaze predstavnici drugih organa javne vlasti, privrede, akademske zajednice i nevladinog sektora.37
Prvi mehanizam rodne ravnopravnosti u okviru organa izvršne vlasti formiran je u AP Voj- vodini 2001. godine kada je u Izvršno veće AP Vojvodine izabrana članica zadužena za rav- nopravnost polova.38 Savet za ravnopravnost polova kao savetodavno telo, koga čine predstav- nici/ce organa pokrajinske uprave i eksperti/kinje formiran je 2003. godine. Savet učestvuje u promovisanju, kreiranju i praćenju programa, akcija i politika koje unapređuju položaj žena;
29 Koordinaciono telo formirano je 30. 9. 2014. godine Odlukom Vlade Republike Srbije. Dostupno na: https:// www.mgsi.gov.rs/lat/dokumenti/odluka-o-formiranju-koordinacionog-tela-za-rodnu-ravnopravnost 30 Tačka 2. Odluke o formiranju Koordinacionog tela za rodnu ravnopravnost. 31 Tačka 5. Odluke o formiranju Koordinacionog tela za rodnu ravnopravnost. 32 „Službeni glasnik RS“, br. 52/2021. 33 Član 59. Zakona o rodnoj ravnopravnosti. 34 Član 60. Zakona o rodnoj ravnopravnosti. 35 Član 59. stav 1. tačka 3) i član 60. stav 1. tačka 5) Zakona o rodnoj ravnopravnosti. Koordinaciono telo formirano je Odlukom Vlade od 31. 10. 2022. godine kojom se regulišu nadležnosti Koordinacionog tela i način rada. Dostupno na: https://www.rodnaravnopravnost.gov.rs/sites/default/files/2023-01/Odluka%20 o%20osnivanju%20Koordinacionog%20tela%20za%20rodnu%20ravnopravnost.pdf 36 Član 60. stav 1. tačka 5) Zakona o rodnoj ravnopravnosti. 37 Stručna grupa je formirana 6. 2. 2023. godine. Dostupno na: https://rtv.rs/sr_lat/drustvo/koordinaciono-telo- za-rodnu-ravnopravnost-rezime-2022.-i-planovi-za-2023._1415416.html 38 Videti Pajvančić, M. op. cit, 2006, str. 18.
13 lobira za projekte vezane za rodnu ravnopravnost; prati primenu propisa i predlaže mere za unapređenje rodne ravnopravnosti; podstiče aktivnosti u oblasti rodne ravnopravnosti u jav- nom, društvenom i privrednom životu; pruža stručnu pomoć Izvršnom veću AP Vojvodine, organima uprave i organizacija civilnog društva u kreiranju programa integrisanja rodne pres- pektive u propise, javne politike i društveni život; prikuplja i obrađuje rodno senzibilne sta- tističke podatke; podstiče povezivanje institucija, javnih službi, organizacija civilnog društva i poјеdinaca koji deluju u oblasti rodne ravnopravnosti i dr.
Zakon o rodnoj ravnopravnosti39 reguliše po prvi put i mehanizme rodne ravnopravnosti koje formiraju organi autonomne pokrajine u okviru svojih nadležnosti i određuju njihov sastav, način izbora, delokrug i način rada. Zakon propisuje da Pokrajinska vlada obrazuje Koordi- naciono telo za rodnu ravnopravnost40 Pokrajinske vlade radi usklađivanja stavova organa i organizacija pokrajinske uprave, drugih pokrajinskih organizacija i službi i Savet za rodnu ravnopravnost41 kao savetodavno telo Pokrajinske vlade i predviđa mogućnost da se pored ovih mehanizama mogu obrazovati i druga tela koja se bave rodnom ravnopravnošću.42 U AP Vojvodini postoji i Zavod za ravnopravnost polova43 kome su povereni stručno - analitički poslovi; priprema i realizacija edukativnih programa; saradnja sa mehanizmima rodne rav- nopravnosti i odgovarajućim međunarodnim telima; izdavaštvo i dr.
5. Mehanizmi rodne ravnopravnosti u organima uprave
U organima uprave takođe se formiraju mehanizmi rodne ravnopravnosti.
Na republičkom nivou u Ministarstvu rada i socijalne politike 2007. godine formiran je Sek- tor za rodnu ravnopravnost44, koga je 2008. godine zamenila Uprava za rodnu ravnopravnost45 koja je ukinuta 2014. godine46, a u Ministarstvu rada, zapošljavanja, boračkih i socijalnih pita- nja ponovo je formiran Sektor za rodnu ravnopravnost. Nakon formiranja Ministarstva za ljudska i manjinska prava i društveni dijalog 2020. godine47 ravnopravnost polova, antidis- kriminacione politike i unapređenje rodne ravnopravnosti su u nadležnosti tog ministarstva.
39 Član 59. stav 1. tačka 4) i član 62. Zakona o rodnoj ravnopravnosti. 40 Član 62. stav 3. tačka 1) Zakona o rodnoj ravnopravnosti. Koordinaciono telo za rodnu ravnopravnost Pokrajinske vlade Konstituisano je 7. 9. 2022. godine, Odluka o obrazovanju Koordinacionog tela za rodnu ravnopravnost Pokrajinske vlade, „Službeni list AP Vojvodine“, br. 38/2022. 41 Član 62. stav 3. tačka 2) Zakona o rodnoj ravnopravnosti. 42 Član 62. stav 4. Zakona o rodnoj ravnopravnosti. 43 Zavod je formiran 2004. godine, „Službeni list AP Vojvodine“, br. 14/2004. 44 „Službeni glasnik RS“, br. 43/2007. 45 Zakon o ministarstvima, „Službeni glasnik RS“, br. 65/2008. 46 Zakon o ministarstvima „Službeni glasnik RS“, br. 44/2014. 47 Član 12. Zakona o ministarstvima, „Službeni glasnik RS“, br. 128/2020.
14 Novi Zakon o rodnoj ravnopravnosti po prvi put reguliše mehanizme rodne ravnopravnosti u okviru organa državne uprave i eksplicitno navodi da ministarstva i drugi organi državne uprave nadležni za oblasti u kojima se određuju i sprovode opšte i posebne mere za unapre- đivanje rodne ravnopravnosti predstavljaju mehanizme rodne ravnopravnosti.48 U skladu sa tim, u posebnom članu49 Zakon reguliše da sva ministarstva i drugi organi javne vlasti inte- grišu rodnu ravnopravnost prilikom kreiranja, sprovođenja, praćenja i unapređenja sektor- skih politika, formulisanja zakona, drugih propisa i aktivnosti u domenu njihove nadlež- nosti, a naročito u oblastima u kojima se sprovode opšte i posebne mere za unapređivanje rodne ravnopravnosti. Ova odredba posebno je značajna s obzirom na multisektorsku pri- rodu rodne ravnopravnosti jer nalaže da se u sve sektorske javne politike i propise integriše rodna komponenta.
Na nivou AP Vojvodine u organima pokrajinske uprave od 2002. godine Pokrajinski sekretari- jat za rad, zapošljavanje i ravnopravnost polova50 bio je nadležan za rodnu ravnopravnost. To je bio prvi mehanizam rodne ravnopravnosti u organima pokrajinske uprave. Ovaj sekretari- jat formirao je 2003. godine Savet za ravnopravnost polova kao savetodavno telo.51 Od 2016. godine rodna ravnopravnost je u nadležnosti Pokrajinskog sekretarijata za privredu, zapošlja- vanje i ravnopravnost polova52, a nakon 2016. godine Pokrajinskog sekretarijata za socijalnu politiku, demografiju i ravnopravnost polova.53
Status mehanizama za rodnu ravnopravnost u okviru organa izvršne vlasti i državne uprave je bio nestabilan. O tome govore dinamične, kontinuirane i suštinske promene u statusu, nadlež- nostima i sastavu ovih tela. Ključni problemi su njihov status, kompetencije, kadrovi i finan- siranje, a upravo pozicija ovih tela je posebno značajna, jer organi izvršne vlasti pripremaju propise i planske dokumente koji definišu pravce javnih politika, prate i kontrolišu njihovu primenu. Mehanizme rodne ravnopravnosti regulisali su Zakon o vladi i Zakon o ministar- stvima, a na nivou autonomne pokrajine drugi odgovarajući propisi, koji se često menjaju nakon izbora i formiranja nove vlade. To je bitno uticalo na stabilnost statusa i sadržaj nadlež- nosti mehanizama rodne ravnopravnosti u organima izvršne vlasti i državnoj upravi.54 Novine
48 Član 59. stav 1. tačka 2) Zakona o rodnoj ravnopravnosti, „Službeni glasnik RS“, br. 51/2021. 49 Član 61. Zakona o rodnoj ravnopravnosti. 50 Članovi 18. i 33. Odluke o pokrajinskoj upravi, „Službeni list APV“, br. 3/2002. 51 „Službeni list APV“, br.1/2003. 52 „Službeni list APV“, br. 37/2014. 53 Članovi 32. i 35a Pokrajinske skupštinske odluke o pokrajinskoj upravi, „Službeni list APV“, br. 37/2016. 54 Videti: Djorđević, Lj. Analiza Zakona o ravnopravnosti polova, UNDP, Beograd, 2010. Dostupno na: www. undp.org, Pajvančić, M., Petrušić N., Jašarević S. Komentar Zakona o ravnopravnosti polova, Beograd, Centar modernih veština, 2010. Dostupno na: http://www.kss.org.rs/news/2013/09/src/1309komentar_zakona_o_ ravnopravnosti_polova.pdf
15 u Zakonu o rodnoj ravnopravnosti iz 2021. godine koji po prvi put na celovit način reguliše sve mehanizme rodne ravnopravnosti uključujući i mehanizme rodne ravnopravnosti u okviru izvršne vlasti i državne uprave stvaraju normativne pretpostavke za stabilnost pozicije ovih tela u strukturi organa javne vlasti.
6. Mehanizmi rodne ravnopravnosti na lokalnom nivou
Proces formiranja mehanizama za rodnu ravnopravnost započet je na lokalnom nivou još 2002. godine.55 Tokom naredne tri godine formirani su u više od 50 opština u Srbiji od kojih u 15 opština u AP Vojvodini. Lokalni mehnizmi rodne ravnopravnosti formirani su na razli- čite načine (statutom opštine, odlukom skupštine opštine, rešenjem gradonačelnika i dr.) i imali su različite statuse u strukturi organa lokalne vlasti (komisije za rodnu ravnopravnost u skupštini jedinice lokalne samouprave, lica zadužena za rodnu ravnopravnost, saveti za rodnu ravnopravnost u okviru organa lokalne uprave i sl.). Sve do usvajanja Zakona o ravnoprav- nosti polova 2009. godine56 koji je po prvi put jednom načelnom normom regulisao samo lokalne mehanizme rodne ravnopravnosti57, čijem usvajanju su prethodile aktivnosti organi- zacija civilnog društva, eksperata i ekspertkinja na izradi modela zakona58, akcenat aktivno- sti bio je na edukaciji kadrova i pripremi instruktivnih materijala (praktikuma, vodiča, smer- nica i sl.)59 kako bi se podstakao i olakšao rad ovih tela. Ove aktivnosti su nastavljene i konti-
55 Program formiranja lokalnih mehanizama za ravnopravnost polova koji je podržala Misija OEBS-a za Srbiju i Crnu Goru, obuhvatio je opštine: Kruševac, Niš (okrug), Prokuplje, Kikinda, Velika Plana, Zrenjanin (okrug), Požarevac, Zaječar, Valjevo, Užice, Knjaževac, Bor, Kragujevac, Sremska Mitrovica, Novi Sad, Zrenjanin (grad), Beograd, Topola, Aranđelovac, Čačak, Sombor, Subotica, Niš (grad), Kučevo, Novi Bečej, Aleksinac, Pirot, Jagodina, Loznica Boljevac, Negotin, Kladovo, Majdanpek, Senta, Žitište, Kovačica, Nova Crnja, Vrbas, Sečanj, Irig, Sjenica, Prijepolje, Lebane, Medveđa, Tutin, Bujanovac, Preševo, Priboj, opština Medijana (Niš), Novi Beograd. Izvor: Rodna ravnopravnost, OSCE, Beograd, 2005, str. 22. 56 Više: Pajvančić, M. Analiza procesa usvajanja zakona iz oblasti rodne ravnopravnosti, Zbornik (ur. Stojiljković, Z., Lončar J., Spasojević D. „Političke stranke i zakonodavna aktivnost Narodne skupštine Republike Srbije“, FPN, Beograd, 2012. godine, str. 79 – 135. Dostupno na: https://www.fpn.bg.ac.rs/wp-content/uploads/ Politicke-stranke-i-zakonodavna-aktivnost.pdf 57 Član 39. Zakona o ravnopravnosti polova, „Službeni glasnik RS“, br. 104/2009. 58 Videti: Ka zakonu o ravnopravnosti polova, Pokrajinski Zavod za ravnopravnost polova, Novi Sad 2006. godine i Zbornik (ur. Pajvančić, M.) U susret zakonu o ravnopravnosti polova – evropska budućnost Srbije, (konferencija održana 16. 3. 2006. godine), Freedom house, CMV, BEFPE, Beograd, 2006. 59 Videti: Pajvančić, M. Anđelković, M. Maletin, B. Šijački, Z. Ravnopravnost u našoj opštini, Zavod za ravnopravnost polova, Novi Sad, 2007. Dostupno na http://www.rodna_ravnopravnost_u_nasoj_opštini.pdf; Institucionalni mehanizmi ravnopravnosti polova – mogućnosti na lokalnom nivou, Zbirka Žene to mogu – kako skrojiti politiku jednakih mogućnosti, Beograd, 2007; Pajvančić, M.: Institucionalni mehanizmi ravnopravnosti polova na lokalnom nivou, op. cit. 2008, str. 93 – 99, Pajvančić, М., Ravnopravnost polova u političkom životu. Dostupno na http://www.rs.cest.gov.ba/index. php/seminari-2011/2414banja-luka-primjena-zakona- o-ravnopravnosti-polova/554-materijal-mpajvancic-iv/file; Putevi za ostvarivanje rodne ravnopravnosti i jednakih mogućnosti – od ideje do prakse – Priručnik za službenike i organe lokalnih samouprava zadužene za ravnopravnost polova, (ur. Petrušić, N.), OSCE, Beograd, 2007. godine. Dostupno na: http://www.skgo.org/ storage/app/uploads/public/152/095/842/1520958426_Rodna_ravnopravnost_11_05.pdf
16 nuirano se odvijaju sve do danas.60 Podsticaj unapređenju rada lokalnih mehanizama rodne ravnopravnosti bilo je usvajanje Evropske povelje o ravnopravnosti žena i muškaraca na lokal- nom nivou61 i Deklaracija o poštovanju principa rodne ravnopravnosti na lokalnom nivou Stalne konferencije gradova i opština62 kao i brojne kontinuirane aktivnosti Stalne konferen- cije gradova i opština vezane za podršku i unapređenje rada lokalnih mehanizama rodne rav- nopravnosti.63 Uvid u njihov rad i teškoće sa kojima se susreću pružaju istraživanja meha- nizama rodne ravnopravnosti na lokalnim nivou.64 Zakon o rodnoj ravnopravnosti usvojen 2021. godine reguliše i tela za rodnu ravnopravnost koja se obrazuju na lokalnom nivou,65 a skupštinama jedinica lokalne samouprave delegira pravo da svojim aktima bliže uređuju izbor, nadležnosti i način rada ovih tela.66 U skupštini jedinice lokalne samouprave formira se Komi- sija za rodnu ravnopravnost kao stalno radno telo skupštine u čiji sastav ulaze odbornici/ce, a koje je nadležno da iz rodne perspektive razmatra sve akte koji se upućuju skupštini na raz- matranje i usvajanje.67 U organima uprave formira se Savet za rodnu ravnopravnost68 koji čine imenovana ili postavljena lica, predstavnici ustanova, organa i organizacija u oblastima zna- čajnim za rodnu ravnopravnost i sprečavanje i suzbijanje rodno zasnovanog nasilja. U radu
60 Videti: Vladisavljević, A. Praktičan alat za rodno odgovorno budžetiranje u tri koraka, 2011. Dostupno na: http://www.resurscentar.rs/rc_files/downloads/rob3_alat_za_rodno_odgovorno_budzetiranje_u_3_koraka. pdf , Babović, M. Vuković, O. Subotički, I. Prohaska, J. Janković, G. Rodna ravnopravnost na lokalnom nivou, program obuke na lokalnom nivou, 2013. Dostupno na: http://www.secons.net/admin/app/ webroot/files/ publications/ Rodnaravnopravnostnalokalnomnivou-priru%C4%8Dnik.pdf , Baćanović, V. Nacrt programa za unapređenje kapaciteta lokalnih mehanizama za rodnu ravnopravnost, 2016. Dostupno na: genderhub. org.rs, Nikolin, S. Vladisavljević, A. Rodno odgovorno budžetiranje (ROB) nova zakonska obaveza u sistemu upravljanja javnim finansijama u Republici Srbiji – priručnik, 2017. Dostupno na http://217.169.210.134/ storage/app/media/dobro-upravljanje/pubs/Prirucnik%20za%20uvodjenje%20ROB.pdf i dr. 61 European Charter for Equality od Women and Man in local life. Usvojena od strane Saveta evropskih opština i regiona 2006. godine. Dostupno na https://eca.unwomen.org/en/digital-library/publications/2016/08/the- european-charter-for-equality-of-women-and-men-in-local-life 62 Dostupno na: http://euintegracije.skgo.org/upload/Document/Doc/2013_01/Deklaracija_SKGO_o_rodnoj_ ravnopravnosti.pdf 63 Više: Aleksov, R. Rodna ravnopravnost kroz SKGO akciju, SKGO, 2015. Dostupno na: http://www.skgo. org/storage/app/uploads/public/152/095/870/1520958706_2205_Final_200x200_RR_PRINT_FINAL.pdf , Baćanović, V.: Uvođenje rodne perspektive i pristupa zanovanog na ljudskim pravima u komponente programa „Podrška lokalnim samoupravama u Srbiji na putu ka EU“. Dostupno na: http://www.skgo.org/storage/app/ uploads/public/152/095/876/1520958761_SKGO_analiza_2016_izvestaj_sa_preporukama_FINAL_73522. pdf ; Mreža za rodnu ravnopravnost SKGO. Dostupno na: http://www.skgo.org/mreze/312 i na http:// euintegracije.skgo.org/sr/submodules/documents/ 64 Videti: Baćanović, V. Božanić, D. Pajvančić, M. Maletin, B. Jačanje kapaciteta institucionalnih mehanizama za rodnu ravnopravnost i sprovođenje politike jednakih mogućnosti na lokalnom nivou, CPŽ, Kikinda 2012. godine. Dostupno na: https://cpz.rs/Dokumenti/Publikacija-Rezultati-PDF.pdf , Prvi izveštaj Ženske platforme za razvoj Srbije 2017 – 2018. godina. Dostupno na: https://library.fes.de/pdf-files/bueros/belgrad/12991.pdf; Baćanović, V. Nacrt programa za unapređenje kapaciteta lokalnih mehanizama za rr, 2016. Dostupno na: genderhub.org.rs 65 Član 63. Zakona o rodnoj ravnopravnosti, „Službeni glasnik RS“, br. 51/2021. 66 Član 63. stav 3. Zakona o rodnoj ravnopravnosti, „Službeni glasnik RS“, br. 51/2021. 67 Član 63. stav 1. tačka 1) Zakona o rodnoj ravnopravnosti. 68 Član 63. stav 1. tačka 2) Zakona o rodnoj ravnopravnosti.
17 Saveta obavezno učestvuju i lica zadužena za rodnu ravnopravnost u organima lokalne uprave koja Savetu pružaju stručnu i administrativno - tehničku potporu u radu. Savet za rodnu rav- nopravnost nadležan je da inicira i predlaže mere za unapređenje rodne ravnopravnosti. Tela za rodnu ravnopravnost sarađuju međusobno kao i sa drugim telima za rodnu ravnopravnost na nivou jedinice lokalne samouprave, autonomne pokrajine i Republike.69
7. Lica zadužena za rodnu ravnopravnost u organima javne vlasti
Važan oslonac za unapređivanje rodne ravnopravnosti kao i za rad mehanizama rodne rav- nopravnosti su lica zadužena za rodnu ravnopravnost u organima javne vlasti na svim nivo- ima. Nakon usvajanja Zakona o ravnopravnosti polova 2009. godine70 koji propisuje moguć- nost da se u organima lokalne samouprave, u okviru postojeće organizacije i akta o unu- trašnjem uređenju i sistematizaciji, određuje zaposleni za rodnu ravnopravnost i obavljanje poslova u ovoj oblasti71, organi uprave na lokalnom nivou, a potom i na nacionalnom i pokra- jinskom nivou, svojim odlukama određivali su lice zaduženo za rodnu ravnopravnost. Praksa je pokazala da je to nužno s obzirom na multisektorsku prirodu rodne ravnopravnosti. Novi Zakon o rodnoj ravnopravnosti, polazeći od obaveze organa javne vlasti na svim nivoima, da u okviru svojih nadležnosti sudeluju u ostvarivanju rodne ravnopravnosti72 reguliše obavezu organa javne vlasti koji imaju više od 50 zaposlenih i radno angažovanih lica da iz reda svojih zaposlenih odrede lice zaduženo za rodnu ravnopravnost u skladu sa svojim aktom o unutraš- njem uređenju i sistematizaciji radnih mesta73 kao i poslove koje obavljaju ova lica koji uklju- čuju: praćenje sprovođenje politika i mera za ostvarivanje i unapređivanje rodne ravnoprav- nosti iz delokruga organa u kojem su zaposleni; praćenje stanje o polnoj strukturi zaposle- nih i radno angažovanih lica u organu u kome su određeni i izveštavanje o dostignutom nivou ostvarivanja rodne ravnopravnosti u oblasti iz delokruga organa; saradnja sa Ministarstvom i telima za rodnu ravnopravnost na pitanjima značajnim za ostvarivanje i unapređivanje rodne ravnopravnosti; pripremanje podataka, analiza kao i materijala potrebnih za rad tela za rodnu ravnopravnost i dr.74
69 Član 63. stav 2. Zakona o rodnoj ravnopravnosti. 70 „Službeni glasnik RS“, br. 104/2009. 71 Član 39. stav 4. Zakona o ravnopravnosti polova. 72 Član 59. stav 1. tačka 6) Zakona o rodnoj ravnopravnosti. 73 Član 64. stav 1. Zakona o rodnoj ravnopravnosti. 74 Član 64. stav 4. tačke 1) do 6) Zakona o rodnoj ravnopravnosti.
18 8. Mehanizmi zaštite prava na rodnu ravnopravnost
Mehanizme rodne ravnopravnosti upotpunjuju i nezavisne institucije u oblasti zaštite ljudskih prava, posebno Zaštitnik građana i Poverenik za zaštitu ravnopravnosti.
Na nacionalnom nivou, 2005. godine formiran je Zaštitnik građana75. Nakon usvajanja Ustava Republike Srbije 2006. godine76 Zaštitnik građana postaje ustavna institucija. U okviru ove institucije prilikom prenošenja ovlašćenja zamenicima, obezbeđuje se specijalizacija za obav- ljanje poslova, koja uključuje i oblast rodne ravnopravnosti77. Zaštitnik građana je 2012. godine formirao Savet za rodnu ravnopravnost, kao stalno ekspertsko savetodavno telo78, ali je neko- liko godina potom ovo telo ukinuto.
Nakon usvajanja Zakona o zabrani diskriminacije 2010. godine79, ustanovljen je i Poverenik za zaštitu ravnopravnosti kao samostalan, nezavistan i specijalizovan organ državne vlasti koji pruža zaštitu od diskriminacije uključujući i rodno zasnovanu diskriminaciju80. Ustanovlja- vanje ovog organa govori o opredeljenju Srbije da prihvati i preporuke međunarodnih insti- tucija81 i formira nezavisna tela za zaštitu od diskriminacije uključujući i rodno zasnovanu diskriminaciju82.
Prvi nezavisni mehanizam zaštite ljudskih prava i prava na ravnopravnost polova kroz kon- trolu zakonitosti rada javne uprave je Pokrajinski ombudsman ustanovljen u AP Vojvodini
75 Član 1. Zakona o Zaštitniku građana, „Službeni glasnik RS“, br. 79/2005 i 54/2007. O aktivnostima Zaštitnika građana u oblasti rodne ravnopravnosti i posebnim izveštajima o rodnoj ravnopravnosti više na: http://www. ombudsman.rodnaravnopravnost.rs 76 Član 138. Ustava Republike Srbije, „Službeni glasnik RS“, br. 98/2006. 77 Član 6. stav 2. Zakona o Zaštitniku građana, „Službeni glasnik RS“, br. 105/2021. Više o aktivnostima u oblasti rodne ravnopravnosti videti na: https://www.ombudsman.rs/index.php/izvestaji/posebnii-izvestaji 78 Od aktivnosti Saveta izdvajamo rad na Modelu zakona o rodnoj ravnopravnosti. Videti: Model zakona o rodnoj ravnopravnosti, Heinrich Boell Stiftung, Beograd, 2017. godine. Dostupno na: https://rs.boell.org/ sites/default/files/zrr.pdf i Poseban izveštaj o zastupljenosti žena na mestima odlučivanja i aktivnosti lokalnih mehanizama za rodnu ravnopravnost u jedinicama lokalne samouprave. Dostupno na: https://ombudsman. rs/attachments/article/5901/Zastitnik%20gradjan_srpski.pdf . 79 „Službeni glasnik RS“, br. 22/2009. 80 Videti: Petrušić, N. Pravni status i pozicija Poverenika za zaštitu ravnopravnosti u arhitekturi nacionalnih institucionalnih mehanizama za rodnu ravnopravnost, Zbornik radova „Pravni sistem i zaštita od diskriminacije“, sv. 1, Pravni fakultet, Kosovska Mitrovica, str. 65 – 86. 81 Videti: ECRI General Policy Recommendation No. 2 on Specialised Bodies to Combat Racism, Xenophobia, Antisemitism And Intoleranceat, Dostupno na: http://www.coe.int/t/dghl/ monitoring/ecri/default_en.asp. Više: Petrušić N, Krstić I, Marinković T. Komentar zakona o zabrani diskriminacije, Pravosudna akademija, Beograd 2014. 82 Iz aktivnosti Poverenika za zaštitu ravnopravnosti izdvajamo Poseban izveštaj Poverenika za zaštitu ravnopravnosti o diskriminaciji žena, Poverenik za ravnopravnost, Beograd, 2015. godine. Više o aktivnostima Poverenika za zaštitu ravnopravnosti na: http://ravnopravnost.gov.rs/rs/izvestaji
19 2002. godine83, a izabran 2003. godine. Jedan od zamenika ombudsmana, uz opis njegovih nadležnosti, bira se za oblast rodne ravnopravnosti. Izmenom propisa koji regulišu ovu insti- tuciju, 2014. godine84 zadržano je rešenje da se jedan od zamenika ombudsmana bira za rodnu ravnopravnost, ali ne i odredba koja precizira njegove nadležnosti.85
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Iskustvo u proteklih 20 godina govori u kom pravcu bi trebalo delovati. Izdvajamo tri prioriteta:
1. Usklađivanje sa novim zakonskim rešenjima što uključuje usvajanje svih zakonom propisa- nih normativnih akata: propisa za sprovođenje zakona koje usvaja Ministarstvo za ljud- ska i manjinska prava i društveni dijalog, propisa koje u okviru svojih nadležnosti usvajaju organi Autonomne pokrajine Vojvodine, propisa koje u okviru svojih nadležnosti usva- jaju organi jedinica lokalne samouprave, propisa koje u okvirima svojih nadležnosti usva- jaju organi državne uprave i svi drugi organi javne vlasti, propisa koje usvajaju poslodavci uključujući i akte koje usvajaju političke stranke, sindikati i organizacije civilnog društva a koji regulišu njihovu unutrašnju organizaciju koji regulišu mehanizme rodne ravnoprav- nosti i formiranje ovih mehanizama.
2. Fokusiranje na efikasnost instrumenata primene, praćenja, nadzora i kontrole (odgovor- nost za primenu javnih politika) i zaštite prava.
3. Intersektorski pristup rodnoj ravnopravnosti u delovanju institucija (sistemske pretpo- stavke i procedure koje omogućuju koordinaciju i usklađivanje aktivnosti) u projektovanju i korišćenju instrumenata i definisanje parametara koji postavljaju okvire i operativnih pla- nova realizacije politika rodne ravnopravnosti.
83 Odluka o Pokrajinskom ombudsmanu, „Službeni list APV“, br. 23/2002, 5/2004, 16/2005 i 18/2009. O aktivnostima u oblasti rodne ravnopravnosti više na: https://www.ombudsmanapv.org/riv/index.php/ istrazivanja.htm i https://www.ombudsmanapv.org/riv/index.php/dokumenti/posebni-izvestaji.html 84 Pokrajinska skupštinska odluka o Pokrajinskom zaštitniku građana – ombudsmanu, „Službeni list APV“, br. 37/2014. 85 Član 8. stav 1. Pokrajinske skupštinske odluke o Pokrajinskom zaštitniku građana – ombudsmanu.
20 PRILOZI:
MEHANIZMI RODNE RAVNOPRAVNOSTI NA NACIONALNOM NIVOU
Odbor za ljudska i manjinska prava i rodnu ravnopravnost Narodna skupština Ženska parlamentarna mreža
Koordinaciono telo za rodnu ravnopravnost Vlada Republike Srbije
Savet za rodnu ravnopravnost
Ministarstvo za ljudska i manjinska prava i društveni Мinistarstva dijalog
Resorna ministarstva
Republički organi javne vlasti
Lica zadužena za rodnu ravnopravnost u republičkim organima javne vlasti
Zaštitnik građana Nezavisne institucije za zaštitu ljudskih prava Poverenik za zaštitu ravnopravnosti
21 MEHANIZMI RODNE RAVNOPRAVNOSTI NA NIVOU AUTONOMNE POKRAJINE
Odbor za ravnopravnost polova
Skupština AP Vojvodine Ženska parlamentarna mreža
Koordinaciono telo za rodnu ravnopravnost Pokrajinska vlada
Savet za rodnu ravnopravnost
Pokrajinski sekretarijat za socijalnu politiku, demografiju i rodnu Pokrajinski sekretarijati ravnopravnost
Resorni sekretarijati
Organi javne vlasti na nivou autonomne pokrajine
Lica zadužena za rodnu ravnopravnost u organima javne vlasti u autonomnoj pokrajini
Pokrajinski ombudsman
Zavod za ravnopravnost polova
22 MEHANIZMI RODNE RAVNOPRAVNOSTI NA LOKALNOM NIVOU
Komisija za rodnu ravnopravnost
Skupština opštine/grada
Ženska odbornička mreža
Mehanizmi rodne ravnopravnosti u organima Savet za rodnu ravnopravnost uprave na lokalnom nivou
Lica zadužena za rodnu ravnopravnost u organima lokalne samouprave
Lokalni ombudsman
23 Prof. dr Nevena Petrušić
PARLAMENTARNI MEHANIZAM ZA RODNU RAVNOPRAVNOST NARODNE SKUPŠTINE REPUBLIKE SRBIJE: 2003 - 2023.
1. Uvodne napomene
Institucionalni mehanizmi za rodnu ravnopravnost86 predstavljaju ključne faktore delotvor- nog sprovođenja politke rodne ravnopravnosti. U Srbiji je njihovo formiranje započelo nakon demokratskih promena 2000. godine, a taj proces se odvijao uz mnogo prepreka, lutanja i nesnalaženja, uz česte izmene statusa i strukture institucionalnih mehanizama.87 Stečena iskustva bila su, međutim, dragocena prilikom kreiranja razgranatog sistema institucionalnih mehanizama na nacionalnom, pokrajinskom i lokalnom nivou, koji je normativno uobličen Zakonom o rodnoj ravnopravnosti iz 2021. godine.88
U Srbiji je jedan od prvih nacionalnih institucionalnih mehanizama za rodnu ravnopravnost bio Odbor za ravnopravnost polova Narodne skupštine Republike Srbije, osnovan 2003. godine kao stalno radno telo Narodne skupštine.89 Njegovu nadležnost je 2012. godine preuzeo Odbor za ljudska i manjinska prava i rodnu ravnopravnost Narodne skupštine Republike Srbije.90 Od 2003. godine, kada je osnovan Savet za rodnu ravnopravnost, pa sve do danas, Narodna skup-
86 Izraz „institucionalni mehanizmi za rodnu ravnopravnost” obuhvata organe zadužene za promociju rodne ravnopravnosti i podršku uključivanju rodne ravnopravnosti u opšte politike u svim oblastima. Obično se sastoje od centralnog vladinog tela upotpunjenog međuresornom koordinacionom strukturom za rodnu ravnopravnost i kontakt osobama ili centrima odgovornim za uključivanje rodne ravnopravnosti u ministarstvima. Videti: EIGE's Gender Equality Glossary & Thesaurus. Dostupno na: https://eige.europa.eu/ publications-resources/thesaurus/overview (pristup 27. 7. 2023.) 87 Pajvančić, M. Petrušić, N. Značaj institucionalnih mehanizama za ostvarivanje rodne ravnopravnosti, Zbornik radova Pravnog fakulteta u Nišu, 2014, br. 67, str. 25-44. 88 „Službeni glasnik RS“, br. 52/2021. 89 Član 68g Poslovnika Narodne skupštine Republike Srbije, „Službeni glasnik RS”, br. 57/2003. Ovo stalno radno telo bilo je jedno od 29 stalnih radnih tela Narodnе skupštine (videti član 44. Poslovnika Narodne skupštine). 90 Član 52. Poslovnika Narodne skupštine Republike Srbije, „Službeni glasnik RS”, br. 20/2012. Odbor je bio jedan od 19 odbora Narodne skupštine.
25 ština je u svim sazivima91 imala stalno radno telo koje deluje u oblasti rodne ravnopravnosti (u daljem tekstu: parlamentarni mehanizam za rodnu ravnopravnost). Formiranje i delovanje parlamentarnog mehanizma jedan je od važnih koraka ka rodno osetljivom parlamentu, a to je parlament koji „ceni i daje prioritet rodnoj ravnopravnosti kao društveni, ekonomski i poli- tički cilj i preorijentiše i transformiše institucionalnu kulturu, procese i praksu parlamenta i rezultate prema ovim ciljevima.”92
Dvadeset godina kontinuiranog rada parlamentarnog mehanizma za rodnu ravnopravnost predstavlja svojevrsni jubilej i povod za sumiranje njegovog delovanja na planu urodnjava- nja javnih politika i promocije rodne ravnopravnosti. Cilj ovog odeljka je da istraži i analizira aktivnosti parlamentarnog mehanizma za rodnu ravnopravnost u dvadesetogodišnjem peri- odu njegovog delovanja. Rezultati analize mogu doprineti širem sagledavanju institucional- nog okvira rodne ravnopravnosti u Srbiji i biti osnov za dalja i dublja istraživanja.
Odeljak se bazira na javno dostupnim podacima o sastavu i radu Odbora za ravnopravnost polova i Odbora za ljudska i manjinska prava i rodnu ravnopravnost, objavljenim na veb- sajtu Narodne skupštine.93 Ključni izvor podataka su rezimirani zapisnici (beleške) sa sednica i informacije o javnim slušanjima94 održanim u organizaciji odbora.95 Zapisnici sadrže osnovne
91 U periodu 2003-2023. godine koji je obuhvaćen istraživanjem, Narodna skupština je imala devet saziva: V saziv Narodne skupštine Republike Srbije (22. januar 2001. godine – 27. januar 2004. godine); VI saziv Narodna skupština Republike Srbije (27. 1. 2004. godine – 14. 2. 2007. godine); VII saziv Narodne skupština Republike Srbije (14. 2. 2007. godine – 11. 6. 2008. godine); VIII Narodne skupštine Republike Srbije (11. 6. 2008. godine – 31. 5. 2012. godine); IX saziv Narodne skupštine Republike Srbije (31. 5. 2012. godine – 16. 4. 2014. godine); X saziv Narodne skupštine Republike Srbije (16. 4. 2014. godine - 3. 6. 2016. godine); XI saziv Narodne skupština Republike Srbije (3. 6. 2016. godine - 3. 8. 2020. godine); XII saziv Narodne skupštine Republike Srbije (3. 8. 2020. godine – 1. 8. 2022. godine); XIII (aktuelni) saziv Narodne skupštine Republike Srbije (od 1. 8. 2022. godine). 92 Childs, S. Palmieri, S. Gender-sensitive parliaments: feminising formal political institutions, Chapters, in: Sawer, M. Banaszak, A. L. True, J. Kantola, J. (ed.), Handbook of Feminist Governance, chapter 14, pages 174-188, Edward Elgar Publishing, 2023. Navedeno prema: Ostvarivanje rodne ravnopravnosti u parlamentu, Vodič za parlamente u regionu OEBS-a, Misija OEBS-a u Crnoj Gori, Podgorica, 2022, str. 7. 93 Dostupno na: http://www.parlament.gov.rs/ 94 Javna slušanja su oblik rada u Narodnoj skupštini Republike Srbije i jedan od oblika neposrednog učešća građana u vršenju javne vlasti, koji omogućuje da se građani neposredno uključe u zakonodavni proces i odlučivanje o zakonima. Pravila o javnom slušanju po prvi put su regulisana čl. 83. i 84. Poslovnikom Narodne skupštine iz 2010. godine („Službeni glasnik RS“, br. 52/2010). O javnom slušanju, šire: Pajvančić, M. Javno slušanje - oblik rada Narodne skupštine, Zbornik radova Pravnog fakulteta, Novi Sad 2012, vol. 46, br. 3, str. 7-18; Orlović S. Javna slušanja kao insitucija parlamentarne prakse, Beograd, UNDP, 2007. 95 Zapisnici sa sednica Odbora ponekad ne sadrže sve podatke propisanе članom 76. Poslovnika Narodne skupštine iz 2002, odnosno, članom 81. aktuelnog Poslovnika Narodne skupštine. U nekim zapisnicima nedostaju potpune informacije o iznetim usmenim i pisanim predlozima, kao i o stavovima koje je Odbor zauzeo. Informacije o javnom slušanju su sadržajnije i pružaju uvid u temu javnog slušanja, iznete konstatacije i stavove koje su učesnici javnog slušanja zauzeli i mogu biti uzor za sačinjavanje zapisnika sa regularnih sednica Odbora.
26 podatke o temama sednica, kao i rezime diskusija i usvojenih zaključaka, dok su informacije o javnim slušanjima nešto sadržajnije.96
Na veb-sajtu Narodne skupštine dostupni su podaci o sastavu odbora i rezimirani zapisnici (beleške) i informacije sa sednica i javnih slušanja odbora u okviru svih saziva Narodne skup- štine, izuzev podataka koji se odnose na rad Odbora za ravnopravnost polova u tokom V saziva Narodne skupštine (2001 - 2004). Zbog toga nije bilo moguće analizirati rad Odbora u jednogodišnjem periodu njegovog delovanja, od 2003. godine, kada je osnovan, do 2004. godine, kada je istekao mandat V saziva Narodne skupštine.
Rezultati istraživanja sitematizovani su u tri celine. Prvu celinu čini analiza rada parlamentar- nog mehanizma za rodnu ravnopravnost u svakom od osam saziva Narodne skupštine i kri- tički osvrt na ostvarivanje uloge koju ima na planu sprovođenja i unapređivanja rodne rav- nopravnosti. U okviru druge celine izloženi su i kritički analizirani podaci o polnoj struk- turi parlamentarnog mehanizma za rodnu ravnoopravnost. Treću celinu čine zaključne napo- mene, u kojima su objedinjeni i sumirani ključni nalazi istraživanja.
2. Pregled i analiza rada parlamentarnog mehanizma za rodnu ravnopravnost
2.1. Rad parlamentarnog mehanizma za rodnu ravnopravnost u VI sazivu Narodne skupštine (2004 -2007) U periodu 2004 - 2007. godine Odbor za ravnopravnost polova (u daljem tekstu Odbor) delo- vao je kao stalno radno telo Narodne skupštine.97 Odbor je održao 27 sednica, od kojih je naj- veći broj bio posvećen razmatranju nacrta i predloga zakona.
Rad Odbora u ovom periodu obeležile su aktivnosti usmerene na razmatranje različitih ver- zija Nacrta zakona o ravnopravnosti polova i pristiglih predloga i komentara pojedinih mini- starstava. Čak 11 sednica Odbora bile su u celini posvećene ovom zakonu. Odbor je dono- šenje ovog zakona inicirao odlukom donetom na VII sednici održanoj 28. 7. 2004. godine.
96 I zapisnici sa sednica i informacije o javnim slušanjima pisane su rodno nesenzitivnim jezikom, što je neprihvatljivo, budući da je reč o parlamentarnom mehanizmu za rodnu ravnopravnost od koga se očekuje da bude jedan od promotera primene rodno senzitivnog jezika u skupštinskoj i javnoj komunikaciji. 97 Prema odredbama člana 68g tada važećeg Poslovnika Narodne skupštine Republike Srbije, Odbor je bio nadležan da razmatra predloge zakona, drugih propisa i opštih akata sa stanovišta unapređivanja i postizanja ravnopravnosti (rodne jednakosti) polova, sagledava stanje vođenja politike, izvršavanje zakona, drugih propisa i opštih akata od strane Vlade Republike Srbije i drugih organa i funkcionera odgovornih Narodnoj skupštini, sa stanovišta poštovanja ravnopravnosti polova.
27 Kako se navodi u zapisniku sa ove sednice, Odbor je „većinom glasova prihvatio predlog da se sačini poseban zakon o ravnopravnosti polova, kakav imaju moderna evropska zakonodavstva i zemlje u okruženju“. Različite verzije nacrta zakona razmatrane su na čak devet sednica, a na poslednjoj XXVII sednici od 27. 6. 2006. godine razmotren je, i u načelu podržan Predlog zakona o ravnopravnosti polova.
Na sednicama je razmotreno i nekoliko predloga zakona: Predlog Porodičnog zakona (XI sed- nica od 23. 12. 2004), Predlog Krivičnog zakonika (XVIII sednica od 12. 9. 2005. godine) i Predlog zakona o izmenama i dopunama Zakona o finansijskoj podršci porodicama sa decom (VIII sednica od 21. 9. 2004). Značajno je pomenuti i zaključak Odbora usvojen na XV sednici odbora od 16. 5. 2005. godine da članovi/ce Odbora u svojim poslaničkim grupama pokrenu inicijativu za izmene i dopune Zakona o izboru narodnih poslanika, kojima bi se regulisala zastupljenost manje zastupljenog pola u zakonodavnoj vlasti.
Pored razmatranja nacrta zakona, Odbor se bavio i drugim pitanjima od značaja za rodnu rav- nopravnost. Kao posebno značajne izdvajamo: aktivnosti na formiranju Pododbora za prava deteta (XIII sednica od 18. 2. 2005), koji je bio svojevrsna preteča Odboru za prava deteta, koji kao posebno stalno radno telo Narodne skupštine deluje od 2012. godine.
Na sednicama Odbora razmatrani su i pojedini konkretni problemi rodne diskriminacije sa kojom su se suočavale grupe i pojedinci. Tako je, na primer, na XVII sednici od 11. 7. 2005. godine Odbor razmatrao problem diskriminacije žena zaposlenih u „Ipol Seval“ valjaonici aluminijuma A. D. Sevojno u vezi sa sprovođenjem socijalnog programa. Odbor je od Mini- starstva rada, zapošljavanja i socijalne politike zatražio da preispita nalaz Odeljenja inspekcije rada u vezi sa zakonitošću sprovođenja socijalnog programa i utvrdi eventualnu odgovornost nadležnog inspektora i o tome izvesti Odbor, a Odboru za privatizaciju preporučio je da raz- motri problem zaposlenih u preduzeću i predstavnicima sindikata preduzeća omogući kon- trolu izvršavanja socijalnog programa.
Značajne su aktivnosti Odbora na uspostavljanju saradnje sa drugim institucionalnim meha- nizmima i povećanju svoje vidljivosti. U tom nastojanju Odbor je pripremio predlog pro- jekta kojim je konkurisao za razvojnu podršku OEBS-a, u okviru koga su planirane posete lokalnim odborima i komisijama za rodnu ravnopravnost, kao i održavanje tribina u lokalnim zajednicama.98
98 Predlog projekta usvojen je na V sednici Odbora, održanoj 14. 5. 2004. godine.
28 Na XXI sednici održanoj 17. 2. 2006. godine, na poziv Odbora, u radu je učestvovala Sonja Lokar, članica Radne grupe za ravnopravnost polova Pakta za stabilnost, koja je ukazala na rodne dimenzije nezaposlenosti i nedovoljne zastupljenosti žena u političkom životu. Odbor je na sednici raspravljao o “degradaciji ženske radne snage, do koje je došlo istovremeno sa degradacijom oblasti u kojima su žene najviše zastupljene”, o rešenjima do kojih su došle poje- dine zemlje Evropske unije, kao i o “potrebi postizanja konsenzusa o ovim pitanjima da bi se problem nezaposlenosti rešio kroz konstantno obrazovanje”.
Na XXVI sednici održanoj 30. 5. 2006. u radu su učestvovale članice Udruženja žena – letača Srbije i Crne Gore, koje su upoznale Odbor sa diskriminacijom žena – letača.
Treba pomenuti i aktivnost Odbora na unapređenju znanja i podizanju svesti narodnih posla- nika/ca o rodnoj diskriminaciji. Odbor je doneo odluku da narodni poslanici/ce učestvuju u edukaciji o rodnoj ravnopravnosti i oblicima diskriminacije, koju je organizovao Glas razlike – Grupa za promociju ženskih političkih prava, u saradnji sa Ambasadom Kraljevine Norveške.99
Evidentno je da je Odbor bio otvoren za saradnju sa međunarodnim organizacijama i civilnim društvom, o čemu svedoči i podatak je da su u radu čak devet sednica, na poziv Odbora, uče- stvovali predstavnici/ce međunarodnih i nevladinih organizacija, strukovnih udruženja, aka- demske zajednice, drugih institucionalnih mehanizama i državnih organa. U suštini, veliki broj sednica održan je uz neposrednu podršku međunarodnih organizacija, u okviru proje- kata koje su one sprovodile u saradnji sa državnim organima i organizacijama civilnog druš- tva. U ovom periodu Odbor je razmatrao različite vidove strukturalne diskriminacije žena.
2.2. Rad parlamentarnog mehanizma za rodnu ravnopravnost u VII sazivu Narodne skupštine (2007 - 2008) U VII sazivu Narodne skupštine ulogu parlamentarnog mehanizma za rodnu ravnopravnost vršio je Odbor za rodnu ravnopravnost, čiji su status i nadležnost ostali isti. Odbor je održao devet sednica. U Planu rada Odbora, koji je usvojen na III sednici održanoj 14. 9. 2007. godine, kao prioritetni zadatak, utvrđeno je „iniciranje donošenja Zakona o ravnopravnosti polova“, kao i rad na pitanjima koja se tiču obrazovanja i stručnog usavršavanja žena, njihovog polo- žaja na tržištu rada i rešavanje žalbi građana koje se odnose na rodnu diskriminaciju. Pored toga, Planom je previđeno kontrolisanje rada Vlade i drugih organa u delu koji se tiče sprovo- đenja rodne ravnopravnosti.
99 Odluka je doneta na V sednici Odbora održanoj 14. 5. 2004. godine.
29 Jedan od problema kome je Odbor posvetio naročitu pažnju ticao se senzacionalističkih medijskih priloga kojima se vređaju dostojanstvo i ljudska prava žena, posebno žrtava nasilja. Čak četiri sednice bile su posvećene ovoj temi.
Na III sednici doneta je odluka da se formira radna grupa koja će pripremiti dopis svim medi- jima i državnim institucijama koje su nadležne za oblast medija. Kako se u zapisniku navodi, ovaj dopis treba da potpišu „svi članovi Odbora, uz zahtev da im se pošalje obaveštenje šta su određene medijske kuće i državne institucije učinile po tom problemu“.
Medijsko izveštavanje bilo je tema IV sednice Odbora od 26. 9. 2007. godine. Na ovoj sednici ukazano je na sve učestaliju zloupotrebu informacija u medijima kojima se krše ljudska prava. Usvojen je zaključak da Odbor medijima i novinarskim udruženjima uputi protestno pismo kojim oštro reaguje protiv pojava da se žrtve nasilja izlažu poniženju i narušava njihovo dosto- janstvo. Direktni povod za upućivanje protestnog pisma bili su tada aktuelni slučajevi objav- ljivanja u medijima fotografija žrtava porodičnog nasilja i silovanja. Pored toga, Odbor je zau- zeo stav da u narednom periodu „prati ponašanje medija i inicira izmenu regulative kako bi se sprečila zloupotreba i manipulacija žrtvama u senzacionalističke svrhe“ i pozvao udruže- nja novinara da blagovremeno reaguju na pojave neprofesionalnog ponašanja novinara i krše- nja etičkog kodeksa. Nema informacija o tome da li su dopis i protestno pismo upućeni novi- narima, niti o tome da li su medijske kuće i nadležni organi Odboru uputili obaveštenje o pre- duzetim merama.
I na V sednici Odbora od 3. 10. 2007. godine tema su bili mediji. Neposredni povod bila je emisija „48 sati svadba” u kojoj mlada, mladoženja i mladina majka, šamaranje i prebijanje žene predstavljaju kao društveno poželjan obrazac ponašanja, kao i reakcije direktora RTS-a na kritike poslanika, koji je emisiju okvalifikovao kao “izvanrednu sociopsihološku studiju”, ukazujući da su kritike poslanika politički napad na njega. Tim povodom, Odbor je tadašnjem direktoru RTS-a uputio zahtev da podnese ostavku, kao i zahtev upravnom odboru RTS-a da direktora razreši dužnosti ako ne bude podneo ostavku.
Odbor je u više navrata razmatrao problem nasilja prema ženama. Uzrocima i posledicama nasilja prema ženama bila je posvećena VIII sednica Odbora održana 27. 11. 2007. godine u formi okruglog stola povodom obeležavanja 25. novembra, Međunarodnog dana borbe pro- tiv nasilja nad ženama. U radu okruglog stola učestvovali su predsednik Narodne skupštine, predstavnici državnih organa i nevladinih organizacija. Na okruglom stolu izneti su podaci o rasprostranjenosti nasilja prema ženama, posebno nasilja u porodici, a nakon višesatne dis- kusije zaključeno je da problemi porodičnog nasilja i nasilja nad ženama “zahtevaju višeslojni pristup, poboljšanje efikasnosti i ažurnosti sudskih organa, pružanje psihološke i druge stručne
30 pomoći žrtvama, kao i da je potreban bolji rad na prevenciji nasilja”. Na IX sednici Odbora održanoj 5. 12. 2007. godine razmotren je i preciziran Predlog deklaracije o eliminaciji svih oblika nasilja nad ženama, koji je upućen u redovnu skupštinsku proceduru.100
Ostvarujući svoju kontrolnu funkciju, Odbor je na VII sednici od 6. 11. 2007. godine razmo- trio Izveštaj o radu Saveta za ravnopravnost polova Vlade Republike Srbije u mandatu od 2004. do 2007. godine i upoznao se sa prioritetima Sektora za rodnu ravnopravnost Ministar- stva rada i socijalne politike u oblasti rodne ravnopravnosti.
Jedan od konkretnih problema kojima se Odbor bavio tiče se predstavke predsednice SO Knić povodom inicijative grupe odbornika da bude razrešena dužnosti koja je obrazložena time da je „izborno lice na funkciji predsednika SO Knić otišla na porodiljsko bolovanje u trajanju od godinu dana i svojim odlaskom paralisala rad SO Knić“. Odbor je doneo odluku da se uputi hitan zahtev Ministarstvu za državnu upravu i lokalnu samoupravu i Ministarstvu rada i soci- jalne politike da preispitaju slučaj i Odboru dostave povratnu informaciju.
2.3. Rad parlamentarnog mehanizma za rodnu ravnopravnost u VIII sazivu Narodne skupštine (2008 - 2012) U VIII sazivu Narodne skupštine nije došlo do promena u pogledu statusa i nadležnosti Odbora za rodnu ravnopravnost. Za vreme trajanja četvorogodišnjeg mandata Odbor je odr- žao 37 sednica, koje su bila posvećene različitim aktuelnim temama od značaja za ostvariva- nje rodne ravnopravnosti.
Jedno od osnovnih obeležaja rada Odbora u periodu 2008 - 2012. godine jeste da se rad odvi- jao po unapred utvrđenim godišnjim planovima rada, kao i da su o jednogodišnjem radu Odbora sačinjavani izveštaji,101 što nije bila praksa Odbora u ranijem periodu.
Druga bitna karakteristika rada Odbora ogleda se u aktivnostima koje su bile usmerene na jačanje rodnih kompetencija članova/ca Odbora, koje su neophodne za sprovođenje rodno osetljivog nadzora. U tom cilju tri sednice Odbora u formi seminara, organizovane uz podršku Misije OEBS-a i uz angažovanje ekspertkinja za rodna pitanja, bile su posvećene uvođenju rodne perspektive u rad Narodne skupštine. Takvu formu, imala je, na primer, XXXIII sednica (12. 10. 2012), na kojoj je članovima/cama Odbora predstavljen proces uključivanja perspek- tive rodne ravnopravnosti u sve faze procesa razvoja politika, od njihovog kreiranja do sprovo-
100 Nema podataka o tome da li je ovu deklaraciju Narodna skupština ikad usvojila. 101 Planovi parlamentaronog mehanizma za rodnu ravnopravnost, kao i izveštaji o njihovoj realizaciji nisu javno dostupni, tako da nisu bili predmet analize.
31 đenja. U diskusiji koja je vođena raspravljalo se o iskustvima i dobrim primerima iz uporedne parlamentarne prakse, kao i o radu i iskustvima Odbora za ravnopravnost polova Narodne skupštine. Na XXXV sednici (9. 11. 2011) Odbor je upoznat sa rezultatim rodne analize Naci- onalne strategije zapošljavanja, odnosno sa praktičnom primenom rodne analize – ključnog alata za urodnjavanje javnih politika. Na XXVII sednici (10. 11. 2010) ekspertkinje za rodnu ravnopravnost upoznale su članove/ce Odbora sa primerima dobre prakse u uvođenju prin- cipa rodne ravnopravnosti u javne politike, planove i budžete.
U periodu 2008 - 2012. godine veliki broj sednica Odbora imao je formu okruglih stolova posvećenih različitim temama. XXXVIII sednica Odbora (4. 4. 2012), održana u formi okruglog stola, bila je posvećena obeležavanju akcije „Mesec dana romsko - ženskog akti- vizma”. Položaju Romkinja u Srbiji bila je posvećena i XXXI sednica Odbora (7. 4. 2011), odr- žana u formi okruglog stola povodom obeležavanja Međunarodnog dana Roma. Na XXIII sednici (28. 9. 2009) održanoj u Nišu predstavljen je Predlog zakona o ravnopravnosti polova i izneti su argumenti u prilog njegovom usvajanju.
Odbor je bio organizator i nekoliko javnih slušanja, koja su organizovana povodom obeleža- vanja Međunarodnog dana borbe protiv nasilja prema ženama. Tako je u organizaciji Odbora 25. 11. 2010. godine održano javno slušanje na temu „Uloga medija u borbi protiv nasilja nad ženama“. Tokom javnog slušanja izneti su alarmantni podaci o broju ubijenih žena i raspro- stranjenosti nasilja prema ženama. Predstavnici/ce medijskih udruženja ukazali su da mediji „oslikavaju prilike u društvu i da bi na ovakvim skupovima trebalo da učestvuju i predstavnici medija, kao kreatori javnog mnjenja”. I naredne godine, istim povodom Odbor je organizo- vao javno slušanje „Interresorna saradnja i mehanizmi podrške žrtvama nasilja“. Skup je oku- pio veliki broj predstavnika/ca nadležnih ministarstava, policije, civilnog sektora i akadem- ske zajednice. Ukazano je na potrebu daljeg jačanja saradnje sa nezavisnim telima, nevladinim sektorom i podizanja svesti o nasilju nad ženama. Javna slušanja su svakako doprinela da pro- blem nasilja prema ženama bude vidljiviji, ali je upitno koliko su ona uticala na unapređenje društvenog odgovora na nasilje prema ženama.
32 Znatan deo aktivnosti Odbora bio je posvećen razmatranju izveštaja nadležnih organa i neza- visnih tela, kao i planovima njihovog rada.102 Odbor je ocenio korisnim izveštavanje nezavi- snih tela o primeni pojedinih zakona, ukazao na izazove u pogledu pripreme državnih izve- štaja o sprovođenju međunarodnih ugovora, kao i na probleme podeljenosti nevladinog sek- tora u pogledu učešća u pripremi izveštaja. Prilikom razmatranja pojedinih izveštaja, Odbor je uputio i predloge u pogledu prioritetnih tema. Tako je na XXIX sednici održanoj 8. 3. 2011. godine na kojoj je razmatran Izveštaj o radu Uprave za rodnu ravnopravnost Ministarstva rada i socijalne politike za period januar - decembar 2010. godine Odbor pozitivno ocenio rad Uprave i saradnju Odbora i Uprave i ukazao na potrebu da se više pažnje posveti položaju žena na selu i praćenju primene Zakona o ravnopravnosti polova u lokalnim samoupravama.103
Jedno od obeležja rada Odbora jeste i održavanje sednica van sedišta. Tako je XXVI sednica (20. 9. 2010) u formi okruglog stola održana u Žitištu, i posvećena položaju žena na selu. Na narednoj sednici održanoj 22. 9. 2010. godine Odbor je usvojio nekoliko zaključaka: uspo- stavljanje bolje saradnje na svim nivoima vlasti i angažovanje svih nadležnih činilaca u cilju poboljšanja ekonomskog položaja žena na selu, kao i njihovo što bolje informisanje i izmene zakonskih propisa kojima bi se omogućilo ženama u seoskim sredinama da, na osnovu rada u seoskom domaćinstvu, ostvaruju pojedina prava kao iz radnog odnosa, uključujući pravo na naknade tokom trudnoće i posle porođaja, kao i prava iz penzijskog i invalidskog osiguranja. I XIII sednica Odbora održana je van sedišta.
Na dnevnom redu Odbora bilo je i razmatranje predloga zakona. Na XXV sednici (20. 7. 2010) razmatran je u načelu Predlog zakona o izmenama i dopunama Zakona o penzijskom i inva- lidskom osiguranju, na XIX sednici (10. 12. 2009) Predlog zakona o budžetu Republike Srbije za 2010. godinu - Razdeo 21. Čak pet sednica Odbora, od kojih je jedna imala formu okruglog stola, bile su posvećene razmatranju Predloga zakona o ravnopravnosti polova. Na XVII sed- nici (18. 11. 2009) Odbor je podržao Predlog zakona i amandmane koje je Vlada prihvatila, i formulisao šest svojih amandmana. Tema XI sednice (27. 5. 2009) bio je Predlog zakona o
102 Na XXI sednici (1. 6. 2010) razmatran je Redovni izveštaj Zaštitnika građana za 2009. godinu, u delu koji se odnosi na rodnu ravnopravnost i zaštitu prava osoba sa invaliditetom. Na XXX sednici Odbora (10. 3. 2011) Odbor je razmotrio Objedinjeni II i III periodični izveštaj o primeni Konvencije o eliminaciji svih oblika diskriminacije žena (CEDAW). Na XXIX sednici održanoj 8. 3. 2011. godine razmotren je Izveštaj o radu Uprave za rodnu ravnopravnost Ministarstva rada i socijalne politike za period januar - decembar 2010. godine. Na XXI sednici (13. 4. 2010), razmatrani su i prihvaćeni planovi aktivnosti Uprave za rodnu ravnopravnost za 2010. godinu i Saveta za ravnopravnost polova za 2010. godinu. 103 Na ovoj sednici Odbor je uputio poziv svim političkim strankama koje nisu sačinile plan delovanja sa posebnim merama za podsticanje i unapređenje ravnomerne zastupljenosti žena i muškaraca u svojim organima i dostavile ga Odboru. Inače, ova obaveza se odnosila na političke stranke čiji su kandidati/ kandidatkinje izabrani za poslanike/ce, odnosno odbornike/ce, kako je to bilo propisano čl. 35. st. 4. i 5. Zakona o ravnopravnosti polova („Službenik glasnik RS”, br. 104/2009).
33 vojnoj, radnoj i materijalnoj obavezi, sa aspekta ostvarivanja rodne i polne ravnopravnosti. Podaci iz zapisnika govore da je Predlog zakona o ravnopravnosti polova bio jedini zakon na koji je Odbor dao svoje amandmane, dok u pogledu predloga drugih zakona nije bilo ni aman- dmana, ni komentara.
U skladu sa svojim ovlašćenjima, Odbor je u dva navrata razmotrio i osudio seksističko i uvredljivo ponašanje javnih funkcionera prema narodnim poslanicama: na VI sednici (10. 4. 2009) osudio je „neprimereno istupanje narodnog poslanika Tomislava Nikolića na sednici Narodne skupštine 13. februara 2009. godine u obraćanju narodnoj poslanici Gordani Pop-La- zić”, a na XII sednici (13. 4. 2010) „najoštrije je osudio verbalno nasilje narodnog poslanika Velimira Ilića nad narodnom poslanicom Jelenom Trivan, u emisiji „Upitnik“, emitovanoj na Javnom servisu RTS, 12. aprila.“
Značajno je pomenuti da je Odbor razmatrao i dve individualne predstavke: predstavku samohrane majke iz Beograda i predsednice S.O.S telefona za žene i decu žrtve nasilja iz Beo- grada u vezi sa nedostatkom prostora za rad.104
2.4. Rad parlamentarnog mehanizma za rodnu ravnopravnost u IX sazivu Narodne skupštine (2012 - 2014) Ulogu parlamentarnog mehanizma za rodnu ravnopravnost u periodu 2012 - 2014. godine vršio je Odbor za ljudska i manjinska prava i ravnopravnost polova (u daljem tekstu Odbor), u statusu stalnog radnog tela Narodne skupštine. Nadležnosti ovog tela u domenu rodne rav- nopravnosti identične su onima koje je imao raniji Odbor za ravnopravnost polova.105
104 U vezi sa predstavkom samohrane majke, Odbor je podnositeljki predstavke sugerisao da protiv preduzeća u kome je radila pokrene radni spor ili da se obrati gradskom Zaštitniku građana (XXV sednica, 20. 7. 2010). Povodom predstavke predsednice S.O.S telefona za žene i decu žrtve nasilja u vezi sa nedostatkom prostora za rad, Odbor je odlučio da „kontaktira predstavnike SOS telefona i informiše se šta od konkretne pomoći Odbor može da pruži, sa idejom da, ukoliko je to potrebno, Odbor uputi dopis predsednici Narodne skupštine da se ovoj organizaciji privremeno obezbede prostorije za rad u zgradi Narodne skupštine“. Ova predstavka je bila povod za zaključak da rad S.O.S telefona treba sistemski da bude rešen. 105 Prema odredbama iz čl. 52. Poslovnika Narodne skupštine, Odbor za ljudska i manjinska prava i ravnopravnost polova, razmatra predlog zakona i drugog opšteg akta i druga pitanja iz oblasti: ostvarivanja i zaštite ljudskih prava i sloboda i prava deteta; sprovođenja potvrđenih međunarodnih ugovora koji uređuju zaštitu ljudskih prava; ostvarivanja slobode veroispovesti; položaja crkava i verskih zajednica; ostvarivanja prava nacionalnih manjina i međunacionalnih odnosa u Republici Srbiji. Odbor sarađuje sa nacionalnim savetima nacionalnih manjina. Odbor razmatra predlog zakona i drugog opšteg akta sa stanovišta unapređivanja i postizanja ravnopravnosti (rodne jednakosti) polova, sagledava stanje vođenja politike, izvršavanje zakona i drugih opštih akata od strane Vlade i drugih organa i funkcionera odgovornih Narodnoj skupštini, sa stanovišta poštovanja ravnopravnosti polova. Odbor obavlja i druge poslove, u skladu sa zakonom i ovim poslovnikom. U ovom prilogu predmet analize su samo aktivnosti Odbora u oblasti rodne ravnopravnosti.
34 U dvogodišnjem mandatu Odbor je održao 23 sednice i organizovao šest javnih slušanja, od kojih su samo osam sednica i tri javna slušanja bili posvećeni temama iz domena rodne rav- nopravnosti, što čini nešto više od trećine ukupnih aktivnosti Odbora. U vezi s tim, treba imati u vidu da je na dnevnom redu tri od ukupno osam sednica Odbora bilo samo donošenje odluke o organizovanju javnog slušanja, tako da je, praktično, samo pet sednica bilo posve- ćeno razmatranju tema iz domena rodne ravnopravnosti. S druge strane, Odbor je na sedni- cama i javnim sluanjima razmatrao nekoliko tema iz oblasti ljudskih i manjinskih prava koje imaju izraženu rodnu dimenziju, kao što su, na primer, prevencija torture, prava pacijenata, međunarodno usvojenje i dr., ali, prema podacima iz zapisnika, one nisu razmatrane s rod- nog aspekta. Tako je povodom Međunarodnog dana podrške žrtvama torture Odbor u sarad- nji sa Odborom za pravosuđe, državnu upravu i lokalnu samoupravu organizovao javno sluša- nje na temu „Izveštaj Nacionalnog mehanizma za prevenciju torture za 2012. godinu“.106 Iako je poznato da se žene, a posebno žene iz višestruko diskriminisanih grupa, u zatvoru, kao i u psihijatrijskim i socijalnim ustanovama suočavaju sa specifičnim problemima, tokom disku- sije pitanja vezana za torturu nad ženama nisu bila predmet pažnje učesnika/ca. Iz navedenog se može zaključiti da je u radu Odbora znatno veća pažnja posvećena ljudskim i manjinskim pravima i da teme iz domena ljudskih i manjinskih prava nisu razmatrane iz rodne i intersek- cijske perspektive.
Sve sednice i javna slušanja održani su u sedištu Odbora, tako da je prekinuta praksa održava- nja sednica van sedišta, kakva je postojala u prethodnom periodu.
Odbor je i u ovom mandatu nastavio sa praksom usvajanja godišnjih planova rada. Međutim, izveštaji o radu nisu bili predmet razmatranje Odbora, a nema podataka o tome da li su uop- šte sačinjavani.
Rad Odbora u domenu rodne ravnopravnosti obeležila su javna slušanja, koja su skrenula pažnju javnosti na pojedine izazove u ostvarivanju rodne ravnopravnosti.
Prvo javno slušanje održano je 26. 11. 2012. godine povodom Međunarodnog dana borbe protiv nasilja nad ženama, na temu „Borba protiv nasilja u porodici“. Skup je okupio pred- stavnike/ce brojnih državnih organa, nezavisnih tela i međunarodnih i nevladinih organiza- cija. Izneti su podaci o prevalenci nasilja prema ženama u porodici i prezentovane su aktivno- sti koje se preduzimaju na planu borbe protiv ovog nasilja. Predstavnice ženskih organizacija
106 Javno slušanje organizovano je uz podršku Programa Ujedinjenih nacija za razvoj (UNDP) i Švajcarske agencije za razvoj i saradnju (SDC), kroz projekat “Jačanje nadzorne uloge i javnosti u radu Narodne skupštine” koji se sprovodi u saradnji sa Narodnom skupštinom Republike Srbije.
35 ukazale su na potrebu da Narodna skupština kroz amandmane poboljša predloge zakona koji su u proceduri i da efikasnije obavlja kontrolnu funkciju u pogledu primene zakona kojima je regulisana zaštita žena od nasilja. Zaključeno je da je neophodno brzo ratifikovati Istanbulsku konvenciju, izmeniti Krivični zakonik i uspostaviti državni tim koji će se na adekvatan način baviti problemom porodičnog nasilja.
Drugo javno slušanje održano je 3. 12. 2013. godine, na temu: „Nacionalna implementacija pre- poruka CEDAW komiteta Ujedinjenih nacija i CAHVIO Konvencije Saveta Evrope (Istanbul- ska konvencija)“. Javno slušanje je bilo deo aktivnosti na projektu “Jačanje nadzorne uloge i jav- nosti u radu Narodne skupštine”, koji su sprovele UNDP i Švajcarska agencija za razvoj i sarad- nju, u saradnji sa Narodnom skupštinom. Prema navodima iz informacija o javnom slušanju, ovaj skup je okupio predstavnike/ce brojnih međunarodnih organizacija i državnih organa, koji su ukazali na potrebu bolje primene međunarodnih ugovora, kao i na ulogu Narodne skupštine u praćenju njihove primene. Na skupu je bilo više govornica iz nevladinog sektora.
„Žensko preduzetništvo u Srbiji“ bila je tema trećeg javnog slušanja održanog 26. 11. 2013. godine, uz podršku nemačkog GIZ-a i Udruženja poslovnih žena Srbije. Na skupu, koji je oku- pio predstavnike/ce državnih organa i ženskih organizacija, izneti su brojni podaci o nedo- voljnom broju i lošem položaju žena preduzetnica, uz ukazivanje na potrebu šireg podstica- nja ženskog preduzetništva i stvaranja povoljnog ambijenta za rad malih i srednjih preduzeća.
Četvrto javno slušanje na temu „Starenje – godine života: od privilegije do diskriminacije” odr- žano je 26. 10. 2015. godine. Organizatori javnog slušanja bili su Odbor i institucija Povere- nika za zaštitu ravnopravnosti, a podršku je pružio USAID-ov projekat za reformu pravosuđa i odgovornu vlast. U fokusu javnog slušanja bili su različiti oblici diskriminacije po osnovu sta- rosnog doba u različitim oblastima, ali iz informacija sa ovog javnog slušanja može se zaklju- čiti da je izostao širi intersekcijski pristup u sagledavanju diskriminacije starijih osoba.
Na dnevnom redu Odbora bili su i godišnji izveštaji nezavisnih tela za ljudska prava, koje je Odbor podržao i usvojio zaključke koji su upućeni Narodnoj skupštini na razmatranje.
Tokom trajanja mandata, Odbor je razmotrio i podržao dva predloga zakona: Predlog zakona o potvrđivanju Amandmana na član 20. stav 1. Konvencije o eliminisanju svih oblika diskri- minacije žena i Predlog zakona o potvrđivanju Konvencije Saveta Evrope o sprečavanju i borbi protiv nasilja nad ženama i nasilja u porodici (XXI sednica, 11. 7. 2013).
Jedna od tema kojoj je Odbor posvetio pažnju bile su rodne dimenzije smanjenja rizika od katastrofa. Na IV sednici Odbora u formi okruglog stola, koja je povodom Međunarodnog dana smanjenja rizika od katastrofa održana 12. 10. 2012. godine na temu „Žene i devoj-
36 čice: Nevidljiva snaga u jačanju otpornosti“, predstavljena je Studija o rodnoj ravnopravnosti u oblasti smanjenja rizika od katastrofa u Republici Srbiji, koju je izradio UNDP. U diskusiji je ukazano na ostvarene rezultate i zaključeno da postoji potreba za većim uključivanjem žena u sve faze rada na smanjenju rizika od katastrofa, kao i za efikasnijim urodnjavanjem ove oblasti.
2.5. Rad parlamentarnog mehanizma za rodnu ravnopravnost u X sazivu Narodne skupštine (2014 - 2016) U dvogodišnjem periodu ulogu parlamentarnog mehanizma za rodnu ravnopravnost nasta- vio je da vrši Odbor za ljudska i manjinska prava i ravnopravnost polova, čiji su status i nad- ležnost ostali isti.
Odbor je u ovom periodu održao 43 sednice, skoro duplo više od broja sednica koje su odr- žane u prethodnom dvogodišnjem periodu. Na ovako intenzivan rad Odbora baca senku činjenica da je samo 15 sednica bilo posvećeno temama iz oblasti rodne ravnopravnosti, koje, kao i u prethodnom sazivu, čine oko 34% od ukupnog broja sednica. S druge strane, Odbor je na sednicama razmatrao niz tema vezanih za ostvarivanje ljudskih i manjinskih prava, ali uvid u zapisnike sa ovih sednica pokazuje da su one razmatrane na rodno neutralan način, bez sagledavanja njihovih rodnih dimenzija. Takav je pristup, na primer, primenjen u razmatra- nju tema koje se tiču položaja osoba sa invaliditetom, starijih osoba i osoba diskriminisanih po različitim osnovama. Tako je 3. 12. 2015. godine, povodom obeležavanja Međunarodnog dana ljudskih prava, održana zajednička sednica na temu „Inkluzija osoba sa invaliditetom – pris- tupačnost i osnaživanje“. Organizovali su je Odbor za ljudska i manjinska prava i rodnu rav- nopravnost i Odbor za rad, socijalna pitanja, društvenu uključenost i smanjenje siromaštva. Izostalo je, međutim, sagledavanje položaja žena i devojčica sa invaliditetom, a pažnja je bila fokusirana na probleme nepristupačnosti u kontekstu društvene inkluzije. Sličan pristup pri- menjen je i na XXVII sednici Odbora (3. 12. 2014) na kojoj je povodom Međunarodnog dana osoba sa invaliditetom, predstavljena „Mapa puta deinstitucionalizacije u Republici Srbiji“ Zaštitnika građana.
Rad Odbora u okviru X saziva Narodne skupštine obeležen je i održavanjem sednica van sedišta Odbora, što je doprinelo vidljivosti Odbora i unapređenju saradnje sa lokalnim orga- nima. Dve sednici održane van sedišta Odbora bile su posvećene temama iz oblasti rodne rav- nopravnosti: XV sednica održana 18. 11. 2014. u Vrnjačkoj Banji i XXXVI sednica, održana 27. 11. 2015. u Zrenjaninu. Pored toga, po prvi put je održana zajednička sednica parlamen- tarnog i pokrajinskog mehanizma za rodnu ravnopravnost (10. 12. 2015). Povod za održava- nje zajedničke sednice bilo je obeležavanje Međunarodnog dana ljudskih prava, a sednica je bila posvećena razmatranju dostignuća i perspektive u borbi protiv nasilja nad ženama. Na
37 sednici je ukazano na potrebu usklađivanja domaćeg zakonodavstva sa Istanbulskom konven- cijom, na značaj saradnje dva odbora i potrebu razmene iskustava, naročito na planu širenja mreže mehanizama za zaštitu rodne ravnopravnosti, jačanja podrške i zaštite žrtava, ekonom- skog osnaživanju žena i bolje koordinacije između svih institucija.
Odbor je razmatrao godišnje i posebne izveštaje nezavisnih tela za ljudska prava.107
Tema nasilja prema ženama bila je u fokusu nekoliko sednica Odbora. Na XXXVI sednici (27. 11. 2015), kojom je obeležen Međunarodni dan borbe protiv nasilja prema ženama i u porodici, u čijem su radu učestvovali predstavnici brojnih držanih organa i organa pokra- jinske i lokalne samouprave, predstavljen je tzv. „Zrenjaninski model“ u borbi protiv nasilja u porodici, kao primer dobre prakse. Izneti su alarmantni podaci o 36 ubijenih žena tokom 2015. godine i zaključeno “da će Odbor, na nekoj od narednih sednica [...] doneti odgovara- juće zaključke koje će uputiti nadležnim institucijama na dalje postupanje”. Na XVIII sednici Odbora (10. 12. 2014), povodom obeležavanja Međunarodnog dana ljudskih prava, predstav- ljen je Model zakona o rodnoj ravnopravnosti Zaštitnika građana, uz ukazivanje na najznačaj- nije novine koje mogu unaprediti praktičnu primenu principa rodne ravnopravnosti u okviru posebnih oblasti obuhvaćenih zakonom. Zaštita žena od nasilja bila je tema i XVI sednice Odbora (25. 11. 2014), na kojoj je razmotren Posebni izveštaj Zaštitnika građana o primeni opšteg i posebnih protokola za zaštitu žena od nasilja. Na skupu koji je okupio predstavnike državnih organa i nevladinog sektora, izneti su podaci o načinu primene protokola, posebno na lokalnom nivou, uz ukazivanje na ključne izazove u saradnji i koordinisanom delovanju institucija. Uloga mehanizama za rodnu ravnopravnost i postupanje nadležnih organa u slu- čajevima nasilja u porodici i u partnerskim odnosima bila je tema XV sednice Odbora, koja je uz podršku Misije OEBS-a održana u Vrnjačkoj Banji 18. 11. 2014. godine. Ocenjeno je da su za ostvarivanje rodne ravnopravnosti i u cilju sprečavanja nasilja nad ženama značajni efika- sni zakonodavni okvir i njegovo efikasno sprovođenje, preventivne mere i otklanjanje uzroka nasilja.108
107 Na XXVII sednici održanoj 5. 5. 2015. godine, povodom petogodišnjice rada instutucije Poverenika za zaštitu ravnopravnosti, razmotren je Poseban izveštaj ovog tela o diskriminaciji žena. Na VI sednici (30. 5. 2014) razmotren je Redovni godišnji izveštaj Zaštitnika građana za 2013. godinu, a na V sednici (29. 5. 2014) Redovan godišnji izveštaj Poverenika za zaštitu ravnopravnosti za 2013. godinu. 108 Ovoj sednici Odbora, pored članova/ca Odbora, prisustvovali su i u razgovoru učestvovali načelnica za rodnu ravnopravnost Zaštitnika građana, predstavnici opština Vrnjačka Banja i Novi Pazar, predstavnici centara za socijalni rad iz Niša, Kraljeva, Kruševca i Vrnjačke Banje, predstavnici saveta za rodnu ravnopravnost iz Novog Pazara i Kraljeva, predstavnici policijskih uprava Kraljevo i Kruševac i predstavnici brojnih nevladinih organizacija.
38 Odbor je na početku četvorogodišnjeg mandata formirao više posebnih radnih grupa, među kojima i radnu grupu za ravnopravnost polova (IX sednica, 15. 10. 2014). Međutim, nema podataka o zadacima, niti o bilo kakvim aktivnostima ove radne grupe.
2.6. Rad parlamentarnog mehanizma za rodnu ravnopravnost u XI sazivu Narodne skupštine (2016 - 2020) U okviru XI saziva Narodne skupštine ulogu parlamentarnog mehanizma za rodnu ravnoprav- nost vršio je Odbor za ljudska i manjinska prava i ravnopravnost polova, u pogledu čijeg sta- tusa i nadležnosti nije bilo promena.
U periodu 2016 – 2020. godine Odbor je radio po unapred pripremljenim godišnjim plano- vima rada, ali izveštaji o njihovoj realizaciji nisu bili predmet razmatranja Odbora, niti u zapi- snicima ima informacija o tome da li su oni sačinjavani.
Odbor je održao ukupno 25 sednica i organizovao četiri javna slušanja. Kao i u prethodnom četvorogodišnjem periodu, znatno manji deo aktivnosti Odbora bio je posvećen rodnoj rav- nopravnosti, a pojedine teme u kojima je rodna dimenzija naročito značajna, ako što su migra- cije, položaj osoba sa invaliditetom, osoba diskriminisanih po različitim osnovama i starijih, uglavnom su sagledavane na rodno neutralni način. Tako je, na primer, XXV sednica Odbora, održana 2. 12. 2019. godine, u saradnji sa Odborom za rad, socijalna pitanja, društvenu uklju- čenost i smanjenje siromaštva, povodom obeleževanja Međunarodnog dana osoba sa invali- ditetom, na temu “Pristupačna budućnost”. Prema dostupnim podacima, u obradi ove teme nije primenjen rodno senzitivni pristup, tako da je izostalo sagledavanje položaja žena i devoj- čica sa invaliditetom.
U ostvarivanju svoje uloge u zakonodavnom procesu, Odbor je na IX sednici (14. 11. 2016) razmatrao u načelu Predlog zakona o sprečavanju nasilja u porodici i Predlog zakona o izme- nama i dopunama Krivičnog zakonika, kojim se uvode nova krivična dela radi usklađivanja sa Istanbulskom konvencijom: proganjanje, polno uznemiravanje, prisilan brak, genitalno saka- ćenje i pooštravaju kazne za učinioce nasilja u porodici. Odbor je podržao oba predloga.
I u ovom četvorogodišnjem mandatu Odbor je razmatrao izveštaje nezavisnih tela za ljudska prava i državnih organa.109
109 Na XVI sednici (22. 5. 2018) razmatran je Redovni godišnji izveštaj Poverenika za zaštitu ravnopravnosti za 2017. godinu, na XIV sednici (13. 2. 2018) razmatran je Izveštaj Republike Srbije u okviru trećeg ciklusa Univerzalnog periodičnog pregleda, a na IV sednici (22. 9. 2016) Izveštaj Poverenika za zaštitu ravnopravnosti za 2015. godinu.
39 Značajna aktivnost Odbora bila je organizacija javnih slušanja, ali je samo jedno do njih bilo posvećeno rodnoj temi. Radi se o javnom slušanju na temu “Sprečavanje nasilja nad ženama”, održanom 26. 11. 2019. godine. Na skupu su predstavljeni rezultati istraživanja o nasilju prema ženama koje je sprovela Misija OEBS-a i ukazano je da, uprkos unapređenjima zakono- davnog okvira, nije dovoljno učinjeno na prevenciji nasilja nad ženama, u čemu važnu ulogu ima rana edukacija o rodnoj ravnopravnosti, unapređenje koordinisanog i efikasnog delovanja svih institucija sistema u pružanju zaštite od nasilja.
Povodom obeležavanja Međunarodnog dana Roma, Odbor je XV sednicu (3. 4. 2018) posve- tio temi “Pravo na izbor partnera i skretanje pažnje na dečje brakove u romskoj populaciji“. Sednica je organizovana u saradnji sa Romskim ženskim centrom „Bibija”, u okviru kampanje „Mesec romskog ženskog aktivizma“. Na sednici su predstavljeni rezultati istraživanja “Dečiji brakovi u romskoj populaciji u Srbiji”. U diskusiji je sveobuhvatno i iz rodne perspektive raz- motren problem dečijih brakova i ukazano je na primere dobre prakse integrisanja Roma i Romkinja u lokalnu zajednicu, kao i na je značaj podizanja obrazovnog nivoa romske popu- lacije, posebno žena kojima školovanje otvara perspektive za dostojanstven život, zaposlenje i zaštitu zdravlja. Zaključeno je da će Odbor i u narednom periodu posvećivati pažnju pro- blemu dečijih brakova, kao i da je neophodan rad na osnaživanju romske populacije i sprovo- đenju zakona, kao i na većoj zainteresovanosti društva za rešavanje problema dečijih brakova.
2.7. Rad parlamentarnog mehanizma za rodnu ravnopravnost u XII sazivu Narodne skupštine (2020 - 2022) Kao i u prethodnom periodu, i u dvogodišnjem periodu XII saziva Narodne skupštine ulogu parlamentarnog mehanizma za rodnu ravnopravnost vršio je Odbor za ljudska i manjinska prava i ravnopravnost polova, u nepromenjenom statusu.
U periodu 2020 - 2022. godine Odbor je održao 13 sednica. Nije nastavljeno sa dobrom prak- som održavanja javnih slušanja, niti su sednice Odbora održavane van njegovog sedišta. Prema dostupnim podacima iz zapisnika, Odbor nije usvajao godišnje planove rada, niti je sačinjavao izveštaje o svom radu.
Od ukupno 13 sednica, sedam sednica posvećeno je temama iz oblasti rodne ravnopravnosti. Time su po prvi put pitanja rodne ravnopravnosti bila dominantna u radu Odbora.
Dve sednice Odbora bile su posvećene razmatranju Predloga zakona o izmenama i dopunama Zakona o zabrani diskriminacije i Predloga zakona o rodnoj ravnopravnosti. Na VII sednici (14. 5. 2021) navedeni predlozi su razmotreni u načelu i Odbor je podržao njihovo usvaja- nje. Na VIII sednici (20. 5. 2021) predlozi su razmatrani u pojedinostima. Na Predlog zakona
40 o izmenama i dopunama Zakona o zabrani diskriminacije narodni poslanici su podneli 10 amandmana, a Odbor je predložio prihvatanje tri amandmana i dodatno podneo svoja tri amandmana. Na Predlog zakona o rodnoj ravnopravnosti podneto je 69 amandmana, a Odbor je predložio Narodnoj skupštini da prihvati 17 amandmana, a ostale da odbije.
Jedna od tema kojoj je Odbor posvetio pažnju jeste primena Zakona o sprečavanju diskrimi- nacije osoba sa invaliditetom i Zakona o zapošljavanju i profesionalnoj rehabilitaciji osoba sa invaliditetom. Na III sednici Odbora (3. 12. 2020) predstavljen je „Nacrt izveštaja o postzako- nodavnom nadzoru Zakona o sprečavanju diskriminacije osoba sa invaliditetom i Zakona o zapošljavanju i profesionalnoj rehabilitaciji osoba sa invaliditetom”.110 Sam izveštaj je rodno neutralan, a takva je bila i diskusija o primeni ovih zakona, tako da je izostala ocena njihovih efekata na žene i devojčice sa invaliditetom.
Pet sednica Odbora bile su posvećene razmatranju izveštaja nezavisnih tela za ljudska prava i planova rada i izveštaja o radu državnih organa.111 U diskusiji koja je povodom izveštaja i pla- nova rada vođena nije bilo kritičkih primedbi, niti sugestija.
2.8. Rad parlamentarnog mehanizma za rodnu ravnopravnost u XIII sazivu Narodne skupštine (2022 - 2023) U aktuelnom XIII sazivu Narodne skupštine Odbor je održao četiri sednice i organizovao jedno javno slušanje. Prema podacima iz zapisnika, planovi rada i izveštaj o radu za 2022. godinu nisu usvajani.
Na sednicama su razmotrene informacije o radu Ministarstva za ljudska i manjinska prava i društveni dijalog (III sednica, 28. 3. 2023), koje je Odbor prihvatio, kao i izveštaji nezavisnih tela za ljudska prava.112
Povodom Svetskog dana Roma, Odbor je, u saradnji sa Romskom ženskom mrežom Srbije, 5. 4. 2023. godine organizovao javno slušanje na temu: „Svako dete ima pravo na detinjstvo, zau-
110 Izveštaj je pripremljen u okviru regionalnog programa Vestminsterske fondacije za demokratiju. 111 Na XII sednici (22. 12. 2021) razmotreni su Redovni godišnji izveštaj Zaštitnika građana za 2020. godinu i Redovni godišnji izveštaj Poverenika za zaštitu ravnopravnosti za 2020. godinu. Na XI sednici (19. 11. 2021) razmotrena su tri izveštaja Ministarstva za ljudska i manjinska prava i društveni dijalog za periode: januar - mart, april - jun i jul - septembar 2021. godine, na V sednici (17. 12. 2020) Odbor je razmotrio Redovni godišnji izveštaj Poverenika za zaštitu ravnopravnosti za 2019. godinu, a na IV sednici (17. 12. 2020) razmotren je Redovni godišnji izveštaj Zaštitnika građana za 2019. godinu. Na II sednici (16. 11. 2020) razmotren je plan aktivnosti Ministarstva za ljudska i manjinska prava i društveni dijalog. 112 Razmotreni su: Redovni godišnji izveštaj Zaštitnika građana za 2021. i Redovni godišnji izveštaj Poverenika za zaštitu ravnopravnosti za 2021. godinu (II sednica, 22. 12. 2022). Povodom ovih izveštaja još uvek nisu usvojeni zaključci.
41 stavimo dečje brakove”. Na skupu koji je okupio veliki broj predstavnika/ca državnih organa, međunarodnih i nevladinih organizacija, predstavljeni su rezultati rada Nacionalne koalicije protiv dečijih brakova, Romske ženske mreže o dečjim brakovima, kao i Inicijative za izmenu normativno-pravnih akata u Republici Srbiji od značaja za prevenciju dečijih brakova. Na skupu je ukazano na uzroke dečijih brakova u romskoj populaciji i na potrebu za unapređe- njem položaja najmlađih Romkinja, koja podrazumeva jasnu politiku i međusektorsku sarad- nju, uz puno učešće romske zajednice i društva.
3. Sastav parlamentarnog mehanizma za rodnu ravnopravnost Narodne skupštine Republike Srbije
Tokom dvadesetogodišnjeg rada parlamentarnog mehanizma za rodnu ravnopravnost broj njegovih članova/ca se menjao. Odbor za rodnu ravnopravnost imao je 15 članova,113 dok je Odbor za ljudska i manjinska prava i ravnopravnost polova imao 17 članova.114
Sastav parlamentarog mehanizma za rodnu ravnopravnost uglavnom je odražavao političku strukturu Narodne skupštine u konkretnom sazivu. 115
Polna struktura parlamentarinog mehanizma za rodnu ravnopravnost nije bila konstantna. Kada je reč o predsednicama/cima parlamentarnog mehanizma, dostupni podaci pružaju sle- deću sliku:
Broj Period Ime i prezime predsednika/ca
1. 2003 - 2004. Lejla Ruždić Trifunović, Demokratska stranka
2. 2004 - 2007. Lejla Ruždić Trifunović, Demokratska stranka
113 Član 68g st. 3. Poslovnika Narodne skupštine. Broj članova/ca tadašnjih odbora nije bio isti. Neki odbori su imali 25 članova, neki 21, pojedini 17, najviše odbora imalo je 15 članova/ca, a bilo je i odbora koje je činilo 11 članova/ca. (Videti čl. 45-68g Poslovnika Narodne skupštine). 114 Prema važećim Poslovniku Narodne skupštine, svi Odbori imaju 17 članova/ca, izuzev Odbora za kontrolu službi bezbednosti koji ima 9 članova/ca. (Videti čl. 48-66 Poslovnika Narodne skupštine). 115 Na sajtu Narodne skupštine nedostaju podaci o sastavu Odbora za rodnu ravnopravnost u V i VI sazivu Narodne skupštine.
42 Broj Period Ime i prezime predsednika/ca
3. 2007 - 2008. Elena Božić Talijan, Srpska radikalna stranka
Gordana Paunović Milosavljević, Srpska radikalna 4. 2008 - 2012. stranka
5. 2012 - 2014. Meho Omerović, Socijaldemokratska partija Srbije
6. 2014 - 2016. Meho Omerović, Socijaldemokratska partija Srbije
Meho Omerović, Socijaldemokratska partija Srbije od 7. 2016 - 2020. 17. jula 2019. Jasmina Karanac, Socijaldemokratska partija Srbije
8. 2020 - 2022. Muamer Bačevac, Socijaldemokratska partija Srbije
9. od 2022. Muamer Bačevac, Socijaldemokratska partija Srbije
Navedeni podaci pokazuju da je tokom dvadeset godina delovanja parlamentarnog meha- nizma broj žena i muškaraca na čelu Odbora bio izjednačen. Što se tiče polne strukture čla- nova/ca Odbora, ona se tokom vremena menjala, ali su žene konstantno bile zastupljene u većem procentu, u pojedinim periodima u znatno većem procentu u odnosu na njihovu zastupljenost u Narodnoj skupštini. Primetan je, međutim, trend povećanja broja muška- raca u sastavu Odbora: u periodu 2008 - 2012. godine bila su samo dva muškarca, 2012 - 2014. godine šest muškaraca, uključujući i predsednika Odbora, 2014 - 2016. godine četiri muškarca, uključujući i predsednika, 2016 - 2020. godine dva muškarca, 2020 - 2022. godine sedam muškaraca, dok je skoro potpuni rodni balans postignut u sastavu aktuelnog Odbora, u kome je osam muštakaraca od ukupno 17 članova/ca. Može se pretpostaviti da je unapređe-
43 nje polne strukture Odbora u pravcu uspostavljanja rodnog balansa izraz povećanog razume- vanja da rodna ravnopravnost nije „žensko pitanje”, već pitanje održivog društvenog razvoja i poštovanja ljudskih prava, koje je podjednako značajno i za žene i za muškarce. Za potvrđiva- nje ove pretpostavke potrebna su, međutim, dalja i dublja proučavanja.
4. Zaključne napomene
Uspostavljanje parlamentarnog mehanizma za rodnu ravnopravnost bio je jedan od važnih koraka ka rodno osetljivom parlamentu, a to je parlament koja uključuje rodnu perspektivu u sve svoje uloge – zakonodavnu, nadzornu i predstavničku.
Analiza dvadesetogodišnjeg rada parlamentarnog mehanizma za rodnu ravnopravnost poka- zuje da su postojale znatne oscilacije u pogledu obima i sadržaja njegovih aktivnosti. Na to su uticali različiti faktori, uključujući i ličnu zainteresovanost i posvećenost ideji rodne rav- nopravnosti osoba na čelu parlamentarnog mehanizma, kao i njegovih članova/ca. Dinamika rada parlamentarnog mehanizma Narodne skupštine odražava dinamiku sprovođenja poli- tike rodne ravnopravnosti u Srbiji. Povećan intenzitet njegovih aktivnosti beleži se u vreme rada na zakonima o rodnoj ravnopravnosti, posebno Zakona o ravnopravnosti polova, kao i u vreme sprovođenja projekata i razvojnih programa međunarodnih organizacija.
Predlozi zakona koji su bili predmet razmatranja na sednicama parlamentarnog mehanizma za rodnu ravnopravnost pokazuju da je njegov uticaj na urodnjavanje zakonodavstva imao skromne domete. Razloge treba tražiti u nerazumevanju multisektorske prirode rodne rav- nopravnosti i potrebe da rodna perspektiva bude integrisana u sve zakone, uključujući i one koji su na prvi pogled rodno neutralni, kao na primer, zakoni iz oblasti obrazovanja, energe- tike, privrede i drugih oblasti. Zbog neprepoznavanja rodnih dimenzija ovih zakona, oni nisu bili predmet razmatranja na sednicama parlamentarnog mehanizma. Može se pretpostaviti da je jedan od uzroka takvog stanja i nedovoljna stručna podrška Odboru u sprovođenju rodne analize, rodne procene uticaja i primeni drugih metoda i alata za urodnjavanje zakonodavstva.
Od 2012. godine ulogu parlamentarnog mehanizma vršio je Odbor za ljudska i manjinska prava i ravnopravnost polova. Iako objedinjavanje ove tri oblasti pruža mogućnost da se pita- nja rodne ravnopravnosti razmatraju u kontekstu ljudskih prava, čini se da u praksi ovaj model nije potvrdio svoju delotvornost jer je prilikom razmatranja tema iz oblasti ljudskih i manjin- skih prava uglavnom izostalo sagledavanje njihove rodne i intersekcionalne perspektive.
U ostvarivanju kontrolne funkcije parlamentarni mehanizam za rodnu ravnopravnost ostva- rio je, u celini posmatrano, ograničene rezultate. O tome svedoči i mali broj planova i izve-
44 štaja o radu organa izvršne vlasti koje je parlamentarni mehanizam razmatrao, kao i činjenica da ih je prihvatao bez dublje analize i rasprave. Slabi rezultati su svojevrsni odraz negativnih trendova u pogledu ostvarivanja nadzora Narodne skupštine nad radom organa izvršne vlasti.
Tokom dvadesetogodišnjeg delovanja institucionalnog mehanizma praksa javnih slušanja nije bila konstantna, niti istog intenziteta. Iako su uglavnom organizovana povodom obeležavanja međunarodnih praznika i u okviru projekata međunarodnih organizacija, što je javnim slu- šanjima dalo svečarski ton, njihovo održavanje je doprinelo većoj vidljivosti različitih vidova rodne diskriminacije i samog parlamentarnog mehanizma. Vidljivosti parlamentarnog meha- nizma doprinelo je i održavanje sednica van sedišta, ali je njihov broj relativno skroman.
Transparentnost rada parlamentarnog mehanizma bila je na relativno zadovoljavajućem nivou. Tome je, pre svega, doprinela praksa održavanje sednica u formi okruglih stolova, na kojima su učestvovali predstavnici nezavisnih tela za ljudska prava, nevladinog sektora i aka- demske zajednice. Pored toga, nivo transperentnosti je znatno povećan uvođenjem prakse objavljivanja snimaka sednica Odbora, koja je započeta 2012. godine.
Saradnja parlamentarnog mehanizma za rodnu ravnopravnost sa drugim stalnim radnim telima Narodne skupštine nije bila u većoj meri razvijena, o čemu svedoči i mali broj zajednič- kih sednica organizovanih u saradnji sa drugim odborima.
Sastav parlamentarog mehanizma za rodnu ravnopravnost uglavnom je odražavao političku strukturu Narodne skupštine u konkretnom sazivu, saglasno čl. 28. Zakona o Narodnoj skup- štini. Žene i muškarci su bili na čelu parlamentarnog mehanizma u jednakom vremenskom periodu – 10 godina žene i 10 godina muškarci. Zastupljenost žena bila je veća u odnosu na zastupljenost muškaraca, uz evidentan trend postepenog uspostavljanja rodnog balansa.
U Srbiji su, uprkos pozitivnim pomacima, rodne neravnopravnosti, kumulirane vekovima unazad i duboko utkane u društvene strukture, još uvek prisutne u svim sferama javnog i pri- vatnog života. U predstojećem procesu urodnjavanja zakona i javnih politika, koji će, nesum- njivo, kao i do sada, biti praćen brojnim izazovima i preprekama, uloga parlamentarnog meha- nizma biće i dalje veoma značajna. Za njegovo buduće delovanje dragocena su ne samo pozi- tivna, već i negativna iskustva stečena tokom dvadesetogodišnjeg rada, jer pružaju uvid u pretpostavke koje je neophodno obezbediti kako bi doprinos parlamentarnog mehanizma na planu unapređivanja rodne ravnopravnosti bio veći, efikasniji i delotvorniji.
45 mr Maja Sedlarević116
ODBOR ZA RAVNOPRAVNOST POLOVA SKUPŠTINE AP VOJVODINE117 2003 - 2023. GODINE
1. Uvod
U Autonomnoj Pokrajini Vojvodini od momenta demokratskih promena (2000. godine) odmah se krenulo snažno i odlučno u rešavanje pitanja rodne (ne)ravnopravnosti i to tako što je ovo pitanje institucionalizovano. Uspostavljeni su svi mehanizmi i doneti svi akti koji su bili u nadležnosti autonomne pokrajine. Pretpostavka je da se ovo ne bi desilo da žene aktivistki- nje i političarke nisu sa ulice ušle u institucije i svoju borbu nastavile tamo.
Formiranje i rad Odbora za ravnopravnost polova Skupštine AP Vojvodine ne može se ana- lizirati van konteksta u kome je nastao. U AP Vojvodini u periodu od 2000. do 2004. godine uspostavljeni su institucionalni mehanizmi ravnopravnosti polova118 koji su, u skladu sa nad- ležnostima pokrajine, mogli biti formirani: Pokrajinski sekretarijat za rad, zapošljavanje i rav- nopravnost polova; Savet za ravnopravnost polova; Odbor za ravnopravnost polova Skup- štine AP Vojvodine; Zamenica pokrajinskog ombudsmana zadužena za ravnopravnost polova; Pokrajinski zavod za ravnopravnost polova. Odbor za ravnopravnost polova Skupštine AP Vojvodine formiran je 2003. godine i ove godine obeležava dvadeset godina postojanja i rada.
Potreba da se ustanove institucionalni mehanizmi kako u skupštinama, tako i u izvršnoj vla- sti prepoznata je zbog mogućnosti koje je institucionalizacija rodne ravnopravnosti i u parla- mentarnom i u izvršnom delu vlasti pružala jer omogućuje podnošenje predloga, pokretanje
116 majasedlarevic@yahoo.com Autorka je bila pokrajinska poslanica u mandatima 2004 - 2008, 2008 - 2012, 2012 - 2016. i 2016 - 2020. godine i potpredsednica Skupštine AP Vojvodine od 2008. do 2012. godine. 117 Zahvaljujemo se Službi Skupštine AP Vojvodine na bezrezervnom trudu u sakupljanju i pripremi materijala koji nam je ustupljen u svrhu ovog istraživanja. 118 U radu su izjednačeni pojmovi “ravnopravnost polova” i “rodna ravnopravnost”. Autorka ukazuje na jasnu razliku između termina “pol” i “rod” i da je pravilnije koristiti pojam “rodna ravnopravnost”. Međutim, mora se uzeti u obzir vremenski okvir u kome su nastali Odbor za ravnopravnost polova i drugi pokrajinski mehanizmi i da se tada dominantno koristio izraz “ravnopravnost polova” (koji je u nazivu pokrajinskih mehanizama ostao do danas i nije menjan), a da je termin “rodna ravnopravnost” u upotrebi zaživeo i dominantno počeo da se koristi kasnije. Ova dva pojma se u radu ravnopravno koriste i imaju isto značenje.
47 inicijativa, uključivanje u pripremu zakona119, neposredan uticaj na izradu zakona, reagova- nje na predloge zakona koje pripremaju ministarstva, praćenje primene zakona, pomoć struč- nih službi, mogućnost angažovanja eksperata i ekspertkinja, saradnju sa civilnim sektorom, međuresorsku saradnju koja je za rodnu ravnopravnost izuzetno značajna, budžetska sredstva kojima izvršna vlast raspolaže, rodno osetljivo budžetiranje i slično.
Autonomna Pokrajina Vojvodina je 2002. godine postavila institucionalne temelje rodne rav- nopravnosti formiranjem Pokrajinskog sekretarijata za rad, zapošljavanje i ravnopravnost polova i Odbora za ravnopravnost polova u Skupštini AP Vojvodine januara 2003. godine, a iste godine i formiranjem Pokrajinskog ombudsmana, koji je od početka rada institucije među zamenicima imao i zamenicu za ravnopravnost polova. Dobra praksa se nastavila 2004. godine donošenjem Deklaracije o rodnoj ravnopravnosti i Odluke o ravnopravnosti polova, i formiranjem posebne institucije koja se kao stručno telo bavi rodnom ravnopravnošću - Pokrajinskog zavoda za ravnopravnost polova. I danas, 20 godina kasnije, ovi mehanizmi se aktivno zalažu za jačanje lokalnih mehanizama, za postizanje rodne ravnopravnosti i uvođe- nje prinicipa jednakih mogućnosti u sve javne politike, što će delom biti prikazano i u ovom radu, barem što se Odbora za ravnopravnost polova Skupštine AP Vojvodine tiče.
2. Osnivanje Odbora za ravnopravnost polova Skupštine AP Vojvodine
Skupština Autonomne Pokrajine Vojvodine, kao najviši predstavnički organ Pokrajine, izme- nama i dopunama Poslovnika o radu Skupštine AP Vojvodine predvidela je formiranje Odbora, radi razmatranja i analiziranja pitanja iz nadležnosti Skupštine AP Vojvodine, pred- laganja akata, sagledavanja stanja u određenim oblastima i vršenja drugih poslova. Na sednici održanoj 23. 12. 2002. godine, usvojen je Poslovnik Skupštine AP Vojvodine koji je stupio na snagu 8. 1. 2003. godine.120
Odbor za ravnopravnost polova konstituisan je 22. 4. 2003. godine, izborom predsednika i članica i članova Odbora121. Predsednik Skupštine u dogovoru sa predsednicima poslaničkih grupa, odnosno poslanicima – predstavnicima političkih stranaka koje su zastupljene u Skup- štini, predlaže kandidate za predsednike i članove odbora, srazmerno broju poslanika koje te političke stranke imaju u Skupštini.122 Odbor ,,razmatra predloge odluka i opštih akata sa sta-
119 Skupština AP Vojvodine je ovlašćeni predlagač zakona, član 107. stav 1. Ustava Republike Srbije 120 “Sl. list AP Vojvodine“, 23/2002, dostupno na www.paragraf.rs pristupljeno 12. 7. 2023. 121 Odluka o izmenama i dopunama Odluke o izboru predsednika i članova odbora Skupštine AP Vojvodine (Broj: 020-5 od 22. 4. 2003. godine) 122 Član 30. tadašnjeg Poslovnika o radu Skupštine AP Vojvodine.
48 novišta unapređivanja ravnopravnosti polova (rodne jednakosti) i postizanja ravnopravnosti polova. Odbor sagledava stanje vođenja politike, izvršavanja odluka i opštih akata od strane Izvršnog veća sa stanovišta poštovanja ravnopravnosti polova.“123 Poslovnik o radu Skupštine AP Vojvodine je od 2003. do 2023. godine menjan u nekoliko navrata. Aktuelni Poslovnik Skupštine AP Vojvodine124 propisuje da “Odbor za ravnopravnost polova razmatra predloge programa, odluka i opštih akata iz oblasti ravnopravnosti žena i muškaraca, razmatra anali- tičke i druge materijale iz oblasti ravnopravnosti žena i muškaraca, razmatra akta sa stanovišta unapređenja ravnopravnosti žena i muškaraca, sagledava vođenje politike, izvršavanje odluka i opštih akata od strane Pokrajinske vlade sa stanovišta ravnopravnosti i druga pitanja iz obla- sti ravnopravnosti polova.”125
Stenografske beleške sa sednica Odbora sačuvane su u obliku zapisnika koji sadrže osnovne informacije o temama i diskusijama, te nisu bile plodan izvor podataka za analizu.126
3. Analiza rada Odbora za ravnopravnost polova
Rad Odbora za ravnopravnost polova praćen je u okviru šest mandata i to: 2000 - 2004, 2004 - 2008, 2008 - 2012, 2012 - 2016, 2016 - 2020. i 2020 - 2024.
Rad Odbora za ravnopravnost polova u mandatu 2000 (2003) - 2004. godine
U 2003. godini, Odbor je održao tri, a u 2004. godini (pre isteka tog mandata) još dve sednice. Razmatrano je 16 tačaka dnevnog reda u okviru pet održanih sednica, i to: Informacija o naci- onalnoj i polnoj strukturi, stepenu obrazovanja, načinu i datumu zasnivanja radnog odnosa u pokrajinskim, opštinskim i gradskim organima uprave na teritoriji AP Vojvodine, Informa- cija o položaju žena u AP Vojvodini za period 2002 - 2003. godina, Izveštaj o radu i plan rada Pokrajinskog sekretarijata za rad, zapošljavanje i ravnopravnost polova, kao i plan rada Sekre- tarijata, a usvojene su i Deklaracija o ravnopravnosti polova, Predlog odluke o ravnopravnosti polova, Predlog odluke o osnivanju Pokrajinskog zavoda za ravnopravnost polova, postaviviši time temelje sistemskog razvoja i unapređenja ravnopravnosti polova u AP Vojvodini.
123 Član 69. tadašnjeg Poslovnika o radu Skupštine AP Vojvodine. 124 Dostupno na: https://www.skupstinavojvodine.gov.rs/Strana.aspx?s=poslovnik&j=SRL pristupljeno 13. 7. 2023. godine 125 Član 74. Poslovnika o radu Skupštine AP Vojvodine. 126 Zapisnici su izvor na koji se analiza oslanja; u Skupštini AP Vojvodine čuvaju se u arhivi Skupštine AP Vojvodine na papiru i u elektronskom obliku.
49 Tabela 1
Sednica Datum Dnevni red
1. Izbor zamenika predsednika Odbora
2. Informacije o stanju ravnopravnosti polova 1 8. 7. 2003. 3. Informacija o stanju zaposlenosti i nezaposlenosti u AP Vojvodini u periodu januar - decembar 2002. godine sa podacima za period januar - mart 2003. godine
1. Razmatranje predloga odluke o ravnopravnosti polova (radna verzija)
2. Razmatranje Predloga odluke o osnivanju Fonda za podsticanje preduzetništva žena (radna verzija)
3. Izveštaj o aktivnostima Pokrajinskog sekretarijata 2 20. 10. 2003. za zapošljavanje i ravnopravnost polova između dve sednice Saveta za ravnopravnost polova
4. Izveštaj o planiranim aktivnostima Pokrajinskog sekretarijata za rad, zapošljavanje i ravnopravnost polova do kraja 2003. godine i prve polovine 2004. godine
1. Informacija o nacionalnoj i polnoj strukturi, stepenu obrazovanja, načinu i datumu zasnivanja 3 16. 12. 2003. radnog odnosa u pokrajinskim, opštinskim i gradskim organima uprave na teritoriji AP Vojvodine
1. Predlog deklaracije o ravnopravnosti polova
2. Predlog odluke o ravnopravnosti polova 4 5. 8. 2004. 3. Predlog odluke o osnivanju Pokrajinskog zavoda za ravnopravnost polova
1. Informacija o položaju žena u Vojvodini 2002/2003. 5 14. 9. 2004. godina
50 I pored toga što je Odbor razmatrao informacije koje su sadržale sveobuhvatnu analizu polo- žaja žena u Vojvodini i doneo važne odluke u vezi sa postizanjem rodne ravnopravnosti u AP Vojvodini, nije bilo zainteresovanih za učešće u diskusiji ili je samo deo članica/članova aktivno učestvovao. To pokazuje odnos dela članica i članova Odbora prema zasedanju i radu Odbora kao birokratskoj proceduri u kojoj nemaju obavezu aktivnog učešća u razmatranju nekog dokumenta, ma koliko on bio relevantan za oblast kojom se Odbor bavi. Analiza poda- taka iz zapisnika sa sednica Odbora ukazuje na nekoliko zapažanja:
1) Svega četiri člana/članice (od 11) bilo je prisutno na svim sednicama.
2) Dva člana/članice Odbora nisu bili ni na jednoj sednici, od toga je jedna žena.
3) Na svakoj sednici Odbora diskutovao je samo jedan član Odbora (predsednik).
4) Čak pet članova/članica Odbora nikad nije učestvovalo u diskusiji, od toga dve žene. To ukazuje na nezainteresovanost pojedinih članova/članica za ovu oblast i neodgovoran odnos prema obavezama koje podrazumeva članstvo u skupštinskom odboru. Činjenica da takav odnos imaju i žene govori da one nisu senzibilisane za rodnu problematiku.
5) Ni u jednom zapisniku nije upotrebljavan rodno osetljiv jezik; iako je, osim članica Odbora, na svim sednicama bila prisutna pokrajinska sekretarka za rad, zapošljavanje i ravnoprav- nost polova i članica Izvršnog veća Jelica Rajačić Čapaković i na svakoj sednici i predstav- nice drugih sekretarijata i/ili institucija pokrajinske administracije njihove funkcije nisu napisane u ženskom rodu.
Rad Odbora za ravnopravnost polova u mandatu 2004 – 2008. godine U ovom periodu Odbor za ravnopravnost polova Skupštine AP Vojvodine održao je 14 sed- nica i razmatrao ukupno 44 tačke dnevnog reda. Pored razmatranja godišnjih izveštaja pokra- jinskog ombudsmana, izveštaja o radu Pokrajinskog sekretarijata za rad, zapošljavanje i rav- nopravnost polova i Pokrajinskog zavoda za ravnopravnost polova, razmatrane su informa- cije o zastupljenosti žena i muškaraca u predstavničkim telima i organima uprave u AP Vojvo- dini nakon lokalnih i pokrajinskih izbora 2004. godine i zastupljenost žena i muškaraca u jav- nim preduzećima u AP Vojvodini, informacije o razvoju lokalnih mehanizama za ravnoprav- nost polova, informacije o broju nepismenih žena na teritoriji AP Vojvodine i mere za sma- njenje stope nepismenosti, informacija o zaposlenosti i nezaposlenosti žena i muškaraca u AP Vojvodini, međunarodna saradnja i aktivnosti Odbora. Na 10. sednici, održanoj 11. 5. 2007. godine, utvrđen je Predlog zakona o ravnopravnosti polova, koji je kasnije Skupština AP Voj- vodine, kao ovlašćeni predlagač, uputila Narodnoj skupštini Republike Srbije.
51 Tabela 2
Sednica Datum Dnevni red
1. Izbor zamenika predsednika Odbora
2. Godišnji izveštaj Pokrajinskog ombudsmana za 2004. godinu
3. Informacija u oblasti zapošljavanju žena u Vojvodini u periodu januar - septembar 2004. godine 1 21. 2. 2005. 4. Izveštaj o radu Pokrajinskog sekretarijata za rad, zapošljavanje i ravnopravnost polova u oblasti rodne ravnopravnosti za 2004. godinu
5. Informacija o zastupljenosti žena i muškaraca u predstavničkim telima i organima javne uprave u AP Vojvodini nakon lokalnih i pokrajinskih izbora 2004. godine
1. Informacija o aktivnostima Pokrajinskog sekretar- ijata za rad, zapošljavanje i ravnopravnost polova u vezi sa izradom Nacrta zakona o ravnopravnosti polova
2 27. 6. 2005. 2. Informacija o razvoju lokalnih mehanizama za rav- nopravnost polova
3. Informacija Pokrajinskog ombudsmana u vezi sa rešavanjem problema nasilja u porodici (tri informacije)
1. Utvrđivanje Predloga odluke o imenovanju direk- tora Pokrajinskog zavoda za ravnopravnost polova
2. Utvrđivanje Predloga odluke o imenovanju pred- sednika i članova Upravnog odbora Pokrajinskog 3 14. 9. 2005. zavoda za ravnopravnost polova
3. Utvrđivanje Predloga odluke o imenovanju pred- sednika i članova Nadzornog odbora Pokrajinskog zavoda za ravnopravnost polova
52 Sednica Datum Dnevni red
1. Razmatranje Statuta Pokrajinskog zavoda za ravno- 4 11. 11. 2005. pravnost polova
1. Razmatranje Predloga odluke o izmeni i dopuni Odluke o osnivanju Pokrajinskog zavoda za ravno- pravnost polova
2. Informacija o broju nepismenih žena u AP Vojvod- 5 9. 3. 2006. ini i merama za smanjenje stope nepismenih žena
3. Informacija o saradnji Pokrajinskog sekretarijata za rad, zapošljavanje i ravnopravnost polova sa međun- arodnim i drugim inostranim i domaćim organizaci- jama i institucijama u oblasti ravnopravnosti polova
1. Informacija o stanju zaposlenosti i nezaposlenosti 6 9. 5. 2006. u AP Vojvodini u periodu januar - decembar 2005. godine
1. Utvrđivanje Predloga odluke o izmeni i dopuni Odluke o imenovanju predsednika i članova Upra- vnog odbora Pokrajinskog zavoda za ravnopravnost polova u Novom Sadu
7 25. 9. 2006. 2. Izvod iz Informacije o stanju zaposlenosti i nezapos- lenosti u AP Vojvodini u periodu januar - jun 2006. godine
3. Godišnji izveštaj Pokrajinskog ombudsmana za 2005. godinu
1. Priprema za organizaciju međunarodnog sastanka predstavnica Podunavskog regiona i gradova sa 8 14. 2. 2007. temama iz oblasti zaštite prava žena (21. i 22. marta 2007. godine u Skupštini AP Vojvodine); formulacija tema za navedeni sastanak
9 18. 5. 2007. 1. Izveštaj Pokrajinskog ombudsmana za 2006. godinu
1. Utvrđivanje Predloga zakona o ravnopravnosti 10 11. 5. 2007. polova
53 Sednica Datum Dnevni red
1. Utvrđivanje Predloga odluke o razrešenju direktora Pokrajinskog zavoda za ravnopravnost polova 11 14. 5. 2007. 2. Utvrđivanje Predloga odluke o imenovanju direk- tora Pokrajinskog zavoda za ravnopravnost polova
1. Izveštaj o poslovanju Pokrajinskog zavoda za ravno- 12 15. 6. 2007. pravnost polova za 2006. godinu
1. Informacija o zastupljenosti žena i muškaraca u javnim preduzećima u AP Vojvodini sa mišljenjem i preporukom Pokrajinskog ombudsmana
2. Informacija o aktivnostima ženskih nevladinih orga- 13 22. 11. 2007. nizacija u AP Vojvodini
3. Priprema za Parlamentarnu konferenciju Skupštine AP Vojvodine protiv nasilja nad ženama zakazane za 26. novembar 2007. godine - Podrška kampanji Saveta Evrope
1. Razmatranje Informacije o ravnopravnosti polova u pokrajinskim organima sa zaključcima 14 14. 3. 2008. 2. Razmatranje zaključnih komentara Komiteta za eliminaciju diskriminacije žena na inicijalni izveštaj Republike Srbije
Za razliku od prethodnog, u ovom mandatu vođena je diskusija na svakoj sednici, ali je u njoj učestvovao samo deo članica/članova. Pored članova/članica Odbora na svim sednicama, prisustvovale su predstavnice/predstavnici drugih mehanizama za ravnopravnost polova u AP Vojvodini. Najčešće su prisustvovali pomoćnica pokrajinske sekretarke za rad, zapošlja- vanje i ravnopravnost polova127, pokrajinski ombudsman i njegova zamenica za ravnoprav- nost polova, pokrajinska sekretarka za rad, zapošljavanje i ravnopravnost polova, direktorka Pokrajinskog zavoda za ravnopravnost polova i drugi. Analiza podataka iz zapisnika sa sed- nica Odbora za ravnopravnost polova ukazuje na nekoliko zapažanja:
127 Jelica Rajačić Čapaković, pokrajinska sekretarka za rad, zapošljavanje i ravnopravnost polova i članica Izvršnog veća AP Vojvodine 2000 - 2004. (prim. aut)
54 1) Na samo dvema sednicama bile su prisutne sve članice i članovi odbora.
2) Na svim sednicama se diskutovalo; najaktivnije u diskusijama, predlaganju tema i davanju smernica za rad bile su predsednica i zamenica predsednice Odbora.
3) Troje članova/članica Odbora za ravnopravnost polova, od kojih su dve žene, nikad nisu diskutovali na sednicama.
4) U zapisnicima se nedosledno koristi rodno osetljiv jezik, ali doslednije nego u prethodnom mandatu. Uočljivo je da se funkcija predsednice i zamenice predsednice Odbora, pomoć- nice pokrajinske sekretarke, zamenice ombudsmana i direktorke Zavoda pišu u ženskom rodu, ali se funkcija pokrajinske sekretarke za rad, zapošljavanje i ravnopravnost polova navodi u muškom rodu. U potpisu svakog zapisnika, sekretarka Odbora se potpisuje u muškom rodu. To govori da korišćenje rodno osetljivog jezika zavisi isključivo od volje i opredeljenja žene koja obavlja neku funkciju, jer u tom momentu, upotreba rodno osetlji- vog jezika još nije bila propisana.
Rad Odbora za ravnopravnost polova u mandatu 2008 - 2012. godine
Odbor je održao 9 sednica na kojima je razmotreno 25 tačaka dnevnog reda. Razmatrani su Izveštaj Pokrajinskog ombudsmana i Izveštaj o radu Pokrajinskog zavoda za ravnopravnost polova, Izveštaj o sprovođenju Strategije za zaštitu od nasilja u porodici i drugih oblika rodno zasnovanog nasilja u APV, Izveštaj o Programu istraživanja o položaju žena na selu u AP Voj- vodini. Odbor je bio predlagač Odluka o razrešenjima i imenovanjima članova Upravnog i Nadzornog odbora Pokrajinskog zavoda za ravnopravnost polova, kao i odluke o razrešenju i imenovanju direktora Pokrajinskog zavoda za ravnopravnost polova.
55 Tabela 3
Sednica Datum Dnevni red
1 22. 7. 2008. 1. Izbor zamenika predsednika Odbora
1. Razmatranje Predloga odluke o Strategiji za zaštitu od nasilja u porodici i drugih oblika rodno zasno- vanog nasilja u Autonomnoj Pokrajini Vojvodini za period od 2008. do 2012. godine 2 18. 9. 2008. 2. Razmatranje Izveštaja o poslovanju Zavoda za rav- nopravnost polova za 2007. godinu
3. Razmatranje izveštaja Pokrajinskog ombudsmana za 2007. godinu
1. Razmatranje izveštaja o poslovanju Zavoda za rav- nopravnost polova za 2008. godinu
2. Razmatranje Izveštaja Pokrajinskog ombudsmana za 2008. godinu
3 25. 5. 2009. 3. Izveštaj o sprovođenju Strategije za zaštitu od nasilja u porodici i drugih oblika rodno zasnovanog nasilja u AP Vojvodini za period od 2008. do 2012. godine
4. Izveštaj o Programu istraživanja o položaju žena na selu u AP Vojvodini
56 Sednica Datum Dnevni red
1. Predlog odluke o razrešenju predsednika i članova Upravnog odbora Pokrajinskog zavoda za ravno- pravnost polova
2. Predlog odluke o imenovanju predsednika i čla- nova Upravnog odbora Pokrajinskog zavoda za rav- nopravnost polova 4 11. 2. 2010. 3. Predlog odluke o razrešenju predsednika i članova Nadzornog odbora Pokrajinskog zavoda za ravno- pravnost polova
4. Predlog odluke o imenovanju predsednika i čla- nova Nadzornog odbora Pokrajinskog zavoda za ravnopravnost polova
1. Razmatranje Izveštaja o poslovanju Zavoda za rav- 5 17. 3. 2010. nopravnost polova za 2009. godinu
1. Razmatranje Izveštaja Pokrajinskog ombudsmana 6 13. 5. 2010. za 2009. godinu
1. Razmatranje informacije o sprovođenju Strate- gije za zaštitu od nasilja u porodici i drugih oblika rodno zasnovanog nasilja u AP Vojvodini u periodu 2008 - 2012. godine 7 17. 12. 2010. 2. Razmatranje Informacije o aktivnostima Pokra- jinskog sekretarijata za rad, zapošljavanje i rav- nopravnost polova na uspostavljanju jedinst- venog sistema evidencije o nasilju u porodičnom kontekstu.
1. Izveštaj o poslovanju Pokrajinskog zavoda za rav- nopravnost polova za 2010. godinu
8 30. 3. 2011. 2. Predlog odluke o izmeni odluke o imenovanju predsednika i članova Upravnog odbora Pokra- jinskog zavoda za ravnopravnost polova u Novom Sadu
1. Razmatranje Izveštaja Pokrajinskog ombudsmana 9 26. 5. 2011. za 2010. godinu
57 U mandatnom periodu 2008 - 2012. godina održano je 9 sednica Odbora. I pored važnih tema koje su bile na dnevnom redu, ni na jednoj sednici Odbora nisu bili prisutni svi članovi/čla- nice, niti su u diskusijama učestvovali svi prisutni. Iz zapisnika je primetno da tadašnji pokra- jinski sekretar za rad, zapošljavanje i ravnopravnost polova nijednom nije bio prisutan na sed- nicama Odbora, a kada je Pokrajinski sekretarijat za rad, zapošljavanje i ravnopravnost polova bio zadužen za neku od tačaka dnevnog reda, na sednicama je bila prisutna pomoćnica pokra- jinskog sekretara. Za razliku od prethodnih, u ovom mandatu nisu razmatrane različite infor- macije iz kojih se moglo sagledati stanje rodne ravnopravnosti u AP Vojvodini. Za učešće u diskusiji po tačkama dnevnog reda javljao se i aktivno učestvovao samo jedan deo članica i članova. Iako je daleko od poželjnog stanja, može se reći da je ovo predstavljalo ipak izvesnu vrstu napretka u odnosu na prvi saziv, u kome je na pojedinim sednicama predsedavajući bio jedini koji je učestvovao u diskusijama. Analiza podataka iz zapisnika sa sednica Odbora za ravnopravnost polova ukazuje na nekoliko zapažanja:
1) Pet članova/članica (od 11) bilo je prisutno na svim sednicama.
2) Jedan član Odbora nije bio ni na jednoj sednici.
3) Na svakoj sednici diskutovali su dve članice i jedan član.
4) Četiri člana/članice Odbora nikad nisu diskutovali na sednicama, među kojima su i dve žene. To govori o nezainteresovanosti pojedinih članova/članica za ovu oblast i neodgo- vornom odnosu prema obavezama koje podrazumeva članstvo u odboru. Činjenica da takav odnos imaju i žene govori o tome da nisu senzibilisane za rodnu problematiku.
5) U zapisnicima se ne koristi se rodno osetljiv jezik, iako je na 9. sednici Odbora, u okviru diskusije povodom razmatranja Izveštaja Pokrajinskog ombudsmana za 2010. godinu, naglašeno da je Pokrajinski ombudsman doneo, a Vlada AP Vojvodine prihvatila prepo- ruku o korišćenju rodno osetljivog jezika u javnoj upotrebi.
Rad Odbora za ravnopravnost polova u mandatu 2012 - 2016. godine
Odbor je održao 37 sednica na kojima je razmotreno 69 tačaka dnevnog reda. Razmatrani su: Predlog pokrajinske skupštinske odluke o budžetu APV, Predlog odluke o programu za zaštitu žena od nasilja u porodici i u partnerskim odnosima u APV za period 2015 - 2020. godine i predložene amandmane. Odbor je bio predlagač odluka o razrešenju i imenovanju Upravnog i Nadzornog odbora Pokrajinskog zavoda za ravnopravnost polova. Odbor je prisu- stvovao javnim slušanjima povodom obeležavanja: „Međunarodnog dana borbe protiv nasi- lja nad ženama”, „Međunarodnog dana ljudskih prava” i skupa na temu „Nezavisno praće-
58 nje i izveštavanje o sprovođenju Nacionalnog akcionog plana (NAP) za primenu Rezolucije 1325 Saveta bezbednosti Ujedinjenih nacija”. Zajedničke sednice održane su sa Odborom za zdravstvo, socijalnu politiku i rad na temu „Evropska nedelja prevencije raka grlića materice”, Odborom za budžet i finansije na temu „Integrisanje rodne perspektive u reformu budžeta ka budžetskim politikama koje efikasno doprinose poboljšanju položaja žena i muškaraca u APV”, Odborom za bezbednost na temu „Inicijativa Pokrajinskog sekretara za privredu, zapo- šljavanje i ravnopravnost polova povodom aktuelnih tragičnih dešavanja”, Odborom za infor- misanje na temu „Rodno osetljiv jezik i njegova upotreba i slika žene u medijima sa osvrtom na rodnu ravnopravnost” i Odborom za ljudska i manjinska prava i ravnopravnost polova Narodne skupštine Republike Srbije – „Dostignuća i perspektive u borbi protiv nasilja nad ženama“. Razmatrani su Model zakona o rodnoj ravnopravnosti Zaštitnika građana, Nacrt zakona o rodnoj ravnopravnosti i godišnji izveštaji o poslovanju Pokrajinskog zavoda za rav- nopravnost polova, izveštaji Ombudsmana, kao i informacije o: održanim javnim slušanjima, održanom sastanku s predstavnicima opština Jablaničkog okruga, aktivnostima i planovima Pokrajinskog sekretarijata za privredu, zapošljavanje i ravnopravnost polova u prevenciji i zaštiti od nasilja u porodici i drugih oblika rodno zasnovanog nasilja, sprovođenju NAP za primenu Rezolucije 1325 Saveta bezbednosti Ujedinjenih nacija u Republici Srbiji, reproduk- tivnom zdravlju muškaraca u AP Vojvodini i slično.
59 Tabela 4
Sednica Datum Dnevni red
1 10. 7. 2012. 1. Izbor zamenika predsednika Odbora
1. Razmatranje izveštaja o poslovanju Pokrajinskog 2 17. 9. 2012. zavoda za ravnopravnost polova za 2011. godinu
1. Izveštaj Pokrajinskog ombudsmana za 2011. 3 1. 10. 2012. godinu
1. Priprema za učestvovanje u akciji “16 dana aktiv- 4 23. 11. 2012. izma protiv nasilja nad ženama“
1. Obeležavanje Međunarodnog dana borbe pro- 5 26. 11. 2012. tiv nasilja nad ženama “Borba protiv nasilja u porodici”
1. Obeležavanje Međunarodnog dana ljudskih prava 6 10. 12. 2012. “Izvršenje presuda suda za ljudska prava u slučaju Srbije”
1. Informacija o održanim javnim slušanjima 26. 11. i 10. 12. 2012. godine u Narodnoj skupštini Republike Srbije, kojima su prisustvovali članovi Odbora za ravnopravnost polova Skupštine AP 7 1. 2. 2013. Vojvodine
2. Informacija o održanom sastanku sa pred- stavnicima opština Jablaničkog okruga 24. 1. 2013. godine
8 25. 3. 2013. 1. Upotreba rodno osetljivog jezika
1. Izveštaj o poslovanju Zavoda za ravnopravnost 9 2. 4. 2013. polova za 2012. godinu
1. Izveštaj Pokrajinskog ombudsmana za 2012. 10 9. 4. 2013. godinu
60 Sednica Datum Dnevni red
1. Analiza istraživanja u službama za zdravstvenu 11 15. 5. 2013. zaštitu žena u AP Vojvodini
1. Nezavisno praćenje i izveštavanje o sprovođenju 12 10. 10. 2013. NAP za primenu Rezolucije 1325
1. Položaj žena u nacionalnim savetima nacionalnih manjina u Srbiji 13 29. 10. 2013. 2. Informacija o aktivnostima Ženske parlamenta- rne mreže Skupštine AP Vojvodine
1. Informacija o aktivnostima i planovima Pokra- jinskog sekretarijata za privredu, zapošljavanje 14 13. 11. 2013. i ravnopravnost polova u prevenciji i zaštiti od nasilja u porodici i drugih oblika rodno zasnova- nog nasilja
1. Analiza rada i zaključaka u 2013. godini 15 23. 12. 2013. 2. Priprema plana i programa rada za 2014. godinu
16 22. 1. 2014. 1. Evropska nedelja prevencije raka grlića materice
1. Izveštaj o poslovanju Pokrajinskog zavoda za rav- 17 3. 4. 2014. nopravnost polova za 2013. godinu
1. Informacija o sprovođenju Nacionalnog akcionog 18 17. 4. 2014. plana za primenu Rezolucije 1325 Saveta bezbed- nosti Ujedinjenih nacija u Republici Srbiji
61 Sednica Datum Dnevni red
1. Izveštaj Pokrajinskog ombudsmana za 2013. godinu
2. Inicijativa za formiranje radne grupe 19 16. 5. 2014. 3. Pokretanje inicijative za uvođenje rodne statis- tike u prikupljanju i obradi podataka o nasilju u porodici u Ministarstvu unutrašnjih poslova Vlade Republike Srbije
1. Utvrđivanje Predloga odluke o razrešenju pred- sednika i članova Upravnog odbora Pokrajinskog zavoda za ravnopravnost polova u Novom Sadu
2. Utvrđivanje Predloga odluke o imenovanju pred- sednika i članova Upravnog odbora Pokrajinskog zavoda za ravnopravnost polova u Novom Sadu
20 16. 6. 2014. 3. Utvrđivanje Predloga odluke o razrešenju pred- sednika i članova Nadzornog odbora Pokra- jinskog zavoda za ravnopravnost polova u Novom Sadu
4. Utvrđivanje Predloga odluke o imenovanju pred- sednika i članova Nadzornog odbora Pokra- jinskog zavoda za ravnopravnost polova u Novom Sadu
1. Konvencija o sprečavanju i borbi protiv nasilja 21 9. 9. 2014. nad ženama i nasilja u porodici
1. Program za zaštitu žena od nasilja u porodici i partnerskim odnosima u AP Vojvodini za period 22 17. 9. 2014. 2014 - 2020. godine, sa osvrtom na Konvenciju o sprečavanju i borbi protiv nasilja nad ženama i nasilja u porodici
62 Sednica Datum Dnevni red
1. Rodno budžetiranje – stanje i perspektive
23 12. 11. 2014. 2. Informacija o reproduktivnom zdravlju muška- raca u AP Vojvodini
1. Položaj žena i muškaraca u Republici Srbiji u 24 19. 11. 2014. 2014. godini
1. Predlog pokrajinske skupštinske odluke o budžetu AP Vojvodine za 2015. godinu,
25 18. 12. 2014. 2. Predlog odluke o Programu za zaštitu žena od nasilja u porodici i u partnerskim odnosima u AP Vojvodini za period od 2015. do 2020. godine
1. Amandman na Predlog odluke o Programu za zaštitu žena od nasilja u porodici i u partnerskim 26 23. 12. 2014. odnosima u AP Vojvodini za period od 2015. do 2020. godine
1. Integrisanje rodne perspektive u reformu budžeta ka budžetskim politikama koje efikasno dopri- 27 21. 1. 2015. nose poboljšanju položaja žena i muškaraca u AP Vojvodini
1. Predlog godišnjeg programa rada Odbora 28 19. 2. 2015. 2. Model Zakona o rodnoj ravnopravnosti
1. Evropska perspektiva razvoja rodne ravnopravno- 29 30. 3. 2015. sti i osnaživanje žena
1. Izveštaj Pokrajinskog zaštitnika građana - 30 20. 4. 2015. ombudsmana za 2014. godinu
1. Izveštaj o poslovanju i završni račun Pokrajinskog 31 22. 5. 2015. zavoda za ravnopravnost polova za 2014. godinu
63 Sednica Datum Dnevni red
1. Razmatranje inicijative pokrajinskog sekretara za 32 22. 5. 2015. privredu, zapošljavanje i ravnopravnost polova povodom aktuelnih tragičih dešavanja
1. Rodno osetljiv jezik i njegova upotreba
33 23. 6. 2015. 2. Slika žene u medijima sa osvrtom na rodnu ravnopravnost
1. Radni sastanak o Predlogu nacrta zakona o rod- 34 29. 7. 2015. noj ravnopravnosti
1. Razmatranje Nacrta zakona o rodnoj 35 10. 11. 2015. ravnopravnosti
1. Dostignuća i perspektive u borbi protiv nasilja 36 10. 12. 2015. nad ženama
37 29. 12. 2015. 1. Analiza rada u 2015. godini
Odbor je u ovom periodu bio najaktivniji. Održano je 37 sednica, od toga su dve sednice odr- žane u Narodnoj skupštini Republike Srbije u saradnji sa Odborom za ljudska i manjinska prava i ravnopravnost polova Narodne skupštine Republike Srbije128 dok je jedna zajednička sednica sa ovim Odborom održana u Skupštini AP Vojvodine. Osim učešća na konferenci- jama u Narodnoj skupštini Republike Srbije koje je organizovao Odbor za ljudska i manjinska prava i ravnopravnost polova, odbori su intenzivno sarađivali na razmatranju Nacrta zakona o rodnoj ravnopravnosti i drugim temama u vezi sa ovom oblašću. Uspostavljena je inten- zivna saradnja sa četiri odbora Skupštine AP Vojvodine (Odborom za zdravstvo, Odborom za bezbednost, Odborom za budžet i Odborom za informisanje) u vezi sa rodnim aspektom tema koje su u nadležnosti ovih odbora, kao i aktivna saradnja sa predstavnicama regiona iz Austrije i Švedske o pitanjima značajnim za rodnu ravnopravnost, gde su gošće članicama i članovima Odbora govorile o stanju rodne ravnopravnosti u njihovim državama i primerima dobre prakse iz njihovih regiona. Zbog tragičnih dešavanja i činjenice da je do 22. 5. 2015.
128 Sednici je prisustvovao Meho Omerović, predsednik Odbora.
64 godine od početka godine ubijeno 26 žena, organizovana je i posebna sednica129 na ovu temu. U ovom mandatu formirana je i Ženska parlamentrna mreža (ŽMP) Skupštine AP Vojvodine, te je Odbor i sa ŽPM Skupštine AP Vojvodine uspešno i intenzivno sarađivao, održavao zajed- ničke sednice, konferencije na različite teme i druge zajedničke aktivnosti, poput obeležavanja kampanje Šesnaest dana u borbi protiv nasilja nad ženama. Analiza podataka iz zapisnika sa sednica Odbora za ravnopravnost polova ukazuje na nekoliko zapažanja:
1) Ni na jednoj sednici nisu bili prisutni svi članovi/članice Odbora.
2) Samo na jednoj sednici bio je prisutan pokrajinski sekretar za privredu, zapošljavanje i rav- nopravnost polova, a u drugim slučajevima kada je tema sednice bila iz delokruga Pokra- jinskog sekretarijata, sednicama je prisustvovala pomoćnica pokrajinskog sekretara zadu- žena za ravnopravnost polova.
3) Iako svi članovi i članice Odbora nisu učestvovali u diskusiji, na svakoj sednici diskutovalo se po tačkama dnevnog reda.
4) Za razliku od prethodnih saziva, zapisnici u ovom mandatu pisani su gotovo dosledno rodno osetljivim jezikom. Funkcije predsednice i zamenice predsednice Odbora, kao i gošći iz drugih institucija (pokrajinska ombudsmanka, zamenica ombudsmanke zadužena za ravnopravnost polova, pomoćnice pokrajinskog sekretara i sl.) pisane su u ženskom rodu. Neznatna odstupanja koja se uočavaju na ponekim mestima u zapisnicima mogu se smatrati nenamernim greškama.
Rad Odbora za ravnopravnost polova u mandatu 2016 - 2020. godine
Odbor je održao 13 (od 15 zakazanih) sednica na kojima je razmotreno 29 tačaka dnevnog reda. Razmatrani su izveštaji Pokrajinskog zaštitnika građana - ombudsmana i Pokrajinskog zavoda za ravnopravnost polova, obeležen je Međunarodni dan muškaraca i Dan ljudskih prava, a Odbor je učestvovao u akciji borbe protiv nasilja nad ženama. Odbor je bio predlagač Odluka o razrešenjima i imenovanjima članova Upravnog i Nadzornog odbora Pokrajinskog zavoda za ravnopravnost polova.
129 Sednici su prisustvovali Miroslav Vasin, pokrajinski sekretar za privredu, zapošljavanje i ravnopravnost polova i potpredsednik Vlade AP Vojvodine, Siniša Radaković, načelnik Policijske uprave Novi Sad, Danica Todorov, zamenica pokrajinskog ombudsmana za ravnopravnost polova, Anita Beretić, pomoćnica pokrajinskog sekretara za ravnopravnost polova i Vesna Šijački, direktorka Pokrajinskog zavoda za ravnopravnost polova.
65 Tabela 5
Sednica Datum Dnevni red
1. Izbor zamenika predsednika Odbora za 1 8. 7. 2016. ravnopravnost polova
1. Izveštaj Pokrajinskog zaštitnika građana - ombudsmana za 2015. godinu 2 15. 7. 2016. 2. Izveštaj o poslovanju Pokrajinskog zavoda za ravnopravnost polova za 2015. godinu
18. 11. 1. Aktuelna pitanja povodom obeležavanja 3 2016. Međunarodnog dana muškaraca, 19. novembra
1. Informacija povodom završetka akcije “16 dana 4 9. 12. 2016. aktivizma protiv nasilja nad ženama”
1. Evropska nedelja prevencije raka grlića materice
5 25. 1. 2017. 2. Vakcinacija protiv infekcije humanim papiloma virusom (HPV)
1. Godišnji program rada Odbora za 2017. godinu
2. Informacija o sprovođenju programa za zaštitu žena 6 1. 3. 2017. od nasilja u porodici i partnerskim odnosima i drugih oblika rodno zasnovanog nasilja u AP Vojvodini u 2015. godini sa zaključcima
1. Izveštaj Pokrajinskog zaštitnika građana - ombudsmana za 2016. godinu 7 10. 4. 2017. 2. Izveštaj o poslovanju Pokrajinskog zavoda za ravnopravnost polova za 2016. godinu
8 - - (nema podataka)
66 Sednica Datum Dnevni red
1. Imenovanje lica za sprovođenje Nacionalnog akcionog plana za primenu Rezolucije 1325 9 6. 7. 2017. Saveta bezbednosti Ujedinjenih nacija - Žene, mir, bezbednost u Republici Srbiji (2017 - 2020)
10 - - (nema podataka)
1. Predlog odluke o razrešenju predsednika i članova Upravnog odbora Pokrajinskog zavoda za ravnopravnost polova
2. Predlog odluke o imenovanju predsednika i članova Upravnog odbora Pokrajinskog zavoda za ravnopravnost polova 10. 11. 11 2017. 3. Predlog odluke o razrešenju predsednika i članova Nadzornog odbora Pokrajinskog zavoda za ravnopravnost polova
4. Predlog odluke o imenovanju predsednika i članova Nadzornog odbora Pokrajinskog zavoda za ravnopravnost polova
1. Upoznavanje sa programom 16 dana aktivizma u 20. 11. borbi protiv nasilja prema ženama 12 2017. 2. Obeležavanje Međunarodnog dana muškaraca
1. Godišnji izveštaj Pokrajinskog zaštitnika građana - ombudsmana za 2017. godinu 13 26. 3. 2018. 2. Predlog godišnjeg programa rada Odbora za 2018. godinu
1. Izveštaj o poslovanju Pokrajinskog zavoda za 14 4. 5. 2018. ravnopravnost polova za 2017. godinu
67 Sednica Datum Dnevni red
1. Izveštaj Pokrajinskog zaštitnika građana - ombudsmana za 2018. godinu
2. Izveštaj o poslovanju Pokrajinskog zavoda za 15 9. 4. 2019. ravnopravnost polova za 2018. godinu
3. Predlog godišnjeg programa rada Odbora za ravnopravnost polova za 2019. godinu
Posle intenzivnog rada Odbora za ravnopravnost polova u prethodnom mandatu u ovom mandatu održano je 15 sednica.130 Pored redovnih aktivnosti iz svoje nadležnosti, Odbor je u saradnji sa Odborom za zdravstvo Skupštine AP Vojvodine razmatrao teme iz oblasti zdrav- lja žena i prevencije, pratio sprovođenje programa zaštite žena od nasilja u porodici i partner- skim odnosima, i, po prvi put, imenovao je lica za sprovođenje Nacionalnog akcionog plana za primenu Rezolucije 1325 Saveta bezbednosti Ujedinjenih nacija - Žene, mir, bezbednost u Republici Srbiji (2017 - 2020) ispred AP Vojvodine. Analiza podataka iz zapisnika sa sednica Odbora za ravnopravnost polova ukazuje na nekoliko zapažanja:
1) Na tri sednice bili su prisutni svi članovi i članice Odbora.
2) Pokrajinski sekretar za socijalnu politiku, demografsku politiku i društvenu brigu o deci bio je prisutan na dve sednice, a na ostalim prisutna je bila pomoćnica pokrajinskog sekre- tara ili neko drugi od predstavnika/predstavnica Sekretarijata.
3) Na svim sednicama vođena je diskusija, ali u diskusiji nisu učestvovali svi članovi i članice.
4) Saradnja sa Odborom za zdravstvo je nastavljena i organizovana je zajednička sednica.
5) Rad Odbora u ovom mandatu karakterisalo je često menjanje sekretara Odbora. Prome- njeno ih je čak pet, što je imalo za posledicu nedostatak zapisnika sa 8. i 10. sednice. Kori- šćenje rodno osetljivog jezika zavisi dobrim delom i od toga ko vodi zapisnik sa sednice, odnosno ko je iz stručne službe zadužen za praćenje određene sednice.
130 U arhivi se nalaze zapisnici sa 13 sednica. Ovo se odnosi na tačke 8. i 10. u Tabeli 5, s obzirom na to da sa 8. i 10. sednice Odbora nema zapisnika.
68 Rad Odbora za ravnopravnost polova u mandatu 2020 - 2024. godine
U aktuelnom mandatu, zaključno sa 28. aprilom 2023. godine, Odbor za ravnopravnost polova održao je 9 sednica na kojima je razmotreno ukupno 22 tačke dnevnog reda. Odbor je raz- matrao izveštaje Pokrajinskog zaštitnika građana - ombudsmana i izveštaje o radu Pokrajin- skog zavoda za ravnopravnost polova, utvrdio je predlog predstavnika Skupštine Autonomne Pokrajine Vojvodine za članicu i zamenicu članice Političkog saveta za sprovođenje Nacional- nog akcionog plana za sprovođenje Rezolucije 1325 Saveta bezbednosti Ujedinjenih nacija – Žene, mir i bezbednost u Republici Srbiji i bio predlagač odluka o razrešenjima i imenova- njima članica i članova Upravnog i Nadzornog odbora Pokrajinskog zavoda za ravnopravnost polova.
Tabela 6
Sednica Datum Dnevni red
1. Izbor zamenika predsednika Odbora
1 30. 11. 2020. 2. Kampanja “16 dana aktivizma protiv nasilja nad ženama”
1. Razmatranje izveštanja Pokrajinskog zaštitnika građana - ombudsmana za 2019. godinu 2 5. 2. 2021. 2. Predlog godišnjeg programa rada Odbora za 2021. godinu
1. Godišnji izveštaj Pokrajinskog zaštitnika građana - ombudsmana za 2020. godinu
2. Izveštaj o radu Pokrajinskog zavoda za ravnopravnost 3 19. 4 2021. polova za 2019. godinu
3. Izveštaj o radu Pokrajinskog zavoda za ravnopravnost polova za 2020. godinu
1. Predlog odluke o imenovanju predsednika Upravnog 4 15. 6 2021. odbora Pokrajinskog zavoda za ravnopravnost polova
69 Sednica Datum Dnevni red
1. Utvrđivanje predloga predstavnika Skupštine AP Vojvodine za člana i zamenika člana Političkog saveta za sprovođenje Nacionalnog akcionog plana 5 30. 8. 2021. za sprovođenje Rezolucije 1325 Saveta bezbednosti Ujedinjenih nacija - Žene, mir, bezbednost u Republici Srbiji
1. Predlog imenovanja predsednika i članova Upravnog odbora Pokrajinskog zavoda za ravnopravnost polova
6 26. 10. 2021. 2. Predlog imenovanja predsednika i članova Nadzornog odbora Pokrajinskog zavoda za ravnopravnost polova
1. Razmatranje Godišnjeg izveštaja Pokrajinskog zaštitnika građana - ombudsmana za 2021. godinu 7 1. 6. 2022. 2. Predlog godišnjeg programa rada Odbora za 2022. godinu
1. Izveštaj o radu i poslovanju Pokrajinskog zavoda za 8 24. 6. 2022. ravnopravnost polova za 2021. godinu
1. Utvrđivanje predloga predstavnika Skupštine AP Vojvodine za člana i zamenika člana Političkog saveta za sprovođenje Nacionalnog akcionog plana 9 30. 1 2023. za sprovođenje Rezolucije 1325 Saveta bezbednosti Ujedinjenih nacija - Žene, mir, bezbednost u Republici Srbiji
U aktuelnom sazivu na, do sada, 9 održanih sednica Odbor se mahom bavio tekućim pita- njima iz svoje nadležnosti. Nije uočena nijedna aktivnost koja bi mogla da se navede kao ino- vacija ili specifičnost u odnosu na prethodne sazive. Analiza podataka iz zapisnika sa sednica Odbora za ravnopravnost polova ukazuje na nekoliko zapažanja:
1) Samo na jednoj sednici prisutni su bili svi članovi i članice Odbora.
70 2) Diskusija je bilo, ali u njima učestvuje mali broj članica/članova Odbora.
3) Pokrajinski sekretar za socijalnu politiku, demografiju i ravnopravnost polova nijednom nije bio prisutan na sednicama Odbora, najčešće je umesto njega sednicama prisustvo- vala podsekretarka. Ni Pokrajinski zaštitnik građana - ombudsman nijednom nije bio pri- sutan na sednicama odbora. Sednicama je umesto njega prisustvovala zamenica zadužena za ravnopravnost polova.
4) Specifičnost ovog saziva Odbora ogleda se u tome da su svi zapisnici precizno i dosledno pisani rodno osetljivim jezikom, osim kada se radi o funkciji predsednice (predsednika) Odbora za ravnopravnost polova koja je uvek navođena isključivo u muškom rodu, iako je obavlja žena. To ukazuje na činjenicu da poslanica koja je predsednica ovog radnog tela insistira da se njena funkcija navodi u muškom rodu.
4. SASTAV ODBORA ZA RAVNOPRAVNOST POLOVA 2003 - 2023. GODINE
Mandat 2000 - 2004.131 Predsednik: Zlatko Milićević; Članice i članovi: 1. Gordana Čomić 2. Jelena Jevtić 3. Miroljub Lješnjak 4. Donka Stančić 5. dr Marija Popin 6. Zorica Bundalo 7. Telleki Julijana 8. Pavela Jano 9. Petar Pešić 10. Tođeraš Jonike.
Mandat 2004 - 2008.132 Predsednica: Jadranka Beljan Balaban; Članice i članovi: 1. Zdenka Jokić 2. Seleši Đenđi 3. Petar Andrejić 4. Maja Sedlarević 5. Aleksandra Sujić 6. Milena Stupar Vasić 7. dr Velibor Radusinović 8. Takač Marta.
Kasnije, 2006. godine za članicu Odbora izabrana je Gordana Kalnak133.
Mandat 2008 - 2012.134 Predsednica: Tanja Jovanović; Članice i članovi: 1. Seleši Đenđi 2. Vislavski Leona 3. dr Goran Ivić 4. Branislav Damjanov 5. Dane Pribić 6. Bohuš Jan 7. Dragana Latovljev 8. Milena Maksimović 9. Marija Radojčić 10. Jelena Milinić
Kasnije je Jadranka Beljan-Balaban izabrana za članicu Odbora umesto Daneta Pribića135.
131 Odluka o izmenama i dopunama Odluke o izboru predsednika i članova odbora Skupštine AP Vojvodine (Br. 020-5 od 22. 4. 2003) 132 Odluka o izboru predsednika i članova odbora Skupštine AP Vojvodine (Broj: 020 – 19, od 30. 10. 2004) 133 Odluka o izmeni i dopuni Odluke o izboru predsednika i članova odbora Skupštine AP Vojvodine (Br. 020 - 19/2006, od 12. 12. 2006) 134 Odluka o izboru predsednika i članova odbora Skupštine AP Vojvodine (Br. 020-14/08, od 16. 7. 2008) 135 Odluka o izmeni i dopuni Odluke o izboru predsednika i članova odbora Skupštine AP Vojvodine (Br. 020- 14/08, od 11. 10. 2010)
71 Mandat 2012 - 2016.136 Predsednica: Stojanka Lekić; Članice i članovi: 1. Ilija Vojinović 2. mr Seleši Đenđi 3. Darko Vukoje 4. Tanja Dokmanović 5. Nada Bodrožić 6. Vera Ugrčić Ilić 7. Goran Gonđa 8. Nataša Lalić 9. Takač Zoltan 10. Marijana Četojević.
Kasnije, 2014. godine umesto Marijane Četojević za članicu Odbora izabrana je Ivana Zeče- vić137, dok je 2015. godine za članicu Odbora umesto Takač Zoltana izabrana je Kovač Tinde138.
Mandat 2016 - 2020.139 Predsednica: Ana Tomanova Makanova; Članice i članovi: 1. Nada Milanović 2. Snežana Sedlar 3. Stojanka Lekić 4. Darko Vukoje 5. Mia Strajin 6. Rajka Lučar 7. Jelena Delić 8. Goran Gonđa 9. mr Maja Sedlarević 10. Gizela Crkvenjakov.
Kasnije, 2016. godine Dragana Đurić Bulatović je izabrana za članicu Odbora, umesto Gizele Crkvenjakov140.
Mandat 2020 - 2024.141 Predsednica: Latinka Vasiljković; Članice i članovi: 1. Milica Božić 2. Buranj Hajnalka 3. Nataša Lalić 4. Stojanka Lekić 5. Smiljana Glamočanin Varga 6. dr Marina Nedeljković 7. Milan Subotin 8. Ivana Rosić 9. Vesna Furundžić 10. Gizela Crkvenjakov.
Kasnije, 2020. Goran Puzić je izabran za člana Odbora umesto Milana Subotina142 dok je 2022. godine Jelena Lopušina izabrana za članicu Odbora, umesto Smiljane Glamočanin Varga143.
136 Odluka o izboru predsednika i članova odbora Skupštine AP Vojvodine (Br. 020-15/12, od 22. 6. 2012) 137 Odluka o izmenama Odluke o izboru predsednika i članova odbora Skupštine AP Vojvodine (Br. 020-15/12, od 19. 6. 2014) 138 Odluka o izmenama i dopunama Odluke o izboru predsednika i članova odbora Skupštine AP Vojvodine (Br. 020-15/12, od 08. 4. 2015) 139 Odluka o izboru predsednika i članova odbora Skupštine AP Vojvodine (Br. 020-13/2016, od 20. 6. 2016. godine) 140 Odluka o izmenama i dopunama Odluke o izboru predsednika i članova odbora Skupštine AP Vojvodine (Br. 020-13-2/16, od 28. 9. 2016. godine) 141 Odluka o izboru predsednika i članova odbora Skupštine AP Vojvodine (Br. 020-13/2016, od 20. 6. 2016.) 142 Odluka o izmenama i dopunama Odluke o izboru predsednika i članova odbora Skupštine AP Vojvodine (Broj: 020-17-1/2020-01, od 17. 12. 2020) 143 Odluka o izmeni i dopunama Odluke o izboru predsednika i članova odbora Skupštine AP Vojvodine (Broj: 020-17-1/2020-01, od 28. 6. 2022)
72 Tabela 7: Pregled učešća žena i muškaraca u sastavu Odbora po mandatima
2004 - 2008. 2003 - 2004.
2020 - 2023. 2008 - 2012.
2016 - 2020. 2012 - 2016. Mandat
Predsednik/ 1/0 0/1 0/1 0/1 0/1 0/1 Predsednica
Članice 6 8 6 6 8 9 7 7
Članovi 4 2 4 4 2 1 3 3
Izmene 0 1ž 1 ž/1 m 1 ž/1 ž 1 ž/1 ž 1 m/1 m
1 ž/1 m 1 ž/1 ž
Ukupno 11 11 11 11 11 11
Pregled odluka o imenovanju predsednika/predsednice i članica i članova Odbora za rav- nopravnost polova Skupštine AP Vojvodine pokazuje sledeće:
1) Samo u prvom mandatu, kada je formiran Odbor za ravnopravnost polova, na čelu je bio muškarac, u svim drugim mandatima Odbor su vodile žene.
2) U drugom mandatu (2004 - 2008) predsednica Odbora bila je iz redova manjinskog par- tnera u vladajućoj koaliciji (Jadranka Beljan Balaban iz G17+), u trećem mandatu (2008 - 2012) predsednica Odbora bila je poslanica iz redova opozicije (Tanja Jovanović iz Srp- ske radikalne stranke), u četvrtom mandatu (2012 - 2016) predsednica Odbora bila je iz redova opozicije (Stojanka Lekić iz Srpske napredne stranke), u petom mandatu (2016 - 2020) predsednica je bila iz redova opozicije (Ana Tomanova Makanova iz Demokratske stranke), dok je u aktuelnom, šestom mandatu predsednica Odbora poslanica iz reda naj- veće stranke vladajuće koalicije (Latinka Vasiljković iz Srpske napredne stranke).
3) U svim mandatima u većem broju su zastupljene članice u odnosu na članove.
4) Odluke su pisane isključivo u muškom rodu i nije poštovano pravilo upotrebe rodno oset- ljivog jezika.
73 5. Zaključak
Odbor za ravnopravnost polova Skupštine AP Vojvodine, ali i rad drugih mehanizama za rodnu ravnopravnost u AP Vojvodini, svojim postojanjem i posle dvadeset godina pokazuju volju pokrajinske administracije da se kontinuirano bavi unapređenjem i postizanjem rodne ravnopravnosti u Vojvodini i potrebu da se institucionalno bavi (ne)ravnopravnošću žena i muškaraca kojoj svedočimo i dalje.
Analiza rada Odbora za ravnopravnost polova pokazuje fluktuaciju statusa i aktivnosti Odbora kao radnog tela Skupštine AP Vojvodine koje zavise i od osobe koja ga vodi, njene zainteresovanosti za temu, lične pozicije i pozicije stranke iz koje dolazi, kao i članica i čla- nova Odbora, njihove zainteresovani za temu, redovnog prisustva sednicama i učešća u dis- kusiji i radu Odbora. Indikativan je i odnos sa resornim pokrajinskim sekretarijatom (Pokra- jinski sekretarijat za rad, zapošljavanje i ravnopravnost polova/Pokrajinski sekretarijat za pri- vredu, rad i ravnopravnost polova/Pokrajinski sekretarijat za socijalnu politiku, demograf- sku politiku i društvenu brigu o deci/Pokrajinski sekretarijat za socijalnu politiku, demogra- fiju i ravnopravnost polova). Iz analize zapisnika se vidi da je u prva dva mandata pokrajinska sekretarka, osim tekućih pitanja i informacija o stanju rodne ravnopravnosti u AP Vojvodini, redovno podnosila izveštaje o radu i govorila o planovima rada Pokrajinskog sekretarijata za rad, zapošljavanje i ravnopravnost polova, dok su u kasnijim mandatima ti izveštaji izostali, da bi se na kraju došlo do toga da nadležni pokrajinski sekretar nikad ili gotovo nikad i ne prisu- stvuje sednicama Odbora. To govori da se izgubila granica između zakonodavne i izvršne vla- sti i zaboravilo da je zakonodavna vlast pretpostavljena izvršnoj i da bi nadležni Odbor, kao skupštinsko radno telo, morao ne samo da prati nego i da nadgleda rad resornog sekretarijata i drugih institucija u oblasti rodne ravnopravnosti.
Praćenje rada Odbora kroz mandate po broju sednica, temama koje su obrađene i saradnji koja je ostvarena (ili je uopšte nije bilo) govori o statusu i aktivnosti Odbora i saradnji sa dru- gim mehanizmima za rodnu ravnopravnost. Tako je npr. u jednom mandatu (2012 - 2016), održano 37 sednica, ostvarena saradnja sa četiri druga radna tela Skupštine AP Vojvodine i nadležnim odborom Narodne skupštine Republike Srbije, formirana Ženska parlamentarna mreža, dok je, npr, u aktuelnom mandatu, do sada održano 9 sednica na kojima su razmatrana samo tekuća pitanja iz nadležnosti Odbora, dok se na dnevnom redu nije našla nijedna inicija- tiva, vanredna aktivnost ili predlog za saradnju. Uočljivo je da je, za razliku od prvog mandata kada je resorna sekretarka bila na svakoj sednici, aktivno učestvovala u radu Odbora i podno- sila Odboru izveštaj o svom radu, kasnije to sve ređe bio slučaj, a u tekućem mandatu Pokra- jinski sekretar za ravnopravnost polova nijednom nije bio na sednici Odbora za ravnoprav- nost polova. To je primer odnosa izvršne vlasti, ili njenog dela, prema Skupštini AP Vojvodine
74 i njenim radnim telima. Ovi primeri govore da se i rad Odbora za ravnopravnost polova ne može posmatrati van konteksta društveno političkih prilika u kojima Odbor deluje.
Dva zaključka se mogu izvesti u odnosu na upotrebu rodno osetljivog jezika u zapisnicima. Prvi, da upotreba rodno osetljivog jezika zavisi od volje osobe koja vodi zapisnik (sekretara/ sekretarke Odbora) i osobe koja predsedava sednicom (predsednika/predsednice ili zame- nika/zamenice predsednika/predsednice), a koja sa sekretarom/sekretarkom priprema saziv i zapisnik za razmatranje i usvajanje. Vremenom se stanje sa upotrebom rodno osetljivog jezika popravilo i on se doslednije koristi u kasnijim mandatima. Drugi zaključak je da upotreba rodno osetljivog jezika zavisi od političke volje aktuelne političke elite zastupljene u skup- štini, a dokaz za to je da posle više mandata postupnog uvođenja i redovnog korišćenja rodno osetljivog jezika, u zapisnicima sa sednica Odbora aktuelnog mandata rodno osetljiv jezik se koristi, osim za funkciju aktuelne predsednice koja insistira da se potpisuje sa – predsednik. I pored donetog Zakona o rodnoj ravnopravnosti koji reguliše korišćenje rodno osetljivog jezika u javnoj sferi, volja za primenu Zakona izostaje.
Sve navedeno je slika društva u kome živimo. S jedne strane svedočimo inovativnim inicijati- vama neophodnim za izgradnju demokratskog i građanskog društva (Odbor za ravnopravnost polova Skupštine AP Vojvodine i drugi mehanizmi za rodnu ravnopravnost u AP Vojvodini to jesu), a sa druge strane patrijarhalnim normama duboko usađenim u društvo i teško savladi- vim koje sputavaju procese demokratizacije.
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