CEDAW/GC/25 CEDAW_GR_25E.docx (English)

CEDAW/GC/25 CEDAW_GR_25C.docx (Chinese)

CEDAW/GC/25

CEDAW/GC/25

CEDAW

CEDAW

General recommendation No. 25:

第25号一般性建议：

Article 4, paragraph 1, of the Convention (temporary special measures)

《公约》第四条第1款(暂行特别措施)

Thirtieth session (2004)

第三十届会议(2004年)

I. Introduction

一、导言

1. The Committee on the Elimination of Discrimination against Women decided at its twentieth session (1999), pursuant to article 21 of the Convention, to elaborate a general recommendation on article 4, paragraph 1, of the Convention on the Elimination of All Forms of Discrimination against Women.

1. 消除对妇女歧视委员会1999年第二十届会议依照《消除对妇女一切形式歧视公约》第二十一条决定拟订关于《公约》第四条第1款的一般性建议。

This new general recommendation would build, inter alia, on earlier general recommendations, including general recommendation No. 5 (seventh session, 1988), on temporary special measures, No. 8 (seventh session, 1988), on implementation of article 8 of the Convention, and No. 23 (sixteenth session, 1997), on women in public life, as well as on reports of States parties to the Convention and on the Committee’s concluding comments to those reports.

这 项新的一般性建议将借鉴以前各项一般性建议，包括关于暂行特别措施的第5号一般性建议(第七届会议，1988年)、关于执行《公约》第八条的第8号一般性 建议(第七届会议，1988年)和关于妇女参与公共生活的第23号一般性建议(第十六届会议，1997年)，还将借鉴《公约》缔约国提交的报告和委员会关 于这些报告的结论意见等。

2. With the present general recommendation, the Committee aims to clarify the nature and meaning of article 4, paragraph 1, in order to facilitate and ensure its full utilization by States parties in the implementation of the Convention.

2. 关于本项一般性建议，委员会的目的是阐明第四条第1款的性质和含义，以便于并确保缔约国在执行《公约》过程中充分利用该条款。

The Committee encourages States parties to translate this general recommendation into national and local languages and to disseminate it widely to the legislative, executive and judicial branches of government, including their administrative structures, as well as civil society, including the media, academia, and human rights and women’s associations and institutions.

委员会鼓励缔约国将该一般性建议翻译成本国语文和地方语文，并普通散发给包括行政管理机构在内的政府立法机关、行政机关和司法机关，以及包括媒体、学术界、人权及妇女协会和机构在内的民间社会。

II. Background: the object and purpose of the Convention

二、背景：《公约》的目标和宗旨

3. The Convention is a dynamic instrument.

3. 《公约》是一项活的文书。

Since the adoption of the Convention in 1979, the Committee, as well as other actors at the national and international levels, have contributed through progressive thinking to the clarification and understanding of the substantive content of the Convention’s articles and the specific nature of discrimination against women and the instruments for combating such discrimination.

自1979年通过《公约》以来，委员会及国家一级和国际一级的其他行动者一直以进步的思维协助阐明和理解《公约》各项条款的实质性内容、歧视妇女的特别性质及消除此种歧视的文书。

4. The scope and meaning of article 4, paragraph 1, must be determined in the context of the overall object and purpose of the Convention, which is to eliminate all forms of discrimination against women with a view to achieving women’s de jure and de facto equality with men in the enjoyment of their human rights and fundamental freedoms.

4. 必须依照《公约》的总体目标和宗旨，即消除对妇女的一切形式歧视，确定第四条第1款的范围和含义，以期在享受人权和基本自由方面实现法律上和事实上的男女平等。

States parties to the Convention are under a legal obligation to respect, protect, promote and fulfil this right to non-discrimination for women and to ensure the development and advancement of women in order to improve their position to one of de jure as well as de facto equality with men.

《公约》缔约国有法律义务尊重、保护、促进和实现妇女不受歧视的权利，确保妇女发展和地位提高，以改善她们的处境，实现法律上和事实上的男女平等。

5. The Convention goes beyond the concept of discrimination used in many national and international legal standards and norms.

5. 《公约》超越了许多国家和国际法律标准和准则中使用的歧视概念。

While such standards and norms prohibit discrimination on the grounds of sex and protect both men and women from treatment based on arbitrary, unfair and/or unjustifiable distinctions, the Convention focuses on discrimination against women, emphasizing that women have suffered, and continue to suffer from various forms of discrimination because they are women.

虽然这些标准和准则都禁止性别歧视，保护男女免受专横、不公平和/或不公正的待遇，但《公约》的重点是歧视妇女问题，强调妇女因为是妇女而一直并且继续遭受形形色色的歧视。

6. A joint reading of articles 1 to 5 and 24, which form the general interpretative framework for all of the Convention’s substantive articles, indicates that three obligations are central to States parties’ efforts to eliminate discrimination against women.

6. 第一至五和第二十四条构成《公约》所有实质性条款的一般性解释框架；第一至五和第二十四条的总和表明三项义务是缔约国努力消除歧视妇女的核心所在。

These obligations should be implemented in an integrated fashion and extend beyond a purely formal legal obligation of equal treatment of women with men.

应以综合方式履行这些义务，它们已超出男女平等待遇的纯粹正式法律的义务范畴。

7. Firstly, States parties’ obligation is to ensure that there is no direct or indirect discrimination against women in their laws and that women are protected against discrimination - committed by public authorities, the judiciary, organizations, enterprises or private individuals - in the public as well as the private spheres by competent tribunals as well as sanctions and other remedies.

7. 首先，缔约国有义务确保在其法律中没有直接或间接歧视妇女的内容，并通过主管法庭及制裁和其它补救办法确保妇女在公共和私人领域都不受――公共当局、司法机构、机关、企业或私人的――歧视。

Secondly, States parties’ obligation is to improve the de facto position of women through concrete and effective policies and programmes.

第二，缔约国有义务通过实行具体、有效的政策和方案改善妇女的实际状况。

Thirdly, States parties’ obligation is to address prevailing gender relations and the persistence of gender-based stereotypes that affect women not only through individual acts by individuals but also in law, and legal and societal structures and institutions.

第三，缔约国有义务处理普遍的性别关系及基于性别的定型观念，这一切不仅通过个人的个别行为而且在法律、立法和社会结构和机构中都对妇女产生影响。

8. In the Committee’s view, a purely formal legal or programmatic approach is not sufficient to achieve women’s de facto equality with men, which the Committee interprets as substantive equality.

8. 委员会认为，仅仅采取正式法律或方案的方式不足以实现委员会解释为实际平等的事实上的男女平等。

In addition, the Convention requires that women be given an equal start and that they be empowered by an enabling environment to achieve equality of results.

此外，《公约》要求男女起点平等，并通过创造有利于实现结果平等的环境赋予妇女权力。

It is not enough to guarantee women treatment that is identical to that of men.

仅仅保证男女待遇相同是不够的。

Rather, biological as well as socially and culturally constructed differences between women and men must be taken into account.

必须考虑到妇女和男子的生理差异以及社会和文化造成的差别。

Under certain circumstances, non-identical treatment of women and men will be required in order to address such differences.

在某些情况下，必须给予男女不同待遇，以纠正这些差别。

Pursuit of the goal of substantive equality also calls for an effective strategy aimed at overcoming underrepresentation of women and a redistribution of resources and power between men and women.

实现实际平等还需要有效的战略，目的是纠正妇女代表名额不足的现象，在男女之间重新分配资源和权力。

9. Equality of results is the logical corollary of de facto or substantive equality.

9. 结果平等是事实上或实际平等可想而知的必然结果。

These results may be quantitative and/or qualitative in nature; that is, women enjoying their rights in various fields in fairly equal numbers with men, enjoying the same income levels, equality in decision-making and political influence, and women enjoying freedom from violence.

这些结果可能是数量和/或质量性质的结果；即妇女与男子在各领域享有有关权利的人数几乎相等，享有同等的收入、以及同等的决策权和政治影响力，和妇女不遭受暴力。

10. The position of women will not be improved as long as the underlying causes of discrimination against women, and of their inequality, are not effectively addressed.

10. 必须有效处理歧视妇女和男女不平等的根本原因，才能改善妇女的状况。

The lives of women and men must be considered in a contextual way, and measures adopted towards a real transformation of opportunities, institutions and systems so that they are no longer grounded in historically determined male paradigms of power and life patterns.

在审视妇女和男子的生活时必须考虑到这方面的前因后果，并采取措施以促进机会、机构和制度的真正改变，不再以历史沿袭的男性权力和生活方式的规范为基础。

11. Women’s biologically determined permanent needs and experiences should be distinguished from other needs that may be the result of past and present discrimination against women by individual actors, the dominant gender ideology, or by manifestations of such discrimination in social and cultural structures and institutions.

11. 应区分妇女生理上决定的长期不变的需要和经历和下列情况造成的其它需要：过去和现在对妇女的歧视个体行为；占主导地位的性别意识形态；社会、文化结构和机构中歧视妇女的各种表现。

As steps are being taken to eliminate discrimination against women, women’s needs may change or disappear, or become the needs of both women and men.

由于正在采取步骤消除对妇女的歧视，妇女的需要可能改变或消失，或成为男女的共同需要。

Thus, continuous monitoring of laws, programmes and practices directed at the achievement of women’s de facto or substantive equality is needed so as to avoid a perpetuation of non-identical treatment that may no longer be warranted.

因此，需要继续监测旨在实现妇女事实上或实际平等的法律、方案和措施，以避免使可能已失去理由的不同待遇永久化。

12. Certain groups of women, in addition to suffering from discrimination directed against them as women, may also suffer from multiple forms of discrimination based on additional grounds such as race, ethnic or religious identity, disability, age, class, caste or other factors.

12. 某些妇女群体除受性别歧视外，还受到基于种族、族裔或宗教、残疾、年龄、阶级、种姓或其它因素的多种形式的歧视。

Such discrimination may affect these groups of women primarily, or to a different degree or in different ways than men.

此类歧视首先可能影响到这些群体的妇女，也可能在不同程度上或以不同方式影响到男子。

States parties may need to take specific temporary special measures to eliminate such multiple forms of discrimination against women and its compounded negative impact on them.

缔约国可能需要采取具体的暂行特别措施，消除对妇女的多种形式的歧视及其对妇女产生的复合不利影响。

13. In addition to the Convention on the Elimination of All Forms of Discrimination against Women, other international human rights instruments and policy documents adopted in the United Nations system contain provisions on temporary special measures to support the achievement of equality.

13. 除《消除对妇女一切形式歧视公约》之外，联合国系统通过的其它一些国际人权文书和政策文件也包含关于采取暂行特别措施支持实现平等的条款。

Such measures are described in different terminology, and the meaning and interpretation given to such measures also differs.

这些措施以不同术语表述，赋予它们的含义和解释也有所不同。

It is the Committee’s hope that the present general recommendation on article 4, paragraph 1, will contribute to a clarification of terminology.

委员会希望，本文所载的关于第四条第1款的一般性建议将有助于阐明术语。

14. The Convention targets discriminatory dimensions of past and current societal and cultural contexts which impede women’s enjoyment of their human rights and fundamental freedoms. It aims at the elimination of all forms of discrimination against women, including the elimination of the causes and consequences of their de facto or substantive inequality.

14. 《公约》所针对是过去和现在阻碍妇女享受人权和基本自由的社会和文化上的歧视，其目标是消除对妇女一切形式歧视，包括消除事实上或实际不平等的根源和后果。

Therefore, the application of temporary special measures in accordance with the Convention is one of the means to realize de facto or substantive equality for women, rather than an exception to the norms of non-discrimination and equality.

因此，根据《公约》采取暂行特别措施是实现妇女事实上或实际平等的手段之一，而不是不歧视和平等准则的例外。

III. The meaning and scope of temporary special measures in the Convention on the Elimination of All Forms of

三、《消除对妇女一切形式歧视公约》中暂行特别措施的意义和范围

Discrimination against Women

第四条第1款

Article 4, paragraph 1 Adoption by States parties of temporary special measures aimed at accelerating de facto equality between men and women shall not be considered discrimination as defined in the present Convention, but shall in no way entail as a consequence the maintenance of unequal or separate standards; these measures shall be discontinued when the objectives of equality of opportunity and treatment have been achieved.

缔约各国为加速实现男女事实上的平等而采取的暂行特别措施，不得视为本公约所指的歧视，亦不得因此导致维持不平等的标准或另立标准；这些措施应在男女机会和待遇平等的目的达到之后，停止采用。

Article 4, paragraph 2

第四条第2款

Adoption by States parties of special measures, including those measures contained in the present Convention, aimed at protecting maternity shall not be considered discriminatory.

缔约各国为保护母性而采取的特别措施，包括本公约所列各项措施，不得视为歧视。

A. Relationship between paragraphs 1 and 2 of article 4

A. 第四条第1款和第2款之间的关系

15. There is a clear difference between the purpose of the “special measures” under article 4, paragraph 1, and those of paragraph 2.

15. 第四条第1款和第四条第2款中“特别措施”的目的明显不同。

The purpose of article 4, paragraph 1, is to accelerate the improvement of the position of women to achieve their de facto or substantive equality with men, and to effect the structural, social and cultural changes necessary to correct past and current forms and effects of discrimination against women, as well as to provide them with compensation.

第四条第1款的目的是加速改善妇女状况以实现事实上或实际上的男女平等，寻求必要的结构、社会和文化变革，以纠正过去和现在歧视妇女的形式和后果，并向妇女提供补偿。

These measures are of a temporary nature.

这些措施是暂行措施。

16. Article 4, paragraph 2, provides for non-identical treatment of women and men due to their biological differences.

16. 第四条第2款对由于妇女与男子生理上的差异而给予他们的不同待遇作出了规定。

These measures are of a permanent nature, at least until such time as the scientific and technological knowledge referred to in article 11, paragraph 3, would warrant a review.

这些措施是永久性措施，至少直至第十一条第3款中提到的科学技术知识证明有理由进行审查。

B. Terminology

B. 术语

17. The travaux préparatoires of the Convention use different terms to describe the “temporary special measures” included in article 4, paragraph 1.

17. 在《公约》的准备材料中使用了不同术语表述第四条第1款中的“暂行特别措施”。

The Committee itself, in its previous general recommendations, used various terms.

委员会在以前的一般性建议中也使用各种术语。

States parties often equate “special measures” in its corrective, compensatory and promotional sense with the terms “affirmative action”, “positive action”, “positive measures”, “reverse discrimination”, and “positive discrimination”.

缔约国往往把纠正、补偿和促进意义的术语“特别措施”与“平权行动”、“积极行动”、“积极措施”、“反向歧视”和“积极的区别对待”等术语等同起来。

These terms emerge from the discussions and varied practices found in different national contexts.

这些术语源自讨论和各国在不同情况下采取的各种措施。

In the present general recommendation, and in accordance with its practice in the consideration of reports of States parties, the Committee uses solely the term “temporary special measures”, as called for in article 4, paragraph 1.

在本一般性建议中，根据审议缔约国报告的惯例，委员会按照第四条第1款的要求只使用“暂行特别措施”这一术语。

C. Key elements of article 4, paragraph 1

C. 第四条第1款的关键内容

18. Measures taken under article 4, paragraph 1, by States parties should aim to accelerate the equal participation of women in the political, economic, social, cultural, civil or any other field.

18. 缔约国根据第四条第1款采取的措施应旨在加速妇女在政治、经济、社会、文化、民间或其它任何领域的平等参与。

The Committee views the application of these measures not as an exception to the norm of non-discrimination, but rather as an emphasis that temporary special measures are part of a necessary strategy by States parties directed towards the achievement of de facto or substantive equality of women with men in the enjoyment of their human rights and fundamental freedoms.

委员会认为，实施这些措施并非不歧视准则的例外，而是作出一种强调，即暂行特别措施是缔约国的一项必要战略的组成部分，其目的是在享受人权和基本自由方面实现事实上或实际男女平等。

While the application of temporary special measures often remedies the effects of past discrimination against women, the obligation of States parties under the Convention to improve the position of women to one of de facto or substantive equality with men exists irrespective of any proof of past discrimination.

虽然实施暂行特别措施往往补救过去歧视妇女的造成的结果，但不管过去歧视妇女的证据如何，缔约国仍应承担《公约》规定的义务，改进妇女状况以实现事实上或实际男女平等。

The Committee considers that States parties that adopt and implement such measures under the Convention do not discriminate against men.

委员会认为，根据《公约》通过并执行此类措施的缔约国没有歧视男子。

19. States parties should clearly distinguish between temporary special measures taken under article 4, paragraph 1, to accelerate the achievement of a concrete goal for women of de facto or substantive equality, and other general social policies adopted to improve the situation of women and the girl child.

19. 缔约国应明确区分根据第四条第1款采取的暂行特别措施和其它一般性社会政策，前者旨在加速实现妇女事实上或实际平等的具体目标，后者旨在改善妇女和女童的状况。

Not all measures that potentially are, or will be, favourable to women are temporary special measures.

并非所有可能或将会有利于妇女的措施都是暂行特别措施。

The provision of general conditions in order to guarantee the civil, political, economic, social and cultural rights of women and the girl child, designed to ensure for them a life of dignity and non-discrimination, cannot be called temporary special measures.

提供一般条件保证妇女和女童的公民、政治、经济、社会和文化权利并确保她们过上有尊严、不受歧视的生活，这些不能称为暂行特别措施。

20. Article 4, paragraph 1, explicitly states the “temporary” nature of such special measures.

20. 第四条第1款案文阐明此类特别措施的“暂行”性质。

Such measures should therefore not be deemed necessary forever, even though the meaning of “temporary” may, in fact, result in the application of such measures for a long period of time.

因此，不应将此类措施视为永久的需要，即使“暂行”其实是意味长期采取此类措施。

The duration of a temporary special measure should be determined by its functional result in response to a concrete problem and not by a predetermined passage of time.

暂行特别措施的延续时间应根据处理具体问题的效果而定，不应预先确定。

Temporary special measures must be discontinued when their desired results have been achieved and sustained for a period of time.

如果预期效果已实现并持续了一段期间，则必须中止暂行特别措施。

21. The term “special”, though being in conformity with human rights discourse, also needs to be carefully explained.

21. 虽然“特别”这一术语与人权论述相符，但仍然应对其作出缜密解释。

Its use sometimes casts women and other groups who are subject to discrimination as weak, vulnerable and in need of extra or “special” measures in order to participate or compete in society.

有时使用该术语会让妇女和其它受歧视群体显得脆弱、易受伤害并需要额外或“特别”措施才能参与社会或在社会中竞争。

However, the real meaning of “special” in the formulation of article 4, paragraph 1, is that the measures are designed to serve a specific goal.

但在制定第四条第1款时，“特别”的真正含义是这些措施旨在实现具体目标。

22. The term “measures” encompasses a wide variety of legislative, executive, administrative and other regulatory instruments, policies and practices, such as outreach or support programmes; allocation and/or reallocation of resources; preferential treatment; targeted recruitment, hiring and promotion; numerical goals connected with time frames; and quota systems.

22. “措施”这一术语广泛包括各种立法、执行、行政和其它管理文书及政策和惯例，如：推广方案或支助方案；分配和/或重新分配资源；优惠待遇；定向征聘、雇用和晋升；与一定时期有关的数目指标和配额制度。

The choice of a particular “measure” will depend on the context in which article 4, paragraph 1, is applied and on the specific goal it aims to achieve.

选择特定“措施”将取决于第四条第1款适用的情况，以及旨在实现的具体目标。

23. The adoption and implementation of temporary special measures may lead to a discussion of qualifications and merit of the group or individuals so targeted, and an argument against preferences for allegedly lesser-qualified women over men in areas such as politics, education and employment.

23. 通过并执行暂行特别措施可能导致讨论其对象群体或个人的资格和才干，并提出理由反对在政策、教育和就业等领域优待据称资格低于男子的妇女。

As temporary special measures aim at accelerating achievement of de facto or substantive equality, questions of qualification and merit, in particular in the area of employment in the public and private sectors, need to be reviewed carefully for gender bias as they are normatively and culturally determined.

由于暂行特别措施旨在加速实现事实上或实际平等，所以应认真审查资格和才干问题是否涉及性别偏见，特别是在公营和私营部门就业领域，因为资格和才干是由规范和文化确定的。

For appointment, selection or election to public and political office, factors other than qualification and merit, including the application of the principles of democratic fairness and electoral choice, may also have to play a role.

在任命、甄选或选举担任公职和政治职务的人员时，除资格和才干以外的因素或许也应起作用，包括实行民主公正原则和选举原则。

24. Article 4, paragraph 1, read in conjunction with articles 1, 2, 3, 5 and 24, needs to be applied in relation to articles 6 to 16 which stipulate that States parties “shall take all appropriate measures”.

24. 须参照第一、二、三、五和二十四条，对第六至十六条适用第四条第1款；第六至十六条规定缔约国“应采取一切适当措施”。

Consequently, the Committee considers that States parties are obliged to adopt and implement temporary special measures in relation to any of these articles if such measures can be shown to be necessary and appropriate in order to accelerate the achievement of the overall, or a specific goal of, women’s de facto or substantive equality.

因此，委员会认为，如果能够说明暂行特别措施对第六至十六条的无论哪一条是必要而恰当的，缔约国应就其通过并执行暂行特别措施，以便加速实现妇女事实上或实际平等的总体或特定目标。

IV. Recommendations to States parties

四、对缔约国的建议

25. Reports of States parties should include information on the adoption, or lack thereof, of temporary special measures in accordance with article 4, paragraph 1, of the Convention, and States parties should preferably adhere to the terminology “temporary special measures”, to avoid confusion.

25. 缔约国的报告应说明采取或未采取《公约》第四条第1款之下的暂行特别措施的情况，缔约国最好坚持使用“暂行特别措施”这一术语，以避免混乱。

26. States parties should clearly distinguish between temporary special measures aimed at accelerating the achievement of a concrete goal of women’s de facto or substantive equality, and other general social policies adopted and implemented in order to improve the situation of women and the girl child.

26. 缔约国应明确区分暂行特别措施和通过并执行的其它一般性社会政策，前者旨在加速实现妇女事实上或实际平等的具体目标，后者旨在改善妇女和女童的状况。

States parties should bear in mind that not all measures which potentially are or would be favourable to women qualify as temporary special measures.

缔约国应注意，并非所有现在或将来可能会有利于妇女的措施都是暂行特别措施。

27. States parties should analyse the context of women’s situation in all spheres of life, as well as in the specific, targeted area, when applying temporary special measures to accelerate achievement of women’s de facto or substantive equality.

27. 缔约国在实施暂行特别措施以加速实现妇女事实上或实际平等时，应分析妇女在所有生活领域以及特定、有针对性的领域中的状况。

They should evaluate the potential impact of temporary special measures with regard to a particular goal within their national context and adopt those temporary special measures which they consider to be the most appropriate in order to accelerate the achievement of de facto or substantive equality for women.

缔约国应评估暂行特别措施对国内特定目标的可能影响，并采取它们认为最适当的暂行特别措施来加速实现妇女事实上或实际平等。

28. States parties should explain the reasons for choosing one type of measure over another.

28. 缔约国应说明选择一种措施而不选择另一种措施的理由。

The justification for applying such measures should include a description of the actual life situation of women, including the conditions and influences which shape their lives and opportunities - or that of a specific group of women, suffering from multiple forms of discrimination - and whose position the State party intends to improve in an accelerated manner with the application of such temporary special measures.

实施此类措施的理由应包括：说明妇女或受到多种形式的歧视的特定妇女群体的实际生活状况，包括决定其生活和机会的各种条件和影响；实施此类暂行特别措施将加速改进她们在缔约国的状况。

At the same time, the relationship between such measures and general measures and efforts to improve the position of women should be clarified.

与此同时，应阐明这些措施和一般性措施与努力改善妇女状况之间的关系。

29. States parties should provide adequate explanations with regard to any failure to adopt temporary special measures.

29. 缔约国应就未采取暂行特别措施作出充分解释。

Such failures may not be justified simply by averring powerlessness, or by explaining inaction through predominant market or political forces, such as those inherent in the private sector, private organizations, or political parties.

不能以下列方式证明有理由不采取暂行特别措施：声称无能为力；或说明不行动的原因是占主导地位的市场力量或政治力量，如私营部门、私人组织或政党所固有的这些力量。

States parties are reminded that article 2 of the Convention, which needs to be read in conjunction with all other articles, imposes accountability on the State party for action by these actors.

此外，提请缔约国注意，应参照其它各条解释的《公约》第二条要求缔约国对这些行动者的行动负责。

30. States parties may report on temporary special measures under several articles.

30. 缔约国可就若干条款提出关于暂行特别措施的报告。

Under article 2, States parties are invited to report on the legal or other basis for such measures, and their justification for choosing a particular approach.

根据第二条，请缔约国就这些措施的法律或其它依据提出报告，并说明选择某种办法的理由。

States parties are further invited to give details about any legislation concerning temporary special measures, and in particular whether such legislation provides for the mandatory or voluntary nature of temporary special measures.

此外，还请缔约国详细说明关于暂行特别措施的立法，特别是该立法是否对暂行特别措施的强制性质或自愿性质作出规定。

31. States parties should include, in their constitutions or in their national legislation, provisions that allow for the adoption of temporary special measures.

31. 缔约国应在其宪法或国家立法中规定，允许采取暂行特别措施。

The Committee reminds States parties that legislation, such as comprehensive anti-discrimination acts, equal opportunities acts or executive orders on women’s equality, can give guidance on the type of temporary special measures that should be applied to achieve a stated goal, or goals, in given

委员会提请缔约国注意，全面反歧视法、机会平等法或关于男女平等的行政命令等立法能够指导应采取哪种暂行特别措施，以实现特定领域的一个或数个特定目标。

areas. Such guidance can also be contained in specific legislation on employment or education.

关于就业或教育的具体立法也可提供此类指导。

Relevant legislation on non-discrimination and temporary special measures should cover governmental actors as well as private organizations or enterprises.

关于不歧视和暂行特别措施的有关立法应涉及政府行动者及私营组织或企业。

32. The Committee draws the attention of States parties to the fact that temporary special measures may also be based on decrees, policy directives and/or administrative guidelines formulated and adopted by national, regional or local executive branches of government to cover the public employment and education sectors.

32. 委员会提请缔约国注意，暂行特别措施还可基于国家、区域或当地行政部门包括公共就业和教育部门制定并通过的指令、政策指示和/或行政准则。

Such temporary special measures may include the civil service, the political sphere and the private education and employment sectors.

这类暂行特别措施可包括公务员制度、政治领域以及私营教育和就业部门。

The Committee further draws the attention of States parties to the fact that such measures may also be negotiated between social partners of the public or private employment sector or be applied on a voluntary basis by public or private enterprises, organizations, institutions and political parties.

委员会还提请缔约国注意，公营或私营就业部门的社会伙伴也可通过谈判达成此类措施，或由公营或私营企业、组织、机构和政党在自愿的基础上予以实施。

33. The Committee reiterates that action plans for temporary special measures need to be designed, applied and evaluated within the specific national context and against the background of the specific nature of the problem which they are intended to overcome.

33. 委员会重申，应根据具体国情和打算克服的问题的具体性质，拟订、实施和评价暂行特别措施行动计划。

The Committee recommends that States parties provide in their reports details of any action plans which may be directed at creating access for women and overcoming their underrepresentation in certain fields, at redistributing resources and power in particular areas, and/or at initiating institutional change to overcome past or present discrimination and accelerate the achievement of de facto equality.

委员会建议，缔约国在报告中详细说明旨在实现下列目标的行动计划：为妇女创造机会，克服她们在某些领域任职人数不足的问题；在某些领域重新分配资源和权力；和/或开始进行体制改革，消除过去或现在的歧视现象，加速实现事实上的平等。

Reports should also explain whether such action plans include considerations of unintended potential adverse side-effects of such measures as well as on possible action to protect women against them.

报告还应说明，此类行动计划是否考虑到此类措施可能意外造成的有害影响，以及为保护妇女免受这种影响可能采取的行动。

States parties should also describe in their reports the results of temporary special measures and assess the causes of the possible failure of such measures.

缔约国还应在其报告中说明暂行特别措施的成果，并评估可能致使这种措施失败的因素。

34. Under article 3, States parties are invited to report on the institution(s) responsible for designing, implementing, monitoring, evaluating and enforcing such temporary special measures.

34. 根据第三条，请缔约国提出报告，说明负责拟订、执行、监督、评价和推行此类暂行特别措施的机构。

Such responsibility may be vested in existing or planned national institutions, such as women’s ministries, women’s departments within ministries or presidential offices, ombudspersons, tribunals or other entities of a public or private nature with the requisite mandate to design specific programmes, monitor their implementation, and evaluate their impact and outcomes.

现有或计划设立的国家机构可承担这一责任，如妇女部、各部或总统办公室内的妇女司、监察员、法庭或其它公营或私营实体等，这些机构都应具有拟订具体方案、监督方案执行及评价方案影响和成果的任务规定。

The Committee recommends that States parties ensure that women in general, and affected groups of women in particular, have a role in the design, implementation and evaluation of such programmes.

委员会建议，缔约国确保妇女，特别是受影响的妇女，在拟订、执行和评价此类方案方面发挥作用。

Collaboration and consultation with civil society and non-governmental organizations representing various groups of women is especially recommended.

此外，还特别建议与民间社会和代表各妇女团体的非政府组织进行合作和协商。

35. The Committee draws attention to and reiterates its general recommendation 9, on statistical data concerning the situation of women, and recommends that States parties provide statistical data disaggregated by sex in order to measure the achievement of progress towards women’s de facto or substantive equality and the effectiveness of temporary special measures.

35. 委员会提请注意并重申其关于妇女状况统计数据的第9号一般性建议，建议缔约国提供按性别分列的数据，以便衡量在实现妇女事实上或实际平等方面取得的进展和暂行特别措施的效果。

36. States parties should report on the type of temporary special measures taken in specific fields under the relevant article(s) of the Convention.

36. 缔约国应报告根据《公约》有关条款在具体领域采取的暂行特别措施类型。

Reporting under the respective article(s) should include references to concrete goals and targets, timetables, the reasons for choosing particular measures, steps to enable women to access such measures, and the institution accountable for monitoring implementation and progress.

根据有关条款提出的报告应提到具体的目标和指标、时间表、选择特定措施的理由、让妇女能够参与这些措施的步骤以及负责监督执行情况和进展的机构。

States parties are also asked to describe how many women are affected by a measure, how many would gain access and participate in a certain field because of a temporary special measure, or the amount of resources and power it aims to redistribute to how many women, and within what time frame.

还请缔约国说明受某措施影响及因暂行特别措施而有机会参加某领域的妇女人数，或说明国家打算在多长时间内向多少妇女重新分配多少资源和权力。

37. The Committee reiterates its general recommendations 5, 8 and 23, wherein it recommended the application of temporary special measures in the fields of education, the economy, politics and employment, in the area of women representing their Governments at the international level and participating in the work of international organizations, and in the area of political and public life.

37. 委员会重申其第5、8和23号一般性建议，其中委员会建议在下列领域实施暂行特别措施：教育、经济、政治和就业；妇女在国际一级代表政府参加国际组织工作；政治和公共生活。

States parties should intensify, within their national contexts, such efforts especially with regard to all facets of education at all levels as well as all facets and levels of training, employment and representation in public and political life.

缔约国应根据本国国情加强此类努力，特别是涉及各级教育所有方面及各级培训、就业和参加公共和政治生活所有方面的努力。

The Committee recalls that in all instances, but particularly in the area of health, States parties should carefully distinguish in each field between measures of an ongoing and permanent nature and those of a temporary nature.

委员会回顾，在所有情况下，特别是在医疗卫生领域，缔约国应仔细区分每个领域中持续及永久的措施和暂行措施。

38. States parties are reminded that temporary special measures should be adopted to accelerate the modification and elimination of cultural practices and stereotypical attitudes and behaviour that discriminate against or are disadvantageous for women.

38. 请缔约国注意，应采取暂行特别措施加速改变和消除歧视妇女或对妇女不利的文化、定型态度和行为。

Temporary special measures should also be implemented in the areas of credit and loans, sports, culture and recreation, and legal awareness.

在信贷和贷款、运动、文化和娱乐及法律宣传领域也应采取暂行特别措施。

Where necessary, such measures should be directed at women subjected to multiple discrimination, including rural women.

如有必要，应针对受多重歧视的妇女，包括农村妇女，采取此类措施。

39. Although the application of temporary special measures may not be possible under all the articles of the Convention, the Committee recommends that their adoption be considered whenever issues of accelerating access to equal participation, on the one hand, and accelerating the redistribution of power and resources, on the other hand, are involved as well as where it can be shown that these measures will be necessary and most appropriate under the circumstances.

39. 虽然不可能对《公约》所有条款适用暂行特别措施，但委员会建议在下述情况考虑采取暂行特别措施：每当涉及加速提供平等参与的机会和加速重新分配权力和资源的问题；如果能够说明在特定情况下需要这些措施，而且这些措施最适合。

Notes

注

Indirect discrimination against women may occur when laws, policies and programmes are based on seemingly gender-neutral criteria which in their actual effect have a detrimental impact on women.

如果法律、政策和方案基于似乎不分性别但实际上对妇女有不利影响的标准，则会发生间接歧视妇女的情况。

Gender-neutral laws, policies and programmes unintentionally may perpetuate the consequences of past discrimination. They may be inadvertently modelled on male lifestyles and thus fail to take into account aspects of women’s life experiences which may differ from those of men.

不分性别的法律、政策和方案保留过去歧视妇女的后果可能并非故意，以男人生活方式为模式因而未考虑到与男子生活方式不同的妇女生活经历也可能出于无心。

These differences may exist because of stereotypical expectations, attitudes and behaviour directed towards women which are based on the biological differences between women and men.

存在这些区别是因为基于男女生理区别对妇女的陈见、态度和行为，

They may also exist because of the generally existing subordination of women by men.

还可能因为普遍存在的男尊女卑现象。

“Gender is defined as the social meanings given to biological sex differences.

“给予生理性性别差异的社会含义便是性别观念的定义。

It is an ideological and cultural construct, but is also reproduced within the realm of material practices; in turn it influences the outcomes of such practices.

性别观念是一种意识形态和文化概念，但是也再生于物质实践领域内，然后反过来影响这种实践的结果。

It affects the distribution of resources, wealth, work, decision-making and political power, and enjoyment of rights and entitlements within the family as well as public life.

它影响到资源、财富、工作、决策和政治权力的分配，还影响到家庭及公共生活中权利和待遇的享受。

Despite variations across cultures and over time, gender relations throughout the world entail asymmetry of power between men and women as a pervasive trait.

尽管文化各异，时间变迁，全世界范围内的性别关系均导致男女之间的权利不均衡，这是一个普遍特征。

Thus, gender is a social stratifier, and in this sense it is similar to other stratifiers such as race, class, ethnicity, sexuality, and age.

因此，性别是一个划分社会阶层的因素，在此意义上讲，它类似于种族、阶级、族裔、性行为和年龄等其它划分阶层的因素。

It helps us understand the social construction of gender identities and the unequal structure of power that underlies the relationship between the sexes. ”

这有助于我们了解性别特征的社会构造和作为两性关系基础的不平等权力结构。”

1999 World Survey on the Role of Women in Development, United Nations, New York, 1999, page ix.

《1999年关于妇女在发展中的作用的世界概览》，第7页，联合国，纽约，1999年。

See, for example, the International Convention on the Elimination of All Forms of Racial Discrimination, which mandates temporary special measures.

例如，见《消除一切形式种族歧视国际公约》，其中准许暂行特别措施。

The practice of treaty monitoring bodies, including the Committee on the Elimination of Racial Discrimination, the Committee on Economic, Social and Cultural Rights, and the Human Rights Committee, shows that these bodies consider the application of temporary special measures as mandatory to achieve the purposes of the respective treaties.

包括消除种族歧视委员会、经济、社会和文化权利委员会和人权事务委员会在内的条约监测机构的惯例表明，这些机构认为，要想达成各该条约的目标，必须执行暂行特别措施。

Conventions adopted under the auspices of the International Labour Organization, and various documents of the United Nations Educational, Scientific and Cultural Organization also explicitly or implicitly provide for such measures.

在国际劳工组织主持下通过的各项公约和联合国教育、科学及文化组织的各种文件都明确或含蓄规定采取此类措施。

The Sub-Commission on the Promotion and Protection of Human Rights considered this question and appointed a Special Rapporteur to prepare reports for its consideration and action.

促进和保护人权小组委员会审议了这一问题，并指定一名特别报告员编写报告供小组委员会审议和采取行动。

The Commission on the Status of Women reviewed the use of temporary special measures in 1992.

妇女地位委员会于1992年审查了采取暂行特别措施的情况。

The outcome documents adopted by United Nations world conferences on women, including the Platform for Action of the 1995 Fourth World Conference on Women and its follow-up review of 2000, contain references to positive action as a tool for achieving de facto equality.

联合国妇女问题世界会议通过的成果文件，包括1995年第四次妇女问题世界会议行动纲要及其2000年后续行动审查，提到积极行动是实现事实上平等的工具。

The use of temporary special measures by the Secretary-General of the United Nations is a practical example in the area of women’s employment, including through administrative instructions on the recruitment, promotion and placement of women in the Secretariat.

联合国秘书长采取暂行特别措施是妇女就业领域的实例，包括在秘书处实行关于妇女招聘、晋升和职位安排的行政指示。

These measures aim at achieving the goal of 50/50 gender distribution at all levels, but at the higher echelons in particular.

这些措施的目的是在各级、特别是较高级别实现50/50的男女比例。

The term “affirmative action” is used in the United States of America and in a number of United Nations documents, whereas the term “positive action” is currently widely used in Europe as well as in many United Nations documents.

在美利坚合众国和一些联合国文件中使用“平权行动”，而在欧洲和许多联合国文件中目前普遍使用“积极行动”。

However, the term “positive action” is used in yet another sense in international human rights law to describe “positive State action” (the obligation of a State to initiate action versus a State’s obligation to abstain from action).

但“积极行动”在国际人权法中有另一个含义，用于说明“积极的国家行动”(国家采取行动的义务相对于国家不采取行动的义务)。

Hence, the term “positive action” is ambiguous inasmuch as its meaning is not confined to temporary special measures as understood in article 4, paragraph 1, of the Convention.

因此，“积极行动”这个术语不明确，因为其意思不限于《公约》第四条第1款中所理解的暂行特别措施。

The terms “reverse discrimination” or “positive discrimination” are criticized by a number of commentators as inappropriate.

一些评论家批评“反向歧视”或“积极的区别对待”这两个术语不恰当。