2025/1168

10.6.2025

COUNCIL DECISION (EU) 2025/1168

of 5 June 2025

on the position to be taken on behalf of the European Union within the Committee of the Parties to the Council of Europe Convention on preventing and combating violence against women and domestic violence, at its 18th meeting, on the recommendations and conclusions addressed to certain Parties on their implementation of that Convention, with regard to matters related to judicial cooperation in criminal matters, asylum and non-refoulement

THE COUNCIL OF THE EUROPEAN UNION,

Having regard to the Treaty on the Functioning of the European Union, and in particular Article 78(2), Article 82(2) and Article 84, in conjunction with Article 218(9) thereof,

Having regard to the proposal from the European Commission,

Whereas:

(1) The Council of Europe Convention on preventing and combating violence against women and domestic violence (the ‘Convention’) was concluded by the Union by means of Council Decision (EU) 2023/1075 (1) with regard to institutions and public administration of the Union, and by means of Council Decision (EU) 2023/1076 (2) with regard to matters related to judicial cooperation in criminal matters, asylum and non-refoulement, insofar as such matters fall within the exclusive competence of the Union, and entered into force for the Union on 1 October 2023.

(2) Pursuant to Article 66(1) of the Convention, the Group of experts on action against violence against women and domestic violence (‘GREVIO’) is to monitor the implementation of the Convention by the Parties to the Convention (the ‘Parties’). In accordance with Article 68(11) of the Convention, GREVIO is to adopt its report and conclusions concerning the measures taken by the Party concerned to implement the provisions of the Convention.

(3) The Committee of the Parties (the ‘Committee’) is able to adopt recommendations addressed to the Party concerned, in accordance with Article 68(12) of the Convention, on the basis of the report and conclusions of GREVIO. Such recommendations are to differentiate between measures to be taken as soon as possible, with a requirement to report back to the Committee on steps taken in that regard within a three-year period, and measures which, while important, do not carry the same level of immediacy. At the end of that three-year period, the Party concerned is to report back to the Committee on the measures taken, within 10 specific areas of the Convention. On the basis of that report, and any additional information, the Committee is to adopt conclusions on the implementation of those recommendations, prepared by the secretariat of the Committee.

(4) Pursuant to Article 68(3) of the Convention, the evaluation procedures following GREVIO’s initial baseline evaluation procedure are to be divided into rounds (the ‘thematic evaluation rounds’). The first thematic evaluation round is entitled ‘Building Trust by Delivering Support, Protection and Justice’ and addresses 20 articles of the Convention, namely Articles 3, 7, 8, 11, 12, 14, 15, 16, 18, 20, 22, 25, 31, 48, 49, 50, 51, 52, 53 and 56. At its 17th meeting, on 17 December 2024, the Committee adopted a decision on the recommendations to be adopted by the Committee in light of GREVIO’s reports adopted as part of the first thematic evaluation round contained in document IC-CP(2024)10 rev.

(5) The Committee, during its 18th meeting on 5-6 June 2025, is expected to adopt eight draft recommendations based on the first thematic evaluation round and two draft conclusions, on the implementation of the Convention by 10 of the Parties (respectively, the ‘draft recommendations’ and the ‘draft conclusions’, and jointly the ‘envisaged acts’):

— Recommendations on improving trust by delivering support, protection and justice on the basis of the Istanbul Convention by Albania, contained in document IC-CP(2025)2-prov,

— Recommendations on improving trust by delivering support, protection and justice on the basis of the Istanbul Convention by Austria, contained in document IC-CP(2025)3-prov,

— Recommendations on improving trust by delivering support, protection and justice on the basis of the Istanbul Convention by Denmark, contained in document IC-CP(2025)4-prov;

— Recommendations on improving trust by delivering support, protection and justice on the basis of the Istanbul Convention by Finland, contained in document IC-CP(2025)5-prov,

— Recommendations on improving trust by delivering support, protection and justice on the basis of the Istanbul Convention by Monaco, contained in document IC-CP(2025)6-prov,

— Recommendations on improving trust by delivering support, protection and justice on the basis of the Istanbul Convention by Montenegro, contained in document IC-CP(2025)7-prov,

— Recommendations on improving trust by delivering support, protection and justice on the basis of the Istanbul Convention by Spain, contained in document IC-CP(2025)8-prov,

— Recommendations on improving trust by delivering support, protection and justice on the basis of the Istanbul Convention by Sweden, contained in document IC-CP(2025)9-prov;

— Conclusions on the implementation of recommendations in respect of San Marino adopted by the Committee of the Parties, contained in document IC-CP(2025)10-prov, and

— Conclusions on the implementation of recommendations in respect of Slovenia adopted by the Committee of the Parties, contained in document IC-CP(2025)11-prov.

(6) The envisaged acts concern the implementation of provisions of the Convention relating to judicial cooperation in criminal matters, such as matters relating to the protection and support of victims of violence against women and domestic violence. The draft conclusions concern the implementation of provisions of the Convention relating to asylum and non-refoulement. Those matters are covered by the Union

acquis

, in particular Council Directive 2003/86/EC (3), Directives 2012/29/EU (4), (EU) 2024/1346 (5) and (EU) 2024/1385 (6) of the European Parliament and of the Council, and Regulation (EU) 2024/1348 of the European Parliament and of the Council (7). The envisaged acts will have legal effects, as they are capable of decisively influencing the content of Union law in that they could affect the interpretation of relevant provisions of the Convention in the future. It is therefore appropriate to establish the position to be taken on the Union’s behalf within the Committee for matters related to judicial cooperation in criminal matters, asylum and non-refoulement.

(7) It should be noted that recommendations relating to certain articles of the Convention are only partly covered by the Union’s competence. Regarding those articles, this decision should be without prejudice to Member States’ competence, so that, for example: as regards recommendations on Articles 49 and 50 of the Convention, this decision should be without prejudice to Member States’ competence for the internal organisation and administration of their justice systems; as regards recommendations on Articles 11 and 20 of the Convention, this decision should be without prejudice to Member States’ competence for the organisation and delivery of healthcare services and medical care; as regards recommendations on Article 14 of the Convention, this decision should be without prejudice to Member States’ competence for the content of teaching and the organisation of education systems; and as regards recommendations on Article 31 of the Convention, this decision should be without prejudice to Member States’ competence in the area of family law.

(8) As regards Albania, the draft recommendations include the need to: ensure that relevant policies and measures to prevent and combat all forms of violence against women are provided with sufficient and sustainable funding, including through transparent procedures to secure funding for women’s rights organisations (Article 8 of the Convention); promote awareness-raising campaigns or programmes and regularly assess their impact (Article 12 of the Convention); ensure training for relevant professionals and follow-up on such training (Article 15 of the Convention); expand the existing perpetrator programmes and introduce programmes aimed specifically at perpetrators of sexual violence (Article 16 of the Convention); ensure that victims of violence have access to comprehensive healthcare services (Article 20 of the Convention); increase the funding for, and the number of, available services for women victims, especially for women with special needs (Article 20 of the Convention); ensure sufficient specialist support services to all women victims and their children, irrespective of their willingness to report the violence, and ensure that national helplines receive funding (Article 22 of the Convention); ensure that victims of sexual violence have access to forensic examination, not conditional on their willingness to report the crime, and that forensic evidence is properly stored (Article 25 of the Convention); take measures to abolish mandatory conciliation in all criminal cases concerning violence against women (Article 48 of the Convention); enhance the capacity, knowledge and response of law-enforcement officers in order to achieve a timely and victim-sensitive response and take measures to improve reporting by women victims (Articles 49 and 50 of the Convention); ensure that risk assessment procedures are applied in cases concerning all forms of violence covered by the Convention and in coordination with all relevant agencies (Article 51 of the Convention); make better use of emergency barring orders and monitor and enforce such orders (Article 52 of the Convention); ensure that protection orders are available and accessible to all victims, and enforce and monitor such orders, including through sanctions for breaches (Article 53 of the Convention); and evaluate the implementation of protection measures and ensure that they are in line with the Convention (Article 56 of the Convention). As those draft recommendations are in line with the Union’s policies and objectives in the area of judicial cooperation in criminal matters and do not raise any concerns with respect to Union law, the position of the Union should be to not object to their adoption.

(9) As regards Austria, the draft recommendations include the need to: adopt and align the definition of ‘domestic violence’ (Article 3 of the Convention); develop a long-term comprehensive action plan/strategic policy document on all forms of violence covered by the Convention (Article 7 of the Convention); adapt data categories for use by the justice sector and collect data on the number of women and girls who contact social services (Article 11 of the Convention); step up efforts to eradicate prejudice and gender stereotypes in Austrian society through prevention measures, including awareness-raising campaigns or programmes, inform victims of the availability of support services and evaluate their impact (Article 12 of the Convention); ensure that relevant professionals receive appropriate training (Article 15 of the Convention); ensure that victims have access to support services, including housing, and ensure the issuance of forensic reports documenting injuries (Article 20 of the Convention); ensure that places in shelters are available in sufficient numbers across the country (Article 22 of the Convention); set up sexual violence referral centres across the country and ensure effective support to victims of sexual violence (Article 25 of the Convention); reinforce information sharing between relevant competent authorities in cases concerning child custody and visitation rights (Article 31 of the Convention); and ensure the use of protection orders and avoid gaps between barring orders and protection orders (Articles 53 of the Convention). As those draft recommendations are in line with the Union’s policies and objectives in the area of judicial cooperation in criminal matters and do not raise any concerns with respect to Union law, the position of the Union should be to not object to their adoption.

(10) As regards Denmark, the draft recommendations include the need to: ensure that relevant definitions of forms of violence against women align with the Convention (Article 3 of the Convention); develop a long-term national strategy in line with the Convention (Article 7 of the Convention); ensure appropriate allocation of funds, including resources for domestic violence shelters (Article 8 of the Convention); ensure that data collected are disaggregated and confidentiality is guaranteed (Article 11 of the Convention); prioritise a gender-sensitive approach in preventive initiatives (Article 12 of the Convention); ensure the provision of systematic initial and in-service training for relevant professionals (Article 15 of the Convention); set-up institutionalised structures for cooperation to ensure effective multi-agency cooperation (Article 18 of the Convention); ensure access to psychological counselling, quality standards, accessibility and financial sustainability for shelters, and ensure necessary support for victims of sexual violence (Articles 22 and 25 of the Convention); raise awareness among criminal justice actors about new criminal legislation (Articles 49 and 50 of the Convention); ensure that risk assessment is conducted in coordination with relevant actors (Article 51 of the Convention); increase the use of emergency barring orders and protection orders to monitor compliance ratings and ensure sanctions in cases of breach (Articles 52 and 53 of the Convention); and ensure the proper implementation of victim protection measures in investigations and judicial proceedings (Article 56 of the Convention). As those draft recommendations are in line with the Union’s policies and objectives in the area of judicial cooperation in criminal matters and do not raise any concerns with respect to Union law, the position of the Union should be to not object to their adoption.

(11) As regards Finland, the draft recommendations include the need to: develop a long-term national strategy to ensure a comprehensive, coordinated approach (Article 7 of the Convention); ensure sufficient public funding and sustainable financing mechanisms for non-governmental organisations providing specialist support to victims (Article 8 of the Convention); establish standardised data categories and harmonise data collection systems (Article 11 of the Convention); regularly conduct awareness-raising campaigns (Article 12 of the Convention); ensure the provision of systematic training for relevant professionals (Article 15 of the Convention); establish perpetrator programmes for domestic violence (Article 16 of the Convention); establish institutionalised multi-agency coordination structures among relevant actors (Article 18 of the Convention); establish support services to facilitate victims’ recovery and independence (Article 20 of the Convention); increase both the number of, and access to, shelters (Article 22 of the Convention); ensure the geographical distribution of rape crisis centres to ensure support to all victims of sexual violence (Article 25 of the Convention); ensure that mediation does not negatively impact criminal investigations nor hamper victims’ access to justice (Article 48 of the Convention); ensure that law enforcement services receive relevant training on responding to and investigating, in a timely and adequate manner, cases of violence against women (Articles 49 and 50 of the Convention); take measures to establish a standardised risk assessment mechanism applied systematically (Article 51 of the Convention); and increase the use of emergency barring orders and protection orders and strengthen the monitoring of such orders (Articles 52 and 53 of the Convention). As those draft recommendations are in line with the Union’s policies and objectives in the area of judicial cooperation in criminal matters and do not raise any concerns with respect to Union law, the position of the Union should be to not object to their adoption.

(12) As regards Monaco, the draft recommendations on its implementation of the Convention include the need to: adopt a definition of domestic violence that aligns with the Convention (Article 3 of the Convention); develop a long-term overarching strategy to achieve a comprehensive and coordinated policy approach (Article 7 of the Convention); continue to develop the collection of data on all forms of violence against women covered by the Convention (Article 11 of the Convention); expand measures to prevent domestic violence to include other forms of violence covered by the Convention (Article 12 of the Convention): pursue measures to raise awareness of violence against women in schools (Article 14 of the Convention); set up programmes for perpetrators of violence (Article 16 of the Convention); set up a national helpline for women victims of violence and continue to develop specialist services for victims of violence covered by the Convention (Article 22 of the Convention); set up a rape crisis and sexual violence referral centre (Article 25 of the Convention); ensure that professionals involved in criminal proceedings have sufficient expertise and receive gender-sensitive training (Articles 49 and 50 of the Convention); standardise the practice of coordinated risk assessment to relevant services on all forms of violence covered by the Convention (Article 51 of the Convention); and ensure that the rights of victims are protected during investigations and judicial proceedings (Article 56 of the Convention). As those draft recommendations are in line with the Union’s policies and objectives in the area of judicial cooperation in criminal matters and do not raise any concerns with respect to Union law, the position of the Union should be to not object to their adoption.

(13) As regards Montenegro, the draft recommendations on its implementation include the need to: ensure appropriate human and financial resources for policies, measures and legislation aimed at preventing and combating violence against women, and ensure sustainable funding for non-governmental organisations (Article 8 of the Convention); ensure the collection and disaggregation of data by all relevant stakeholders and harmonise the collection of data (Article 11 of the Convention); step up efforts to implement regular preventive measures, conduct awareness-raising campaigns and highlight the increased risk of violence faced by victims of intersectional discrimination (Article 12 of the Convention); ensure initial and in-service training regarding violence against women for all relevant professionals (Article 15 of the Convention); set up and expand programmes for perpetrators of domestic violence and perpetrators of sexual violence (Article 16 of the Convention); ensure that healthcare providers give priority to women victims of violence against women and domestic violence and respect their privacy (Article 20 of the Convention); boost multi-agency cooperation (Article 18 of the Convention); increase the availability of specialist support services for victims (Article 22 of the Convention); set up rape crisis centres throughout the country (Article 25 of the Convention); ensure information sharing on violence against women between relevant courts in civil proceedings (Article 31 of the Convention); investigate and prosecute acts of violence against women and domestic violence effectively and in a timely manner, including by ensuring that the relevant professionals have the expertise required (Articles 49 and 50 of the Convention); ensure that risk assessments are systematically carried out in cases of domestic violence in collaboration with relevant competent authorities (Article 51 of the Convention); ensure that emergency barring orders are available to all victims of violence against women, including children (Article 52 of the Convention); ensure that protection orders are effectively monitored and breaches sanctioned (Article 53 of the Convention); and ensure the effective use of existing protection measures and introduce additional protection measures in line with the Convention (Article 56 of the Convention). As those draft recommendations are in line with the Union’s policies and objectives in the area of judicial cooperation in criminal matters and do not raise any concerns with respect to Union law, the position of the Union should be to not object to their adoption.

(14) As regards Spain, the draft recommendations include the need to ensure implementation of existing policies to prevent and combat violence against women and domestic violence, and involve non-governmental organisations in policymaking and in the evaluation of policies and measures (Article 7 of the Convention); ensure that data collected are disaggregated and harmonise data collection (Article 11 of the Convention); teach children about the central role of consent in sexual relationships (Article 14 of the Convention); step up the training of all relevant professionals (Article 15 of the Convention); improve the compliance of perpetrator programmes with the Convention (Article 16 of the Convention); set up multi-agency cooperation mechanisms with all relevant actors on all forms of violence covered by the Convention and set up one-stop-shop services where appropriate (Article 18 of the Convention); ensure that all victims of sexual violence have access to support services (Article 25 of the Convention); strengthen information sharing between civil courts and criminal courts and boost measures to ensure that supervised visitation facilities are sufficiently resourced (Article 31 of the Convention); address factors that prevent victims from reporting and that lead to secondary victimisation (Articles 49 and 50 of the Convention); ensure that competent authorities have access to emergency barring orders in line with the Convention (Article 52 of the Convention); and take measures to properly address breaches of protection orders (Article 53 of the Convention). As those draft recommendations are in line with the Union’s policies and objectives in the area of judicial cooperation in criminal matters and do not raise any concerns with respect to Union law, the position of the Union should be to not object to their adoption.

(15) As regards Sweden, the draft recommendations include the need to ensure that policies on violence against women: consider the needs of victims exposed to intersectional discrimination, evaluate strategies to access their impact and to apply a gendered understanding of violence against women (Articles 3 and 7 of the Convention); ensure sustainable funding levels of women’s rights organisations that run specialist support services (Article 8 of the Convention); harmonise the collection of data and ensure that data are disaggregated (Article 11 of the Convention); ensure wider prevention measures for all forms of violence against women (Article 12 of the Convention); introduce systematic training on all forms of violence covered by the Convention for relevant professionals, and an evaluation of that training (Article 15 of the Convention); develop minimum standards for perpetrator programmes in line with the Convention and ensure evaluation (Article 16 of the Convention); adopt coordination and cooperation mechanisms among relevant agencies and, where possible, on the same premises (Article 18 of the Convention); ensure that social services provide sufficient support and assistance to all victims, including support on practical matters (Article 20 of the Convention); increase the availability of and ensure access to shelters for all victims and their children (Article 22 of the Convention); ensure a sufficient number of rape crisis and/or sexual violence centres throughout the country (Article 25 of the Convention); provide safe premises where supervised visits can take place with trained professionals (Article 31 of the Convention); strengthen the capacity of the police to respond to and investigate all forms of violence against women, including its digital manifestations, and take measures to encourage reporting by women at risk of intersectional discrimination (Articles 49 and 50 of the Convention); ensure that risk assessments are systematically carried out for victims and their children in a coordinated manner (Article 51 of the Convention); and take measures to ensure that emergency barring orders, restraining and protection orders (‘non-contact orders for the joint home’) are issued swiftly with immediate effect, including for children, effectively monitored and accompanied by appropriate sanctions (Articles 52 and 53 of the Convention). As those draft recommendations are in line with the Union’s policies and objectives in the area of judicial cooperation in criminal matters and do not raise any concerns with respect to Union law, the position of the Union should be to not object to their adoption.

(16) As regards San Marino, the draft conclusions include the need to: support civil society organisations by ensuring sustainable funding to set up cooperation mechanisms, and ensure that the national coordinating body coordinates with civil society organisations (Articles 9 and 10 of the Convention); improve the collection of disaggregated data on the basis of a common data-collection system and regularly conduct victimisation surveys and promote research activities (Article 11 of the Convention); and comply with the requirements of Article 59 of the Convention on the residence status of victims of violence against women (Article 59 of the Convention). As those draft conclusions are in line with the Union’s policies and objectives in the areas of judicial cooperation in criminal matters, asylum and non-refoulement, and do not raise any concerns with respect to Union law, the position of the Union should be to not object to their adoption.

(17) As regards Slovenia, the draft conclusions include the need to: assign the role of the coordinating body to fully institutionalised entities and ensure the necessary human and financial resources (Article 10 of the Convention); ensure the comprehensive collection of data on all forms of violence under the Convention (Article 11 of the Convention); strengthen information exchange between civil and criminal courts (Article 31 of the Convention); ensure a prompt and appropriate response by law enforcement agencies to violence against women (Articles 49 and 50); and comply with the Convention on matters regarding

ex officio

prosecution of marital rape (Article 55 of the Convention). As those draft conclusions are in line with the Union’s policies and objectives in the areas of judicial cooperation in criminal matters and do not raise any concerns with respect to Union law, the position of the Union should be to not object to their adoption.

(18) In accordance with Articles 1 and 2 of Protocol No 21 on the position of the United Kingdom and Ireland in respect of the area of freedom, security and justice, annexed to the Treaty on European Union and to the Treaty on the Functioning of the European Union, and without prejudice to Article 4 of that Protocol, Ireland is not taking part in the adoption of this Decision and is not bound by it or subject to its application.

(19) In accordance with Articles 1 and 2 of Protocol No 22 on the position of Denmark, annexed to the Treaty on European Union and to the Treaty on the Functioning of the European Union, Denmark is not taking part in the adoption of this Decision and is not bound by it or subject to its application,

HAS ADOPTED THIS DECISION:

Article 1

The position to be taken on behalf of the Union within the Committee of the Parties established under Article 67 of the Council of Europe Convention on preventing and combating violence against women and domestic violence, at its 18th meeting, shall be to not object to the adoption of the following acts:

(1) Recommendations on improving trust by delivering support, protection and justice on the basis of the Istanbul Convention by Albania, contained in document IC-CP(2025)2-prov;

(2) Recommendations on improving trust by delivering support, protection and justice on the basis of the Istanbul Convention by Austria, contained in document IC-CP(2025)3-prov;

(3) Recommendations on improving trust by delivering support, protection and justice on the basis of the Istanbul Convention by Denmark, contained in document IC-CP(2025)4-prov;

(4) Recommendations on improving trust by delivering support, protection and justice on the basis of the Istanbul Convention by Finland, contained in document IC-CP(2025)5-prov;

(5) Recommendations on improving trust by delivering support, protection and justice on the basis of the Istanbul Convention by Monaco, contained in document IC-CP(2025)6-prov;

(6) Recommendations on improving trust by delivering support, protection and justice on the basis of the Istanbul Convention by Montenegro, contained in document IC-CP(2025)7-prov;

(7) Recommendations on improving trust by delivering support, protection and justice on the basis of the Istanbul Convention by Spain, contained in document IC-CP(2025)8-prov;

(8) Recommendations on improving trust by delivering support, protection and justice on the basis of the Istanbul Convention by Sweden, contained in document IC-CP(2025)9-prov;

(9) Conclusions on the implementation of recommendations in respect of San Marino adopted by the Committee of the Parties, contained in document IC-CP(2025)10-prov; and

(10) Conclusions on the implementation of recommendations in respect of Slovenia adopted by the Committee of the Parties, contained in document IC-CP(2025)11-prov.

Article 2

This Decision shall enter into force on the date of its adoption.

Done at Luxembourg, 5 June 2025.

For the Council

The President

D. KLIMCZAK

(1)  Council Decision (EU) 2023/1075 of 1 June 2023 on the conclusion, on behalf of the European Union, of the Council of Europe Convention on preventing and combating violence against women and domestic violence with regard to institutions and public administration of the Union (

OJ L 143 I, 2.6.2023, p. 1

, ELI:

http://data.europa.eu/eli/dec/2023/1075/oj

).

(2)  Council Decision (EU) 2023/1076 of 1 June 2023 on the conclusion, on behalf of the European Union, of the Council of Europe Convention on preventing and combating violence against women and domestic violence with regard to matters related to judicial cooperation in criminal matters, asylum and non-refoulement (

OJ L 143 I, 2.6.2023, p. 4

, ELI:

http://data.europa.eu/eli/dec/2023/1076/oj

).

(3)  Council Directive 2003/86/EC of 22 September 2003 on the right to family reunification (

OJ L 251, 3.10.2003, p. 12

, ELI:

http://data.europa.eu/eli/dir/2003/86/oj

).

(4)  Directive 2012/29/EU of the European Parliament and of the Council of 25 October 2012 establishing minimum standards on the rights, support and protection of victims of crime, and replacing Council Framework Decision 2001/220/JHA (

OJ L 315, 14.11.2012, p. 57

, ELI:

http://data.europa.eu/eli/dir/2012/29/oj

).

(5)  Directive (EU) 2024/1346 of the European Parliament and of the Council of 14 May 2024 laying down standards for the reception of applicants for international protection (

OJ L, 2024/1346, 22.5.2024, ELI: http://data.europa.eu/eli/dir/2024/1346/oj

).

(6)  Directive (EU) 2024/1385 of the European Parliament and of the Council of 14 May 2024 on combating violence against women and domestic violence (

OJ L, 2024/1385, 24.5.2024, ELI: http://data.europa.eu/eli/dir/2024/1385/oj

).

(7)  Regulation (EU) 2024/1348 of the European Parliament and of the Council of 14 May 2024 establishing a common procedure for international protection in the Union and repealing Directive 2013/32/EU (

OJ L, 2024/1348, 22.5.2024, ELI: http://data.europa.eu/eli/reg/2024/1348/oj

).

ELI: http://data.europa.eu/eli/dec/2025/1168/oj

ISSN 1977-0677 (electronic edition)