Latest UN Women’s regional report on women’s access to justice: Moldova achieved significant progress in strengthening legal framework, while systemic barriers remain

Ensuring women’s equal access to justice is essential for protecting human rights, upholding the rule of law, and advancing gender equality. As governments and civil society gathered for the 70th session of the Commission on the Status of Women (CSW70) taking place from 9 to 19 March, the UN Women regional report on access to justice in Europe and Central Asia offers a vital assessment of Moldova’s progress and the structural challenges that continue to impede women’s rights.

Moldova has made significant strides in aligning its domestic laws with international standards, particularly with Istanbul Convention provisions. The country is one of the few countries in its subregion (alongside Georgia and Ukraine) that has adopted both gender equality legislation guaranteeing equal rights and prohibiting direct and indirect discrimination, complemented by dedicated anti-discrimination laws and equality bodies mandated to examine discrimination complaints. 

In the area of gender-based violence, Moldova has developed a strong legislative framework. The country adopted a law on preventing and combating violence against women and domestic violence in 2007, and subsequent amendments have expanded protection measures for survivors.

In 2025, Moldova introduced further criminal law reforms by criminalizing femicide, forced marriage and digital violence, addressing emerging forms of gender-based violence and strengthening protection mechanisms for survivors, including by obliging justice institutions to prioritize the examination of domestic violence cases.  

Institutional measures have also aimed to improve survivors’ access to justice. Moldova provides free legal aid to victims of domestic and sexual violence, allows police to issue emergency barring orders, and has strengthened multi-agency cooperation mechanisms for responding to violence. The country also opened its first Integrated Regional Service for Victims of Sexual Violence, providing comprehensive medical, psychological and legal assistance, including to women fleeing the war in Ukraine.

The Justice Development Strategy Action Plan includes measures aimed at strengthening victims’ rights in sexual offence cases and expanding the specialization of legal aid lawyers working with vulnerable groups, including survivors of violence. However, the Justice Strategy does not mainstream gender, lacks sex-disaggregated indicators, and makes no reference to women’s rights within the legal and policy framework, leaving broader gender biases in the justice system unaddressed.

The composition of Moldova's justice sector also reflects notable progress toward gender balance. In 2021, women accounted for 49.2 per cent of the judges, achieving near parity within the court system. Law enforcement has similarly seen growth, with women’s share in the police increasing from 20.6 per cent in 2022 to 26.4 per cent in 2024, though they hold only 15 per cent of management positions within the Ministry of Internal Affair.

Despite these advancements, practical obstacles frequently prevent women from seeking or obtaining justice. Affordability remains a critical issue, as only 20.9 per cent of citizens perceive court services as affordable. Although the Law on State Tax, effective from January 2024, provides fee exemptions for survivors of domestic violence in certain cases, the broader financial burden of litigation remains a deterrent for many. This is compounded by limited awareness of available support. In 2022, women represented only 13.5 per cent of those utilizing state-provided legal aid. Low levels of legal literacy further restrict women's ability to claim their rights. A 2025 survey revealed that only 56 percent of respondents were aware that women may divorce without their husband's approval, with knowledge levels correlating strongly with income, education, and urban residency. 

Economic inequality plays a central role in shaping justice outcomes. Same survey indicates that poorer women are more likely to encounter legal disputes regarding domestic violence than wealthier persons. This disparity is mirrored in institutional trust, with 40 per cent of the poorest women reporting complete distrust in the justice system, compared to only 12 per cent among the wealthiest, leading to a higher frequency of unresolved disputes for those in poverty.

Finally, while legislative progress is evident, implementation gaps persist. Prosecution and sentencing rates for gender-based violence remain low, and inter-agency coordination between police and prosecutors requires further refinement. Additionally, current criminal legislation lacks clear provisions on female genital mutilation, forced abortion, and forced sterilization, and although Moldova’s rape law now refers to consent, it still broadly links non-consent to physical or mental coercion.

As CSW70 emphasizes the necessity of inclusive and equitable legal systems, this report underscores that Moldova’s legal reform is only the beginning. Achieving true access to justice requires moving beyond the text of the law to address the structural barriers such as poverty, limited literacy, and institutional distrust that prevent women from exercising their rights in practice. Future efforts must prioritize the effective enforcement of existing laws and sustained initiatives to ensure that the most vulnerable women can navigate the justice system without being marginalized by their socio-economic status.

The report “Women’s Access to Justice in Europe and Central Asia” was developed by the UN Women Europe and Central Asia Regional Office (ECARO), in close collaboration with UN Women country offices, in preparation for the 70th session of the Commission on the Status of Women, which is dedicated to ensuring and strengthening access to justice for all women and girls, including by promoting inclusive and equitable legal systems, eliminating discriminatory laws, policies, and practices, and addressing structural barriers. The report is available here: https://shorturl.at/tzAYE.