The Report of the Global Commission on Elections, Democracy and Security
Participation of Women 62. Many barriers to the political participation of women have been dismantled over the last century, and universal suffrage is now the global norm. Yet in many countries, women face ongoing obstacles to participation in democratic processes.35 These include political barriers, such as a lack of support from political parties and other organizations, and limited training for women in civic participation and politics. Women also face social and economic barriers, including higher rates of poverty and unemployment, higher illiteracy rates, less access to education, and violence and intimidation. Cultural and religious beliefs about women’s proper role in society can also be a major obstacle. 63. Women still make up less than 20 per cent of legislatures worldwide, and even in developed countries they only account for 27 per cent of representatives.36 The numbers for cabinet-level positions are similarly disappointing, and significant work remains to be done worldwide in expanding women’s roles in other political bodies like courts and electoral commissions. Because membership in these bodies is most often by political appointment, political leaders wield great power to achieve or impede gender equality in these domains. 64. Some countries have adopted formal mechanisms to ensure that women have equal opportunity to play a central role in politics. Currently, 50 countries have mandatory quotas for women’s political participation, though they vary in their effectiveness and enforcement. Quotas can help to undo historical distortions that limit women’s representation by creating a more level playing field. In every region of the world, the average percentage of women serving in national legislatures is higher in those countries that have a mandatory gender quota at the national level.37
65. For quotas to have a truly democratizing effect, they must be linked not only to the quantity of women in office but also to the quality of positions available to them. Once in office, it is crucial that women officials have equal opportunity to exercise power and authority. 66. Some argue that the use of quotas runs counter to the political equality of individuals and the requirement that all persons be treated equally. And tension certainly arises when governments treat individuals differently in order to promote the equality of groups that have historically been excluded from political participation. Nonetheless, when groups face historical, social and economic disadvantages, ‘they are not treated equally when they are treated the same’.38 To resolve this conflict, we believe that quotas should be used judiciously, with sunset clauses for their removal. Recent scholarly work supports such an approach and indicates that quotas have a lasting effect on the representation of women, even when they are withdrawn.39 Participation of Minority Groups 67. Like women, minority groups face formal and informal barriers to political participation, even in consolidating democracies in which universal suffrage is a norm. As with women, the removal of all institutional barriers to participation may not be enough to generate equality of representation.40 Lack of financial resources and low levels of education among marginalized minorities pose significant obstacles to participation, both in terms of voting and representation in the political arena.41 In more developed democracies, minorities generally face more administrative barriers to participation. All countries with minority populations that face barriers to equal participation should identify and remove such barriers.
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