Power, Politics, Positionings - Women in Northern Ireland
In a wider world
Anne Marie Gray
Deirdre Heenan
The political disadvantage experienced
by women continues to be the subject of much research and discussion.[1]
Most political systems remain dominated by men. While there has
been evidence of (numerical) improvement in women's representation,
there is not yet any legislature in which women have achieved
parity.
Last year's report of the United Nations Commission on the Status
of Women noted that in 1993 women still only comprised 8.8 per
cent of representatives in lower houses of parliament worldwide.
There were no women in the parliaments of 11 countries and the
goal of 33 per cent, set by the UN Economic and Social Council
in 1990, had been met in just five.
The United Kingdom occupies the unenviable position of having
fewer women, proportionately, in Parliament than most other European
Union members - only France, Greece and Portugal had lower figures
in 1994. Lovenduski argues: "Applied to British political
institutions and processes, the typology of gender balance illuminates
a pattern of male gender biases in which male images and particular
forms of masculinity dominate political life."[2]
This is a rather negative picture, masking advances which have
been made, particularly in the Nordic countries. Until the 60s
there was little to separate any of the countries in northern
and western Europe. But by 1984 women had gained 15 per cent of
parliamentary seats in Iceland, 26 per cent in Norway and Denmark,
28 per cent in Sweden and 31 per cent in Finland. The advance
was sustained in Norway, which by 1985 had achieved the 'world
record': 34 percent of its National Assembly seats were held by
women, as were eight out of 18 cabinet posts, and women comprised
40.5 per cent of the membership of county councils.[3]
Norderval argues[4] that in the Nordic countries arguments
for increased female representation have relied on three main
principles. First is democratic justice- that justice is an important
principle, and that it is unjust that women are under-represented
on decision-making bodies. Second is resource utilisation - that
valuable human resources are wasted when half the population is
not involved in politics. The third is interest representation
- that because of the different experiences of women and men (in
relation to economic and social structures) they have different
political interests, implying that in politics women will employ
a different set of values and pursue different interests from
men.
These principles provided the rationale for increasing the representation
of women and contributed to theoretical debates about participation.
But actual gains for women in Scandinavian parliaments have also
stemmed from structural factors - such as electoral systems and
methods of selection - and initiatives like quota-based reforms.
Advancement must also be placed in its cultural, social and economic
context, as discussed below.
Countries which have made the most significant advances are those
where the electoral system is not based on first past the post
but proportional representation. Compare elections in the Netherlands
(an example of strict proportionality) with those in the UK (a
purely majoritarian system). In the former, voters choose between
lists of party candidates within a single national constituency.
Under such a system, where parties have to put forward lists of
nominees, women's representation has increased. Central party
organisations have greater influence over nominations and so,
if they are committed to including more women, can do so.
In the British system, on the other hand, voters in a constituency
choose a single candidate to represent them in parliament. Here,
even if central party organisations wanted to include more female
candidates, they might find it difficult to impose those wishes
on local selectorates. Lovenduski,[5] who notes that
the success rate of women candidates in Britain decreased between
1945 and 1992, argues that such a pattern is not the result of
electoral choice primarily, but of prior nomination practices.
Another distinctive feature of Scandinavian systems has been the
introduction of quotas. Their advocates[6] claim they
are necessary to enable a critical mass of women to be elected.
Only when women comprise at least 30 per cent of representatives
can they be influential in the realm of policy-making. Party reform,
based on quotas, has been widely adopted in Norway, where the
Socialist Left, Labour and Liberal parties each require at least
40 per cent representation of each sex at all levels of party
activity; in order to reach quota requirements, parties are forced
to recruit more women. In many countries, however, the impact
of quotas has been more marked nationally than at local level.
Local organisations have often been indifferent to actively recruiting
more women, citing what they call 'practical' reasons - such as
perceived low interest among women - for their failure to meet
targets.
In the UK, Clare Short has consistently argued that increasing
women's representation is essential to build a House of Commons
which more truly represents the population. She claims that as
more women come into the Commons, the culture will change and
the institution will be transformed. But as Labour's experience
indicates, resort to quotas is extremely contentious. It represents
a significant departure for the UK political system and as such-in
the form of women - only shortlists for Labour-was challenged
in the courts and rejected.
Yet, as Squires notes,[7] the unchallenged assumption
underpinning the debate about quotas is that it does matter that
there are so few women in politics. She argues that, while the
drive for quotas has failed to date, perhaps the challenge is
to look towards a more expansive review of the system, rather
than tinkering with it. This would need to embrace a view of representation
not just concerned with Parliament but with the wider institutions
of governance.
Of course, any discussion of women,
politics and decision-making must go beyond electoral politics.
In many developed countries since the 80s, responsibility for
key policy areas and administrative responsibilities has been
removed from central and local government. In many states, appointed
boards ('quangos'), operating at arm's length from government,
have become the new bureaucracy.[8] Given that such
agencies are appointed, rather than elected, it could be argued
that women could thereby be advantaged. For instance, governments
usually have responsibility for making or at least sanctioning
appointments, and could therefore ensure greater representation
of women.
To some extent this has happened in Norway.[9] And
a Dutch government guideline asserts that 50 per cent of members
of all such public committees and boards should be women. 10 There
are no quotas for women on non-departmental public bodies in the
UK. Since 1988, however, mainly due to pressure from the Equal
Opportunities Commission for Northern Ireland, government has
taken some steps to increase female representation on boards in
the region.
Women currently account for 32 per cent of such board members
in Northern Ireland. This is a significant improvement on the
1986 figure of 18 per cent, although the target of 33 per cent,
set by government for 1993, has still not been achieved. It also
remains the case that of the 142 boards in Northern Ireland, 21
have no female members and-as has been found in studies in the
Netherlands, despite the more prevalent female appointments there
- women are less likely to be appointed to more senior positions.
Internationally, reform in public administration and management
has meanwhile resulted in boards becoming more specialised and
technocratic. A bureaucratic style has been adopted which is intrinsically
patriarchal, a managerialism which has strong associations with
masculinity.[11] Yet while there has been a burgeoning
literature on non-departmental public bodies and this 'new public
management',[12] little consideration has been given
to its gender implications.
There is a real danger that this shift to the privileging of expertise,
away from a more participative democracy, could stifle opportunities
for increasing women's representation. One is reminded of Figes'
statement that "selectors have a regrettable tendency to
recruit in their own image".[13] Until women are
adequately represented among selectors, they will have difficulty
becoming appointees.
Much comparative research puts the greater public presence of
women in Scandinavian countries down almost entirely to institutional
influences, such as electoral systems. But factors outside political
processes are central to women's exclusion - such as their role
within the (private) family, which if entrenched defines them
as outside the (public) political arena. Thus women may
also do better in Nordic states because these share a more liberal
attitude towards women, while other countries, such as the United
States, New Zealand, Canada and the UK, uphold more conservative
and traditional values. Negative social attitudes towards female
élites can clearly deter many women from standing for office.
A host of other social and economic factors must also be considered.
If one thinks about how élites in every system are drawn
from highly educated, professional groups, and how their eligibility
for public office often derives from their field of work and the
contacts they have established, then particularly in a culture
such as that of the UK women are going to be disadvantaged. Yes,
more and more women are highly educated, but entering the labour
market has not resulted in a lessening of their domestic responsibilities.
To many, the prospect of active involvement in politics must seem
little more than a potential additional burden.
Phillips argues that a growing proportion of women will enter
politics, but that "those elected will be peculiarly skewed
to a certain kind of woman who, like the generations of men who
went before her, will be a well-educated professional, and devoted
to politics full-time".[14] Even in the Nordic
countries, greater proportionality has not resulted in equal access
for all women. We need to think beyond the numerical and
to grasp the wider issue of representation. We need to think about
how to encourage a more diverse range of women to put themselves
forward, which involves rethinking women's role within the family
A positive note, however, to end on. Although there is disagreement
within feminist political science on whether and how women's interests
can be construed, McLeay notes[15] the gathering body
of evidence which demonstrates one thing - that the feminisation
of political decision-making does make a difference to
policy outcomes.
Footnotes
1 | J Lovenduski, Women and European Politics: Contemporary Feminism and Public Policy, Wheatsheaf, Brighton, 1986, and 'Sex, gender and British politics', Parliamentary Affairs vol 49, no 1, 1996; P Norris, 'Women's legislative participation in western Europe', in S Bashevkin ed, Women and Politics in Western Europe, Frank Cass, London, 1985;V Randall, Women and Politics, Macmillan, London, 1987; A Phillips, Engendering Democracy, Polity, Cambridge, 1991
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2 | Lovenduski, 1996, p6
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3 | Lovenduski, 1986
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4 | I Norderval, 'Party and legislative participation among Scandinavian women', in Bashevkin, op cit
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5 | Lovenduski, 1996
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6 | R Brooks, C Eagle and C Short, Quotas Now: Women in the Labour Party, Fabian Tract, London, 1990; H Skjeie, The Feminisation of Power: Norway's Political Experiment, Institute for Social Research, Norway, 1986
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7 | J Squires, 'Quotas for women: fair representation', Parliamentary Affairs, vol 49, no 1, 1996
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8 | C Hood and G Schuppert eds, Delivering Public Services in Western Europe, Sage, London, 1988; J Stewart, 'Re-inventing accountability', Demos Quarterly, vol 1, no 14, 1993
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9 | L Morkhagen, The Position of Women in Norway, produced by Nytt fra Norge for the Norwegian Ministry of Foreign Affairs
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10 | J Oldersama, and M Janzen-Marquand, 'Has Socrates risen?', unpublished conference paper, University of Leyden
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11 | A Gray and B Jenkins, 'Markets, management and the public service: the changing of a culture', in P Taylor-Gooby and R Lawson ads, Markets and Managers: New Issues in the Delivery of Welfare, Open University, Milton Keynes, 1993
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12 | C Hood, 'A public management for all seasons', Public Administ ration, no 3, 1991; G Jones, International Thends in New Public Management, Public Policy Group Working Paper, London School of Economics, London, 1994
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13 | K Figes, Because of Her Sex: The Myth of Equality for Women in Britain, Macmillan, London, 1994
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14 | Phillips, op cit
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15 | E McLeay, 'Women and the problem of parliamentary representation: a comparative perspective', Political Science, vol 45, no 1, 1993
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