EGM/EPWD/2005/EP.5
27 February
2006
United Nations
Department of Economic and Social Affairs
(DESA)
Division for the Advancement of Women
(DAW)
Economic Commission for Africa
(ECA)
Inter-Parliamentary Union (IPU)
Expert Group Meeting on
Equal participation of women and men in
decision-making processes, with particular
emphasis on political participation and
leadership
24 to 27 October 2005
Prepared by:
Amy Mazur
*
The views expressed in this
paper are those of the author and do not necessarily represent those of the
United Nations.
Introduction
“National machineries for
the advancement of women” or women’s policy agencies (WPAs) have been an
important part of the UN policy for women since its inception in the
1970s.[1]
Identified officially in 1975 at the first women’s conference in Mexico
and mentioned systematically at every women’s conference since, “. state-based
institutions charged formally with furthering women’s status and gender equality
(RNGS 2004)” have figured prominently in the official policy directives,
statements and reports from the UN on women’s status. The UN’s WPAs -- the Commission on the
Status of Women and the Division of the Advancement of Women – are important
administrative actors in the elaboration of the UN women’s policies on women;
the UN emphasizes the importance of “national policy machineries “ in the
implementation of UN-backed principles of gender equality at the national level,
through “gender mainstreaming” in national level policies; and has called for
WPAs to promote “...the active involvement
of the broad and diverse range of institution actors in the public,
private and voluntary sectors to
work for equality between men and women (Beijing Platform of Action cited in Rai
2003b: 2)”. From this complex
and multi-level process, WPAs have received a great deal of attention from both
state and society based advocates for women’s rights and gender equality at
international, national and local levels.
A wealth of relatively recent research,
in part commissioned by the UN, (e.g. Rai 2003a), maps, assesses and explains
the role of WPAs in promoting gender equality.[2] The scholarly turn toward understanding the activities
of women’s policy offices has coincided with their growth (by the mid 1980s the
UN had identified 127 member states with WPAs) and with the increasing feminist
interest, both scholarly and political, in the state as a potential site for
social change and gender equality
The goal of this paper is
to focus on the role of WPAs in enhancing women’s political participation with a
particular emphasis on their influence on women’s participation and leadership
in policy outcomes. Using the feminist scholarship on gender and politics, the
presentation first discusses how women’s policy machineries can improve women’s
representation and participation on a conceptual level. The second section presents the results
of one systematic cross-national study, the RNGS (Research Network on Gender
Politics and the State) project, that specifically examines the question of
whether women’s policy agencies actually do promote women’s representation and
participation in western post industrial democracies. The paper ends with some concrete
policy recommendations about how to enhance women’s representation and
participation through WPAs suggested by the RNGS study.
Women’s Policies Agencies and Women’s Participation
and Representation
Work on gender and the
state asserts that these state agencies for women and gender equality can
represent women and women’s interests. As Weldon (2002a) argues in her
study of sexual violence policy in 36 countries, social movements and
institutions like WPAs are able to represent societal groups in the same way as
elected officials.
It is important to note
that the term women’s policy agency
or machinery has come to mean any
state-based agency, at all levels of government – national, sub-national or
local -- or in any type of organ – elected, appointed, administrative, or
judicial— that seeks to promote the advancement of women and gender
equality. In countries where
political parties have a central role in government, in single party states or
parliamentary democracies for example, quasi WPAs (QUAWPAs) act partially
outside of the state parameters in the same manner as WPAs.[3] Thus, these agencies not only have the potential to
speak for women as a group as it is cross-cut by race, ethnicity, class,
geographic location,etc., but also for anyone, group or individual, man or
woman, seeking to advance women’s rights and strike down gender-based
hierarchies that contribute to inequalities between men and women.
Experts agree that the
shift from women to gender in the focus of most WPAs throughout the world
occurred in the late 1980s and early 1990s (Staudt 2003 and Rai 2003b). Today, the names of many WPAs do not
even include the word woman, as in the cases of Scandinavian countries which
focus on gender equality. A new form of intersectional agency, first introduced
in the USA in the mid 1960s, where different forms of discrimination are dealt
with under one rubric, the so-called “one-stop-shops” (Lovenduski 2005a), have
become more common in Western Europe since the adoption of a new EU directive on
discrimination.
WPAs have the potential to
be major conduits for women’s descriptive and substantive
representation[4] and participation in three ways:
1
They may represent women
substantively through bringing women’s interests and gender equality issues into
public policy discussion, formulation and implementation, often through gender
mainstreaming.
2
They can represent women
descriptively and procedurally through helping the actors that speak for women
and gender equality to enter government policy-making
arenas.
3
Through the fact that women tend to
work in and lead these agencies, although not in all case, WPAs can increase the
participation of women in the state.[5]
Through facilitating
women’s representation, WPAs have the potential to contribute to the process of
democratization. whether the country be undergoing transitions to democracy,
struggling to maintain a stable democracy, or looking to make a stable democracy
more democratic.
As Honculada and Ofreneo
(2003: 142) observe in their study of WPAs in the Philippines, women’s
machineries can produce “... an expanded sisterhood with women in
government staking out claims as
much for themselves as for the whole bureaucracy, networking among each other
and with women in the GO-NGO community for mutual growth and ... a common
agenda.” Femocrats, the individuals
--usually women, but sometimes men -- who work for WPAs are important agents of
women’s representation in the policy formation process.[6] As Vargas
and Weiringa (1998) first articulated in a discussion of women’s movement and
public policy in Europe, Latin America and the Caribbean, femocrats in WPAs have
the potential to form a “triangle of empowerment” with women in elected and
appointed office and women’s groups that can improve women’s substantive
representation through the formulation and implementation of effective “feminist
policies” and women’s descriptive representation through bringing more women
into the process.[7]
Halsaa’s (1991 and 1998)
work on Norway also shows that “strategic partnerships” between women in parliament, women’s
groups and WPAs are crucial in developing successful feminist policy. Weldon’s
cross-national study of domestic violence policy also uses the notion of a
triangle of empowerment (2002b) and these triangles are also identified as
important variables in enhancing women’s participation and representation in
Mazur’s (2002) study of feminist policy formation in western post industrial
democracies. It is important to
note that the women’s group/movement part of the triangle can involve a wide
variety of actors from civil society, both individual groups, including women’s
groups and associations, autonomous women’s movements, women’s associations in
non gender specific groups like trade unions or political parties, and
experts.[8] These
women’s movement actors, as Weldon (2002) points out, should also be seen as
agents of women’s representation.
WPAs and femocrats play an
ever-increasing role in gender mainstreaming by both helping to implement a
mainstreaming approach to gender equality and in training and educating other
government actors about the complexities of gender-based disparities and the
necessarily transversal response to it. As studies of mainstreaming in the
EU have shown (e.g., Woodward 2003),
without an activist and knowledgeable WPA, informed by gender experts,
government can easily circumvent the original intent of gender mainstreaming,
which is to insert gender considerations in all areas of public policy to better
address gender-based inequities.
Staudt (2003) particularly emphasizes the need for femocrat experts to
train bureaucrats outside of WPAs in implementing gender mainstreaming and
through gender audits in budgeting.
The French gender audit, for example, was instituted and has been since
overseen by femocrats in the women’s rights service (Mazur 2005). This education and training role of WPAs
and their staff needs to occur in any explicitly feminist policy, whether it be
mainstreaming or not.
Femocrats also play crucial
roles in reaching out to “male allies” who are not aware of the intricacies of
the policy issue but may have the political will to push for a given policy
(e.g., Eisenstein 1996). They have been shown to be pivotal in convincing and
cajoling recalcitrant decision-makers as well. Valiente’s studies of the Women’s
Institute in Spain, for example, have pointed to the important “power of
persuasion” of the major national –level WPA (1995).
Creating agencies that are accountable to
groups, yet have enough autonomy within the political administrative system is
also seen as an important ingredient for achieving effective gender
mainstreaming (Rai 2003d and Staudt 2003).
Femocrats, gender experts and women’s groups often work together to
educate policy makers about the complexities of gender-based inequities, their
variegated solutions, and how gender mainstreaming can be adopted and
implemented. It is in this manner
that gender mainstreaming can actually be seen as a means of enhancing women’s
representation and participation.
As such, like WPAs, mainstreaming efforts have the potential to
contribute to processes of democratization in all corners of the globe.
Assessing State Feminism: The RNGS Study and
Results
Having conceptually mapped
out the different ways in which WPAs have the potential to enhance women’s
descriptive and substantive representation, it is important to now consider how
these diverse government structures have actually realized their promise and the
conditions for a positive outcome for women’s participation. This is a formidable task given the
variety of WPAs throughout the world in a broad range of cultural, political,
and social settings and at all levels of government. To name a few forms of
WPAs, Ministries, ministerial
correspondents; government study groups, National Level Institutes, Delegations,
Advisory Commissions,
administrative agencies,
enforcement agencies, parliamentary commissions, government-run
information centers, equality
councilors in police agencies and chargées de mission in city governments. There are many case studies of
national-level WPAs (e.g., Valiente 1995,
Kardam and Acuner 2003; Ugalde 2003; Honculada and Ofreneo 2003; Kwesiga
2003 and Rai 2003c , a few at the sub-national level (e.g., Ortbals 2005),
national cases studies that are placed within a global perspective (e.g.,
Lycklama,Vargas,
and Wieringa 1998 and Rai 2003a) a few
cross national comparisons in two or more countries (Goertz 2003; Sawer 1996), studies of
WPAs in a given region of the world (e.g. Jezerska, 2003;Stetson and Mazur 1995;
Stetson 2001; Mazur 2001; Outshoorn 2004; Lovenduski 2005; Haussman and Sauer
forthcoming) and examinations of WPAs at the transnational level (e.g., Zwingel
2005 and True and Mintrom 2001) .
To date, there has been no research that systematically studies whether WPAs make
a difference in women’s representation in all regions of the world. Many would argue that such an effort
would be too daunting in the absence of basic case studies of WPAs at all levels
of government in most countries. At
this point, it makes sense to take a mid range approach by examining activities
of WPAs in different regions of the world where countries have similar social
and political contexts, identifying trends in each region and then developing
systematic propositions for a more global perspective. As Rai (2003c) indicates, contexts
matter a great deal in the effective performance of WPAs.
The RNGS study takes such
an approach, examining the questions of women’s representation and WPAs in
western post industrial democracies.
Rather than assuming that WPAs represent women, the study asks whether
WPAs have acted, since 1970, in alliance with women’s movement activists, to
enhance women’s representation.
Founded in 1995, the Research Network on Gender Politics and the State
(RNGS) is composed of 43 members and 95 associates. RNGS designed and is currently
completing the large-scale comparative research project that examines if, how,
and why women's policy offices, through their relations with women’s movements,
make post industrial democracies more democratic and the state more
feminist. Fifteen country
teams--USA, Canada, Italy, the UK, Ireland Germany, the Netherlands, Spain,
Austria, Belgium, Sweden, France, Finland, and Australia-- have been collecting
data for this project since 1997.[9]
To assess the significance
of the activities of the agencies in policy debates, the study examines
hypotheses explaining whether or not their involvement was necessary for women’s
movement activists to be successful in achieving their procedural and
substantive goals. This interface
between the movements and agencies is explored in 132 policy debates on five key
issues: job training, abortion, prostitution, political representation, and a
top priority issue specific to each country concerned. Research results appear
in five edited volumes, one for each issue area (Stetson 2001; Mazur 2001;
Outshoorn 2004; Lovenduski 2005; Haussman and Sauer forthcoming) and plans are
underway for specific qualitative and quantitative analyses across the
issues.[10]
The findings presented here
are based on the qualitative studies published in the five books. The findings presented in this paper
must be seen as quite preliminary,
because systematic analyses of both the qualitative and quantitative data across
all five issue areas and all seventeen countries are still underway.
While the goal of the RNGS
project was to study three policy debates for each issue in each country, we
were not able to gather information on all issues in all of the countries. After selecting the debates using common
criteria, researchers were asked to describe how the debate around the policy
proposals unfolded, to locate the actors involved and to outline the frame of
the debate. They classified
the debate in terms of the major analytical question of the
study:
To what extent and under what
circumstances do different kinds of women's policy offices provide necessary and
effective linkages for women's movements in achieving substantive and procedural
responses from the state?
The model
developed by RNGS to answer this question names state responses to movement
activist’ demands in policy debates as the dependent variable, characteristics
of women’s movement actors and the policy environments as the independent
variables and the degree of effectiveness of women's policy offices on specific
policy debates in relation to their institutional capacities as the intervening
variables.
There are four categories
of classification for the state responses to women’s movement actors, the
dependent variable. Dual response is where the state both
accepts individual women, groups, and/or constituencies representing gender
interests into the process and changes policy to coincide with feminist goals;
Cooptation is when the state accepts the individual women, groups, and/or
constituencies into the process but does not give policy satisfaction;
Preemption is when the state gives policy satisfaction, but does not
allow women, as individuals, groups or constituencies into the process; No
response is where the state has no procedural or substantive response to
movement demands.
The intervening variable measures WPA Activities that is,
the role and effect of women's policy agencies as potential allies of the
women's movement within the state in each policy debate. Are these agencies representatives of
women's movements inside the state?
Or are these agencies examples of the state's efforts to control or 'deal
with' the movement without changing process or policy? Do agencies affect changes in state
operations and policies to integrate women's movement activists and goals? This produces four categories for
measuring the WPA effectiveness in representing women’s movement claims.
Insider -- the WPA
incorporates women's movement goals into its own positions on the policy issue
and is successful in gendering, that is, inserting these gendered policy
definitions into the dominant frame of the public debate on the issue;
Marginal—the WPA asserts movement goals, but is not successful in
gendering the policy debate;
Non-feminist—the WPA is not an advocate for movement goals but genders or
degenders policy debates in some other ways; and Symbolic—the WPA is
neither an advocate for movement goals in the policy process nor does it gender
policy definitions on the issue.
The following alliances between women’s movements and
WPAs are produced when these two dimensions are combined. Table 1 below
summarizes the RNGS results in terms of these alliances across the five issue
areas.
Successful Alliance (Insider/Dual Response) This type of alliance occurs
when WPAs present women’s movement goals and gender the debate and the women’s
movement actors participate and were able to achieve policy satisfaction; in
other words, WPAs fully enhanced women’s substantive and descriptive
representation.
Partially Successful Alliance
(Insider/ Cooptation or Preemption)
Here the WPA brings gender into the frame of the debate and supports
women’s movement demands, but there are either no women’s movement actors in the
debate or the women’s movement does not achieve any policy success.
Failure (Symbolic/No response) The WPA neither genders the
debate nor supports women’s movement positions in the debates. Women’s movement
actors are absent from the debate arena and the policy response fails to contain
women’s movement demands.
Unsuccessful Alliance (Marginal/No Response) WPAs do support women’s movement
actor positions in these alliances, but they are unable to gender the debate and
women’s movement actors have neither presence nor policy success.
No Alliances (some success)—(Symbolic/Dual Response, Cooptation, Pre-emption) Here, the women’s movement actors
achieve full or partial success without an active
WPA.
Ineffective/Unwilling WPAs—(Marginal, Non Feminist/No response) WPAs either do not
support women’s positions in the debate or gender the debate and the women’s
movement movements fail to participate or achieve policy success.
TABLE 1: WPA’s Impact on Women’s Substantive and
Descriptive Representation by Issue Area and Types of
Alliances
Issue Area |
Successful Alliances |
Partially Successful Alliances |
Failures |
Symbolic/ Dual |
Symbolic/ Cooptation |
Symbolic/ Preemption |
Ineffective
Alliances |
Abortion 33 debates |
33% |
0% |
9% |
18% |
12% |
6% |
21% |
Job Training 24 debates |
22% |
8% |
26% |
0% |
4% |
0% |
39% |
Prostitution 30 debates |
37% |
3% |
20% |
10% |
6% |
6% |
17% |
Political Representation 33 debates |
48% |
12% |
9% |
3% |
6% |
6% |
15% |
Hot Issues 12 debates |
8% |
17% |
0% |
25% |
33% |
8% |
8% |
Total =132 |
30% |
8% |
16% |
11% |
15% |
5% |
20% |
NO
ALLIANCES
KEY: Successful
Alliances--Insider/Dual Response; Partially Successful Alliances--Insider/
Cooptation or Preemption; Failed Alliances--Symbolic/No response; Unsuccessful
Alliances--
Marginal/No Response—No
Alliances--Symbolic/Dual Response, Cooptation,Pre-emption; Ineffective/Unwilling
WPAs-- marginal, non feminist/no response
The following observations
can be made about WPAs and women’s representation from this table:
·
WPAs
can fully enhance women’s representation , but not in all cases. Nearly 40% of
all cases showed that an active WPA led to either full (30%) or partial women’s
representation (8%).
·
Complete failures,
when WPAs do nothing and women’s movement actors have no effect, are less
frequent than successes – 16% overall, suggesting that the trend is toward some
level of link between WPA activities and women’s representation.
·
In 20%
of the case, when WPAs are not fully in action, either they are non feminist or
marginal, women’s movements fail; further showing the importance of WPAs for
women’s representation.
·
In
nearly 1/3 of the cases women achieved some level of representation in the
process with no WPA; thus, WPAs are
not always the crucial link, but tend
to be in most of the cases.
·
The
rate of success varies by issue area: political representation issues have the
highest rate of success, nearly half; and prominent national issues, the “hot
issue” has the lowest 8%.
With these patterns of success and
failures in mind, we can now turn to the question of what explains for the
successful cases of women’s representation. In other words, what are the
conditions that allow WPAs to be successful conduits for women’s
representation? Three sets of
factors are considered: women’s movement resources; the characteristics of
women’s policy agencies; and the dynamics of the policy environment in which
each debate unfolds.[11] To make this presentation more concise, only those
factors associated with completely successful or failed alliances between WPAs
and women’s movement actors are examined.
Do women’s movements resources matter? – Out of
the three series of factors,
women’s movement resources (stage of development, closeness to the Left,
issue priority, cohesion, location and feminist activism) appears to be the
least important in determining successes and failures. For the abortion and political
representation debates, successes are more likely when the movement actors are
cohesive in their demands, place the issue as a high priority and are closer to
Left parties. The only movement resource that separates the
successful alliances from the failed alliances in the hot issue area is the
priority of the issue being debated on the movement agenda. In job training and prostitution there were no patterns of
movement resources that were compelling.
This means that movements and WPAs could form alliances at any stage of
the movement (decline, growing or consolidation) closeness or distance from the
Left. Particular issue priority of
the movement and movement unity were important only in abortion and political
representation debates.
Do the characteristics of the
WPAs matter? – Generally, there are no strong patterns that provide a recipe
for designing a WPA that will open the policy doors to women and women’s
movement demands. It is important
to note that at this point, the evolution of the impact of WPA characteristics
for the RNGS study is quite inconclusive.
Given the number of characteristics examined – scope, type, proximity,
administrative capacity, leadership
and policy mandate—and that in many debates there is more than one WPA
active, the definitive answer must
lie in an analysis that uses more sophisticated data analysis technique. There are, nonetheless, some tentative
trends that can be identified in each issue area.
In the abortion and
prostitution debates nearly all the successful agency allies had separate
budgets and staff. In
addition, in abortion debates the successful WPAs were led by feminists. Typically, they were also closer to
power than the symbolic agencies. For job training there was no single profile
of women’s policy agency for either successful or failed alliances. Agencies assumed a variety of forms
ranging from single-issue offices like the Equal Opportunity Unit at the EU
level, the Women’s Bureau in the United States, and the Employment Equality
Agency (EEA) in Ireland to agencies that approached women’s issues from a
cross-sectoral perspective. The women’s policy agencies which achieved successes
were both removed from decision-making power within government and in relative
proximity to where important government matters were decided. Staff-size and
budgets also varied among the women’s policy agencies which overcame the
symbolic imperative in job training.
Similarly, for political
representation debates there is no single type of government ally, although most
are Ministries and bureaucratic offices.
There is no pattern of resources that mark the allies from the unwilling
agencies: one finds small and large budgets and staffs in both groups. The 8
cases of QUAWPAs that acted as insiders took place within left wing political
parties in the political representation debates. The women’s sections that successfully
advanced positive steps to increase women as candidates and in party office
especially for quotas tended to be cross sectional, close to party leaders, led
by feminists and with small or no separate budgets.
For the hot issue
debates, if we look at
allies within governments (3 cases of insider) we see that the resources of
these agencies were not significant. The amount of money or staff does not seem
to be important for agencies to become allies of the women's movement. But another
characteristic might be significant – the closeness of the agencies to power
(all three cases) as well as feminist leadership (all three cases).
Does the policy environment
matter? -- The nature of the
policy environment appears to be quite an important ingredient for success, with
significant variations by issue area. The different aspects of the policy
environment include the structure of the specific policy sub system on the
issue; the fit between the approach of the mainstream policy actors of the given
policy arena and the women’s movement actors approach; the presence of a
left-wing government; and the presence of a strong counter movement.
In the abortion cases, the
presence of a left-wing party in power occurred in well over half of the
successful alliance and in only one of instance of a failed alliances. The party in power is very important to
the activities of women’s policy agencies in abortion debates because abortion
tends to be a divisive partisan issue.
The issue frame fit was compatible with women’s movement goals in nearly
all of the insider cases. The
subsystem was more likely to be closed in the insider cases, suggesting that the
agencies can use their positions (inside) when movement actors are facing closed
policy subsystems.
In job training although the presence of a countermovement on
the issue does not block alliances and successes and failures occur to the same
degree under left-wing governments, the dynamics of the issue sub system do seem
to make a difference. There is a strong connection between the structure
of the job training subsystem and successful alliances; these alliances occurred
when the policy arena in which training decisions were discussed was moderately
open. In addition, five out of the
six cases of failed alliances took place in the context of closed training
subsystems that excluded actors outside of organized labor and business.
To some degree, mainstream
employment policy actors share a gender-blind approach to training employment
issues in the cases of failed alliances. In Spain, Italy, and France the
highly closed nature of the training subsystem prevented women’s movement actors
from entering the debates to change gender-blind discourse of the labor policy
actors. In Ireland the gender-blind
approach to training was present, but in Finland, Canada and the USA, mainstream
actors appeared more willing to accept gendered approaches to training. In part,
as a response to the resistance of the mainstream employment/training
subsystems, parallel equal employment networks emerged in Italy, France, Spain,
and in the 1990s, in Ireland.
Femocrats and women’s movement advocates purposefully chose to develop
the equal opportunities policies of the EU outside of the mainstream employment
arena precisely because the social partners were so resistant to taking into
account gender issues in employment.
In France, Spain, and Italy the players in the state feminist-dominated
equality subsystem did not even seek to enter the male-dominated and
gender-biased arena of job training.
These policy subsystems had indirect influence on training issues for
women, mostly in implementation, but did not change the terms of debates and
polices on training at either a macro or micro level. In fact, the presence of an equal
employment subsystem appears to lead to women’s movement failure more than
success.
For political representation debates,
there is virtually no difference in the policy environment characteristics
between the cases of successful alliances compared with the failed
alliances. The subsystem is not
completely closed (moderately closed or open) in half of all the cases of
insider and symbolic agencies.
There is a compatible fit between the women’s movement frame and the
dominant issue frame in nearly all of the successful and failed alliances. The only differences run against
expectations. In the cases of
failed alliances the Left parties were in power in 75% of the cases and there
was no strong counter movement.
With respect to the alliances, the Left parties were in power in 50% of
the cases (not including the QUAWPA cases because they took place inside left
parties), yet there was a strong countermovement in 35% of the cases.
The policy environment
leading to successful alliances in the prostitution debates has some distinct
features. The successful alliances
occur when the policy subsystem is not closed (9/12 cases) the Left is in power
(10/12), and the fit between the WM demands and the perspectives of the policy
makers is compatible (11/12). The
environment for no alliances is more likely to occur when the Left is out of
power (6/11), and the movement views do not fit with the policy makers
perspectives (7/11). Counter
movements are weak or non existent in nearly all of the prostitution
debates.
There are no clear patterns that suggest
some policy environments are more conducive to building successful alliances
between movement actors and women’s policy agencies in the hot issue
debates. It appears that of
the 5 debates where the left wing parties were not in the government, we found agencies that were symbolic in
4. When conservative and other
right wing parties form governments, their women’s agencies are reluctant to
develop ties with movement organizations. However, a left wing government is no
guarantee of success. Of the 7 cases where the left was in power, the movement
found no allies inside those governments in 4.
Does the issue area matter?-- As we can already see, issues area
matters a great deal, with clear area-specific patterns, for all but one of the
issue areas. For job training
debates, the trend toward closed decision-making arenas with policy actors that
are resistant to demands for gender equality make it very difficult for WPAs to
effectively enhance women’s representation in policy debates, even with the
development of equal employment networks.
Political representation
appear to have the highest level of success for several
reasons.
1. A majority of the debates were about
proposals that explicitly focused on increasing women’s representation or
political status. As such, there is
an advantage for gaining access to policy making subsystems and arenas because
the issue is about women and those who claim to speak for them have legitimacy
as spokespeople.
2. Nearly 1/3 of the
debates took place in political party decision making arenas, not the
state. This occurred because in
many European countries, the parties are one of the major decision making venues
for women’s representation in elected and appointed office. In all but one of
the debates there was a QUAWPA inside the party that helped movement activists
achieve dual success. Given the
likelihood that these arenas are less contentious than state arenas, this may
give the QUAWPA an advantage. We
find that QUAWPAs outside of party arenas were not successful
allies.
3. Many (more than 2/3) of the debates
occurred from 1985-2003, a period of consolidation and integration of movement
activists into parties and government arenas. This increases the likelihood of
finding access to subsystems because such access had already been established in
earlier debates.
4. Compared to issues such
as abortion and prostitution, political representation tends to provoke less
conflict among parties and among movement activists. Strong movement resources (priority,
unity) associated with this issue coincide with winning effective government
allies (75% of the time).
In the abortion issue, WPAs are
more likely to sidestep the abortion issue than other matters, especially where
right-wing parties are in power and/or the issue is especially contentious. In addition, the women’s movement actors
tend to be unified and make the issue as a top priority, especially when the
movement is in the emerging and growth phases. This formula did not work in Germany or
Ireland, however, while it was more successful in the U.S. In Germany and Ireland, the movement
actors remained divided and did not place the issue as a high priority at any
time during the debates studied here.
One of the features of
prostitution as a public policy issue is that it often reveals deep divisions
among feminists over whether prostitution is the ultimate oppression or a
reasonable form of work. When the
feminists can agree on a policy proposal, they are much more likely to be
successful and to gain help from women’s policy agencies inside the
government. When they are divided,
agencies tend to be symbolic, lacking coherent support on the issue. At the same time, the prostitution
issue, unlike abortion, does not divide political parties. Therefore, women’s movement actors can
find allies among policy actors from the right and left parties which can help
them overcome the failure of femocrats to step into the debates, especially on
proposals regarding sex trafficking.
And in comparison to job training, debates are likely to occur in more
open policy subsystems such as legislatures and investigating
commissions.
Given the diversity of types of hot issues —welfare state
restructuring, constitutional reform, expansion of state activities -- there was
no patterns of success with that area.
Alliances between women's policy agencies have occurred in the two issues
of state expansion in the hot issue area – the French 35 hour work week and the
state devolution in Italy. Building of alliances was also possible in cases of
welfare state restructuring and state shrinking such as Sweden and the
US.
What
About the National Context? – It is impossible to
definitively answer this question from this study, given that analyses across
all five issues areas were only covered in four of the 16 countries – France,
Italy, Spain and the USA.
Nonetheless, the preliminary findings do suggest that there is
significant variation in the pattern of success and the conditions for success
by issue area; thus suggesting that national contexts would take a secondary
level of explanatory importance to issue specific dynamics
Ways of Coping without WPAs --- Although
WPAs do tend to play crucial roles in enhancing women’s representation, women
can gain entry to the system without WPAs.
Women’s movement actors gained some level of success in 1/3 of the cases
without the help of the WPA. It is therefore instructive to examine the
different women’s movement strategies for success without WPAs as allies. The analysis shows that there is a
wide range of strategies and potential allies. The WMAs coped the best without WPA as
allies in abortion (36%) and the
hot issue (66%) and the worst in job training (4%) and political representation
(15%); successes with WPAs was in the middle for prostitution cases (25%).
Women’s movement actors
gained access to the process with the help of women MPs from the right and the
left across all issues areas. In political representation debates women and men
in top positions in the political parties rather than in the government
supported women’s movement actors positions, and also through women’s movement
actors who had entered the party or had been named to key government decision
making positions. Men in important decision making positions within the
particular sub system were important allies for women’s movement actors as
well. In several cases in
prostitution, it was not so much
that women’s movements success came from the help of specific individuals, but
because the policy positions of the government happened to coincide with the
positions of the women’ movement actors involved with the debate – often under
right-wing governments.
Conclusion: Tentative Lessons Learned and
Recommendations
The preliminary analysis of
the RNGS findings, suggests the following lessons for WPAs and women’s political
representation in western post industrial democracies.
Do WPA’s
enhance women’s political representation and participation?
WPAs play a crucial, but not definitive role.
The ability of WPAs to help women varies by the type of
policy issue – WPAs are most successful in political representation, abortion,
and prostitution issues and the least successful in job training and hot issues.
What are the conditions for WPAs to enhance women’s
representation?
Women’s movement resources are not important in job
training and to a limited degree in the other issue areas.
o
The
stage of development of the women’s movement is not important at
all.
o
When
movements give the debate a high priority and are unified around the issue in
political representation and abortion there is a tendency toward
success.
o
Unite
also brings success in prostitution
o
Successes are also a product of high women’s priority and
women’s movement closeness to the Left in the hot issue area.
No single profile of WPA is identified with success. Three successful agency profiles emerge
across four out of the five issue areas:
o
a
separate budget and staff;
o
separate budget and staff, with feminist leadership and
proximity to power;
o
feminist leadership and proximity to
power.
The policy environment matters the most, for three out of
the five issue areas, each with a different combination of factors.
o
In
abortion, success of the WPAs occur under left-wing governments, when the issue
frame of the debate matches women’s movement actors positions, and when the
arena for decision-making is closed.
o
For job
training, success comes when the policy making arena is relatively open and
mainstream policy actors support women’s movement actor positions. In
prostitution, open decision making systems and the presence of a left-wing
government tend to lead to success.
o
More
open sub systems and a good fit between sub system actors positions and women’s
movement positions tend to favor success.
o
The
presence of a left-wing government is somewhat important, but not crucial.
o
Counter
movements do not to pose any significant obstacles in any of the issue areas.
Issue area matters a great deal, arguably more than
national context.
o
Political representation issues has the highest level of
success due to the explicit focus on women’s representation; debates tend to
take place outside of government arenas; debates took place since 1983; the less
controversial nature of the issue.
o
Prostitution has the next level of success when feminists
can agree on the issue and policy making systems are open, under both
governments of the right and the left.
o
Abortion issues produce success without WPAs,
particularly when the right is in power and women’s movement actors are unified
and place a high priority on issues.
o
Job
training debates produce the second lowest success rate dues to the trend toward
sub systems closed to WPAs and women’s movement actors or the gendered demands
that they articulate.
o
Issues
of national significance have the lowest success rate, with no common patterns,
due to the diversity of those issues.
Allies outside
of the WPAs can play crucial roles. particularly in the areas of abortion and
the hot issue. These allies can be
men and women, inside the government as MPs, ministers and top level bureaucrats
or in political parties..
It is important to note
that the degree to which these lessons apply outside of the Western context must
be left to experts from the other regions of the world to assess. At the same
time, the RNGS study contributes to our systematic understanding of WPAs and
women’s representation amongst western post industrial democracies and hence
confirms that WPAs make a difference in women’s political representation.
Finally, the findings of
this study suggest the following paths to pursue in terms of good practice and
policy recommendations for improving women’s representation and
participation.
1.
Women’s Policy Agencies should be
seen as important partners in the pursuit of women’s representation at all
levels of government, across all issue areas, when they are supportive of women’s movement actors positions and
are willing to introduce gender into policy
debates.
2.
QUAWPAs, particularly within the
political parties, are key partners in policies related to women’s political
representation.
3.
Women’s movements need to be
identified outside of western notions of autonomous feminist movements and or
women’s pressure groups. Rather, they should be seen as fluid and ever-changing
composites of individual and group actors both inside of non women’s movement
organizations and part of free-standing women’s movement groups, at all levels
of organization, who take public stances that express identity with women as a group/ gender consciousness;
that are explicitly gendered and that express ideas in terms of in terms of
representing women as women
in public life.These positions
do not necessarily need to be feminist.
4.
Advocates for women’s participation
should be less concerned about having strong, developed or united women’s
movements, rather than the presence of individual actors who publicly articulate
women’s movement stances, in the broad sense, who are willing to come forward
into established government-based policy making arenas to articulate demands and
to work with sympathetic WPAs and powerful allies outside of the women’s
movement and WPA orbits.
5.
WPAs need to be created and
sustained by governments, preferably with a separate budget and resources, that
are willing to support women’s movements positions and to introduce
considerations of gender into all issue areas; in other words to support WPAs
that support gender mainstreaming that is seated on a women’s movements
perspective.
6.
Advocates for women’s representation
should worry less about securing the election of left-wing governments or
defeating counter movements than on creating the conditions for regular policy
actors, from across the entire ideological spectrum, to be open to women’s
movement ideas and to the participation of women’s movement actors and WPAs in
the regular arenas where policy discussions take
place.
7.
Connections with men and women, who
are not necessarily associated with women’s movement positions and/or are not
femocrats, in top decision-making positions in political parties, ministries,
parliaments and governments, on the Left and the Right both men and women should
be developed and nurtured by both femocrats and women’s movement actors.
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[1] For an overview of the United Nations actions on women’s policy agencies as well as a critical assessment of the role and impact of WPAs worldwide see the UN-commissioned book by Rai (2003).
[2] In western post industrial democracies see for example Sawer (1996); Stetson and Mazur (1995); Stetson(2001); Mazur 2001); Outshoorn (2004); Lovenduski (2005); Haussman and Sauer (forthcoming); Chappell (2002). In countries outside of the West, see for instance, Goetz (2003); Kardam and Acuner (2003); Ugalde (2003); Honculada and Ofreneo (2003); Jezerska (2003); Kwesiga (2003); Rai (2003c); Lycklama,Vargas, and Wieringa (1998).
[3] The notion of QUAWPAs was first developed in the context of the RNGS study to discuss women’s commissions in political parties in parliamentary systems in post industrial democracies.
[4] Based on Pitkin’s (1967) taxonomy of representation, gender and politics research focuses on these two ways in which women can be represented. Women can be represented by individual women in office– descriptive representation--or women’s interests and gender equality can be taken up in public policy content, debates and outcomes—substantive representation. Many feminist theorists and analysts argue that descriptive representation of women leads to their substantive representation through the “politics of presence (Phillips 1995).” Descriptive representation is a form of women’s direct participation as well.
[5] The French WPA structures, since the early 1980s – including national level ministry, central administrative agencies, regional delegations, departmental offices and national and territorial network of women’s rights information centers--employs 500 people, most of whom are women (Mazur 2005).
[6]First identified in the Australian case, in Eisenstein (1996), Sawer (1990); Watson (1990) for example, the term femocrat is typically used to refer to any individual working for a WPA.
[7]
Feminist policy consists of any government action that explicitly contains three of the
five following characteristics “1) the improvement of women’s rights, status or
situation to be in line with men’s,
(however rights, status, and situation are culturally defined within a
given context); 2) the reduction/elimination of gender-based hierarchies or
patriarchy; 3) a focus on both the public and the private spheres or an approach
that avoids distinctions between the public and the private; 4) a focus on both
men and women; 5) ideas that can be readily associated with a recognized
feminist group (Mazur 2002: 30-31)”.
Feminist policy was identified and mapped out as a new sector for
government action in western post industrial democracies by Mazur (2002).
[8] This broad-base definitions of women’ s movements was developed in the context of the RNGS study of women’s policy offices to allow for a more accurate analysis of women’s movements in a variety of different national contexts. For more on the development of this approach to studying women’s movements see McBride and Mazur (2005).
[9] RNGS is coordinated by Dorothy McBride (Florida Atlantic University), Amy Mazur (Washington State University); Joyce Outshoorn (Leiden University); Marila Guadagnini (University of Turino), and Joni Lovenduski (Birkbeck College). Mazur and Stetson write many of the working research of the group, including the project description elaborated by the group (RNGS 2004) and the summary results presented in this section. Dorothy McBride also contributed to writing this report. For the most recent copy of the RNGS project description, results and other RNGS materials go to the network’s website at http://libarts.wsu.edu/rngs/ .
[10] The qualitative results of the entire study were first presented by RNGS researchers at a policy practitioners conference at the Institute of Women’s Policy Research (IWPR) in June 2005 through a set of country and issue-specific papers available at the RNGS website – IWPR-RNGS papers (2005). The dataset will be released in 2008 and a final capstone book is in the works to examine both the qualitative and quantitative findings.
[11] These three factors have been identified by studies of WPAs as the most important ingredients for success in WPAs ability to impact women’s representation. For more on how these variables were operationalized for the RNGS study see RNGS (2004).