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Political Participation of Women in Pakistan Historical and Political Dynamics Shaping the Structure of Politics for Women

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Political Participation of Women in Pakistan Historical and Political Dynamics Shaping the Structure of Politics for Women Political Participation of Women in Pakistan Historical and Political Dynamics Shaping the Structure of Politics for Women Muhammad Ali Awan Goethe-Universität, Frankfurt Introduction ering women and ensuring their political participation in 3 The purpose of this article is to understand the political the political structure. participation of women in Pakistan from the perspective of The current political system of Pakistan has elements of the country’s history. Along with focusing on the historical the presidential as well as parliamentary systems. The shift development and contemporary situation, the article high- in political systems is the result of past changes in political lights social hurdles that have presented challenges for structure.4 Historically, under different political systems, women to participate in the political system. Political par- women’s participation and the shares of the seats in na- ticipation rests not only on being able to get elected to the tional and provincial assemblies were different. In the first legislative assembly. It also encompasses women’s roles as Pakistani legislative assembly (Aug. 10, 1947 to Oct. 24, voters, as members of a political party, and other aspects 1954), for example, women acquired 3% of the total seats of participation in the political process, structure, and sys- (the number of total seats was 30, and women acquired 2 tem. Analysis along these dimensions can produce some of these).5 During the period of 1947 to 1956, there was no fruitful recommendations for the fuller political participa- office of the president. The head of state was the governor 1 tion of women in the future. general. During this second legislative assembly (lasting from May 02, 1955 to Oct. 07, 1958) women had 0% re- Historical development of the representation of women presentation (the total number of seats was 80 and women in the political structure acquired 0 seats). For the period of 1956 to 1958, the polit- Various indicators like population ratio, school enrollment, ical structure changed once again. Iskander Mirza, who literacy rate, access to basic health services, and life ex- was the governor general, assumed office as the president, pectancy have suggested a disparity between men and since the post of governor general was abolished.6 Subse- women in Pakistan.2 However, in the domain of politics, quently, the military ruled country for the next 13 years, the last 16 years have witnessed significant developments from 1958 to 1971. in terms of women’s participation. Most significantly, the After the Zia era that lasted from 1978 to 1988, another political participation of women has increased in legisla- shift in political structure once again brought changes in tive bodies. This change in political participation can be the representation of women in politics. By 1988, the 3% attributed to a number of factors, such as Pakistan’s legal assigned quota that existed since the first legislative as- commitments to the international community which in- sembly rose to 10%, and women attained 22 National clude: the Committee on the Elimination of Discrimination Assembly seats (the number of women elected to reserved against Women (CEDAW), Universal Declaration of Hu- seats was 21, and 1 woman was elected directly) along man Rights (UDHR), and International Covenant on Civil with 5% of the seats in the provincial assemblies. How- and Political Rights (ICCPR). These commitments have ever, from 1990 to 1997, the provision of reserved seats impacted Pakistan following the 4th World Conference on Women in 1995. In addition to this, the 1973 Constitution 3 of Pakistan also played a vital role in the political develop- FAFEN (2013a): Women and the 2013 General Elections. April 22, http://electionpakistan.org/assets/images/featured/pdf_articles/FAFEN%2 ment of women. Furthermore, the Election Commission 0-%20Women%20and%20the%202013%20General%20Elections%20- (EC) Order of 2002, the Political Parties Order of 2002, %2022%20April%202013.pdf, accessed on 01.08.2016; Rai, Shirin M.; Shah, Nafisa; Ayaz, Aazar (2007): Achieving Gender Equality in Public the National Assembly and Provincial Assemblies Alloca- Offices in Pakistan. Research and Review Report Islamabad UNDP, tion of Reserved Seats for Women and Non-Muslims https://www2.warwick.ac.uk/fac/soc/pais/people/rai/outreach/undp_repor t.pdf, accessed on 22.10.2016; European Union Election Observation Rules of 2002, are forces that have contributed to empow- Mission to Pakistan (2013): Islamic Republic of Pakistan, General Elections 11 May 2013. Field Report. 4 CIDOB International Year Book (2012): Political System and State 1 United Nations Development Programme Pakistan (2005): Political and Structure of Pakistan, Legislative Participation of Women in Pakistan. Issues and Perspectives. http://www.cidob.org/en/content/download/32418/526985/file/ANEXO_ Research Report, Islamabad, http://www.mumkinalliance.org/wp- SISTEMA+POLITICO+Y+ESTRUCTURA+DE+PAKISTAN_ANG.pdf content/uploads/2012/06/POL-legislative-OF-Women-UN-Report.pdf, , accessed on 08.07.2016. accessed on 22.10.2016. 5 In the first legislative assembly from 1947 to 1954. 2 Ibid. 6 CIDOB International Year Book (2012). for women was lapsed. Therefore, no seats were allocated seats in 2013. This number is again higher than in the 2008 for women in the 1990, 1993, and in 1997 elected assem- election, when 76 women in total ran for office. Since the blies, at neither the provincial nor the national level.7 As a 2013 election, some of the political parties, like the Paki- result, women’s representation was minimal – in 1990, for stan Muslim League (Nawaz) and Mutahida Qaumi example, it was 0.9% (the number of directly elected Movement, increased women’s participation on the party women was 2 out of 217). In 1993, women’s representa- ticket compared to the 2008 election. Other political par- tion was 1.8% (the number of directly elected women was ties, however, like the Pakistan People Party and Pakistan 4 out of 217), and for the 1997 national assembly, the Muslim League-Quaid-e-Azam, saw a decrease in wom- percentage of women in elected assemblies slightly in- en’s representation for the 2013 election compared to the creased to 2.8% (the number of directly elected women 2008 election.12 was 6 out of 217).8 Percentage of National Assembly For the first time and under military rule, in 2000, the candidate by Gender and Region quota for women’s political participation was raised to 33% at the local government level. This quota was effec- 150 95,4 96,8 97,6 99,8 98,9 97,3 96,5 tive at three levels of the local government, namely the 100 9 50 4,6 3,2 2,4 0,2 1,1 2,7 3,5 union council, the tehsil , and the district level. Similarly, 0 before the 2002 election, the number of women was in- creased to 17% in both the national and provincial assem- blies (with 61 out of 342 members in the national assembly being women).10 A significant increase in the quota also Male % Female % increased women’s overall participation in the political system for the election of 2002. As a result, the largest Current trends in women’s participation in the ever number of women contested and won general seats. In political process the election of 2002, 188 women in total contested general seats, and of these 188, 101 were nominated by political In order to assess the current trends in women’s political parties, and 39 among them won their respective seats. To participation, we may focus on three key questions: 1) compare this to the 1997 election, this ratio was almost How many women were awarded the party ticket for the one-third: only 56 women contested the election at that contestation of an election? 2) What was the total repre- time, among them 39 were nominated by political parties, sentation of women in provincial and national assemblies?, and only 7 managed to win.11 and 3) Of those women who won seats in these assemblies, how many were elected to general seats, and how many However, when we look at the elections of 2008 and 2013 were elected due to reserved seats? The available literature we can observe some fluctuating trends. In the 2013 elec- indicates that although women actively participated in the tion, women acquired 70 out of 342 seats in the lower 13th National Assembly,13 they were not given due credit house of the national legislature, almost 20.5% of the total in the form of nominations from the respective political number of seats. In the upper house, women were elected parties. While a total of 3.5% of women candidates was to 17 out of 100 seats, 17% of the total number of seats. nominated by the political parties, 96.5% of the candidates When this is compared to the 2008 election, we see that a were men.14 In this context, Yusuf (2013) has stated that slightly higher proportion of women participated in 2013. the low level of representation of women in the election In the 2008 election, 34 women were nominated by politi- cal parties to stand for election. In the 2013 election, 36 12 “The Awami National Party and Pakistan Tehrik-e-Insaf have awarded women acquired nominations by political parties. Similar- party tickets to two and five female candidates out of totals of 45 and ly, 108 women were contesting the 272 National Assembly 241, respectively, for general National Assembly seats.” (Yusuf, Huma (2013): The evolving role of women in Pakistani politics. Noref Expert Analysis, The Norwegian Peacebuilding Resource Centre, 1f., 7 National Commission on the Status of Women (2010): Gender Review https://www.files.ethz.ch/isn/164192/c832356e4ede2cff568363e27bb152 of Political Framework for Women Political Participation.
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