Mila Brnović

Women in the Parliament of

2016

How to make each seat matter?

Women in Montenegrin Parliament are both misrepresented and underrepresented. Although improvements were made, impact of female MPs remains unclear and is perceived by the public as rather low. With expected rise of number of female MPs in elections on 16 October 2016, set of measures ensuring their visibility is necessary in order to be able to call Montenegro a parliamentary democracy. Women in the

Publisher Evropski pokret u Crnoj Gori

For publisher Momčilo Radulović

Author Mila Brnović

Proofreading Marko Lubarda

Design and Printing Studio MOUSE- Podgorica

Circulation 40

European Movement in Montenegro (EMIM) Sima Barovica 4, 81000 Podgorica Tel/Fax: 020/268-651; Email: [email protected] web: www.emim.org, www.eukonvencija.me

In Podgorica, November 2016

Note: This policy brief has been prepared in the framework of the TRAIN Programme 2016 (Think Tanks Providing Research and Advice through Interaction and Networking), which is supported by the German Federal Foreign Office (Stability Pact for South East Europe) and implemented by the German Council on Foreign Relations (DGAP).

2 14 women at any given point. Not only is this are about talking difference the of 11,12,13 or MP. Again, it is important to understand that we female MPresigned, she was replaced with amale now 18,5%. This was thatdue the fact to whena Parliamentthe dropped to 14,8% (11 MPs), to current their 17%. During share term,their in women Parliament inthe rose from 13.6%to “30% quota system” was introduced, share of lation regarding women. First, in2011when There weretwo reforms theof legis election Parties and Assemblies. Law the on Local Parties, Law the on Financing the of Political vention of Discrimination, Law on the Political Law on Equality, Gender Law the on Pre the of CouncilorsElection and Representatives, the ofseries laws regulate issue: this Law the on the Constitutionin the of Montenegro in2007.A equalityGender was for first the time proclaimed a minority) decision-making inthe structures. gendersboth (or of adequate representation of end-goal of ensuring representation equal of aretas positive measures, have which aclear positive discrimination through quotas. Quo group inMontenegro, is primarily regulated by or for that matter position the of any minority positionthe of women inany other institution, positionThe of womenthe in Parliament, just like How we here? get did paper. of focus is this unclear primary the andbe will independence and dedication to gender issues Parliament,the engagement, their initiative, respective of how many women are sitting in since last the elections 2012. Nevertheless, ir for quota the system, reformed haswhich been elections, atest held be on 2016,will 16October seats Parliament in the are held by women. Last precise, very 18,5%meansbe that 15out of 81 of women of history in the institution. this To ment of Montenegro, is highest share which the Currently, there is 18,5% of women Parlia in the - - - - - and (32.4%). (23.8%), Macedonia (30.9%),Slovenia (32.2%) andregion: Herzegovina Bosnia (21.4%), Croatia history, Montenegro is last inthe place inthe Parliament of Montenegro is highest the in Although current the share of women in the that replaced be by she will another female MP. mandate, there was no provision guaranteeing second reason is that once awoman acquired a ing at bottom the of election lists. party the The list, leading to female representative mostly be list,the without stating positioning their on the stipulated that there should 30%women be on women on lists. election Namely, party it only Law didnot solve issue the of position the of the of legislative this provision. Onone hand, the The reasonsthe implementation liein measures why number didthis change inonly one term? 30% quota not produce such representation, and Whyshould posed: provision be legal didthe of a result low, very but obvious the also questions 1 Parliamentin the to accept and this, everything were unable to colleagues male their persuade female MPs supported a“1in3”proposal. They Committee for Equality Gender and amajority of draft the of proposal for amendingthelaw, the Parliament of Montenegro. At of time the the is an indicative point of female influencethe in candidate on list? the Precisely amendment this vision, didgive which results forth –why every There is an obvious issuethat from rises this pro 5% to 27%of female MPs assemblies. inlocal were elections and local change the was from have not had Parliamentary elections, but there less represented gender. Since change, this we mandate isreplaced to be by acandidate of the gendered and that acandidate stops who their listelection ought from to be less the represent provision fourth candidate that every on party was amended again in2013and it stipulated a of Councilors Election the and Representatives inefficiencythe of quota system. The Law on and beginning evenmore very the after so this Of course, was as recognized this aproblem from

Marketing, Montenegro, June 2012 Women in Politics, UNDP and IPSOSStrategic 1 - - -

3 Women in the Parliament of Montenegro ended with a defeat in which even those fe- exception is Committee for Gender Equality male MPs, which were pushing for the “1 in 3” with over 85% of women (only one male MP). proposal, voted for the adopted version. Thus, now we have legislation, which states that each party list for the elections ought to have 30% of women, but one in four is designated for a less represented gender. This result reflects a lack of Obstacles and opportunities influence of the women in the Parliament at the time when this law was amended (2013), which The Parliament is one of the pillar institutions is when current Parliamentarians were in power. of Montenegrin democracy, yet trust in this Regarding the institutional framework, the institution, especially in terms of improving and Ministry for Human and Minority Rights is in preserving gender equality, is rather low. Namely, charge of the gender equality strategies. Thus, a 2012 IPSOS Strategic Marketing survey shows in 2013, the National Action Plan for Achiev- that citizens, when asked which structures in the ing the Gender Equality was adopted. What is society contribute the most to the improvement indicative regarding its implementation is that of life of women in Montenegro, named female on one side, fewer institutions are involved in NGOs (39%), women themselves (30%), inter- this phase than it was planned and their budget national organizations (13%), the Parliament of was rather limited. Beside the Ministry (Depart- Montenegro (5%), local self-governments (4%) ment for Gender Equality), the two following and political parties (3%). This data shows that institutions directly implement this plan: the Parliament is not trusted at all as an institution Committee for Gender Equality in the Parliament that can provide gender equality and one of the of Montenegro and the Ombudsman. reasons for this is the possibility of this institution being viewed as male dominated. The international community follows the general issue of gender equality closely. The European There are three most important pillars of wom- Commission’s Country Report from 20152 states en support in politics and potentials for their that there has been success in the alignment with higher level of influence that can at the same the legislation of the EU on gender equality, time jeopardize this goal. These three spheres but that what Montenegro lacks the most are are both opportunities and threats for female strong institutions dealing with human rights proactive political engagement: media, local in general. Within the framework of the UN level and parties’ structures and consequently Convention on Elimination of All Forms of their larger influence. Discrimination against Women, even though the observations of the Committee were given in 2011, the numbers provided are still very much • Female MPs and media true for the present situation. Namely, in their concluding observations they note that women In 2013, the Ministry for Human and Minority are significantly underrepresented in Parliament, Rights3 conducted a research of the local media parliamentary committees, municipalities, po- (all major and influential media houses were litical parties, managing positions of ministries, included). This research shows that 78,1% of etc. Currently, there are 14 committees in the media quotes are by men, and only 21,9% by Parliament of Montenegro with only three fe- women. In addition to this, research shows that male chairs. Moreover, each of the committees less of the 1% of the content could be called “fe- has between 15% and 30% of female MPs. The male content” in the sense that it targets issues

2 EU Montenegro 2015 Report can be found on: 3 Monitoring: Gender Sensitivity of Montenegrin Media, http://ec.europa.eu/enlargement/pdf/key_ Ministry of Human and Minority Rights, November documents/2015/20151110_report_montenegro.pdf 2013, Podgorica

4 4 almost doubled. Despite key positions fact, this of numberthe of women assemblies local inthe elections in2014 afterthe local Montenegro, Since amendments the referring to quota in 2013, • in conveying messages of female MPs. danger of trend this and conduct professionally life. It is important that recognize the media the touch facewill mostlywill upon her personal not supported be by public, the accusations she in public life stands up for atopic, might which offocus and media general public. If awoman family and motherhood being a primary still as atraditional with country values such as of female MPs. Montenegro is oftenperceived an opportunity and a threat image in political tray women inpublic life. Thus, both canbe it publicthe opinion with how it to por chooses Media is an important tool interms of shaping publicthe perceives it. what between offersancy media the and how research on content, media there is adiscrep compare it to results the of previously described are sufficiently represented the in media, and 37,4% of citizens the that believe who women on If news. inthe we compare perception the of 37,4% stated that women are mostly reported arethey not reported on enough (34,4%),while represented at media inthe (10,7%)or all that of citizens, 45,1%said that women are not Monitoring in2014 on research the Based done by Center the for ofpart politics, for example. just as and wives, but as integral also could portray adifferentvision of women, not notdoes influencethe content which in media, number high this because of female journalists prepared by female journalists. This is interesting ture of persons preparing 66%were news, these stereotypes. When one at looks gender the struc over 60%has to atendency strengthen gender mostly concerning women. Within content, this

Women Assemblies Local in for Monitoring, November 2014, Podgorica Political Activism of Women in Montenegro, 4 regarding perception the Center - - - at level. Thus, local the it is important payto werewho either prominent or to easy cooperate mereto fulfill quota, pick candidates, female structures, under being highest pressure party the of draftingpaper,this thatargued themostly interlocutorsthe consulted during process the camewho municipalities. from local Some of onplaced lists election are party mostly those National Parliament, since women are who overall picture of impact the of women inthe level is extremelyThe local important forthe majority:the 33 compared to three female ones. vice-presidentsmale of municipalities the are in compared to presidents. 21male In addition, two female presidents of municipal assemblies, ipal president inMontenegro. There are only municipality of Kolasin, only the female munic level are women, including president the of the out of 78persons inpositions of power on local or vice-president are held mainly by men: only 6 power, such as president the of municipality the � � made:can be ment for Change), following joint conclusions Party, Pozitivna, DEMOS, Democrats, Move Party NOVA, of Socialists, People’s Socialist prominent Montenegrin (Democratic parties desk the researchDuring of statutes of six is not always case. the 30% representation of women. This, however, lated that structuresto need have ruling their Most inMontenegro of parties the have stipu of influence themselves.are politicalparties the importantanother of very female aspect exercise In addition to presence media politics, and local • issue the tackling from lowest the level. attention to empowering candidates those and

Women in Political Parties represented gender structures. Best inall Most donot of parties the have 30% of less rule. is NOVA, not does which provide for such ensured inparty’s structures. The exception that 30%of less represented be gender will Most of stipulate parties the statutes in their - - -

5 Women in the Parliament of Montenegro examples of female participation are Socialist paigns. In addition to this, practice shows that People’s Party and Democrats. some states develop free media time for parties � All parties have men as their leaders, except promoting gender equality, which can be a very for HGI. effective tool. � All parties have some type of Forum of Women, although not developed to the same extent, meaning that in some cases they organize events and activities, but in other Parliamentary life for they just exist as a section on a webpage. female MPs Since Montenegro will have parliamentary elections on 16 October, all elections lists were submitted to the State Election Commission. During months of June and July, interviews were The lists fulfill the legal minimum of 30% of conducted with six parliamentarians who gave women on the lists with one in four position much clearer picture about their perception reserved for a . However, the problem of their influence by using concrete examples. is the fact that parties are willing to fulfill only Originally, the purpose of interviews was to in- what is required by the law, none of them go volve some male MPs, but there was no positive beyond the legal minimum. response from their side.5 Political campaigns are mostly focused on male What is striking is that when asked about the candidates. Key speakers of almost all party cam- number of independent initiatives of their paigns were male. Here it is important to bear in own within the parties, female MPs would give mind that due to the very hierarchic structures of various numbers. However, once asked to be the political parties in Montenegro, campaigns precise and state such initiative, they would are focused on the leaders of the parties and either state those initiatives, which were joint parties as a whole entity. This makes it even party ones or just say that they cannot remem- more difficult for women to portray themselves ber since they function within their parties as a during the campaigns. team. None of them was able to neither provide Two main problems can be addressed through exact numbers backed with specific data nor financial incentives within the issue of under- compare between the number of individual representation of women in political parties. and party initiatives. First, women face obstacles related to childcare When asked about the quota system, a majority and other family-related issues, which are, in a of MPs interviewed, tend to prefer quality to traditional society such as Montenegrin, quite quantity. They see the quota system as important important. Here, parties could separate certain but not crucial. funds to support such cases and help women in parties with childcare and other expenses. This is Further on, there have been failed attempts to a practice, which was successfully implemented create a female parliamentary group. When asked in Canada. Of course, these incentives are fixed to explain why these attempts failed, parliamen- amounts predetermined by party structures. tarians saw the blame in other female MPs and the parties they came from. Although personal Second issue is related to the fact that parties issues are something that cannot be proved, it is themselves do not see their benefit of promoting safe to assume that the fact that all female MPs involvement of women within their structures. Thus, legislative provisions should be proposed 5 The interviews were conducted in the period of political in order to empower the state to have financial demonstrations and boycotts of Parliament by part of incentives for parties, which involve women opposition, which can be an explanation for rather more frequently in their structures and cam- low interest in this topic.

6 right direction it when comes to gender equality inorder taken to be need to moving start inthe quite difficultmeasure, to the following steps Since is acomplex this issue and “influence” is realthe change insubstance not just numbers. in order realized be to create an environment for There is a number which of activities, to needs equality and actively engaging issue. inthe do not commit all to equally promoting gender that women Parliament inthe of Montenegro ent reasons for two failures, these it is apparent Women. Although actors the involved list differ and failure to create Parliamentary the Group of amendment, which would include “1 in 3” rule, directly limitations: their failure of Law the is difficultmeasure to but two events showcased standards. Their influence the in previous term in our structures and levels is way below EU far behind. It is obvious that share the of women (notBalkans to mention EUcountries) are they compared to rest the of region the of Western improving position their steadily, although Women Parliament inthe of Montenegro are Recommendations Conclusions and women, at least around gender issues. not to give up future inthe to gather of trying pursue goal, this it is of utmost the importance or affiliation party lack the and ofstrength to Whether reasons the were of nature, personal understanding of importance the of such step. were to sit willing at same the table, shows their - 4. 3. 2. 1. in its substance: 8. Media should women use as source of info 7. 6. 5.

ing of Political Parties should amended be gender equality. Thus,Law the Financon promoting to parties time political media of budget for Women’s Forums, granting free Parliament more, dedicating fixed amount suchparties, as: paying female seats inthe intotake account incentive measures for the GovernmentThe of Montenegro should network parliamentary environment for establishment of women’s after general elections and create enabling invest efforts educateto coming new MPs It to create is necessary an environment and engage and revive forums. party their Women to need actively parties inpolitical lessthe present gender parliament. inthe third person on list is party the fromevery Parliament ought amended that to be so LawThe Election the of on Members the of and experts moreand experts frequently. fessional, rather than achievements. personal female MPs and portray for them pro their Media should promote success stories of something that is immanently female. topic the see still ofthey gender equality as with activities dealing gender equality since Male MPs should involved be actively inall workpolitical at national level. at level and local gradually encourage their politics would respectively give better results en at level as mobilization local of women in It to educate is necessary and empower wom accordingly. - - -

7 Women in the Parliament of Montenegro Constitution of Montenegro Bibliography Law on the Election of Councilors and Represen- tatives of Montenegro Law on Gender Equality EU Montenegro 2015 Report can be found on: http://ec.europa.eu/enlargement/pdf/key_docu- Law on the Prevention of Discrimination ments/2015/20151110_report_montenegro.pdf Law on Political Parties Women in Politics, UNDP and IPSOS Strategic Law on the Financing of Political Parties Marketing, Montenegro, June 2012 Law on Local Assemblies Monitoring: Gender Sensitivity of Montenegrin Statute of Political Party “DEMOS” Media, Ministry of Human and Minority Rights, November 2013, Podgorica Statute of Political Party “Democrats” Political Activism of Women in Montenegro, Cen- Statute of Political Party “Democratic Party of ter for Monitoring, November 2014, Podgorica Socialists” Goati, Vladimir, Political Parties and Party Statute of Political Party “NOVA” Systems Statute of Political Party “Socialist People’s Party” How to Achieve 40% of Women in Legislative Statute of Political Party “Pozitivna” Bodies of Bosnia and Herzegovina?, Human Rights Paper No. 14, Sarajevo Open Center, Statute of Political Party “Movement for Change” Sarajevo 2015 Report on the implementation of Plan for Achiev- Report on Equality between Women and Men, ing Gender Equality 2013-2017 for 2015, Ministry European Commission, Brussels 2015 for Human and Minority Rights, Podgorica 2016 Gender Equality in the European Union, European Written information on the steps undertaken Commission Justice, Brussels 2011 to implement the CEDAW recommendations contained in paragraphs 19 and 23 CEDAW Plan for Achieving Gender Equality 2013-2017, /C/MNE/Q/1/Add.1, Ministry for Human and Ministry for Human and Minority Rights of Minority Rights, Podgorica 2014 Montenegro, Podgorica 2013

8