THE IRISH LEGISLATIVE GENDER QUOTA: Analysing Implementation & Outcome
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Bachelor Dissertation Seán Dunleavy - 15006816 European Studies – Faculty of Management & Organization The Hague University of Applied Sciences ………. THE IRISH LEGISLATIVE GENDER QUOTA: Analysing Implementation & Outcome ………. 08/01/2019 Supervisor: Dr. Krijtenburg Word count: 20,056 i The Irish Legislative Gender Quota: Analysing Implementation & Outcome Sean Dunleavy Executive Summary The title of this dissertation, “the Irish Legislative Gender Quota: Analysing Implementation & Outcome”, is specifically related to the Electoral (Amendment) (Political Funding) Act 2012, which requires political parties to field at least 30 percent candidates from the minority represented sex, with penalty for failure to comply resulting in a halving of state funding. Overall, given the difficulties observed during the 2016 general election campaign, and indeed now again in preparation for the next election, it is important to understand if these reforms are solely responsible for achieving increased female representation. Why difficulties during selection conventions are occurring, and how they can be best overcome. The main question is as follows: ‘Has the introduction of state mandated gender quotas for political party election candidates in the Republic of Ireland had the desired effects both in terms of implementation and ultimate outcome?’ Both qualitative and quantitative methods of research were conducted for this dissertation report. Qualitative research was used to collect and analyse, with the work of Irish academics Buckley, of University College Cork, Galligan, of Queen's University Belfast, & McGing, of Maynooth University, found to be of particular importance when detailing any aspect specific to Ireland. The majority of reviewed literature publications would take the form of academic journals and government sponsored publications. Furthermore, in gathering local constituency convention information, political party press office notifications and indeed both national and regional newspaper articles were also of essential use. Primary quantitative methodology was used in calculating the latest female representation figures across all of Ireland’s 31 local authorities via each individual council website. Primary sourcing in the form of an online Skype interview with Irish academic Claire McGing, of Maynooth University also took place. In terms of the overall results, early successful upward trends in female political representation in Ireland (post the introduction of gender quotas) are acknowledged, however the premature nature of such observations is also addressed, outlining a number of unique variables which will be expanded upon in more detail throughout. Moreover, although some had hoped for greater female parliamentarian numbers resulting from the 2016 general election, the comparatively higher rate of female candidates does at least offer the hope that a significant surge in female representation may occur sooner than expected, given both a heightening in the public profile of former unelected female candidates, and an increasingly competitive political landscape. Report recommendations primarily focus upon the need for greater management and communication strategies in terms of how respective parties reach the 30 percent gender quota, with particular attention given to the use of gender directives during candidate selection conventions. ii The Irish Legislative Gender Quota: Analysing Implementation & Outcome Sean Dunleavy List of Abbreviations AAA/PBP Anti-Austerity Alliance/People Before Profit AWS All-Women Short Lists CEDAW Convention on the Elimination of All Forms of Discrimination against Women CoE Council of Europe EEA European Economic Area EU European Union IDEA International Institute for Democracy and Electoral Assistance IPU Inter-Parliamentary Union LECS 2014 Local Election Candidate Study MLA Member of the Legislative Assembly MP Member of Parliament NEC National Executive Committee NWCI National Women’s Council of Ireland PAE 2013 Political Attitudes and Experiences survey PR Proportional Representation PR-STV Proportional Representation-Single Transferable Vote SDA Sex Discrimination Act 1975 (United Kingdom) TD* Teachta Dála UN United Nations WPA Women’s Political Association Irish language references: * TD - Teachta Dála (Member of Dáil Éireann, the lower house of the Irish Parliament). Note: TDs are also referred to as Deputies. Oireachtas Éireann, refers to both chambers of the Irish Parliament. Fianna Fáil, Fine Gael & Sinn Féin are the respective names of Irish political parties. iii The Irish Legislative Gender Quota: Analysing Implementation & Outcome Sean Dunleavy Table of Contents Executive Summary……………………………………………………………………………………………………………………………ii List of Abbreviations………………………………………………………………………………………………………………….………iii Introduction……………………………………………………………………………………………………………………………………1-2 Methodology……………………………………………………………………………………………………………………………….……3 Literature Review…………………………………………………………………………………………………………………………...4-5 Chapter 1 - International Context…………………………………………………………………………………………………6-16 Chapter 2 - Related Political Science Theories……………………………………………………………………….……17-20 Chapter 3 - Causation of Female Political Under-representation………………………………………..………21-26 Chapter 4 - Irish National Historical Context…………………………………………………………………………….…27-32 Chapter 5 - The Legislation……………………………………………………………………………………………………….…33-35 Chapter 6 - Legality of Gender Quota Laws…………………………………………………………………………………36-39 Chapter 7 - Public & Political Opinion on Gender Quotas……………………………………………………………40-44 Chapter 8 - Irish Gender Quota Implementation…………………………………………………………………………45-52 Chapter 9 - Measurement of Ultimate Outcome…………………………………………………………………………53-59 Conclusion…………………………………………………………………………………………………………………………………….…60 Recommendations………………………………………………………………………………………………………………………..…61 References……………………………………………………………………………………………………………………….…………62-73 Appendices…………………………………………………………………………………………………………………………………74-95 Appendices A-F – Graph data……………………………………………………………………………………….…….....74-78 Appendix G – Interview Transcript…………………………………………………………………………………….……78-91 Appendix H – Informed Consent Form…………………………………………………………………………..…………….92 Appendix I – Student Ethics Form……………………………………………………………………………………….….93-94 Appendix J – Electoral (Amendment) (Political Funding) Act 2012 | (Relevant pages)………………...95 iv The Irish Legislative Gender Quota: Analysing Implementation & Outcome Sean Dunleavy v The Irish Legislative Gender Quota: Analysing Implementation & Outcome Sean Dunleavy Introduction In the run up the 2016 Irish general election (the first in which gender quotas were imposed), a number of high profile controversial selection conventions occurred, predominantly resulting from the imposition of a minimum 30 percent female candidate selection threshold, as required by law (Buckley, F., Galligan, Y., & McGing, C., 2016). The difficulties relate to Ireland’s largely decentralized candidate selection process, which allows local party members to choose their own constituency candidates largely independent of the national executive (Buckley, F., Galligan, Y., & McGing, C., 2016). However, given a clear shortage in female contenders, parties have instead been forced to impose a hierarchical centralized will upon local members, largely in the form of gender directives, which essentially limits, or in some cases entirely excludes, potential male candidates from seeking the nomination of their party (Buckley, F., Galligan, Y., & McGing, C., 2016). Opponents of the quota claim such practices are both sexist and undemocratic, while those in favour see it as a necessary evil needed to rectify a clear gender imbalance (“Ciara McCormack to represent SF,” 2018; Rosenblum, D., 2006, p. 1135). It should be noted, that the legislative passage of the Electoral (Amendment) (Political Funding) Act 2012 did enjoy cross-party support at national level, however the matter remains divisive for many within respective parties grass-roots (Clancy, E., et al., 2012, as cited in Buckley, F., 2013, p. 354; Keenan, L., & McElroy, G., n.d., p. 27). Furthermore, adding to the existing social and political debate on this issue, legal challenge has also occurred, with those taking the action declaring the law unconstitutional, analysis of which will be revealed in more detail throughout (O'Loughlin, A., 2018). Overall, given the difficulties observed during the 2016 campaign, and indeed now again in preparation for the next election, it is important to understand if these reforms are solely responsible for achieving increased female representation. Why said difficulties during selection conventions are still occurring, and how they can be best overcome. The central question for which an answer will be sought is as follows: ‘Has the introduction of state mandated gender quotas for political party election candidates in the Republic of Ireland had the desired effects both in terms of implementation and ultimate outcome?’ In addressing these points, the thesis report will answer a series of important sub- questions, the first of which will seek greater detail within an ‘international context’, as outlined in ‘Chapter 1’. This section brings to the fore both the historical and contemporary position of women across various societies and time periods. Moreover, where Ireland stands within both the global and European female legislator rankings will also be revealed, with both datasets suggesting much room for improvement. 1 The Irish Legislative Gender Quota: Analysing Implementation