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Implementation of Quotas: Asian Experiences Quota Workshops Report Series The Implementation of Quotas: Asian Experiences Quota Workshops Report Series Jakarta, Indonesia 25 September 2002 Preface The International Institute for Democracy and Electoral workshops in Latin America, Africa, Eastern Europe and Assistance (IDEA), an intergovernmental organization the Caucasus and the Arab World. The workshop was with member states across all continents, seeks to sup- held in Jakarta, Indonesia, in September 2002. IDEA port sustainable democracy in both new and long-esta- has been operating a country programme in Indonesia blished democracies. Drawing on comparative analysis since 1999, and the location of the meeting proved and experience, IDEA works to strengthen electoral pro- timely given the vigorous debate regarding quota imple- cesses, enhance political equality and participation and mentation that was going on during 2002. The debate develop democratic institutions and practices. The culminated in the passage of a new Electoral Law in inclusive and responsive nature of those institutions is February 2003, which carries the provision that political considered of particular importance if there is to be parties ‘should consider’ including women as 30 per cent effective governance, benefiting a wide spectrum of of all electoral candidates. While weak in its implemen- groups in society. In this context, IDEA is committed to tation, this was a mild victory for the groups that had promoting women’s participation and representation in lobbied hard for quotas, and it is viewed as a first step political life. toward gender equality within political institutions in The implementation of gender quotas is increasingly the country. viewed as an important policy measure for increasing IDEA’s workshop on quotas in Asia was supported by women’s access to decision-making bodies. The intro- many individuals and organizations in Indonesia and duction of gender quota systems is highly influenced by the region, and we are grateful for their enthusiasm and recommendations from international organizations and experience. We thank Professor Drude Dahlerup from cross-country inspiration. In 1995, the Beijing Platform Stockholm University for her expertise and knowledge for Action called on governments to take measures to in organizing the event, and the staff at IDEA’s offices in ensure women’s equal access to, and full participation in, Jakarta and Stockholm, especially Jocevine Faralita and power structures and decision-making bodies, and to set Kathy Hyttinge, for assisting with logistics and arrange- specific targets and implement measures to increase sub- ments for this event. stantially the number of women, through positive We also thank the speakers and authors who made action, among other means. Gender quotas present us this report possible, particularly Professor Najma with new challenges, both in practice and as a new field Chowdhury, Professor Drude Dahlerup, Dr Chusnul of research. IDEA is engaged in a research project on the Mar’iyah, Ms Milena Pires, Dr Vasanthi Raman, and Dr © International Institute for Democracy and Electoral Assistance 2003 implementation and practice of quotas in a global per- Socorro Reyes. From IDEA we are especially grateful for International IDEA publications are independent of specific national or political spective in cooperation with Stockholm University’s the expertise and untiring efforts of Ms Julie Ballington, interests. Views expressed in this publication do not Department of Political Science. By comparing the use Manager of the Gender Project, and Ms Cecilia Bylesjö, necessarily represent the views of International IDEA, its Board or of gender quotas in different political contexts it is pos- IDEA’s gender consultant in Indonesia, who pulled the its Council members. sible to gauge whether, and under what conditions, quo- event and report together. We also thank Dr Patrick tas can be successfully implemented. This project aims Molutsi, Director of the Political Parties and Institutions Applications for permission to reproduce or translate all or any part to raise awareness about the use of gender quotas as an Programme, and Dr Sakuntala Kadirgamar- of this publication should be made to: instrument to increase women’s political representation Rajasingham, Manager of the South Asia Programme, Information Unit and to show that they can and are being applied suc- for their input. Lastly, we would like to thank IDEA’s International IDEA cessfully. IDEA also seeks to develop skills and know- member states and the Swedish International SE -103 34 Stockholm ledge as well as useful networks and partners among the Development Cooperation Agency (Sida), for their sup- Sweden interested parties to assist them in making progress in port which made this event possible. International IDEA encourages dissemination of its work and will promptly respond this important policy area. to requests for permission to reproduce or translate its publications. As a means of generating comparative information on quotas, IDEA is convening a series of regional work- Graphic design by: Magnus Alkmar shops. This report documents the discussion and fin- Cover photos: Anoli Perera, Sri Lanka dings from the first in the series, The Implementation of Karen Fogg Printed by: Trydells Tryckeri AB, Sweden Secretary-General Quotas: Asian Experiences, which is to be followed by ISBN: 91-89098-99-4 International IDEA 3 Table of Contents About the Project and the Report 6 1. Introduction: Research on Quotas in a Global Perspective 9 1.1. Overview of Presentation 9 1.2. Overview of Discussion 9 Paper Presented: ‘Quotas - A Jump to Equality’ by Prof. Drude Dahlerup 10 2. Implementation: Quotas at the Local Level in India 20 2.1. Overview of Presentation 20 2.2. Overview of Discussion 21 Paper Presented: ‘The Implementation of Quotas for Women: The Indian Experience’ by Dr Vasanthi Raman 22 3. Imposing Quotas from Above: The Case of East Timor 34 3.1. Overview of Presentation 34 3.2. Overview of Discussion 35 Paper Presented: ‘East Timor and the Debate on Quotas’ by Ms Milena Pires 36 4. Empowering Women Elected through Quotas: The Pakistani Experiment 40 4.1. Overview of Presentation 40 4.2. Overview of Discussion 40 Paper Presented: ‘Quotas in Pakistan: A Case Study’ by Dr Socorro Reyes 42 5. Repealing Quotas: The Bangladesh Experience 48 5.1. Overview of Presentation 48 5.2. Overview of Discussion 49 Paper Presented: ‘The Bangladesh Experience: Dependence and Marginality in Politics’ by Professor Najma Chowdhury 50 6. Lobbying for Quotas: The Indonesian Experience in 2002 60 6.1. Overview of Presentation 60 6.2. Overview of Discussion 61 Paper Presented: ‘The Political Representation of Women in Indonesia: How Can it be Achieved?’ by Dr Chusnul Mar’iyah 62 Conclusion: Lessons Learned from the Asian Experience with Quotas 66 About the Authors 70 List of Participants 73 4 5 About the Project and the Report Obstacles to women’s political participation exist tive practical resource on electoral quotas for women quota implementation and enforcement, and to advocacy, democracy and electoral issues in throughout the world in prevailing social and econo- in collaboration with Stockholm University. The develop a network of researchers and experts wor- Indonesia. mic regimes, as well as in existing political structures. project includes the first global comparative analysis king in this field. The workshop held in Jakarta on This report is structured around the themes In 2003, the representation of women stands at 15 of the discursive controversies surrounding quotas Asian experiences with quotas was the first in the addressed in the Asian context, providing an overvi- per cent globally. Although this total has increased in and how they work in practice. The project aims to series. Asia is an interesting region in terms of gau- ew of the presentation and discussion that emerged. recent years, minimal progress throughout the world study the debates and decision-making processes ging experimentation with quotas, providing some The full papers submitted by the experts are also means that the ideal of parity remains a long way off. that led to the introduction of quotas, the imple- of the earliest examples in the world. Pakistan imple- included. The themes addressed include how to Given the slow rate at which the representation of mentation of various types, including formal and mented ‘reservations’ as far back as 1956, and lobby for and implement quotas, whether or not it is women is increasing, various methods, such as elec- informal quotas, and the consequences of quotas. Bangladesh implemented reserved seats for women desirable for quotas to be implemented by the inter- toral quotas, have been proposed or implemented to As a first step in this process, a Global Database of in the 1970s. Today, constitutional quotas exist in national community, the negative effect of reserved address the present gender imbalance in decision- Quotas for Women web site has been produced provi- India and previously in Bangladesh, and legislated seats for women, and whether quotas lead to the making. Consequently, governments and political ding an overview of the use of electoral quotas for quotas are implemented in Pakistan, Indonesia and empowerment of women. Conclusions and areas for parties have experimented with different types of women worldwide (www.quotaproject.org). It is a China. As a region, there is a tendency for quota pro- further research are also presented. In this way it is quotas. Electoral quotas may be constitutionally or joint project
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