The Implementation of Quotas: European Experiences Quota Report Series Edited by Julie Ballington and Francesca Binda In Collaboration with This report was compiled from the findings and case studies presented at an International Institute for Democracy and Electoral Assistance and Central and East European Network for Gender Issues Workshop held on 22–23 October 2004, in Budapest, Hungary. © International Institute for Democracy and Electoral Assistance 2005 International IDEA publications are independent of specific national or political interests. Views expressed in this publication do not necessarily represent the views of International IDEA, its Board or its Council members. Applications for permission to reproduce or translate all or any part of this publication should be made to: Publications Office International IDEA SE -103 34 Stockholm Sweden International IDEA encourages dissemination of its work and will promptly respond to requests for permission to reproduce or translate its publications. Graphic Design: Trydells Forum, Sweden Cover illustrations: Anoli Perera, Sri Lanka Printed by: Trydells Tryckeri AB, Sweden ISBN: 91-85391-63-8 Preface The International Institute for Democracy and Elec- recently reversed and women’s political participa- toral Assistance (IDEA), an intergovernmental or- tion in most European parliaments is increasing, the ganization with member states across all continents, quota debate remains heated and is by no means set- seeks to support sustainable democracy in both new tled in many countries. The debate is kept alive by and long-established democracies. Drawing on com- the many dedicated national women’s groups and parative analysis and experience, IDEA works to bol- regional networks, many of whom contributed to ster electoral processes, enhance political equality and this report, which work to mobilise political actors participation and develop democratic institutions and push for positive measures so that more women and practices. The inclusive and responsive nature can participate in, and contribute to, the political re- of these institutions is considered to be of particu- forms which are fundamentally changing the face of lar importance if there is to be effective governance, Europe. During a workshop on Quotas in Europe benefiting a wide spectrum of groups in society. In participants revealed how international instruments, this context, IDEA is committed to promoting the such as the 1995 Beijing Platform for Action, and participation and representation of women in politi- support from the International Community, have as- cal life. sisted their efforts to keep the debate relevant. The picture of Europe is very different today than Since 2003, IDEA has been engaged in a global it was 15 years ago. One-party authoritarian rule research project on the implementation and use of has given way to multi-party democracy in much of quotas worldwide in cooperation with the Depart- Central and Eastern Europe. The European Union ment of Political Science at Stockholm University. (EU) has recently gone through the greatest enlarge- Through the development of the Global Database ment in its history. Almost all non-EU states within on Electoral Quotas for Women (www.quotaproject. Europe participate, in some manner, in the region’s org), we have been able to compare the use of differ- clubs including the Council of Europe, the Organi- ent types of gender quotas in different political con- sation for Security and Co-operation in Europe and texts. These data have been supplemented by gener- institutions of the North Atlantic Treaty Organisa- ating comparative information on quotas, collected tion (NATO). But did the wave of democratic re- through a series of regional workshops. The first forms, which swept Europe in the 1990’s, result in three workshops were held in Asia, Latin America an increased participation of women in European and Africa in 2002-2003. This regional report docu- politics? ments the findings of the fourth in the series, The Although women’s representation in older democ- Implementation of Quotas: European Experiences, racies in Europe has slowly been on the increase and in October 2004. It is followed by a final workshop the percentage of women Members of the European in the Arab World. Parliament has increased from 19 percent in 1994 Many individuals and organizations supported to 30 percent in 2004, the advent of multi-party de- IDEA’s work on quotas in Europe, and we are grate- mocracy in post-communist Europe did not imme- ful for their enthusiasm and expertise. We thank our diately put women in decision-making positions. In partner, the Central and Eastern European Network fact in many countries, the first multi-party elections for Gender Issues, particularly Daša Silović and Már- brought a decline in women’s representation in na- ta Szigeti Bonifert, Erzsébet Kovárik, President of the tional parliaments. Although gender quotas are now Hungarian Office for Equal Opportunities, MEP increasingly viewed as an important policy measure Zita Gurmai and Sonja Lokar the Chair of the Gen- for boosting women’s access to decision-making bod- der Task Force of the Stability Pact. We also thank ies throughout the world, the legacy of communist- the speakers and authors of the case studies in this re- era quotas and token representation created a back- port, and particularly Denitza Bojinova, the rappor- lash in Central and Eastern Europe. teur, and Richard Jones, the copy editor, who made Even if the decline in women’s participation has this report possible. 3 From IDEA we are especially grateful for the ex- pertise and untiring efforts of Julie Ballington, Man- ager of the Women in Politics Project, Francesca Binda, Senior Advisor for Political Parties, and Yee Yin Yap, Programme Assistant, who pulled the event and the report together. We also thank Nadia Handal Zander, IDEA’s Publications Manager. Lastly, we would like to acknowledge and thank IDEA’s mem- ber states, for the support that they offered that made this event possible. Lena Hjelm-Wallén Chairperson of the Board International IDEA 4 Table of Contents Preface 3 Terms and Abbreviations 7 About IDEA’s Project and this Report 8 Welcome and Introductory Overview 10 1. Quota Systems: An Overview of Global Trends and Regional Analysis 14 Drude Dahlerup, “No Quota Fever in Europe?” 18 Milica Antić Gaber, “Overview of Quota Systems in the Region of Central and Eastern Europe” 24 2. Implementing Quotas: Legal Reform and Enforcement 32 Besima Borić, “Application of Quotas: Legal Reforms and Implementation in Bosnia and Herzegovina” 38 Daniela Dimitrievska, “Quotas: The Case of Macedonia” 44 Zorica Mrsevi, “Implementing Quotas: Legal Reform and Enforcement in Serbia and Montenegro” 48 Petra Meier, “Implementing Gender Quotas in Belgium: Legal Enforcement Lessons” 54 3. Political Party Quotas in Practice 58 Richard E. Matland, “The Norwegian Experience of Gender Quotas” 64 Karolina Leakovi, “Political Party Quotas in the Croatian Social Democratic Party” 72 Marta Bonifert and Zita Gurmai, “Advancement of Women’s Issues through Political Mobilization in Hungary: Impact of the Hungarian Socialist Party Quota” 76 Renata Siemienska, “Gender Party Quotas in Poland” 80 4. Lobbying for Quotas: International and Regional Cooperation 86 Karolina Leakovic, “Socialist International Women” 90 Daša Šašić Šilović, “Lobbying for Quotas: The Experience of the CEE Network for Gender Issues” 94 5 5. Introducing Quotas: Discourses and Lobbying Strategies Used by the Women’s Movement 100 Anu Laas, “To Suspect or Respect? Quota Discourse in Estonia” 104 Meilute Taljunaite, “The Women’s Movement in Lithuania: Discourses and Lobbying Strategies” 112 Sonja Lokar, “A Short History of Quotas in Slovenia” 118 6. The Role of the International Community and International Instruments 126 Hanna Beate Schöpp-Schilling, “The Role of the Convention on the Elimination of All Forms of Discrimination Against Women and its Monitoring Procedures for Achieving Gender Equality in Political Representation” 130 Kareen Jabre, “Strengthening Women’s Participation in the Inter-Parliamentary Union” 136 Agnès Hubert, “Moving Beyond Quotas in the EU: An Emerging Stage of Democracy” 142 Cécile Gréboval, “Introducing Parity Democracy: The Role of the International Community and the European Women’s Lobby” 148 Conclusion 156 About the Authors 161 6 Terms and Abbreviations BiH Bosnia and Herzegovina CEDAW Convention on the Elimination of all Forms of Discrimination Against Women CEE Central and Eastern Europe CEE Network Central and East European Network for Gender Issues HDZ Croatian Democratic Union SDP Social-Democratic Party EU European Union EWL European Women’s Lobby FPTP First-past-the-post electoral system, used in constituency elections GTF Gender Task Force of the Stability Pact of South Eastern Europe IPU Inter-Parliamentary Union IDEA International Institute for Democracy and Electoral Assistance MEP Member of the European Parliament MMD Multi-Member Districts MMP Mixed Member Proportional representation electoral system MP Member of Parliament NDI National Democratic Institute NGO Non-governmental organization OSCE Organisation for Security and Co-operation in Europe PES Party of European Socialists PR Proportional representation electoral system, under which political parties submit lists of candidates to contest elections SDWF Social Democratic Women’s Forum of Croatia SIW Socialist International Women SMD Single-Member Districts UAE United Arab Emirates USAID United