Democracy’s missing half

The global movement for gender equality has driven change across many sectors, but political representation remains one of the most formidable challenges.

Although women make up nearly half of the world’s population, they are underrepresented in political offices, decision-making bodies, and leadership roles within political parties. This imbalance reflects more than cultural bias; it signals a gap in democratic governance.

Despite legislative measures globally and in countries like Pakistan to increase women’s political participation, a significant disparity persists between legal provisions and outcomes. Advancing gender equity in politics calls for a closer look at the structural barriers preventing women from fully participating in democratic processes, as well as a commitment to breaking down these obstacles.

Some regions have achieved promising progress. As of 2024, the Inter-Parliamentary Union (IPU) reports that women hold 26.5 per cent of parliamentary seats globally. Rwanda’s legally mandated 30 per cent quota has resulted in women occupying 63.75 per cent of parliamentary seats, while Sweden’s ‘zipper system’ ensures men and women candidates alternate on electoral lists, yielding 47 per cent female representation in parliament.

However, these examples remain exceptions rather than the norm. In Europe, 10 countries – including Bulgaria, Ireland, and Romania – have parliaments with over 80 per cent male representation. In Pakistan, the numbers are equally concerning – although there has been some progress. Here, women hold only 21 per cent of parliamentary seats, with most of these seats filled through reserved quotas rather than open competition. Globally, fewer than 5.0 per cent of cabinet positions are held by women, with men dominating key ministries such as defence and finance. This underrepresentation highlights the systemic barriers keeping women out of decision-making roles in governance.

Pakistan’s political landscape has seen prominent women leaders like Benazir Bhutto, the first female prime minister, and Maryam Nawaz, the first female chief minister of Punjab. However, the country's political structures remain overwhelmingly male-dominant. The constitution of Pakistan mandates gender equality under Article 25, which prohibits discrimination based on gender, and Article 34, which promotes women’s participation in all spheres of national life. Yet, in practice, women’s political participation remains limited.

To address this imbalance, the Political Parties Order 2002 requires that political parties reserve 10 per cent of their seats for women. The Election Commission Act, 2017 also mandates that 5.0 per cent of general election tickets go to women. Despite these measures, their impact has often been symbolic, with women placed in unwinnable constituencies or sidelined within party structures.

Even with the 60 reserved seats for women in Pakistan’s National Assembly, their overall political power remains limited. Women are often excluded from key decision-making processes, and political parties rarely incorporate women’s perspectives in policy discussions. Although parties may have ‘women’s wings’, these often lack real influence, following agendas set by male leadership.

The underrepresentation of women in Pakistani politics is deeply rooted in both cultural and structural barriers. Societal norms have historically confined women to the domestic sphere, making them political outsiders unless they are part of prominent political families. This exclusion aligns with Max Weber’s concept of “traditional authority,” where patriarchal structures maintain control over political and economic power.

Research organisations like the Sustainable Development Policy Institute (SDPI), the Pakistan Institute of Legislative Development and Transparency (PILDAT), and the Free and Fair Election Network (FAFEN) have been strong advocates for better governance and women’s political representation in Pakistan. However, while legal frameworks are in place, inconsistent enforcement has allowed the exclusion of women from meaningful political roles to persist. FAFEN’s analysis of Pakistan’s electoral system reveals that women within political parties are frequently relegated to symbolic roles, lacking substantial decision-making power.

To address the gender gap in political representation, Pakistan needs policy reforms that go beyond symbolic measures and focus on ensuring meaningful participation.

Strengthening the Political Parties Order 2002 by introducing amendments should increase the quota for women in leadership roles from 10 per cent to 30 per cent, ensuring women can influence party policy and strategy. Political parties could adopt a ‘zipper system’ to balance representation while mandating that one-third of leadership roles are reserved for women.

Enforcing the Election Commission Act, 2017 by raising the current 5.0 per cent quota for women to 15 per cent, providing more opportunities in winnable constituencies. Empower the Election Commission of Pakistan (ECP) to penalise parties failing to meet gender quotas and incentivise those allocating 30 per cent of competitive tickets to women.

Internal reforms within political parties are mandatory. Parties must implement regular gender sensitivity training, empowering women’s wings with real decision-making authority and establishing mentorship programmes for young women entering politics. Conducting annual gender audits and publishing gender representation reports would improve transparency and accountability.

Another important aspect is the introduction of a Gender Commission within the ECP. Establish a commission to monitor compliance with gender-related electoral laws and ensure that the gender quotas are upheld effectively across parties.

Achieving gender equality in political representation requires more than well-intentioned policies; it demands committed, comprehensive reforms. When women’s perspectives are genuinely integrated into political decision-making, societies benefit. Women’s political participation is not merely about fulfilling a democratic obligation, it strengthens the foundations of democracy itself. Pakistan’s journey towards political inclusivity is essential for building a representative democracy that reflects the full diversity and strength of its people.

The writer is a researcher associated with the Sustainable Development Policy Institute (SDPI), Islamabad.