Violetta Zentai

Women and Men in Politics: 
divided and dividing opportunities

The social and political changes brought about by the past ten years have contributed to the development of democracy in most post-socialist countries. These democracies are not of the same quality: some function better, and there are some at a lower level of development at present. However, the new institutional system of democracy has not become open and receptive enough to provide equal opportunities for men and women in political decision-making. What is more, in most countries in the region the proportion of women in legislative and governmental bodies plummeted in the 90s. This is an unfortunate phenomenon, because the balanced participation of women and men in local and national politics is the prerequisite for democratic decision-making and efficient public policy.
Social researchers, experts, politicians and activists have been making attempts to find the reasons for the reluctance of post-socialist democracies to promote emancipation and recommend different solutions to solve this problem. These efforts, however, have not been accompanied by triumphant success so far. But because initiatives targeted at emancipation only rarely result in a spectacular breakthrough, there is no reason to sink into bottomless despair. As compared to the situation 100 years ago, in modern political systems the principles of fairness and justice prevail. In this spirit the Foundation for the Women of Hungary (MONA) and Friedrich Ebert Stiftung (FES), Hungary, organised an international symposium with the participation of the representatives of political, social and professional organisations in November 2000. The objective of the symposium was to reveal the opportunities and impediments of the balanced political participation of women and men in the decade after the transformation of the political, social and economic system. In their work the participants of the symposium relied on international experience and the conclusions drawn from Hungarian public policy. The lectures and discussions shed light upon the conceptual, strategic and practical problems of balanced political participation. Among them were the arguments for and against the quota system, the mechanisms followed in the nomination procedure of party candidates, the competence and strength of civil organisations, the role of institutions which influence public opinion and the techniques to promote women candidates at elections. 
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The virtually invisible presence of women in the decision-making mechanisms of public policy and governance is not a uniquely Central- and East- European feature. We can be absolutely sure that there is no society where women have exactly the same opportunities in exercising the legislative, executive and judicial power as men. The same applies to the economic sphere. However, we must admit that women’s participation in the highest levels of public policy does not only enhance social emancipation, which is a slowly developing area, but it also improves the quality of democracy. By means of the increasingly proportionate representation of women and men, the ‘other half’ of the society can also exercise its political rights. This ‘other half’ suffered direct or indirect discrimination in the past, which hindered its political involvement. It can easily be understood, even without any specific theoretical reasoning, that the extension of this right serves the ‘common good’. The collaboration between women and men in the organisation and execution of social activities beyond the borders of private life provides an encouraging perspective of collective wisdom and responsibility. 
Emancipatory movements often aim to establish a universal set of criteria, which is applied to women and men equally in judging their rights, abilities and suitability for leading positions in public policy. This objective is partly rooted in the overwhelming desire that the traditional idea of womanhood as being close to nature, motherhood and family should be replaced by a more complex view. This new view, new approach should enrich the role of women and men, and put them on an equal footing. In the important cultural tradition of western civilisation, the involvement in public policy is based on the separation of the private and public sphere. Certain impacts of this tradition are criticised by modern emancipatory trends and recently by various other schools of social criticism. This is due to the fact that despite all its major achievements, some traditions of modern culture attach unequal values to gender roles by putting them into separate legal, physical and symbolic categories. This together with the separation of the private and public sphere imprints the inequality of gender roles on public thinking. 
The general term of ‘governance of public affairs’ more or less coincides with the broad interpretation of politics. When we narrow the concept of public affairs down to politics, we intend to emphasise an area which is instrumental in establishing equal opportunities for women. According to a relatively simple definition, politics include the formal and informal institutions of exercising power. We have to bear in mind that in modern societies the branches of exercising power are separated and regionally divided. When we talk about the political participation of women, we primarily think of the decision-making bodies and positions in the legislative and executive (administrative) power.  

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In the delicately woven net of social processes numerically quantified and expressed principles and values often seem to be artificial. The strong repulsion for figures is partly generated by the quotas of state socialism, which evokes painful memories. The gender roles and the sexual identity of individuals is so closely related to complex forms of thinking and choices that  - at first sight - figures seem to be completely out of context. However, these gender roles are often embedded in situations of blatant injustice and unfairness. To be able to express and question these practices, we need the information that figures convey. We need the power of figures to reveal the truth and be persuasive. Though the quantitative proportions do not always reflect the real distribution of power in the various segments of public policy, situations where extreme disproportion can be observed call for criticism and explanation.
It might seem a hopelessly naive or an extremely pugnacious standpoint that the action plan adopted at the World Conference of Women held in Peking in 1995 recommended that women’s participation in political decision-making should reach the threshold of 30%, and increase to 50% in the long run. The UN Convention on ‘The Elimination of all Forms of Discrimination against Women’ sets objectives which are less exactly measurable. The Convention also describes the discriminative procedures and impacts which impede women’s political involvement. Though the Directives of the European Union promoting equal opportunities focus more on the world of work, they also advocate a more proportionate political participation between men and women. This is a major objective in the Europe of common values.
In the period between 1995 – 2000 women’s participation in political decision-making increased world-wide from 10% to 12% on average. This practically invisible improvement does not reveal the significant differences in the statistics of continents, countries and groups of countries at the end of the 90s. In Scandinavian countries the rate of women’s participation in national legislation reached 38%, and on the two American continents it was 16%. As compared to these figures, in Europe and in Asia this rate was approximately 13%, in sub-Saharan Africa it hardly reached 12%. The situation is somewhat better in local governments. Women’s participation rate is 23% in the USA, and 20% in Europe in the elected bodies of local governments. The European average, again, covers considerable differences: In Sweden the rate exceeds 40%, while in Turkey it is lower than 4% (UNDP, 2000). In an increasing number of former socialist countries, the proportion of women in local governments is significantly higher than in their national legislation. In Hungary the ratio is 22% - 8%. In Bulgaria: 21% - 11%, and in Latvia: 39% - 17%  (UNICEF, 1999). 
Generally speaking, the rate of women MPs is higher in national Parliaments dominated by liberal and left-wing parties. In Germany and in the Netherlands the rate of women MPs exceeded the symbolic 30% after the elections in 1998. In Great Britain after the elections in 1997, which was won by the Labour Party, the rate of women MPs doubled (18%). The case of Spain after 1996 runs counter to the above statement: in the newly elected Parliament, dominated by the right wing, the rate of women MPs rose by one-third (to 24%). Though we think that the developed western world is ways ahead of us in the institutionalisation of democratic achievements, we have to admit that the participation of women in the Czech Republic and Poland was higher than in Italy or France (on the basis of statistics from 1996). Moreover, if we examine the rate of women in top-level governmental positions, we might be taken by surprise: in 1996 Slovakia with its fledgling democracy was the closest to the OECD average in Central – and Eastern Europe. Similarly favourable statistical data was recorded in Croatia, which was not the paragon of democracy (to say the least), and in the strongly centralised Kyrgyzstan. The other phenomenon (not self-explanatory, either) is that in the post-socialist countries there is no statistically significant correlation between the number of parliamentary seats and ministerial positions taken by women (UNICEF, 1999). In contrast with this, in the OECD countries a parallel development can be observed in this respect. Supposedly, this can be explained by the stable and constant increase of women’s participation in these countries during the past 50 years. 
As we have seen, figures reflect important tendencies, but they frequently hide the specific, local features of the inter-action of political culture and gender-related public thinking. Neither do figures reveal the reasons for the specificities. 
In the Scandinavian countries, which have achieved the most outstanding results with respect to equal opportunities for women, several favourable conditions and circumstances coincided and contributed to the achievements. In these societies, primarily in Sweden and Denmark, the system of social relations is pervaded with very strong norms of solidarity. One of the consequences is that family – related tasks and responsibilities are divided between men and women. The high level of state involvement in social policy and the system of family provisions, which promotes the employment of women, also encourage women’s political participation. Besides introducing the universal and full suffrage early on, the Nordic countries in the 60s and 70s pioneered in the revolution which gave individuals the freedom of choice in sexual and gender-related matters. Conservative parties also accept certain liberal principles concerning the individual’s freedom of choice, which has a positive impact on the process of emancipation. However, the wind of conservative political changes also swept through the Nordic countries in the 90s. Even Sweden, who had the best indicators, was unfavourably affected by the conservative breakthrough: the number of women in high-ranking decision-making positions dramatically dropped – for the first time since 1919. As one of the speakers at the symposium pointed out, the Swedish society had accumulated significant cultural and moral capital, which allowed them to launch courageous and witty actions in the mid-90s. The main objectives of these actions were to make citizens recognise the importance of achievements in the field of emancipation and encourage them to preserve these values.

The symposium did not discuss in details the differences which divide the social and intellectual movements related to the equal rights of women. Neither did it want to hide these differences. They manifest in several ways, the most important of which is what we think of the nature of male and female gender roles. More precisely: do we believe that the abilities of men and women are determined by nature and the gender roles are built on these natural abilities, therefore these roles are not inter-changeable? Or do we believe that gender roles derive from various choices and limitations determined by a particular society and its culture? No matter which stand we take, the current social relations can be criticised along similar lines: the absence of women from political decision-making is not realistic, not just and is not beneficial for the society. At the same time, the division concerning the different views of the roles nature has ordered us to play also leads to differences in public thinking on politics.
In various theories on women’s role in politics there is an idea which appears quite often, but the organisers of the conference find it difficult to justify. According to this idea, women’s participation purifies politics, washes off the dirt, eliminates the exceeding and notorious violence and combats dishonesty. Women’s natural, intrinsic desire for peace, empathy, purity and more community-oriented thinking guarantee their beneficial contribution. None of the speakers at the conference fully represented this view, but this motive appeared here and there in the discussions. The fundaments of the belief in the more noble political abilities and political style of women were questioned by several speakers, who referred to various historical examples and the classical basic standards of political thinking when justifying their points. We can add that this conviction - though unintentionally -  strengthens the traditional view that kept the majority of women away from public life throughout centuries. The idea that would surround public affairs with the warmth of hearth and home instead of outdated manliness, has very little to say about the institutional framework and rules which should be changed in pursuit of a more democratic political life. However, very few of the participants of the symposium doubt that women’s participation would certainly induce changes to political discourse and the patterns of behaviour. These changes would open up the way for the improvement of the democratic rules of the game. 
The other significant element of political thinking which divides the society is what we think of the relation between the centuries-old subordination of women and the modern political institutions, which emerged during these centuries. This poses a dilemma for the society: does the system of political institutions and democratic achievements of late modern societies have traditions which can be beneficial and efficient for the movements to establish equal rights and opportunities for women? Or do these achievements show weaknesses which lead the movements aiming to increase women’s participation into a dead-end? According to the former critical view, the institutions of western democracies were established by a male-dominated society, rooted in unequal power relations. Consequently, these institutions cannot be receptive to equal rights and opportunities, they cannot foster the spirit of democracy and they cannot enhance equal opportunities. Therefore, the currently existing political institutions and principles cannot be exploited better and more efficiently, but they must be radically transformed. This idea is not advocated by many, but was markedly expressed at the symposium as well.
Those who believe in the opportunities ensured by the democratic institutions expect that the more visible participation of women will lead to the transformation of the institutions themselves. In other words: increased participation will improve the quality of participation, which finally will transform the institutions and the rules of the game as well.

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Political parties are the building blocks of parliamentary democracy, however, their functioning is surrounded by suspicion and dissatisfaction. Recently they have come in for a lot of criticism, as the media give publicity to election campaigns. As the result of the “high visibility”, parties seem to be greedy machines devouring huge amounts of money ravenously, and their leaders often get into corruption scandals. In spite of this, parties are the basic institutions of the representative democracy, so it is indispensable to study their functioning from the aspect of the increased political participation of women. Parties, depending on the electoral system, which determines the conditions of their operation, establish lists and candidates. Parties in Central - and Eastern Europe bear the features of the cut-throat competition which characterised the political scene earlier. On the other hand, they are also marked by the various forms of biased thinking, in terms of gender roles. It is not surprising that while the majority of political parties’ membership often consists of women, the number of active women politicians is shockingly low. Election campaign gurus do not recognise the opportunity of supporting women candidates, even when this would obviously result in a significant increase of votes.
The idea of the quota system appears more and more frequently, as the instrument which is suitable to ensure a more fair representation of women. Such a system would modify the rules of representative democracy. The quota system, which belongs to the tools of the broad category of positive discrimination, was not raised by the changing political systems for the first time. Several lectures delivered at the conference criticised the concept of positive discrimination. At the same time a lot of speakers expressed arguments in favour of the implementation of positive discrimination. According to some people, the quota system gives rise to concerns related to its constitutional nature. Others are of the opinion that the effective Constitution of the Republic of Hungary promotes the quota system, in strictly regulated circumstances. Furthermore, the respect of the basic principle itself (that is: positive discrimination can be resorted to up to the point where it eliminates negative discrimination, in other words: until the conditions of equal opportunities have been met) does not generate public support. Several Nordic and Southern countries have made attempts to apply the contradictory instrument of the quota system, which in many cases was only a short-term policy. The voluntary internal rules set by parties related to the list of candidates have proved to be more successful and supportable initiatives. The quota system that regulates the proportions of political representation is ahead of public thinking, but it can hardly function without some sort of a public support. The symposium did not deal in details with the problem how the position, the experience, the network capital acquired in civil organisations  help women with leadership qualities in political participation. It is obvious that the experience gathered in the civil sphere cannot be fully translated into knowledge relevant in the institutions of representative democracies. The principles and rules of functioning in civil organisations often differ from those of parties. The family-like atmosphere and relations in a civil organisation seem to be partly related to the role of women glorified in bourgeois culture and society. The unconditional acceptance of this association may strengthen the prejudices according to which women have their places in organisations which provide support and pamper their members. This view also expresses the disapproval of women in organisations which engage in fighting, heated debates and prefer fierce competition. If the presupposition becomes widespread that women can best fulfil their ambitions in civil organisations, which are depicted as the opposite of the scene of official politics, women will lose their momentum and will give up their ambitions to undertake the same political responsibilities as men. Rising concerns, however, do not mean the devaluation of the competence of civil organisations and their beneficial contribution to ‘the common good’. It rather warns of the artificial confrontation between the different forms of political action, when we talk about the various forms of women’s political participation. 

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Several speakers of the symposium analysed the institutional and cultural conditions which are the prerequisites for building a demanding political career and playing a role in the family at the same time. Only very few people are in the privileged position to have a helping hand around, either the grandparents or  - in the high-income group families - an au pair, available 24 hours a day. But this is only a minor problem. Sociological and statistical surveys have revealed that the unequal division of labour within the family prevents even the talented and self- confident women from building a successful career. Many of us have faced the shocking experience of the younger generation, whose promising views on the family and man-woman relationship seem to fail as soon as babies are born. At this point the traditional division of household duties prevails. Women who make attempts to find (semi-) solutions to their difficult situations in their families in order to promote their public careers, often receive strong criticism from their families, neighbours and society. A more fair and just public opinion on the legitimate female and male gender roles would obviously alter the individual as well as the institutional practices. It goes without saying that public opinion can partly be changed by the successful political careers of women politicians. This idea was in the focus of the symposium as well.
Women’s level of qualification is very high in the region, in several countries it exceeds that of men. This, however, does not mean that they have the same chances as men to translate their qualifications into concrete action. Leadership skills that can only be partly acquired within an institutional framework belong to the broad categories of qualifications. New political leaders learned the majority of these skills in practice after the political change-over. These skills were further mastered by means of informal relations and practical experience. Most women, however, have no decision-making, leadership and governmental experience and can’t rely on the network of informal relationships. Delayed access to these areas will surely increase women’s disadvantages.
How does the higher participation rate of women influence the content of political decisions? According to the classical liberal view, women’s perception of the ‘common good’ is theoretically similar to that of men. Most activists of women’s organisations, most feminists suppose that the spectacular increase in women’s political participation would enhance the representation of women’s and family affairs. This supposition, again, is rooted in the traditional conception of gender roles. Another point is that the more recognised and brave political involvement of women would draw the attention to the issues of equal opportunities and minority rights. This idea draws on the sentiments deriving from the history of oppression. The significance of these should be subjected to more detailed research. Many people share the view that women show a stronger social sensitivity in public policy decisions. This has been justified by various research, but these - again - supposedly record the consequences of a given division of labour and roles.
Prejudices concerning the political capabilities of women are the most adamant adversaries of  women’s full participation. This is the most daunting obstacle that has to be removed from the way of development. The biased attitude of the electorate, the political movements that triggered the transformation of the system and the intellectual circles would be worth a separate study. One of the ‘softest’ attitudes appears in the disguise of the traditional bourgeois culture, and shows its traditional division of gender roles: the ‘cute macho‘ attitude is quite common among humane intellectuals as well. We all know the specific criteria of evaluation applied to women candidates and politicians: physical features, appearance, clothing, private life. These criteria are rarely applied in the case of men. Generally speaking, western cultures have developed a more extensive vocabulary and set of instruments to describe the weakness, fallibility, and shortcomings of female public figures. In the case of women, public thinking, primarily the media are eager to magnify the mistakes and shortcomings that public figures happen to communicate about themselves consciously or unconsciously. Time has come when we should morally criticise and transform this practice in compliance with the present-day requirements of political democracy.

References

Women in Decision-making. Report on Existing Research in the European Union. EU Directorate General for Employment, Industrial Relations and Social Affairs, 1998.
Women in Transition. The MONEE Project. Regional Monitoring Report Summary, UNICEF, 1999.
Women’s Political Participation and Good Governance: 21st century, UNDP, 2000.