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Gender in Politics Author(s): Pamela Paxton, Sheri Kunovich and Melanie M.

Hughes Reviewed work(s): Source: Annual Review of Sociology, Vol. 33 (2007), pp. 263-270, C-1b, 271-284 Published by: Annual Reviews Stable URL: http://www.jstor.org/stable/29737763 . Accessed: 11/01/2013 01:24
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Gender

in Politics

Pamela Paxton,1 Sheri Kunovich,2 andMelanie M. Hughes1


of Sociology, Ohio State University, Columbus, Ohio 43210; department email: paxton.36@osu.edu 2Department of Sociology, SouthernMethodist University, Dallas, Texas 75205

Annu. Rer. SodaL 2007.33:263-84 ThtAmmslRtukw of Sociology is online at httpy/soc.aniroali?vicwi,oig dou 10.1146/^^nr?Raoc.33.040406.1316Sl

KeyWords
women? political participation, representation Abstract Women% political participation and representation varydramatically within and between countries. We selectivelyreview the literature on gender in politics? focusingon women's formal political partici? We discuss both traditionalexplanationsfor womenfe polit? pation. ical participation and representation,such as the supply ofwomen and the demand for women, and newer explanations such as the role of internationalactors and gender quotas.We also askwhether women are distinctive?does havingmore women in office make a we demonstrate differenceto public policy?Throughout the review thata full understandingofwomen's political representationrequires both deep knowledge of individual cases such as the United States and broad knowledge comparingwomenfeparticipation across coun? tries. for futureresearch: We endwithfour recommended directions (0) globalizing theoryand research, (J) expanding data collection, forms of womenfe agency, and (d) ad? (r) remembering alternative dressing intersectionality.

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INTRODUCTION
Scholars Formal representation: to legal right participate in politics; the have documented in politics women's since under of representation the middle

pact

this review) were published since 2000.We selectivelyreview the literature, highlighting
important international citations work topic that cover on women covered. both U.S. in politics and for

(only

one

of the many

topics

covered

in

the last century (Duverger 1955,Kirkpatrick 1974, Epstein & Coser 1981, Lovenduski &
1981). But research on in the past the topic accel? 20 years. This

women

Hills erated

each

broad

having the right to vote and stand for office

dramatically is inspired acceleration

creasingly

ipation even within, such women as

divergent and representation countries.

in part in? by women's levels of political partic? both In some and across, and

GENDER INEQUALITY IN POLITICAL OUTCOMES


Women's representa? fight for formal political won. At the turn ofthe twentieth tion is mostly across many had countries century, women to contest established beliefs

countries, Rwanda, in in other to are lack en?

Sweden, have made

Argentina, remarkable

progress

participation countries, the right tirely

and representation. But women continue either to vote (Saudi Arabia) or

a man's domain (Chafetz & Dworkin 1986).


Early suffrage of victories long and were therefore often the result struggles trying national-level see Flexner States, for elsewhere Chafetz As & time

that politics

was

represented

by male

Kyrgyzstan,

Micronesia,

legislators (e.g., St. Kitts, Solomon of national

(for the United see

Islands, United Arab Emirates). As of June liamentsaround the world and 15% and 14%
in the U.S. House and Senate, comprised 17% par?

1975, McCammon in the world, Dworkin went ment on, the

et al. 2001; Morgan

2006, women

1984,

1986, Hannam these national

et al. 2000). women's struggles women's

(IPU 2006, CAWP 2006).


The broad, ical and literature on gender

respectively in politics is

international

move? for polit? political

linked

in polit? addressing gender inequality acts as diverse as voting, campaigning, as well as in differences leading, gender knowledge, socialization, and atti? In place in political theory. focus on women's participation including suffrage, voting,

rights an accepted practice (Rupp & Taylor 1999, D'ltri 1999, Berkovitch 1999). After
World legally without War II, women's sanctioned were political rights in many often countries,

ical rights, helping

to make

political

tudes, and women's this review, we in formal

1986, Ramirez Today, cept men Saudi

resistance significant (Jayawardena et al. 1997, Paxton et al. 2006). countries with women sometimes ex? legislatures vote alongside even in greater

running for and holding political office, and


political differences influence. We in political and as these also touch on gender attitudes, inwomen's concepts knowledge, social move? help inform

politics

in all

Arabia,

in elections, women took

numbers. Once sometimes right States, to vote it gained political rights, them years to exercise their In the United

and socialization ment our activism,

of women's formal political understanding outcomes. We do not consider, except in pass? the women's women's movement, ing, grass? roots activism, women in the women judiciary, in the or affects women, military, how politics outcomes (such as abortion) relevant to

or stand for office.

for example, women received the vote in 1920, but women's voter turnout nationally 1996, Burrell likely (CAWP women to vote 2006), vote women are more Today, than men in the United States and across most countries

did not equal men's until the 1980s (Andersen


2004).

policy women. Our

knowledge Indeed,

of women the

in politics

is still

expanding. For

literature

on women

in politics could be described as exploding.


over 100 new example, case studies of quota country adoption and and re? im

to men. Yet fairly similar are women more to vote significantly likely than men in countries such as Barbados and Sweden, whereas

at rates

gional 26j.

likely to vote in Romania and India (Pintor

they

are

considerably

less

Paxton ? Kunovich ? Hughes

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& Gratschew 2002). And although women


have the legal right to vote and stand for elec? tions in almost every country of the world, to women's use of their po? cultural barriers

(see color women such

insert)

demonstrates important

that

although

have as 20%

reached

milestones, leg? over? over 10% fewer Descriptive representation: numeric similarity between legislative bodies and the electorate represent they in terms of

islatures

litical rights, including familyresistance and


illiteracy, remain (Pintor & Gratschew 2002, in

representation in many countries, remains have

in national women's

all representation 60% of countries women in their

low. Although at least reached legislature, 10% 30%

Moghadam
Research policy choices,

2003).
also documents party of gender affiliations, political gaps vote partici?

national

have crossed the 20% and 30% barriers. By


February nations parliament. Presidents leaders the top prime ministers, are also men of countries, typically Bandaranaike a modern became country and 2006, had only more about than of sovereign women in

preferences, and forms

pation
Conover

(e.g., Shapiro & Mahajan


1988, Manza & Brooks et al. 2004; review). Within of the gender see Kaufmann a society, often

1986,
Box 2006 the size varies

gender, race, or other ethnicity, demographic characteristics; women achieving high percentages representation legislatures in

1998,

Steffensmeier for a recent and direction

(Jalalzai 2004). Indeed, since 1960, when


Sirimavo male the first fe? (Sri Lanka), to lead

of

across different formsof political significantly


action. dential For the 2004 presi? example, during in the United States, men campaign more money than women, are but just as likely to volunteer the United there States, in women's ethnicity, political and class

gap

only 30women have become the top political


executive 2007). top And many of their country (Paxton & Hughes to the ofthe women elected

contributed women 2004). across were In

(Burrell also

differences race,

participation (Burns et al.

Welch & Sigelman 1992; 2001, chapter 11; Bedolla & Scola 2006). 1993; Hardy-Fanta
are less example, politically or black women active than white in voting, on and offi? working campaigns, contacting Latina cials (Burns et al. 2001, gaps Gender chapter also vary across 11). countries. For For women

in their country, es? leadership position in Asia and Latin had fa? America, pecially mous husbands or fathers who them preceded in political life (e.g., Indira Gandhi, Corozon Aquino). dearth Cabinet of female positions faces, show a similar are far and women

more likely to hold cabinet spots in health,


education, or "women's with finance affairs" than posi? (Davis tions associated or defense

women example, whereas cally left party affiliations tries such women as the Netherlands politically are

report more than men

politi? in coun?

1997, Reynolds 1999, Siaroff 2000, Borelli 2002). With 14% women in the Senate and 15%
in the House States of Representatives, the United far from leads the world inwomen's po?

and Denmark, men right of in

to the

And

Spain (Inglehart& Norris 2003, chapter 4).


explanations countries. In a for these study of gaps vary across democ? 10 advanced

litical representation (IPU 2006).Women hold 23% of seats (CAWP 2006). Women
slightly better at the state level, where

do
they

are

racies, Iverson& Rosenbluth (2006) conclude


that both participation characteristics ket conditions) gender gap individual (e.g., women's and marital status) labor force and societal

also only a small percentage of top executives across the U.S. states. Fewer than 30 women have served

rates and labor mar? (divorce are needed to understand the for leftist parties. formal political repre? for granted, the strug? remains. all elected 1

in 2004, women held only 10% of these posi? tions (CAWP 2006).
A discussion belies of global significant trends, or a sin? gle country, and within presents national some variation across 1

as governors

since

1925,

and even

in support

women's Although sentation is now taken gle and for descriptive gender

of the world. Table regions historical trends inwomen's regional legislative

Indeed,

representation across inequality persists.

appointed

positions

Figure

participation along with of regional research. Look? at the table, it is clear, on the one ing hand, examples ? Gender inPolitics

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26$

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Table

1 Historical

comparison

of the percentage

of women

in parliaments

across

regions

and selected

regional

readings

Scandinavia

10.4

9.3

16.1

27.5

34.4

38.2

Haavio-Mannila

et al. 1985, Karvonen

&

Selle

1995,

Western Industrial
Eastern Europe

3.6 17.0

4.0 18.4

5.5 24.7

8.6 27.0

12.8 8.4

22.7 15.7

LatinAmerica Africa Asia Middle East

2.8

2.7

5.2

8.1

10.0

17.1

Bergqvist1999_ Norris 1985, Norris 1997, Kitrilson2006 Madand & Wolchik 1998, Rueschemeyer1994, Jaquette & Montgomery2003_ & Crake & Molyneux 2002,Jaquette Craske 1999, Wolchik 1998 2006 Goetz & Hassim 2003,Bauer& Britton & Nelson 1986, Chowdhury1994 Jayawardena

1.0 5.2 1.2

3.2 5.3 1.2

5.3 2.8 2.9

8.0 5.6 3.5

9.8 8.8 3.9

16.3 15.3 8.1

Karam 1999; Chairad 2001 Moghadam 1994,


when explaining women's within a levels single

that Scandinavian other

Middle East has persistendy other hand, the


had the lowest average levels of female repre? sentation. in Latin Although America, women's Africa, show and representation theWest pro?

all nations have surpassed in their levels of women's polit? regions at all time ical representation the points. On

of

across theworld (Randall 1987,Norris 1997, Paxton 1997). Supply-side factorsincrease the pool of women with thewill and experience
to compete Alternatively, acteristics against men for political factors electoral are office. char? or demand-side of countries,

cal representation

country

politi? or

gressed slowlyuntil 1995, in themost recent


decade doubling nations For these regions their for these substantial growth, Expla? region. in previous gains percentage. differ across

political parties that affectthe likelihood that women will be pulled into office from the supply of willing candidates. A third tradi?
tional

systems,

Latin America (Htun 2005), and armed con? flict spurred growth inAfrica (Hughes 2004,
Bauer 2004). Eastern Europe demonstrates levels of women's that high representation as Marxist-Leninist need not be permanent; countries transitioned to

example,

quotas

were

instrumental

liefs and attitudes influenceboth the supply of and demand for female candidates (Paxton & Kunovich 2003; Inglehart& Norris 2003,
chapter 6; Arceneaux tions stress the role tional actors as gender and 2001). and Newer power of explana? interna? such

explanation,

culture,

stresses

that be?

levelsof representationdeclined precipitously (Mailand & Montgomery 2003). Finally, it is


important to remember that women's tive representation deed, that Scandinavia lead the world varies within aside, many regions. legisla? In?

democracy,

women's

institutional

regulations

quotas.

of the countries parliamen? includ? Cuba,

Supply-Side Not
tics. Supply-side

Explanations
arguments acknowledge that

in women's are non-Western, Costa Rwanda,

all types of people participate in poli?

tary representation ing Argentina, Guyana,

Burundi,

Rica,

political participation requires both personal


characteristics knowledge networks, nomic such as well civic as interest, as resources skills, The education, supply ambition, such and and as time, eco? avail?

andTanzania (IPU 2006).

Mozambique,

South Africa,

EXPLAINING WOMEN'S IN REPRESENTATION FORMAL POLITICS


Researchers traditionally distinguishbetween
supply-side i66 factors and demand-side factors

resources.

of women

able for political office is therefore deter? mined partly by gender socialization, which
influences women's interest,

ambition regarding politics, and partly by


large-scale social structures, which enhance or

knowledge,

and

Paxton ? Kunovich ? Hughes

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limit women's employment. interest oped

opportunities

for education

and

The gender gap inpolitical knowledge and


iswell established. Across both devel?

prive

for children, patterns that may de? caregivers women to par? of the free time required but see Burns et al.

ticipate in politics (Corrin 1992, Chhibber


2001, chapter to the are ac?

2002;

women (Burns et al. 2001, Chhibber 2002,


Frazer U.S. & MacDonald men scored 2003). the equivalent For example, of an addi?

are con? and developing countries, men to more be in interested sistently found pol? itics and have more than political knowledge

10).
Supply-side financial needed and arguments human also point that capital and both

to run for office

that can be

tional 2 3/4 years of schooling on objective


tests of political women (Verba knowledge et al. 1997; with compared but see Mondak

education and quired through employment. As we might indi? therefore, expect, among viduals differences between men and women important expla? in political participation also expect that (Burns et al. 2001). We might state- or national-level inwomen's differences for differences levels of education their Across levels could explain differences representation. there has been lit? that the is a pre? (e.g., in in levels of education are an

nation

& Anderson 2004). The U.S.


political race and Latinos, interest and knowledge

gender gap in
also varies by and

blacks, ethnicity. Among whites, black women have the smallest

der gap (comparedwith blackmen) in politi? cal knowledge but the largest gap in interestin
national least politics. interested are Latinas the consistently in and of knowledgeable poli? et al. 2001, all 11). Across chapter children or is even re? gap disappears and teenagers (Alozie ambition who is even more decides crit?

gen?

of parliamentary however, to support of women

countries,

tle evidence percentage dictor of

the argument in education representation

tics (Burns races, versed

Paxton 1997, Kenworthy & Malami


But sure it is difficult of education In to establish that

parliamentary

1999).

this gender

among et al. 2003). Direct ical for

a mea? single across is appropriate States, an law and impor? in such female

all countries. other tant

the United

political understanding

professional path, and

to run for

office.Fox & Lawless (2004) compared men


and women likely ness, women pire to in the four U.S. political less professions found most busi? that yield candidates?law,

having

provide degrees more women

& Wilcox
& Fox

leads pipeline occupations state (Arceneaux legislators

to more

2001, Norrander

education, are much

and politics?and

2005) and state executives (Oxley

2004).

in aspiration is that these women were less likely than men in these pro? fessions to view themselves as to run. qualified were Women to run for of? also encouraged fice less often than men. Women's low levels of political ambition may also to a of female political paucity Interest fewer or ambition be attributed

to political for this difference

men to as? likely than office. Part of the explanation

of education sufficient (Johnson

But in seven years Uganda, and English skills are language educational credentials for women et al. 2003).

on research has individuals Similarly, found that some types of pro? employment vide women with financial resources, practi? cal skills for works, debate et al. social organizing, expanded and more to discuss opportunities politics (Andersen 1975, net? and

role models women to

Schlozman find? consis?

(Campbell & Wolbrecht 2006).


aside, resources to participate and around have of the necessary in politics. have Time resource, partici? in politics still

ings

1999). But like the cross-national on education, researchers do not

pate is a critical women

the world

less time than men. Women

&

a positive effect for women's la? tently find on women's bor force participation legislative outcomes across countries (Rule 1987, Moore

Shackman
Gray

1996, Paxton & Kunovich


versus Paxton 1997,

perform as cooking

the lion's share of domestic and cleaning and are

tasks such the primary

2003,

et al. 2006

Kenworthy & Malami

1999, Kunovich &


? Gender inPolitics 267

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Paxton ticipation Women's Asia may

2005).

But

the proper dominance

is labor force par? again, measure in all contexts? of factory labor across

counted

forwhen

futurepolitical gains (Darcy & Choike 1986, Darcy et al. 1994, Palmer & Simon 2006). A
wide ences differ? factors generates range of political in the demand in? for women's political In broad terms, a level country's context inwhich into politi? political the elec? structure

predicting

women's

possible

boost women's

tion rates, but supply women

will benefit them politically (Mailand 1998,


Kunovich labor sarily power & force Paxton 2005). Indeed, does have or women's neces? participation indicate that women either in a company The not

labor force participa? to such work roles are unlikely or skills that with experience

corporation.

sets the of democracy general women contest seats or are cal positions. system toral also system Specific and

placed

features

ofthe

economic

affect demand,

in their own

including the presence and Political

homes (Blumberg 1984,Chafetz 1984, Staudt


1986, Karam search or that as part 1999). considers cross-national as managers also exten? from re? women

of professional results but

occupations suffers

finds mixed

sivemissing data (Paxton 1997,Kunovich &


Paxton 2005 versus Kenworthy & Malami

and party parties leaders also pull women into or push women out of the at the indi? And process. political or less vidual level, voters may be more likely to support female candidates over their male quotas. counterparts. on the broad considers and how

of gender

1999).
ac? also gain skills from nonwork as or move? tivities such social volunteering ment In the United activism. States, women Women use the civic skills and networks associations gained from their voluntary 2001, to make the tran?

Democracy. environment, racies, regimes rules parent, women system

Focusing research

political democ?

semidemocracies,

authoritarian po? the trans?

access to shape women's political sitions. On in democracies the one hand, of the political well detailed, to see how to attain hand, game and they power should consistent, can work (Paxton be

sition to politics (Kirkpatrick 1974; Burns


et al. of chapter women's 9). And across a range in the countries participation and in grassroots

helping within the 1997). On

women's

movement

activism

the other

in the absence

of true elec?

provides themwith both political experience and political ambition (Fall?n 2003, Bauer &
Britton 2006). Indeed, some Rwandan non? governmental leaders complain organization are drawn that the best women in civil society or named into government to commissions or (Longman 2006, p. 138). Volun? (Burns churches

tions, women when citizens

Matland & Montgomery 2003). For ex? 2002,


ample, the remaining Marxist-Leninist tries of the world maintain informal coun? quotas

can be even into power placed not do them (Howell support

leading to comparatively high levels of fe?


male con? Given legislative representation. on this one should not flicting theory subject, be surprised that large, cross-national stud? ies do not find that democratic countries have women countries in parliament (Kenworthy Some than less demo? 1999,

ministries

tary associations, et al. 2001, connections portant women

including 9 and chapters

(Hardy-Fanta that minority and lower-class ways are drawn into participation.

11), and personal 1993) are also im?

more cratic

& Malami

Reynolds 1999, Paxton & Kunovich 2003, Demand-Side


Features of the game women ical power. high 2?8 and Paxton

Explanations
systems and how strongly shape influence the rules whether

et al. 2006).

evidence

suggests in demo? when

that women cratic

are less well (Paxton regimes

represented 1997). transition of women

of political can attain,

systems the

Indeed,

authoritarian racy,

to democ? can de?

In the United reelection

they attain, polit? States, for example, rates must be ac

incumbent

cline (Waylen 1994, Yoon 2001,Matland & Montgomery 2003).

representation

Paxton ? Kunovich ?Hughes

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An

open should

debate

is whether

women's national

rep?

resentation latures

in nondemocratic be treated in

the same

legis? as women's bodies. or leg?

in New example, women won 43 %

Zealand's of PR

2005 party-list

election, seats but

only 20% of the plurality-majoritydistricts.


of Similarly, state women are in a greater the U.S. districts 2002b; under typically see legislators some multi-member Sanbonmatsu 1994, pp. do these proportion states that (Arceneaux also Darcy be?

representation Certainly, whether

effective

elected

or not. is a democracy in And women's presence high numbers may to be less meaningful if they are unable country

islator fundamentallydiffers depending on


a

the meaning

of candidate

use 2001, etal.

160-66). better PR have systems higher dis? i.e., the electoral of rep? (Rule

Women cause

truly affectpolicy (Goetz & Hassim


these reasons, in some researchers sider women politics (e.g., Mailand argue is visible solely 1998). that

2003).
con?

systems

For

in democratic Alternatively, the position of prestige sym? with

district

trict and party magnitudes, or party sends a larger number to the national

regimes other

resentatives

researchers

1987,Matland & Montgomery 2003). In a


on the bal? district, getting single-member in lot is a zero-sum which process every fe? a male. male In contrast, candidate displaces in multi-member districts, party gatekeepers to balance feel pressure their published lists of candidates across

legislature

parliamentarian in all contexts, bolic power cies alike

and carries women

providing in democracies

and nondemocra 2003). consis? in cross is the system. the votes into general seats and

(e.g., Paxton

& Kunovich

Electoral

system. Perhaps tent and well-documented research on women

the most finding in politics electoral how

national

or in theirown party (Welch & Studlar 1990, Matland 2002).


Gender Recent research has begun quotas. to document the importance of gender quo? tas to women's Over representation. political the past 15 years, more than 60 countries adopted rules

interest groups

in society

importance Electoral systems cast in an election won by parties

of a country's determine get

translated A

and candidates.

simplified distinction is between plurality


proportional In (PR) representation systems. plurality the voters in an electoral systems, majority district represent most typically them, vote and for only one the candidate person with to the majority electoral systems and

or gender quotas?legislation a that certain party require percentage or of candidates to be women. In legislators the first country became in 1990, Argentina to a national the world electoral law adopt in a 17% increase inwomen's quota, resulting in the in Chamber of representation Deputies the subsequent election. Rapid gains like those in Argentina slow and resentation, may no model have led scholars to argue that a rep? of women's

have

In contrast, PR systems typ? voters to vote for a party with a des? ask ically and parties win ignated list of candidates, leg? to the number islative seats in proportion of

votes wins.

votes

Women
office in

they receive.

do better in gaining political


that use PR electoral

steady expansion such as occurred

in Scandinavia,

countries

systems (Rule 1981, Norris


Zimmerman

1985, Rule &

& Malami
& Studlar in countries majority elected system

1994,

Paxton

McAllister 1999, Reynolds 1999,


2002, Paxton both et al. PR 2006). and And, that use plurality women are the PR system

1997, Kenworthy

the ideal or typical longer present for women's in? increasing political & Friedenvall corporation today (Dahlerup Indeed, quotas international in Afghanistan efforts to imple? and Iraq led to

2005). ment some

systems at much than the

simultaneously, rates under higher plurality-majority

sentation

2004, Paxton & Hughes 2007).


But national ways generate gender significant quota

of the largest repre? jumps in women's ever seen & Nordlund (Dahlerup laws do not inwomen's al?

(e.g.,Norris

1993, p. 313; Rule 1987). For

increases

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? Gender inPolitics

26c

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representation. has examined than effective

In recent years, quota why others some at quotas increasing on

research are more women's

parliamentary 2006). tures the such five Scholars of quota law's

representation often focus

(e.g., Dahlerup particular fea?

that may impact legislation effectiveness. Placement mandates, required prevent among parties of party for noncompli leaders fail the top from lists

must be selected and supported by a politi? cal party (Lovenduski & Norris 1993, Caul 1999, Sanbonmatsu 2002b, Kunovich 2003, Kunovich & Paxton 2005, Kittilson 2006).
The characteristics fore matter forwomen. of political Parties there? parties that are further

and legislators. Parties candidates, an individual, or man For gatekeepers: to run for woman, office, he or she political are

as officers,

as two women candidates, women 2004). set may And

burying (Jones ance to

at the bottom sanctions

consequences

if party regulations quota

left in their political tend to espouse leanings to pro? ideals and are more egalitarian likely mote groups traditionally underrepresented

comply with quota But the same 2006). a much produce on the context

(Dahlerup

such as women (Matland 1993, Caul


the United been more States, for example, achieving successful

1999).
women power than only have

(Schmidt& Saunders 2004, Jones 2005).


Another how

may legislation different outcome depending in which is the quota adopted

In have

in the more

leftist Democratic Party.

Party

seeks to explain body of research are quotas adopted. Where gender quo? tas are resisted by male-dominated legisla? or pres? activism domestic tures, women's sure from the international community may

in the Republican 36% of women

Historically, Congress

in the U.S.

been Republicans (Paxton & Hughes


Across creases countries,

2007).

be required (Dahlerup & Nordlund


Krook 2004, Paxton presence facilitate Yet ties, women's tions may Kittilson also 2006). in high-ranking

2004,
par? posi? 2001, see For

positions (Rule 1987,Kenworthy & Malami 1999,Reynolds 1999,Hughes 2004).


Another important distinction across

left party prominence in? in the percentage of women legislative

et al. 2006). Within

ties is the composition of their leadership. If


women may male male advocate in the party elite, they for a greater number of fe? or may candidates better fe? support present in their bid for public of? are

par?

adoption even without

(Caul

these pres?

sures, party a strategic

and government to

leaders may quotas.

example, of quotas leaders

advantage across Latin

adopting

candidates

America,

the adoption legislators is

fice (Caul 1999,Kunovich & Paxton 2005).


Female male party candidates elites may try to support by fe? in elections influencing to can? contributions in party numbers certain leadership can by push? percent?

explained in part by the desire of political


to present their countries as mod?

by male-dominated

ern (Dahlerup & Friedenvall 2005). Compe?


tition among innovation?a or contagion, political party when parties may first one adopting also lead to quotas? another

or list placement party war didate chests. Women positions, further or even influence

in mid-level women's targeting

positions,

in the system (Mailand & Studlar 1996,Caul 2001, Baldez 2004, Krook 2004, Kittilson
2006). forth But to despite the range of theories quota explain adoption, only and cross-national studies to date comparative have sought a case single to generalize 2004; the process exceptions beyond include put a few

party follows

ages ofwomen as candidates (Caul 1999,2 001 ; Tremblay & Pelletier 2001; Kittilson 2006).
If a party innovates electoral with regard to women, And, be? innovations it may cause made male gain advantage. for voters,

ing for party

rules

parties compete one party such by candidates, to other

Caul 2001, Kittilson 2006).


Political parties and party

(Squires

diffuse

as more fe? fielding are if they succeed, to likely & Studlar (Matland parties are resistant the party parties" to change, structure to (Ishiyama

1996). When leaders. demand Politi? women women form may cal parties may 270

parties go outside

differentially

their own

"women's

Paxton ? Kunovich ?Hughes

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Figure 1
Countries achieving political milestones forwomen, 1983-2006.

www.annualreviews.org

? Gender inPolitics

C-l

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2003).

Women's

parties of countries and Russia.

have

been

formed

absence,

researchers

have

turned beliefs First,

to

in a number Japan, Greece, ties do not benefits

Iceland, including But women's par?

and religious membership stand the impact of culture. expect from Table tries into world power in some 1, studies regions regions

regional to under? might coun? in 1997,

as we

in long-term result necessarily to women's (Moser power political

that break

find more (e.g., 1999). are

women

2003). Cultural
Cultural

Paxton

Kenworthy Scandinavian

& Malami countries

Explanations
and

have both

arguments ideological against to cre? in politics women's right participate ate substantial to women's barriers political beliefs that women participation. Historically, or did not have the temperament capability to or that women in be? participate politics,

higher numbers in the past and present.

For example, to typically found of women in parliament

states researchers Similarly, classify U.S. into three, largely cultures. regional, political states with a traditionalistic Southern political culture islative have fewer women in generally leg? or execu? office (Nechemias in 1987) moralistic found

political thought (Okin 1979, Coole 1988, Pateman 1989). It took until the twentieth
century lenge ory for feminist the position (e.g., Pateman political of women theorists in to chal? the? 1989, affect political 1989, MacKinnon about women can

long

in the private

sphere,

were

codified

in

tive office (Oxley & Fox 2004). In contrast,


states with values, in the Northwest and Northeast, mainly have more

women in legislativeoffice (Nechemias 1987,


Arceneaux United 2001). States's Consider, too, that had the a western states, which the right

Williams Phillips 1995,


Today, women's out cultural levels ideas of

1998, Squires 1999).

were the firstin frontier ideology of equality,


the world (McCammon to grant women et al. 2001). important countries. to men source of to vote

representation through? the political from an individual process, to enter woman's to party decision politics, to the decisions made of candidates, selection by voters Women people culine face a day. face prejudice tend to assume that when on election as leaders because is amas? they autocratic than the lead

is another Religion cultural beliefs inmost about women's across has all

inferiority used

Arguments are present and religion from life

dominant been

long

religions, to exclude political, or

women religious

trait. And

leadership women do evaluate negatively

problem?people women more behavior by Thus, made even in countries in

But

around theworld (Paxton & Hughes


the major religions conservative of the world

aspects

of

social,

2007).
are dif?

same behavior by men (Eagly et al. 1992).


where women have they in poli? gains employment to barriers or education,

ferentially views about church

or in their patriarchal the place of women, both in the exam? and in society. For hierarchy promotes and more nonhierarchical readily compared Christianity Orthodox). accepts with (e.g., And

ple, Protestantism religious women

face cultural tics. For

25% example, population are better suited emotion? still says that men to and 15% of Americans ally politics, agreed with the statement "women should take care of running the country their homes up to men" and (Lawless leave running & Theriault

participation of the U.S.

practices as leaders religious Catholicism and Orthodox Orthodox or Russian

Greek Islamic ner

that

law is typically interpreted constrains the activities 1992; see also Meyer demonstrated numbers

in a man? of women 1998). coun? ad?

(Ahmed Researchers tries with herents lators

et al. that

2005).
When political states, ically attempting across nations representation concrete measures of culture available to researchers. to understand women's or U.S. are In typ? their

have

large are more

of Protestant of female

than

supportive countries with

not

Catholics,

Orthodox

legis? of large numbers or Muslims Christians, ? Gender inPolitics

www.annualreviews.org

271

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(Paxton 1997, Kenworthy & Malami Paxton & Kunovich 2003).


Substantive representation: advocating the interests and issues of a group; ensuring forwomen, that As surveys we have of attitudes expand across

1999,
the

ever, well crease

female as men.

candidates Across 73

do not

as always do a 1% in? countries, candidates in female re? legis?

in the number a 0.67%

of female increase

that cul? evidence increasing globe, in tural beliefs toward women vary politics across countries For example, widely today. men make better polit? when asked whether ical swer and leaders than women is between In contrast, is between & Kunovich demonstrated do, the average an? inNorway

sults in only

lators (Kunovich & Paxton 2005). Influences


factors

International
In addition already, recent

politicians speak for and act to support women's issues

disagree. erage answer agree have (Paxton recently

strongly in Nigeria agree 2003). and

disagree the av?

to the domestic research

discussed in politics

on women

strongly Researchers

has highlighted the role of internationalac?


tors and transnational political influences rights and in further? representa? ing women's

that differences women in poli? ob? across

in surveyed attitudes about tics are powerful predictors served levels of political (Inglehart & Kunovich 2001). countries 6; Paxton (Arceneaux & Norris 2003)

of women's

tion (Ramirez et al. 1997, Staudt 1998, True & Mintrom 2001, Krook 2004,Gray et al. 2006,
Paxton tional tions et al. 2006). Pressure such from interna? Na? organizations, and women's as the United

representation 2003, and

chapter states inU.S.

international

nongovern?

In fact, Paxton

& Kunovich

(2003) found that the effectof country re?


significant regarding views women

mental organizations (WINGOs),


women's suffrage and (Ramirez policies et al. et al. der mainstreaming 2001),

influence
1997), gen?

is no gional membership longer measures when of citizen attitudes women are included. there may in or politics winning, votes be

(True & Mintrom in national And coun? related Con? of

the number (Paxton sign such

of women 2006).

Although about women from running

pervasive

legislatures tries that to women, vention on

international as the United

treaties Nations

that prevent most they do as men,

researchers run, women at least in the

the Elimination

of all Forms

demonstrate receive United

that when

Discrimination AgainstWomen
have more women

(CEDAW),
office

as many States

In fact, (e.g., Darcy sex does not appear to matter to although seem voters to women as female men, prefer et al. 1997, Dolan candidates 1998, (Seltzer

et al. 1994).

et al. 2006, Kenworthy & Malami


see Paxton 2006). persuade hold treaties mestic Further, nations 1997, Hughes INGOs 2004, have been

in political

1999; but
et al. to shown

(Gray

Paxton

influential

Smith& Fox 2001). And stereotypescanwork


in women's favor with (1996, p. 9), voters. "male As summarized are candidates

persons

in government,

accountable

to the international

by Kahn

considered better able to deal with foreign


the economy, defense arms

Sikkink 1998).

do? ratified, and increase they have awareness of women's (Keck & plight

policy,

spending, foreign trade, and farm issues; female are considered candidates better able to deal control,

health care, day care, poverty, education, civil rights, drug abuse, and the environment." on the issues ofthe Depending day, therefore, women may have an edge in certain policy de? bates. better Indeed, advocates if voters of an think issue that women such as are

with

DO WOMEN MAKE A DIFFERENCE?


It is important lation, that women, even as half the popu? in politics appear the same as men. if they legislate But ifwomen bring interests and priorities than inclusion are even

exactly to office different men, The arguments

poverty,

for their

and voters to support 2002a).

care about female

that issue, then they tend candidates (Sanbonmatsu States, how

more powerful (Carroll & Dodson


difference and is between substantive descriptive representation. sentation

1991).
repre? Do

Outside

of the United

272

Paxton ? Kunovich ?Hughes

This content downloaded on Fri, 11 Jan 2013 01:24:49 AM All use subject to JSTOR Terms and Conditions

women answer whether

make

a difference

to

public

policy? To

There lators ple, vote after

is also

evidence

that female For and

on leg? ent political issues, {b)vote differendy islation, {?) introduce differenttypes of bills, and {d) differin their effectivenessin getting
bills passed. in this Before the research summarizing researchers face area, we note the difficulties in trying cians make to demonstrate a difference to that female politics. politi? so inter?

that question, researchers have asked men and women differ? {a) prioritize

differently accounting Swer

than men. for party s (1998)

legis? exam? district

characteristics,

found

that con

were 103 rd Congress of the U.S. gresswomen more to vote for women's issue bills such likely as the Act. The Leave and Medical Family of Republican this gender party created 2002 for a similar pattern Zealand). ference namics Women But in voting was defections women difference from their

(see Gray inNew of defection

Doing

the presence

requires ests as women For

that we

first separate

women's

example, cratic candidates are male or

from the interest of their party. in the United States, Demo? whether they to es? likely that are also

of party power

of a gender dif? aided by the dy? in the 103 rd Congress. also

and politicians, are more female,

and vote for liberal policies as of interest to women. to be defined likely to separate a female A similar issue is how pouse politician's tions in support eral women, female then actions for women of her from her constituents.

party leadershipwith defection (Swers 2002, p. 17). These Republican female legislators
were the not better able to defect from their party in 103rd Congress because their party was in power. after took Indeed, Republicans did continue to defect from their 2002,

more in governing op? parties have to but simul? portunities generate legislation to anger have more opportunities taneously

ac?

If lib? to elect

constituencies

likely a critic that, if a argue might votes for a health care bill, politician acting for women her liberal legislative but only faith? constituents. As? is fur? is

are more

over the 104th Congress in 1994, Republi?


can women a lower rate (Swers party at times, but at pp. 113-15; Besides see also Vega &

she is not

Firestone

fully representing sessing women's

1995). from the bills propose bills that are different of men? Bratton & Haynie (1999) control
for party that women troduce tion and health bills and district are more to reduce bills characteristics and find to in? men likely than gender related voting for existing bills, do women

effectiveness

thercomplicated bypower differentials within


legislative institutions, legislative committee party power, and distinguishing memberships, a set of "women's interests" (Molyneux unique

1985, Berkman & O'Connor 1993,Thomas 1994, Reingold 2000). Not all previous re?
has addressed these difficulties, al?

discrimina? to education, pol?

to sponsor children's

search

care,

issues, are more

and welfare

Swers 1998, Schwindt-Bayer 2006).


That is not to say that we impact finds on know about women's with policy

newer research account though typically does for party and constituent characteristics (e.g.,

icy (see alsoThomas


legislature, duce women bills on women's

Honduran 1991). In the


to intro? likely are no more but rights

nothing

preferences,

politics. Beginning state research on U.S. are more related to

likely thanmen to initiate bills on children or families (Taylor-Robinson& Heath 2003).


And women in Argentina, initiate Colombia, 11% more and Costa Rica, women's issues bills

children, family,and women (Thomas 1991)


and health care and social services

representatives men likely than

that women bills

to prioritize

et al. 2001). Similarly,in Sweden (Wangnerud 2000) and Latin America (Schwindt-Bayer 2006) female legislators articulate different
legislative priorities than men.

(Little

are also more 2006). They (Schwindt-Bayer to introduce bills related to children and likely the and health. family, education, on

Kathlene Interestingly,
a neutral in the Colorado

(1995) finds that


legisla? of Represen?

topic?crime?female House

tors

tatives introduced differentbills than their


www.annualreviews.org ? Gender inPolitics 275

This content downloaded on Fri, 11 Jan 2013 01:24:49 AM All use subject to JSTOR Terms and Conditions

male duced vention more

intro? Female legislators colleagues. on crime pre? bills that were focused or victim's reactive related rights, whereas response, introduction to stricter men were in their introduc? and of dif?

Critical Mass
A final question in is whether women do better of there are more policy when influencing in the work of Kanter them in office. Based (1977), "critical reach scholars mass" a certain and activists use the term

ing bills longer

sentencing

ferent types of bills stemmed from differ?


ences between male and female of, and legislators solutions in to, Are their views crime. Are women effective of the origins

prison

terms. The

to suggest percentage

that when of a

women

will be better able to pursue theirpolicy they priorities (Dahlerup 1988). Research has of?
ten used 15% to signify movement out of Kan more of? for ter's skewed ten cite women But critical group as category. Activists the necessary a difference to

legislature,

theyable to get theirproposed bills passed?To


preserve work comers Indeed, male their own power, men to undermine the power directly of female new? et al. 2005). a pattern meetings women of may

political

leaders?

30% to make

threshold policy.

1955, Heath (Duverger some research suggests in the committee

of the idea of the importance despite mass to advocates female of greater in politics, little evidence

domination

where bills are first discussed and debated


(Kathlene 1994, p. 569). Further, bills receive more sponsored scrutiny, debate, and hostile than male-sponsored testimony et al. 1991). But women can bills (Kathlene be as effective into as men law. turned women in getting their bills state In U.S. legislatures, in successful than men

research empirical a critical that provides reaching mass matters. In for an effect, re? searching search has either looked over time at a legisla? ture to see whether changes when something women hit 15% of a legislature (e.g., Saint representation Germain pares U.S. women 1989, Gray 2002). Or, research com? states with different percentages of to see if more women's they sponsor

are more

getting bills passed that are directly related


to women, 1991). Women as good as men interest broad children, at and families legislatures bills on (education, are (Thomas are topics also of in state passing to women

issue bills (e.g.,Thomas


As

1991, Bratton 2005).

in the larger literature on impact, demon? an effect of critical mass at? strating requires tention to political parties and constituents. in state sponsorship mat? and

health

Bratton (2005) considered whether the


legislatures of bills

care, etc.) (Bratton& Haynie


the U.S. Congress, women

1999). And in
as successful

of women percentage ters for women's their success at

asmen in shepherding all types of bills into law (Jeydel & Taylor 2003). Men are also
no more amend ing, or women likely than other laws, influence channel money to to successfully spend? dis? home domestic their

found more

ling for party that women women's

those bills, control? passing and district characteristics. She consistently of the sponsored no mat?

interest bills

than men,

ter what held,

tricts.Interestingly, Bratton& Haynie (1999)


also find that women are more troduce bills of interest integration research). to in? likely to African Americans and funding of sickle black legislators bills 1995). of inter?

women

(e.g., cell anemia are more

school

And

that as the percentage of in the legislatures of these states rose from around 5% to around dif? 27%, gender in bill ferences dimin? actually sponsorship ished. Even more were better

suggesting In fact, she found

percentage no

effect

legislature they of critical mass.

to introduce likely est to women (see also Barrett across 22 countries and

women

Finally,

(2000) finds that the percentage ofwomen in


the legislature women. is related to policy relevant to

35 years,

O'Regan

found that striking, Bratton able to pass the legislation a smaller per? were when they proposed they of the In her centage legislature. discussing results, Bratton token women points in other out that, in contrast token women to in

fields,

274

Paxton ? Kunovich ?Hughes

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never feel that it is a disadvantage politics may to focus on women's issues. Blanket regarding lie theory bers outcomes assertions by activists and scholars be?

Where we

do we

go from

here?

In this section, directions on current for re? prob?

suggest

four interrelated focusing

search yet to come, lems and

the importance and evidence can have

of critical mass

future promise.

of women

for women.

num? that increasing a effect on negative For classic example,

Globalizing
Researchers

Theory
know a great

and Research
deal about women

on discrimination research sug? sociological as a size increases, gests that minority group's a more to it becomes minority threatening Yoder's suggests theory of intrusiveness women are a small minority, they to their token status to draw attention concerns. But when women increase

in formal politics in theWest,


in countries such as the United

especially
States, the

the majority (Blalock 1967,Lieberson 1980).


(1991)

(e.g.,Norris & Lovenduski 1994), and Norway (Bystydzienski 1995).Much less is ing countries (Waylen 1996,Mailand 1998, Hughes 2004) and in some regions such
as Asia. present Future research understanding must our globalize of women's political and impact by currently known about women in develop?

UK

that when can use women's

in numbers,

and privilege hostility, and discrimination. Indeed, native some evidence

start to threaten the power they to of men, competition, leading this alter? leg?

participation, supports Zealand theWest

(a) determiningwhich theories developed in


apply to the non-Western new theories countries context, for non-Western

representation,

In the New perspective. women when reached islature, 15% ofthe

United States,Rosenthal (1998, p. 25). In the


p. 88) compared legislative men and women's meetings behav? where ior in committee

legislature, women tility toward politicians"

approximately there was a "rise in hos? (Gray 2002,

(b) developing and less developed (c) investigating to other

whether regions or

and regions, and these newer theories globally.

apply

women held few leadership positions and where they held many leadership positions.
She more found that women in the committees were as and cooperative the percentage of women in leadership posi? tions increased. But men were less likely to as women be inclusive and cooperative in? inclusive leadership that both Kanter and Yoder may ing suggests be correct. Women did feel more comfort? creased in power. Rosenthal's find? to be likely

Expanding
appropriate is

Data

Collection
to test

The fieldwill move forwardaswe collect the


data progress being made the collection of data quality and data issues are areas, continue completely especially theories. Although on some fronts, such as data quotas, gender to bedevil research, in some lacking in subnational im? ar?

on

portant eas and on many

&

able using a female legislative style (Eagly


Johnson 1990) when there were more of them in power. But men appear to have been

important amined women's a small

specific parties. Further, case studies have political number outcomes

although ex? already over time cross

within national

of countries,

threatened reduced cooperate.

by female power and subsequently to or their tendency compromise

(for exceptions Studlar 2002, search must

longitudinal see Paxton Paxton expand

research

is in its infancy & 1997, McAllister Future re? on women

et al. 2006). data collection

WHAT IS NEEDED? FUTURE DIRECTIONS FOR RESEARCH


We sive have to summarize the exten? attempted literature on women in formal politics.

measures women's

in politics by (a) developing more precise


of the causes and consequences (b) collecting participation, of political participation; data on women's and

longitudinal representation, ing subnational

and (c) collect? impact; data on women's participation ? Gender inPolitics 275

www.annualreviews.org

This content downloaded on Fri, 11 Jan 2013 01:24:49 AM All use subject to JSTOR Terms and Conditions

and representation women in political

and more parties.

extensive

data on

Addressing
Women are

Intersectionality
not a monolithic group

the Alternative Remembering Women's of Agency


Weldon (2002) can have most admonishes

Forms
to

(Crenshaw 1991, Hill Collins 2000, Hooks


2000). Class, are race, just religion divide women. even ifwomen and ethnicity, sexuality, a few of the that cleavages to need We that, recognize are present, laws are likely to are not at the table

researchers

think"beyond bodies" in understanding how


women today ment an impact in politics. have In fact, some national governments

be designed and implemented in exclusive


ways should cited if minorities (Barrett

form of women's office

devoted

of women (Weldon 2002). An institutional?


ized women's policy machinery produces route to government cooper? single, direct move? ation with such as women's agents, ments, who traditionally act outside a

policy machinery to promoting

or govern? the status

1995,Hill Collins 2000, Richards 2005). As


be clear from review, between information of by in this the paucity of research current research often while Our women are ignoring efforts at the

compares distinctions to present

women

and men women. about

the state

intersections complicated

(Stetson & Mazur 1995, Friedman 2000). Indeed, Weldon (2002) found that across
36 democratic movement countries, a strong women's an ef? acting in conjunction with

disadvantage the fact that

currently countries and

political parties do not keep good records of


the race, of ethnicity, and class backgrounds their politicians. divisions Also, introducing reduces statistical sizes, sample making intersection attention

fective women's of government olence. portant One

the extent agency predicted to domestic commitment vi? but im? challenging for the future is to understand power and influence is

analysis difficult(Bedolla et al. 2005). Finally,


understanding requires greater cross-nationally to the experi? address identities

of the most

topics

how women's

affectedby their actions in both traditional


and nontraditional research must political consider through structures. Future women's substantive acts of

political

ence of women in the global South (Tripp


2000). women Future negotiate research must how in competing

the realm of politics by {a) collecting better


data on the race, {b) moving groups, to (e.g., ethnicity, beyond women; different minorities, difference etc., religion, assessments women of of or

representation (b) women's and outside

individualwomen (Childs & Krook 2006),


movements working the state to promote both within women's in?

{a) the critical

e.g., studying assessments of Black 2000,

terests (Beckwith 2000), and (c) the state ap?


paratuses attempts that constrain to influence or enhance women's and policy from within

without (Charrad 2001, Banaszak et al. 2003).

2005, Weldon 2006); and {c) addressing both domestic and global divides among
women.

intersecting et al. Fraga

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RELATED RESOURCES
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http://www.ipu.org/wrnn-e/world-arc.htm an international & Environment that Organization: Development organization advocates for women's in for and representa? equality global campaigns equal policy see in politics. tion of men and women For information about the 50/50 campaign,

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the center's

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on

economics homepage,

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