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Received 17 August 2012
Revised 1 March 2013
23 May 2013
Accepted 1 June 2013
Abstract
Purpose The purpose of this paper is to discuss the challenges facing Iranian women in the
workforce. While Iranian womens participation in higher education is exceptionally high, their
participation in the workforce, especially the public sector, is low.
Design/methodology/approach The paper compares the bureaucratic structures in public
organizations with the ideal type of bureaucracy as defined by Weber (1922). Moreover, occupational
segregation, which limits womens choices, is examined as another barrier for Iranian womens
participation in the workforce.
Findings The paper argues that the main reason for the low participation of women in public
organizations is the ill-structured bureaucracies in these organizations. Also, occupational segregation
limits the career choices of Iranian women. Some of the challenges caused by these two factors are the
result of discriminative rules and regulations.
Originality/value The paper contributes to the limited knowledge concerning the issues faced by
Iranian women attempting to enter and progress in public organizations. While literature suggests
that western women also face the same challenges in organizations, the unique characteristics of
Iranian public organizations calls for separate analysis of these barriers in the Iranian context. By
introducing readers to this unique subgroup of employees, the paper represents a starting point to an
important area of research.
Keywords Iran, Bureaucracy, Occupational segregation, Women
Paper type Conceptual paper
1. Introduction
Lower participation of women in organizations, especially at the higher levels, has
been attributed partially to organizational structures rather than womens individual
characteristics (Kanter, 1977). The gendered nature of organizational structure is
exemplified in abstract jobs, hierarchies and common concepts in organizational
thinking (Acker, 1992). Among the organizational structures, bureaucracies have been
criticized the most by radical feminists for their male-dominated characteristics that
repress women (Acker, 1990). Radical feminists who promote fundamental structural
changes as oppose to mere equality (Echols, 1989) argue that due to their hierarchical
structures, bureaucracies create a system of domination where people are controlled by
other people (Bullis and Glaser, 1992). This results in a fragmented and competitive
Equality, Diversity and Inclusion:
An International Journal
Vol. 32 No. 7, 2013
pp. 654-670
r Emerald Group Publishing Limited
2040-7149
DOI 10.1108/EDI-08-2012-0067
The authors would like to thank the assistance of Dr Robert Singh and the anonymous reviewers
in improving this paper. An earlier version of this paper was presented at Eastern Academy of
Management 2012 Conference. They would also like to acknowledge the helpful suggestions
made by those in attendance.
Iranian women
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as the United Nations and the Word Trade Organization, are held by men (Metcalfe and
Rees, 2010).
Participation of women in the workforce can benefit organizations in many forms.
Francoeur et al. (2008) argue that the participation of women in the workplace,
especially in senior management positions, enhances the financial performance
of the organization. Meier et al. (2006), in a study on gender and emotional labor in the
public sector, identified a link between the inclusion of women in the workforce and
the organizational performance of school districts, due to the effects of emotional labor
provided by women. Moreover, research suggests that women often bring fresh
viewpoints to complex issues that help organizations in their strategy formulation
and problem solving (Francoeur et al., 2008). Furthermore, as suggested by
stakeholder theory, heterogeneous groups, including mixed gender groups,
enhance the quality of decision making of the group due to the knowledge,
judgment, creativity and the perspectives offered by these groups (Francoeur et al.,
2008).
Some studies (e.g. Acker, 1992; Fagenson, 1990; Kanter, 1977) identify organizational
structure deficiencies as a source of the limited participation of women in
organizations. These studies argue that organizational structure rather than internal
factors define and shape womens behavior in organizations and form their destinies
(Fagenson, 1990). Based on this perspective, individuals positions in organizational
structures, the number of women in these positions, and the amount of power they
have play an important role in womens limited corporate progression (Fagenson, 1990;
Kanter, 1977). According to Kanter (1977), the majority of women are located in
disadvantaged positions in organizations. Such positions that offer limited power and
advancement to their occupants lead them to develop behaviors and attitudes that
justify their placements in these positions (Fagenson, 1990).
Among organizational structures, bureaucracies have been the most criticized by
radical feminists as a challenge to womens positions in organizations (Acker, 1992).
Bureaucracies create a system of domination where people are controlled by other
people or structures (Bullis and Glaser, 1992). A system of this type does not easily
allow women to enter the hierarchy of command due to the dominating character of the
structures (Ferguson, 1984), and the interactions between individuals in these
structures contribute to maintaining hierarchies favoring men (Acker, 1989). Connell
(1990) identifies this system of domination as the gender regime existing within a
bureaucracy, characterized by the nature of roles historically dominated by women
that hinder their career progression.
Among the challenges created by bureaucracies is the way power is obtained,
maintained and implemented in such structures. As Metcalfe and Rees (2010) mention,
the issues regarding gender are not on women per se but on power relations between
men and women, their access to resources and decision making power (p. 7). In
bureaucratic structures managers need both formal and informal power to perform
their jobs successfully, and the informal power is obtained through developing a
network of relationships (Kottis, 1993). Since women usually have fewer opportunities
to develop networks and maintain informal power, they face more challenges in
advancing their careers in bureaucratic structures (Kottis, 1993). The historical
exclusion of women from the public sphere, along with the fact that women still hold
mostly powerless positions, have led womens voices to be submerged within the
bureaucratic structures (Ferguson, 1984). As a result, womens experience is prevented
from penetrating organization structures.
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the principles of office hierarchy exit and the subordinates are supervised by the
superiors;
repetitive tasks that involve little or no discretion are well managed and
performed, and a clear understanding of the service provided reducing
uncertainty exists.
for women. After reviewing the overall status of Iranian women in the workforce, we
examine how the divergence of bureaucracies from the ideal type bureaucracy in the
Iranian public sector has contributed to womens low participation in this sector.
Because of their divergence from the ideal type bureaucracy, we refer to the structure of
Iranian public organizations as ill-structured bureaucracies.
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article 3 of constitution law of the Islamic Republic of Iran which states that
women have the same right as men do in regards to education and employment;
however, such right is conditional on womens primary role as mothers
(Noshiravani, 2009); and
article 1117 of the civil code of justice states that the husband is entitled to
prevent his wife from holding certain jobs which harm the reputation of the
family or is against family values (Noshiravani, 2009).
Such conditional laws have become an excuse for an employers reluctance to recruit
women, especially in public organizations that are ruled and run by the constitution
(Vajiheh Zadeh, 2001). Iranian employers have a higher tendency to employ men rather
than women (Iravani, 2008) and such discriminative selection, which is somehow
supported by the constitution, bases worker recruitment in Iran on gender and not
on regulated qualifications. This aspect of ill-structured bureaucracy has made it
challenging for women to enter public organizations contributing to the low
participation of women in the workforce.
5.2 Type of authority
Weber (1978) viewed domination as the power wielded by a ruler or ruling class, and as
a necessary factor in bureaucratic administration, as domination confers authoritative
power that one can use to govern the bureaucracy. The legitimization and
institutionalization of power in a bureaucratic structure stems from three types of
authority: traditional, rational-legal and charismatic (Weber, 1922). Weber argues that
each type of authority is appropriate for a distinctive administrative structure and
believes that the rational-legal authority is the most appropriate type of authority for
the modern bureaucracy (Hilbert, 1987; Scott and Davis, 2007). Unlike traditional
authority, which is based on patrimonial systems, rational-legal authority is based on
impersonal factors and formal structures (Scott and Davis, 2007).
Even though bureaucratic structures in Iran possess some of the characteristics of
the ideal type bureaucracy, such as the firmly ordered system of supervisor and
subordinate or the appointed bureaucratic official by a superior authority, these
structures are still ruled by the traditional form of authority that is mainly based on
gerontocracy and patriarchies.
As explained by Weber (1922), the rational-legal authority that exists in the ideal
type bureaucracy allows subordinates to be more independent and to be guided by
their own interpretation of the principles, since obedience is not owed to a person but to
a set of impersonal principles (Scott and Davis, 2007). Lacking the rational-legal form
of authority in Iranian bureaucracies has resulted in a highly centralized system of
decision making in bureaucratic organizations ( Jamshidian, 1994). In the Iranian
administrative system almost all the decisions are made by the organizations manager
( Jamshidian, 1994). Such a highly centralized system of decision making, which is
based upon obedience from a person, results in an ill-structured bureaucracy, since
those in the position of authority do not tolerate much disagreement or debate ( Javidan
and Dastmalchian, 2003).
This traditional form of authority has many disadvantages for Iranian women since
they have to deal with the personal biases of managers as individuals, as opposed to
views based on a set of principles. Since most of the managers, especially in public
organizations, are men and women are challenged with the personal stereotypes of
these individuals.
Many of managers in public organizations still possess the ideology that a womans
primary role is being a housewife, and they easily dictate such ideology in
organizations since they are the main source of authority. This type of discriminative
climate in the work environment, which originates from management, makes entrance
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into organizations and career progression quite difficult for Iranian women (Ghorayshi,
1996). Therefore, in order to be successful, Iranian women have to be twice as
competent and work twice as hard as men in organizations, unless they are related to
the elite families (Zahedi, 2003). They also must wait a long time to attain managerial
positions and have to watch men pass them along the way (Zahedi, 2003).
Thus, authorities are in traditional forms rather than rational-legal forms, leading to
the divergence of Iranian bureaucratic structures from the ideal type. This aspect of illstructured bureaucracies in Iran makes it difficult for women to enter and progress in
public organizations since they have to obey managers as individuals who are usually
very biased toward women.
5.3 Management of modern office
Another characteristic of the ideal bureaucracy is that the management of the modern
office is based upon written and legal documents (Weber, 1922). In Iranian
bureaucracies, despite the existence of documented regulations, they are frequently
disobeyed or are not executed ( Jamshidian, 1994). Managers in public organizations do
not obey the rules on a consistent basis and rely on bribery and relationship-oriented
procedures (Jamshidian, 1994). An example of this disobedience can be found in the low
salaries of Iranian women, despite the existence of documented regulations.
Based on article 38 of the Labor Law of the Islamic Republic, womens and mens
base salaries have to be the same and no womans base salary should be lower than her
male counterpart (Safiri, 2006). However, based on the United Nations Development
Program (2010), the gender gap in terms of income in Iran was as high as 56.32 percent
in 2003. The main reason for such difference has roots in the gender ideology.
Such ideology does not consider women as breadwinners and therefore married
women with children do not receive the same base salary, allowances and benefits
as married men with children (Romstami Povey, 2004). Furthermore, despite the
existence of documented regulation regarding equal pay, the gender ideology overrules
such regulation making the management of modern office based on ideology and not
the documented regulations.
In cases where rules and regulations are not discriminating against women, they are
frequently disobeyed since the management of office is not based on written and legal
documents, but based on managers discretion or ideology. This aspect of ill-structured
bureaucracy in Iranian public organizations makes working for public organizations
an option with small economic value for women and is perhaps among the reasons for
Iranian womens tendency toward self-employment.
6. Occupational segregation in Iranian workforce
Other than the bureaucratic division of labor, the occupational segregation in many
societies has impacted womens choice of preferences, values and attitudes in their
occupational decisions (Sneed, 2007). Many occupations are still gendered, meaning
that some occupations are known to be suitable for men and some are suitable for
women (Acker, 1989). For example, repairing cars is considered to be appropriate
for men while providing childcare services is considered more appropriate for women
(Gutek, 1995). Division of labor provides the ground for legitimating the exclusion of
women from specific workforce areas and leads to devaluation of womens work
(Kuhlmann and Bourgeault, 2008).
Based on gender role theory, occupational segregation results from people
developing expectations for others behavior based on their belief about the behavior
that is suitable for women and men (Eagly, 1987). Based on this theory, masculinity is
compatible with agentic qualities and femininity is compatible with communal
qualities (Eagly, 1987; Rosener, 1990; Williams and Best, 1990). Agentic qualities are
characterized by aggressiveness, dominance, self-reliance and decisiveness while
communal qualities are characterized by emotional expressiveness, empathy, caring
and affection (Ochieng Walumbwa et al., 2004). Therefore, the expected appropriate
occupations for men are those characterized by agentic qualities (e.g. repairing cars)
while for women such occupations are those characterized by the communal qualities
(e.g. teaching).
Occupational segregation not only limits occupational opportunities for both
women and men, but it also reinforces gender-based stereotypes. Occupational
segregation, particularly in government employment, results in assigning individuals
to jobs not on the basis of their capability to perform that job but on the basis of their
gender (Reskin and Hartmann, 1986).
Like their counterparts all around the world, Iranian women also suffer from
occupational segregation and struggle with gendered division of labor, but in a
different manner. After the Islamic revolution in 1979, Iranian women lost their legal
rights to possess several positions such as judges and presidents (Kar, 2010). At the
same time, womens major participation in public organizations began to increase.
The devastated post Iraq-Iran war economy compelled the state to allow more women
to enter the labor market (Noshiravani, 2009), and since then the government has
remained the main employer of women in Iran (Ghorayshi, 1996).
While many jobs were removed after the revolution in the private sector, the
expansion of state bureaucracies created new jobs for women in the government
(Ghorayshi, 1996). However, these jobs are mainly low-paid, low-skilled sales and
office-based occupations, and teaching and health services (Ghorayshi, 1996). Research
by Alizadeh and Harper (2003) shows that after the Islamic revolution, the index
of dissimilarity for occupational segregation increased from 14 percent in 1976 to 31
percent in 1996; meaning that the dissimilarity between occupations held by men and
women increased. With the exception of clerical and service related professions, most
of the other occupations in Iran are now male dominated (Alizadeh and Harper, 2003).
The theories of occupational segregation have classified three causes for occupational
segmentation (Sneed, 2007). Based on the first set of theories, occupational segmentation
results from womens and mens individual choices (Kelly, 1991). The second set argues
that labor markets and organizational discrimination are responsible for the
occupational segregation of women, and the last set of theories focus on systematic
barriers, such as structural patterns, as the cause of occupational segregation (Kelly,
1991). In regards to the causes of occupational segregation in Iran, perhaps all these
theories are applicable. In other words, occupational segregation in Iran has roots in
factors ranging from individual choices to organizational structures, the labor market
and government rules and regulations.
Due to organizational discrimination and societal stereotypes, some Iranian women
may prefer to stay home or hold careers that are perceived more positively by the
public. For example, as Ghorayshi (1996) mentions, women working in offices face
the highest disapproval from their families and the society while those in teaching
receive the most support. This may be a reason why many women prefer to obtain
teaching jobs.
Moreover, the government regulations have greatly impacted the occupational
segregation in Iran. The set of employment policies passed in 1992 ruled out certain
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occupations and professions for women since they were recognized as inappropriate
based on Islamic values (Alizadeh et al., 2000). The purpose of these policies was to
assure that women became skilled workers in the fields exclusive to women
(Bahramitash, 2003). For example, a set of barriers were established based on these
policies in order to prevent women from becoming civil engineers, and some advantages
were offered to women to encourage them to become gynecologists and pediatricians
(Bahramitash, 2003).
Women all around the world suffer from occupational segregation, which results
from the societys definition and categorization of the occupations that are suitable for
men and women. Iranian women suffer from such a challenge even more since in many
cases, in addition to society expectations, occupational segregation is created by rules
and regulations. The extreme occupational segregation limits Iranian womens career
choices resulting in lower participation of women in the workforce.
7. Discussion
Iranian womens contribution to the public and private sector of the economy is
essential (Romstami Povey, 2004). Iranian organizations could benefit from womens
high level expertise and the different experiences they bring to the workforce.
Currently, more than 65 percent of university entrants in Iran are women (Iran
Statistics Centre, 2009). As the second largest oil producer in the organization of the
petroleum exporting countries, Iranian private and government organizations
can benefit from the knowledge women can bring to organizations after leaving
school to enter the workforce. Ultimately, Iranian womens participation in the
workforce brings flexibility and creativity into the work place, leading to the creation
of more opportunities for organizations.
The existence of ill-structured bureaucracies and the occupational segregation have
made Iranian womens career progression very slow. As mentioned throughout our
discussion, the limitations in place by laws and government regulations are among the
major setback for Iranian womens career development. The solution to this problem
relies on the existence of democracy. It is through a representative democracy that
democratic laws, which are fair to all people, are set up by the legislators and the
execution of these laws is assured (Hook, 2010). Having the proper laws in place
and ensuring that those laws are rightfully executed can create the basis for the ideal
type bureaucracy in Iran.
Moreover, as mentioned throughout the paper, in many cases the right rules and
laws are in place, but are not adhered to. In order to reach the ideal type of bureaucracy,
it is important for Iranian organizations to follow the rules in place. Unfortunately, the
high levels of corruption, mismanagement of economic issues and the low motivation
of employees and employers in Iranian public organizations has led to the continuation
of ill-structured bureaucracies which are more disadvantageous to women than to
men. Excluding laws that limit womens career choices and adhering to the rules of
law instead of rules of men will help increase Iranian womens participation in
the workforce.
While having ideal type bureaucracies in public organizations may increase the
participation of women in the workforce, it is does not guarantee the disappearance of
gender inequalities. As mentioned in the United Nations Development Report for Iran
(2010), gender-related issues need to be considered over all stages of development in
Iran. In order to do so, the role and participation of women in the development process
Iranian women
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of Iranian women. This phenomenon has left women with careers not compatible
with their level of knowledge and expertise, but is acceptable in the eye of the society
and the families of women.
As long as such restrictions in the division of labor exist, Iranian women will
continue to face several challenges in their career development. Eliminating these
barriers can increase Iranian womens participation in the workforce, which is not only
beneficial to women, but also to the society as a whole. Given the high level of
education and engagement in entrepreneurial activity of women in Iran, the nations
bureaucracy, due to its exclusion of women, may fail to benefit from the potential
contributions of this demographic. The inability of women to gain employment within
the Iranian bureaucracy forces them to utilize their talents in the private economy,
instead of contributing their talents to the development of the economic system.
Iranian womens participation in the society (e.g. in higher education) in recent years
has increased gender consciousness among Iranians (Romstami Povey, 2004) and their
increasing participation in the workforce can eventually remove the barriers put in
place by patriarchal systems. The replacement of the existing ill-structured
bureaucracy in Iran with one that closely resembles Webers (1922) ideal type
bureaucracy, coupled with the elimination of occupational segregation, can impact
the economic viability of Iran by increasing the overall participation of women in the
public sector. Given the news medias fixation on the struggle for equal rights among
citizens in Middle Eastern countries, any progress toward improving the participations
rates of Iranian women in the labor force will bode well for the perception of the
country as seen by other nations across the globe. This may lead to a subsequent boost
in economic activity as nations once refraining from trade with Iran may reconsider
their decision due to the perceived efforts to ensure equality for women in Iran.
While the focus of our discussion is directed toward Iranian women and how
ill-structured bureaucracies impact them, the influence of bureaucracies is experienced
by women across the globe. In developing and developed nations alike, women are
largely underrepresented within private and public sector institutions. Although
modern bureaucratic structures have remained dominant, serving as the
organizational form of many governmental institutions, these structures have led to
imbalances and inequality in terms of womens representation.
Women have also faced issues such as occupational segregation across various
geographic contexts, leading to the underrepresentation of women, particularly in
fields related to STEM. While nations similar to Iran may embrace regulations that
hinder the involvement of women, modern democracies do not support similar
regulations, but yet the issue of gender representation remains.
In general, we are in support of bureaucracies, but we also believe that the existing
processes and procedures of these structures should evolve in order to reduce
discriminatory effects on women. As scholars gain an improved understanding of
bureaucracies, identifying methods to reduce the discriminatory effects of the
structures is critical to reaching improved representation and equality for women
around the world.
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About the authors
Golshan Javadian is a Management PhD Candidate in the Earl G. Graves School of Business and
Management at Morgan State University. Her research focus is on women entrepreneurship,
women in workforce, gender stereotypes and psychology of entrepreneurship. Golshan Javadian
is the corresponding author and can be contacted at: gojav2@morgan.edu
Isaac Y. Addae is currently pursuing a PhD in Management in the Earl G. Graves School of
Business and Management at Morgan State University. His research interests focus on the
intersection of technology and entrepreneurship, in relation to the role of social networks in
opportunity recognition. Isaacs career experience spans various industries, including companies
such as IBM, Ford Motor Company, Raytheon and Booz Allen Hamilton.
1. Vishal K. Gupta, Golshan Javadian, Nazanin Jalili. 2014. Role of entrepreneur gender and management
style in influencing perceptions and behaviors of new recruits: Evidence from the Islamic Republic of Iran.
Journal of International Entrepreneurship 12:1, 85-109. [CrossRef]