From Participation to Power: A Gender-Inclusive Vision for South Asian Democracy
This year marks a significant juncture for democracy in South Asia, as several nations in the region have held pivotal elections that have captured global attention. Against a backdrop of electoral fervor sweeping across 60 countries worldwide, Mexico stood out with two female presidential candidates — a rarity in a global political landscape where only 26 countries currently have a woman as head of state or government. According to UN statistics, gender parity in higher positions of power is not expected to be achieved for another 130 years. Amid these developments, it is crucial to assess the evolution of women’s participation in voting and their representation in politics, and to reflect on the broader trajectory of women’s engagement in democratic and diplomatic arenas across geopolitically and economically important regions like South Asia.
Progress and Trends
In South Asia, women have reached the highest political positions in several countries, often through their family connections. For Sirimavo Bandaranaike of Sri Lanka, the world’s first female prime minister; Benazir Bhutto, two-time prime minister of Pakistan; Indira Gandhi of India; and current prime minister Sheikh Hasina of Bangladesh, their political ascensions were deeply intertwined with their familial ties. Recent research from both India and Pakistan indicates that female political engagement in South Asia cannot be fully understood without examining the role of the household in facilitating such involvement. Yet these connections do not diminish the unique challenges they faced, similar to those encountered by women leaders globally.
Despite the historical reliance on familial connections, recent trends show progress in women’s political participation across the region. Both India and Pakistan, regional heavyweights traditionally characterized by low female representation beyond the upper echelons of politics, have seen significant increases in voter participation among women over the years. Here, we examine recent trends and progress achieved in three South Asian nations — India, Pakistan, and Bangladesh — that have all recently held key elections.
India
While India has been no stranger to women in some of the highest positions of power, Indira Gandhi being one of the most notable examples, the country has also witnessed a transformation at the grassroots level since the 1990s, marked by an increased presence of women in public life. The 73rd and 74th Amendments to the Indian Constitution, which mandated that 33% of seats on the panchayats (village councils) must be reserved for women, led to a tremendous shift. Thereafter, women emerged as leaders and decision-makers, and in several states they made up over 50% of the seats within a decade.
This example of grassroots empowerment likely aided an increase in female voter participation, though not necessarily into prominent political representation.
In the 2019 Lok Sabha elections, 81 women were elected as members of Parliament (MPs), a record number, demonstrating the growing acceptance and encouragement of female political leaders, beyond tokenism. Some states saw more women voters than men, sometimes by large margins. However, despite these successes and a push by successive governments and political parties to increase female participation, in 2024 (before the general elections), India had only one woman chief minister, and women’s representation in the state assemblies was extremely low at 9%.
The recently concluded 2024 general elections did not produce a drastic change. Women’s parliamentary numbers dipped slightly, from 14% to 13.6%, and there is still only one woman chief minister. Of the 74 women MPs, 31 are members of the leading Bharatiya Janata Party (BJP).
On a positive note, India saw large female voter turnout in the 2024 elections, following recent trends. According to the Election Commission of India, a little over 66% of eligible women voters cast ballots, and some states brought in even higher numbers. This steady increase is attributable to several factors, including targeted voter awareness campaigns and improvements in women’s safety at polling stations.
Women voters in many districts outnumbered their male counterparts and influenced the outcomes of several races. This was particularly evident in the northern state of Uttar Pradesh, where women’s voter turnout surpassed men’s, with 57.24% of women voting compared to 56.65% of men. This unexpected trend significantly impacted an election that was expected to be a clean sweep for the BJP. Smriti Irani, the former minister of women and child development, lost the seat she contested in a state that is regarded as a BJP stronghold, highlighting the shifting dynamics and growing political influence of women voters.
Traditionally, women have been excluded from social and economic networks. While change is underway, access to political networks remains considerably low. There is a bias against women, especially in more traditional constituencies, where politics is seen as a place for men. Many male politicians often credit their wives as their most trusted advisers, but these women are not seen as having the same capacity or agency to stand for elections and occupy office. Some political parties have attempted change from within, but these efforts are concentrated among the larger national parties rather than in smaller state parties, explaining the lack of women in legislative assemblies. A new bill, set to come into effect in 2029, mandates reservation in parliament as part of a multipronged strategy for women-led development. However, how this will translate into more inclusive policymaking, and whether this bill can indirectly address systemic bias, remains to be seen.
A central pillar of the election campaign for Prime Minister Narendra Modi and the BJP was the promise to enhance gender equality across India, building on the women-led development agenda that was a mainstay of the 2023 G20 campaign. Now, with a BJP-led coalition government in office, the empowerment of women, for women and by women, should be prioritized as a key area for action and meaningful change.
Pakistan
In Pakistan, the recent elections have shed light on a critical yet underexplored issue: the gender gap in political participation. Despite concerted efforts by the Election Commission of Pakistan (ECP) and other stakeholders, women remain significantly underrepresented in the political sphere. While progress has been made in narrowing the gender gap on voter rolls, the 2024 elections saw a notable increase in female voter participation. Compared to 2018, 2.3 million more women cast their ballots. However, a significant gap in voter turnout remains, with women lagging behind at 43% compared to men at 52%.
This disparity reflects deeper systemic issues. The World Economic Forum’s Global Gender Gap Report 2023 ranks Pakistan 95th out of 146 countries in terms of political empowerment. This is the country’s most pronounced gender gap, indicating that while women may be entering the voter rolls, their actual engagement and influence in the political process remain limited. The political landscape for women in Pakistan is fraught with challenges. While the 2024 election of Punjab’s first female chief minister, even though she comes from a leading political family, is a notable development in terms of women’s political representation at the provincial level, the simultaneous imprisonment of female political activists highlights women’s ongoing struggles in the country.
Furthermore, patriarchal norms continue to constrain women’s political engagement. Societal attitudes often limit their participation to specific roles deemed acceptable by men and by society more broadly. A lack of political knowledge, particularly among women in rural areas, is closely linked to low interest in politics. Additionally, many women find the political arena to be unsafe and unwelcoming, further hampering their involvement. The pervasive sense of insecurity associated with a political career, combined with limited access to political education and resources, deters many women from fully participating in the democratic process. To that end, educational initiatives and awareness campaigns are necessary to empower women with the knowledge and confidence required for political engagement.
A key initiative to address this gap is the implementation of Section 9 of the Elections Act, 2017. This provision empowers the ECP to scrutinize constituencies where turnout among women falls below 10% of the total votes cast, suggesting that certain obstacles may have hindered women’s ability to vote. This legislative measure is crucial for ensuring that women’s electoral participation is not only encouraged but protected. However, the requirement for voters to possess a Computerized National Identification Card (CNIC) remains a significant barrier. For women, particularly those in rural and marginalized communities, it can be difficult to obtain a CNIC or the process is not given priority within the household, thus excluding women from the electoral process.
The education gap is another critical factor. Pakistan has the world’s second-largest number of out-of-school children, with a significant gender disparity: approximately two million more girls are out of school than boys. This educational disparity is, again, particularly pronounced in rural areas, reflecting the socioeconomic and geographical challenges faced by girls. These educational shortcomings directly impact women’s economic aspirations as well as their political engagement and empowerment.
While progress has been made toward reducing the gender gap in Pakistan’s electoral politics, significant challenges remain. Achieving gender parity requires a sustained commitment to addressing systemic barriers and changing societal norms, with a particular focus on enhancing women’s education, recognizing their contributions, and celebrating their leadership. Notably, Sherry Rehman, a seasoned politician and former minister of climate change, emerged as a prominent female figure on the global political scene for her work to promote climate justice. She was featured in Time magazine’s list of the 100 most influential people of 2023 for her commitment to climate action, highlighting the impact of dedicated women leaders in shaping Pakistan’s future.
Bangladesh
In Bangladesh, women have played a crucial political role since the country’s struggle for independence, a common trend across South Asia. Although two women – Sheikh Hasina and Khaleda Zia – have served as prime minister for 31 of the 33 years since 1991, the representation of women in national politics overall remains negligible. The 2024 elections highlight this disparity. According to the Bangladesh’s Election Commission, only 92 of 1,891 candidates contesting for seats were women.
This significant gender gap in politics contrasts starkly with the progress that Bangladeshi women have made in education and other socioeconomic indicators. Bangladesh’s garment industry, a key contributor to its economy, employs over 2 million people, more than 90% of whom are women. Additionally, school enrollments are higher for women, indicating substantial advancements in female education.
Despite these socioeconomic gains, political participation remains a challenge. Cultural and structural barriers persist, as in other South Asian countries, preventing many women from entering politics. The political landscape is dominated by male-centric networks, and societal norms continue to enforce politics as a male domain (e.g., by making financing difficult). As a result, there are limited opportunities for women to engage in political activities beyond symbolic roles or familial political legacies. Additionally, according to the UN Gender Social Norms Index, more than 99% of Bangladeshis harbor at least one bias against women, with 69% believing that men make better political leaders than women. Alarmingly, over 99% of women also hold biases against their own gender, perpetuating the very norms that hinder their progress.
Some initiatives have been implemented to address these disparities. The government and various nongovernmental organizations have launched programs aimed at increasing women’s political awareness and participation. Moreover, the reserved seat system for women in parliament has played an encouraging role in enhancing female political presence. Currently, there are 50 reserved seats for women in Bangladesh’s Jatiya Sangsad (National Parliament), a significant step toward ensuring female representation. However, the effectiveness of these reserved seats has been debated, as they do not always translate into meaningful political power or influence.
The recent elections saw an increase in female voter turnout, reflecting a growing political consciousness among women. This shift was particularly evident in urban areas, where women are becoming more vocal and active in political discourse. Yet in rural areas, as in India and Pakistan, traditional norms and lack of access to political platforms continue to hinder women’s participation.
To achieve true gender parity in politics, Bangladesh must address both the systemic and cultural barriers that limit women’s political engagement. With a female prime minister leading the country for a fifth term, it is imperative that the country create platforms for women’s empowerment both politically and economically.
The Road Ahead: Advancing Gender-Inclusive Democracies in South Asia
Women have always had a complicated history in South Asian democracies. While women have been at the forefront of revolutions and key drivers of independence movements, their participation in governance and politics remains low, especially at the state and municipal levels. To foster gender-inclusive democracies, concerted efforts are needed at all levels. These efforts should go beyond the policies and schemes that governments use to target development indicators; institutional reform, legal precedence, and possible quotas and further reservations are essential for political participation.
Reservations and quotas, however, come with their own set of challenges, but a dedicated time frame could be the way forward. Countries like Nepal and India have seen positive outcomes from such measures and offer numerous lessons for other levels of governance, both within their countries and across the region. Looking across the larger Global South, Rwanda offers lessons for South Asia from its bold vision, decades of collaboration between civil society, and the incorporation of a 30% gender quota into the 2003 constitution. Today, Rwanda is a global leader in women in politics, with an average of 60% women parliamentarians in recent elections.
However, both the Rwandan and Indian stories tell us that reservations and seats in parliament and grassroots efforts do not necessarily translate into empowerment and uplift of women. Cultural and economic shifts are needed along with representation. It is incumbent on civil society to advocate for gender-responsive policies and amplify women’s voices in political discourse, as well as to work with governments and political parties on strategies that are context specific. This includes understanding and combating disinformation, targeted trolling, hate speech, threats, and other forms of abuse targeting women politicians. A 2020 study by Amnesty International showed that one in seven tweets targeting women politicians were problematic or abusive. Societal misogyny against women in public office is rampant on social media, and comprehensive strategies are needed to address the attitudes and norms that perpetuate gender disparities.
Addressing gender disparity in political participation further requires a comprehensive and collaborative approach involving both public and private entities. Political parties must prioritize women’s inclusion through targeted recruitment, capacity-building programs, and internal reforms that promote equal opportunities. Additionally, systemic changes are essential, such as eliminating discriminatory electoral practices and strengthening legal protections for women’s political rights. Establishing training programs to equip women with the skills needed for political leadership, along with raising awareness through media campaigns about the importance of women’s participation in politics, can encourage women to consider careers in politics. Establishing dedicated funding and grants for female political candidates can also help address the challenge of economic barriers faced by many women in the region.
Another pivotal aspect of this drive is educational reform, which goes beyond efforts to increase school enrollment and seeks a more tangible impact on women’s progress in leadership roles. For example, Kerala, a large wealthy southern state in India that fares higher on social indices and Sustainable Development Goals indicators than many other states, failed to elect a single women MP in the recently concluded general elections in India. This highlights the gap between educational and social progress and actual political representation for women, suggesting that even in locations with better educational outcomes and socioeconomic conditions, deeply ingrained biases and structural barriers, as well as a lack of access to financial means, still prevent women from attaining leadership positions.
Promoting gender-sensitive curricula in schools to foster a culture of equality from a young age can emphasize the importance of civic engagement and the role of women in governance. For women already in the political sector, establishing mechanisms for feedback from women politicians and constituents to understand their challenges and needs is crucial. This feedback can inform future policies and initiatives, ensuring they are tailored to address the specific barriers that women face.
The journey toward gender-inclusive democracies in South Asia is ongoing and requires sustained commitment from all sectors of society. By implementing aforementioned reforms and addressing both cultural and systemic barriers, South Asian nations can ensure that women are not only participants in democracy but also leaders and decision-makers. This inclusive approach will pave the way for more robust and representative democracies across the region, harnessing the full potential of their female populations. By doing so, South Asia can set a global example of gender equity and empowerment, contributing to a more just and equitable world.
This article was originally published by Asia Society Policy Institute in June 2024.
