UN WOMEN SOUTH ASIA COUNTRY REVIEW SERIES ON WOMEN'S POLITICAL LEADERSHIP

Gender Responsive Governance in

A Mapping Study

Ms Anne F. Stenhammer
Regional Programme Director
UN Women South Asia Sub-Regional Office
Email: anne.stenhammer@unwomen.org
 Research in UN Women Programme, ‘Promoting Women’s Political Leadership and G
­ overnance in
India and South Asia’
In 2009, the Royal Norwegian Embassy, India signed an agreement with Unifem, now UN Women, South Asia Regional Office to
initiate a three-year programme entitled ‘Promoting Women’s Political Leadership and Governance in India and South Asia’. The
programme aims to empower elected women representatives in local governance to make public policy and resource allocation pat-
terns responsive to women’s human rights. The programme covers 5 countries of South Asia (Bangladesh, Bhutan, India, Nepal, and
Pakistan). In India, the programme is co-owned by the Ministry of Panchayati Raj, Government of India.
The Programme has been designed with the spirit to capture the specific issues and challenges with regard to women’s political
empowerment that each country experiences. This is a demand driven programme that seeks to understand and address issues of
women’s participation in local governance from the grassroots perspective. Generation of a body of knowledge on women’s political
leadership and governance in India and South Asia is one of the key outcomes of the programme.
There are two main purposes of the research component of the programme –
(a) To build a body of knowledge on women’s political leadership and governance in India and South Asia – this is especially signifi-
cant since no on-going programme on women’s political empowerment in the South Asia region is working at the grassroots
level – down at the level of the village councils. This being the value addition of the programme in the region, and there being
very little existing policy literature which analyses governance at its fundamental grassroots institution; this programme pro-
vides an opportunity to develop innovative and unique literature based on experiences from the programme on strengthening
village councils – the structure of local governance closest to ordinary citizens – to enable women as equal and fair participants
and decision makers at the local level.
(b) As we build this body of knowledge, the data gathered from field experiences will in turn help to inform programme implementa-
tion and fine tune the intervention strategies as the programme progresses. Such a large and complex programme is, by nature,
dynamic, and hence useful feedback in terms of baseline data, focused studies such as barriers and promoters of women’s politi-
cal leadership and governance in India and South Asia throughout the course of the programme will be useful for the programme
interventions.

UN Women
UN Women is the United Nations organization dedicated to gender equality and the empowerment of women. A global champion
for women and girls, UN Women was established to accelerate progress on meeting their rights worldwide.
UN Women supports United Nations Member States as they set global standards for achieving gender equality, and works with
governments and civil society to design laws, policies, programmes and services needed to implement these standards. Its stands
behind women’s equal participation in all aspects of life, focusing on five priority areas: increasing women’s leadership and participa-
tion; ending violence against women; engaging women in all aspects of peace and security processes; enhancing women’s economic
empowerment; and making gender equality central to national development planning and budgeting. UN Women also coordinates
and promotes the United Nations system’s work in advancing gender equality.

Disclaimer:
The views expressed in this publication are those of the authors and do not necessarily represent the views of UN Women, the
United Nations or any of its affiliated organizations.

Cover Photos: ©UN Women, http://www.flickr.com/photos/unwomenasiapacific

UN Women South Asia Country Review Series on ­Women’s Political Leadership

Towards Gender Responsive

Governance in Bangladesh
A Mapping Study

Prepared by
Dr. Reena Marwah and Ms. Jeba Lovely
 Message
The mapping study initiated by UN Women aims to develop an understanding of the progress of women in local
politics in Bangladesh through interventions undertaken by Government, donors, development partners and civil
society organizations. This will help identify the gaps where UN Women has a comparative advantage to undertake
interventions for the improvement of women’s participation in local governance in Bangladesh.

Women’s political participation improves democracy by providing public space for discussing human rights and
women’s empowerment. It makes it easier for women to realize their political, civil, economic and social rights.
While there has been progress globally, there is still a long way to go. Women’s political participation is likely to
increase accountability to women which is fundamental prerequisites for gender equality and genuine democracy.
Creating this accountability calls for many changes in the governance issues – that includes building leadership
of women, creating spaces for participation and decision-making, advocating for special measures to ensure
participation of women, mobilisation of women’s groups on access to local resources, sensitising the informal
justice system etc. It will also require systematic advocacy for gender responsive budgeting and planning.

Women’s opportunities and public participation have gone through significant changes in Bangladesh in recent
decades. Large numbers of women are now members of local government councils which are the hubs for rural
and urban development. At the policy level, government has played leadership roles in many policy issues with
strong gender equality agenda, e.g., the National Policy for Women’s Advancement, the 6th Five Year plan and
the gender responsive budget initiative under the Annual Budget and Planning exercise. Women in Bangladesh
have shown gradual improvement in almost all sectors of life based on their own expertise. Leadership by and
participation of women have grown in all sectors although the proportion is still low as percentage of population.

With the aim of making further improvements, I do hope that this report and the subsequent initiatives by UN
Women will pave the way for making positive changes in the lives of women in Bangladesh.

Neal Walker
UN Resident Coordinator
Bangladesh

i
 Introduction
This mapping study of ongoing initiatives in Governance in Bangladesh has been supported by UN Women in 2011.
It helps to identify key possible areas for its intervention to promote women’s political leadership within the larger
scheme of initiatives in the country which aim to promote gender responsive governance.

The Mapping Report offers useful insights about the context and dynamics of women’s political participation in the
Bangladesh. By providing a succinct overview of the system of Governance and legislations/policies in Bangladesh,
the Mapping Report analyses the challenges faced by women in politics and the next generation issues for the
reservation system in Bangladesh. These challenges are underpinned by patriarchal institutions, lack of resources
and effective avenues for women to enter politics in large numbers and constraints of training modules. These
compounds the challenge of marginalisation faced by women leaders in the political set up, even after progressive
electoral reforms (including quotas of women in parliament and local bodies) since 1997. The report reveals the
urgent need for engaging with men and for negotiating political space for women.

South Asia, especially Bangladesh, is undergoing a large scale experiment in grassroots democracy and one where
women’s political leadership is critical. The Report underscores the niche for UN Women in Bangladesh to engage
and promote women’s effective participation through advocacy, networking, research and capacity building;
recommendations that are crucial to promote women’s participation in the political leadership and governance.
The recommendations will offer entry points for UN Women’s South Asia Programme to support women as
effective leaders and champions of good governance. At the same time, the Report provides a way forward for
enhancing women’s political participation and leadership, as the country continues to affirm its commitment to
strengthening women at the local governance structures.

UN Women would like to thank the Government of Bangladesh, UN Agencies, various developmental agencies
and civil society actors for providing insights and concrete recommendations for promoting women’s leadership
in Bangladesh. We would also like to thank Ms. Jeba Khan and Prof. Reena Marwah for taking on this important
study. Thanks are also due to our Bangladesh Programme Office and to the Regional Programme on, ‘Promoting
Women’s Political Leadership and Governance in India and South Asia’ for providing support in the completion of
the mapping exercise.

Anne F. Stenhammer
Representative and Regional Programme Director
UN Women South Asia Sub Regional Office, India

iii
Table of Contents

1. Executive Summary 9

2. Methodology 9

3. Justification and Rationale for the Programme on 9

Strengthening Women’s Participation and Leadership
in Local Governance in Bangladesh
A. Context Analysis 10

B. The Mapping Study: Responses from Stakeholders 14

C. The way forward – Potential for Intervention by UN Women 16

Bibliography 18

Annexure 19

v
 Towards
Towards
Gender
Gender
Responsive
Responsive
Governance
Governance
in Bangladesh
in Bangladesh

Executive Summary Sangsad Col (Rtd). Shawkat Ali. The Special Guest
was Mr. Neal Walker, Resident Coordinator of UNDP.
A team of two consultants engaged by UN Women The workshop participants numbering more than 50
has undertaken a mapping study of ongoing initiatives included representatives of development agencies, civil
in Governance in Bangladesh. The objective of the society organizations, government officials, academia
mapping study is to develop an understanding of the and journalists. The participants shared their concerns
progress of women in local politics in Bangladesh and suggestions during the open discussions which
through interventions undertaken by Government, followed the presentation by the senior consultant.
donors, development partners and civil society ‘The Way Forward’ for UN Women Bangladesh Program
organizations. The purpose is to identify the gaps where Office has been constructed on the basis of the process
UN Women has a comparative advantage to undertake described above.1
interventions for the improvement of women’s
participation in local governance in Bangladesh.
The ultimate objective of the study is to develop a Justification and Rationale for
comprehensive proposal for further funding for a the Programme on Strengthening
programme on promoting women’s political leadership Women’s Participation and
and governance in Bangladesh. Leadership in Local Governance in
Bangladesh
Methodology The UN Women SARO has initiated in 2010, a
The team, in addition to undertaking a literature review, regional programme, ‘Promoting Women’s Political
met with UN agencies, Government officials in line Leadership and Governance in India and South Asia’.
Ministries, international and national NGOs and other This programme that has already been rolled out in
stakeholders in Bangladesh and interviewed 22 key India, Pakistan and Bhutan identifies the importance
of transforming the governance frameworks and
personnel including the State Minister and Standing
policies in South Asia to deliver better outcomes for
Committee Chair of MoWCA.
women. One of the key elements in this programme is
After the desk review and interview process, UN to support efforts to effect change in the macro level
Women organized a dissemination workshop to policy, legal and regulatory frameworks. The focus is
disseminate the findings of the Mapping Study. This on creating an evidence based advocacy base through
workshop was held on Sunday, July 31, 2011 at the Lake research in gender in governance that will target
Shore Hotel in Dhaka. The Chief Guest of the workshop specific policy processes and outcomes that impede
was Honorable Deputy Speaker of Bangladesh Jatiya women’s participation at the local level.
1
The seminar was the result of the two week desk review and FGDs undertaken by senior consultant Dr. Reena Marwah and Ms. Jeba Lovely,
national consultant.

9
Towards Gender Responsive Governance in Bangladesh

In India and in Pakistan, UN Women is working A. Context Analysis

together with other UN agencies to ensure that
This section provides a framework of the system of
the United Nations entities work in close
governance in Bangladesh and also delineates the
cooperation/understanding with one another (MOUs
supportive legislations and policies.
have been signed for this purpose) for enriching the
outputs and outcomes. A1. System of Governance
Thus, it is within the context of the UN Women-SARO Bangladesh is a two-tier parliamentary democracy
programme that the same is initiated in Bangladesh at the with a unicameral central legislature. The central
earliest, given the following points which merit urgency: legislature/Parliament is elected through direct
elections based on universal adult franchise for a five
• Achieve the outputs and goal of the 5 year regional year term. The Prime Minister leads the government
programme (2010-2015), i.e. to scale up the learnings and is the head of the party/coalition that forms
from India, Bhutan, and Pakistan to Bangladesh. As
the majority of the Parliament. The Parliament has
an exit strategy, the programme will institutionalise
345 seats including 45 reserved seats for women (being
the above functions in a South Asia Regional Centre
enhanced to 50), occupied by members elected from
of Excellence for Gender Responsive Governance by
single-member constituencies for a 5 year term. The
2015.
President is the constitutional head of state but this is
• UNDP is engaged in strengthening governance at all
mainly a ceremonial post elected by the Parliament.
levels of governance and there exists tremendous
scope for UN Women to play a complimentary role The country is divided into seven Administrative
in this context. Divisions: Dhaka, Chittagong, Khulna, Rajshahi,
• Willingness of the present government of Bangladesh
Barisal and Sylhet, and Rangpur (added in 2010). Each
(elected for the term 2008-13) to strengthen
Division is placed under a Divisional Commissioner
women’s political leadership in the context of the
and is further divided into Districts (Zila) headed
National Women’s Development Policy 2011.
by District Commissioners. The Districts are further
• 19 elected women parliamentarians, among whom
divided into Thanas or sub-districts, and Thanas are
several are responsible for portfolios through which
divided into Unions or rural micro-areas, which are
they can make a significant change.
divided into Grams or villages. Governance at the local
• Reserved seats for women in the sub-district
level in rural areas is entrusted to Gram Parishads,
(Upazila level) and local level of governance
(Union Parishad). Union Parishads, Thana/Upazila Parishads and
• Election Commission (EC) set 2020 for all political Zila Parishads, while in urban areas it is entrusted
parties to have women in at least one-third of all to Pourashavas/Municipalities (for which three
party committee posts. classifications exist based on size of population) and
• MoWCA’s National Plan of Action, to be finalized City Corporations (in four of the largest municipalities)
by December 2011 (based on the recent Women’s which have been given Metropolitan status – Dhaka,
Advancement Policy), for creating economic Khulna, Chittagong and Rajshahi.
opportunities for women as well as for addressing
the issue of feminization of poverty through
A2. Supportive Legislations and Policies
engendering safety nets. The Constitution of Bangladesh in 1972 stated that
• The civil society organizations are also active in the women’s rights in all spheres of national life must
development sector. be ensured. Article 9 states that the state shall

10
 Towards Gender Responsive Governance in Bangladesh

encourage local government institutions composed of The Local Government (Union Parishads) (Second
representatives of the areas concerned, and in such Amendment) Act of 1997 increased the number
institutions special representation shall be given as far of seats in the Union Parishad to twelve and kept
as possible to peasants, workers and women. the number of seats reserved for women at three.
However, it introduced direct elections for the three
National reserved seats, along the same lines as the elections to
While quotas for women in the Parliament were the general category seats. Additionally, the Act divides
introduced in 1972, reserving 15 of the 315 seats in the union into nine wards for the election of the nine
Parliament for women (to be filled through indirect general category seats (one seat from each ward). For
elections by the directly elected 300 members), in 1978 the three reserved seats, the union is divided into three
a presidential promulgation extended reservation for wards, each of which is formed by grouping together
women to a total of 30 seats and the number of seats in three of the nine wards for general category seats.
Parliament was also increased to 330. This promulgation
lapsed in 1987, was reincorporated in 1990, and lapsed Following this, several circulars have been released
again in 2001. In 2004, a constitutional amendment by the government with the intention to assign more
raised the number of seats in Parliament to 345 from responsibilities to women in committees by including
300, and the quota for women was re-introduced, them in bigger numbers and giving them the chair
raising the total number of seats reserved for women of committees on particular issues such as primary
to 45 from 30. education, old age benefits etc. Committees such as the
Village Social Development Committee are also headed
Local by women, and deal with issues such as collection of
The Local Government Ordinance of 1976 was the first information on births and deaths, education, health
ordinance to be issued with a provision for increasing awareness, family planning, violence etc.
women’s representation in local governance. It
A3. Women in Politics: Assessing the
established a three-tier local governance system,
Current Scenario
comprising the Union Parishad at the union level, the
Women’s opportunities and public participation have
Thana Parishad at the thana level and the Zila Parishad
gone through significant changes in Bangladesh in
at the district level, and provided for the reservation
recent decades. At the policy level, the government
of two seats for women members who would be
has brought in a strong gender equality agenda, e.g.,
nominated to the ten member Union Parishad.
the National Policy for Women’s Advancement, the
The Local Government (Union Parishads) Ordinance of revised National Strategy for Accelerated Poverty
1983 raised the number of seats reserved for women Reduction (NSAPR-II), gender responsive budget etc.
in the Union Parishad from two to three, although their Several women occupy positions of distinction as
entry still depended on nomination. Ministers and parliamentarians as well as chairs of
Parliamentary Standing committees and vice chairs at
The Local Government (Union Parishads) (Amendment) the upazila level.
Act of 1993 introduced a system of indirect election
for the three seats exclusively reserved for women This change is visible mainly after 1997, when women
members in place of the earlier system of nomination. could be directly elected to the Union Parishads.
The women members on reserved seats were now to Women constitute 18.55% of the strength of the
be elected by the other members of the Parishad. current Parliament of Bangladesh, i.e. 64 of the

11
Towards Gender Responsive Governance in Bangladesh

345 members are women, although the elected periphery in the structure of local governance. Many of
representatives were only 19 (In the 2008 elections, them secure the seat as they are teachers or spouses of
59 women contested – 19 were elected). At the national influential males or in rare cases empowered women
level, in addition to the Prime Minister and leader of through the network of women NGOs.
the Opposition Party the government has five women
Thus, the imperative for meaningful intervention by
Ministers, viz. foreign minister, minister for home
the international community, the Government and the
affairs, minister for women and child affairs, minister
civil society towards the ultimate realization of gender
of agriculture and labor minister. Several others are in
equality remains, especially as Bangladesh continues
positions of decision making. In addition 45 seats, (now
to rank a low 108 out of 109 countries in the Gender
being increased to 50) are the reserved seats for which
Empowerment Measure (UNDP HDR 2009).2
the women parliamentarians are selected by their
male counterparts. A4. What Prevents Women from Entering
As the Union Parishad remains a significant tier of
the Political Space in Bangladesh?
governance it is important to briefly review the recent The most recent elections conducted in Bangladesh
amendments. The Local Government (Union Parishads) in 2008 saw women form 18.55% of the strength of
(Amendment) Act of 1993 introduced a system of the current Parliament of Bangladesh, i.e. 64 of the
indirect election for three seats exclusively reserved 345 members are women.3 However, for the 45 seats
for women members in place of the earlier system women are not elected but selected by their male
of nomination. The women members on reserved counterparts. The reasons are given below:
seats were to be elected by the other members of
Absence of an enabling environment for women’s
the Parishad.
political participation: Social reluctance to accept
The Local Government (Union Parishads) (Second women’s leadership and non-cooperation by members
Amendment) Act of 1997 increased the number of political parties, concerned representatives and
of seats in the Union Parishad to twelve and kept functionaries contribute to women staying away from
the number of seats reserved for women at three. politics.
However, it introduced direct elections for the three
Patriarchal structures and bias against women’s
reserved seats, along the same lines as the elections to
participation in the public sphere reinforce gender
the general category seats. Additionally, the Act divides
inequality in governance by limiting women’s access to
the union into nine wards for the election of the nine
the resources and means of participating in decision-
general category seats (one seat from each ward). For
making. Women find themselves disadvantaged as
the three reserved seats, the union is divided into three
compared to men in social institutions such as the
wards, each of which is formed by grouping together
family, schools, religious institutions etc. Lack of family
three of the nine wards for general category seats. Thus,
support and restrictions on women’s mobility also
while one male elected representative is responsible
impede their entry into politics.
for one ward, one female member (reserved seat) is
responsible for three wards. With responsibilities not Women lack political linkages and contacts and these
being clearly defined the women continue to be at the are of critical importance in being able to secure power.
2
The GEM is calculated on the basis of seats in parliament held by women (% of total), ratio of estimated female to male earned income,
Female professional and technical workers (% of total), women in ministerial positions (% of total).
3
http://www.ipu.org/parline-e/reports/2023_A.htm

12
 Towards Gender Responsive Governance in Bangladesh

Besides, women’s dependence on their male family candidates, these selected women MPs fail to
members in addition to restrictions on their mobility participate in the debates and discussions.
and social interactions diminishes their ability to • While the reservations for women under the 1976,
develop such linkages. 1983 and 1993 ordinances increased women’s
representation in government bodies at the
Lack of economic resources is another obstacle to local level, it did not have much bearing on their
women’s participation, as most women candidates do participation because their entry depended upon
not have a source of sustainable income, property or nomination, and later indirect election, due to which
other assets and were generally dependent on their they lacked the support base of a constituency. This
husbands or other male relatives for financial support. diminished their legitimacy to govern as compared
to those representatives who had been elected
Lack of education and training for the successful
by their constituencies. Moreover, the roles and
discharge of functions also present important barriers
responsibilities of the women on reserved seats
to women’s political participation. Besides, women are
were left undefined by all three Acts.
also hampered by their lack of political experience,
familiarity with formal institutions and their functioning. • The 1997 Local Government Act did not do much to
spell out the specific roles of women, but it provided
Security concerns throughout the election process, women on the reserved seats with greater legitimacy
especially during campaigning, and during tenure by introducing direct elections for them. However,
is another barrier identified to women’s political these women were at a disadvantage as they had
participation in Bangladesh. Violence, sexual to cover three times the area to be covered by
harassment/molestation in public, and threats from general category candidates, as three wards electing
fundamentalist religious and social groups opposed to one general category seat each were combined to
the participation of women, as well as the fear of the elect one reserved seat. This also limited the role of
same, compound the problems faced by women who women elected on reserved seats, as they did not
wish to contest elections. have a dedicated constituency – they functioned
merely as additional representatives. In some cases,
A5. Barriers to Women’s Effective representatives elected on reserved seats had to
Participation in Local Governance obtain permission from those elected on general
• 45 seats reserved for women out of 345 in which seats before implementing development plans
they are selected or nominated, not directly or policies.
elected. Women members of parliament are often • It has been found that women’s functions have by and
responsible for constituencies they do not belong large remained very limited in the Union Parishads,
to and thus find it difficult to relate to them. The due to resistance from male colleagues and the
men often describe these women colleagues as discrimination emerging from such resistance. Also,
mere ‘ornaments.’ With low levels of literacy, women’s knowledge regarding financial issues of
especially among women4 and no minimum criteria the Parishads was inadequate, and their opinions
for educational attainment required of contesting were often sidelined in decision-making processes.

4
According to Ms. Taleya Rahman of Democracy Watch, although there is 100 % enrolment of girls at the primary level, at least 75%
dropout by the age of 15). Interview held in Dhaka on July 22, 2011.

13
Towards Gender Responsive Governance in Bangladesh

B. The Mapping Study: Responses safety nets. The State Minister herself admitted to the
imperative for strengthening women’s associations for
from Stakeholders5
social transformation that can ensue through women’s
The discussions with the representatives of shared identity. The Government is also committed to
Government, donors, organizations and institutions strengthening women’s participation at the Upazila and
provided an overview of the position of women in the Union Parishad level. A training institute for the
politics. Despite the electoral reforms carried out in same purpose has been established.
1997, women continue to remain in the periphery
of power. There is an urgent need for engaging with The United Nations: Working with
men and negotiating for political space for women. Government, Development Assistance
Women are increasing in numbers in local governance Partners and Civil Society
structures but their empowerment through provision The Millennium Development Goals (MDGs) proposed
of quotas is very limited. Training imparted to women by the UN Millennium Summit of September 2000
at local levels by the women’s associations and NGOs affirmed the international community’s commitment to
has been significant for enhancing social awareness, gender equality and women’s empowerment. The third
but training modules for political empowerment are of the MDGs addresses gender equality specifically. The
largely ineffective. UN system established a clear UNDAF management and
accountability structure by identifying a UN convening
B1. Interventions for Enhancing Women’s agency per each area of cooperation responsible for
Political Participation and Leadership coordinating the design and implementation of the
The Government, UN agencies, donors, development UNDAF with the support of participating agencies and
agencies and civil society organizations are working implementing partners. The seven areas of cooperation
through grassroot partners and women’s associations. and the respective UN convening agencies for the
Some of the significant initiatives being undertaken are period 2012-2016 for Bangladesh are outlined in
outlined below. Table 1.

Government UN Women SARO Programme – Expanding to

The Bangladesh Government’s NWPD 2011 envisages Bangladesh
the empowerment of women in all political, social, The UN Women SARO has initiated in 2010, a regional
administrative and economic spheres. In February programme, ‘Promoting Women’s Political Leadership
2011, the Election Commission (EC) set 2020 as the and Governance in India and South Asia’.
deadline for all political parties to have women in at
UN Women Bangladesh Programme Office is working
least one-third of all party committee posts.
in close cooperation with the Regional office of
MOWCA is preparing a National Plan of Action, to be UN Women in New Delhi. This programme to be
finalized by December 2011, for creating economic initiated in Bangladesh will be enriched through the
opportunities for women as well as for addressing the experience of the programme already rolled out in
issue of feminization of poverty through engendering India, Pakistan and Bhutan. This programme identifies

5
22 Focused group discussions were held with representatives of UNDP, UNDP–IPD , DFID, SDC, CIDA, USAID-SDLG project, ARD,
Bangladesh Nari Progati Sangha (BNPS), Bangladesh National Women Lawyers’ Association (BNWLA), Nari Uddyag Kendra (NUK),
Steps Towards Development, PRIP Trust, Democracy Watch, Manusher Jonno Foundation, Daily Bhorer Kagoj, Nagorik Uddug, Transparency
International, WAVE Foundation, Bangladesh Mahila Parishad, Department of Development Studies, Dhaka University. In addition, the
consultants met Ms. Meher Afroze Chumki, MP and Chair Parliamentary Standing Committee of MoW&C Affairs and Dr. Shirin Sharmin
Chaudhury, MP and Honorable State Minister of MoW&C Affairs (Details provided in Annexure).

14
 Towards Gender Responsive Governance in Bangladesh

Table 1: United Nations in Bangladesh6

UNDP UNICEF UNFPA WFP UN Women
Democratic Social Services for Gender Equality Food Security and Capacity building of
Governance and Human Development and Women's Nutrition ERs and GRB in 7 line
Human Rights Advancement Ministries
Pro-poor Growth with Education and Reproductive health
Equity adolescent for women and youth
empowerment in Asia (RHIYA)7
Climate Change, Health and nutrition
Environment, Disaster
Risk Reduction and
Response

the importance of transforming the governance Regional Centre of Excellence for Gender Responsive
frameworks and policies in South Asia to deliver better Governance by 2015.
outcomes for women. One of the key elements in this
programme is to support efforts to effect change in the The rationale for rolling out the programme in
macro level policy, legal and regulatory frameworks. Bangladesh stems from the fact that the present
The focus is on creating an evidence based advocacy government of Bangladesh (elected for the term
base through research on gender in governance that 2008- 13) is committed to strengthen women’s political
will target specific policy processes and outcomes that leadership in the context of the National Women’s
impede women’s participation at the local level. Development Policy 2011. It is a good time for
the government to work with UN agencies with
In India and in Pakistan, UN Women is working national ownership.
together with other UN agencies to ensure that
the United Nations entities work in close Development Partners and Stakeholders –
cooperation/understanding with one another (MOUs Working Both at the Policy Level and Making
have been signed for this purpose) for enriching the Interventions through National NGOs:
outputs and outcomes. Similarly, UNDP resident Leveraging on the Networks Established at the
coordinator has expressed willingness to include this Local Level
programme of women’s political leadership under the In addition to the United Nations entities, several
United National Development Assistance Framework’s international aid agencies are working in Bangladesh.
pillar of governance. UN agencies will work in While good governance has been a key component of
consultation in Bangladesh within the framework the development discourse and country strategy for
of an MOU to achieve the outputs and goal of the SDC,8 CIDA,9 DFID, USAID, Asia Foundation, NORAD/
5 year regional programme (2010-2015), i.e. to scale Royal Norwegian Embassy and DANIDA, the focus
up the learnings from India, Bhutan, and Pakistan to on enhancing women’s political participation and
Bangladesh. As an exit strategy, the programme will leadership is more recent; especially after the elections
institutionalise the above functions in a South Asia in 2008. Donors and aid agencies are making efforts

6
These are broad areas of work and the list is not an exhaustive one.
7
http://www.unfpa-bangladesh.org/php/regional_rhiya.php ( accessed August 7, 2011).
8
SDC has been working with government and NGOs for skill development and education.
9
CIDA earlier supported the Gender Fund; CIDA’s gender policy focused on promotion of women’s human rights encompassing human
rights as well as enhanced participation in decision making (Interview with Ms. Tahera Jabeen, see Annexure for details).

15
Towards Gender Responsive Governance in Bangladesh

to work through national and local level NGOs and C. The Way Forward – Potential for
women’s organizations towards advocacy and research
Intervention by UN Women
on issues of women in local government.
The results of the desk review, the FGDs as well as the
Civil Society - Catalysts of Change at the dissemination workshop point to the niche role for UN
Local Level Women BPO10 especially in the following areas point to
The NGO movement is a vibrant force in Bangladesh the role for UN Women.11
and has permeated the society in every sphere. Several
of the NGOs have been registered in the early or mid The mapping study has brought out significant gaps in
1990s. While microcredit and women’s economic intervention and there is a tremendous opportunity
empowerment have been crucially enmeshed in the for UN Women to engage at the national level, the zila
NGO programmes, it is interesting to view the change level and the local level. UN Women guided by in depth
research will take several initiatives to change the
in their mandate in accordance with the donor’s
existing rules that limit women’s effective participation.
country strategy. Several women’s associations and
Mahila Samitis emerged out of the need for combating The areas in which UN women has the capacity and the
violence against women and protecting women’s mandate to make the change include the following:
human rights. Thus most of the NGOs have moved from
working for women’s social empowerment to economic C1. Advocacy
empowerment and have in the last few years moved • Direct election system to be introduced in at least
to working on issues of governance – both from the 100 reserved seats for women in the Parliament.
demand and supply side. Donors have worked with civil These should be through direct elections and not
society partners to establish a Governance Coalition through nominations.
to address the growing demand for accountability
and transparency in delivery of services. This coalition • Roles, responsibilities and budgetary allocation for
the reserved seat members should be ensured.
comprised of 43 NGO partners is working at the
Upazila level in the divisions of Khulna and Rajshahi. • Raising awareness of citizens about gender equality.
Civil society organizations including NUK, Prip Trust,
• Engaging with political parties for enhancing
Democracy Watch, Steps for Development, Bangladesh
involvement of women.
Mahila Parishad to name a few are currently engaged in
training women elected representatives in local bodies • Promoting women’s participation in public
in both rural and urban areas. institutions, i.e. Election Commission, Parliamentary
Standing Committees, etc.
However, despite the fact that significant progress has
been made in this direction, the UN Women BPO has • Systematic change in laws and policies for enhancing
the space to negotiate with the government at all levels women’s political participation and leadership in
to strengthen policies and legal frameworks. The next local governance.
section provides the details.

10
UN Women BPO organized a Dissemination workshop on July 31, 2011 in Dhaka, Bangladesh. The feedback from the participants has been
incorporated.
11
Feedback from participants at the UN Women “Dissemination of the Mapping study findings” seminar held in Dhaka, Bangladesh on July
31, 2011 have been incorporated.

16
 Towards Gender Responsive Governance in Bangladesh

C2. Networking • Impact of women leaders in politics and as

decision makers.
• Strengthening of women’s coalition – a Women’s
Caucus for policy advocacy. • Building research capacities of political parties and
training institutes.
• Campaign, networking, lobbying with different
stakeholders for ensuring men’s (male) awareness Linkages would be established with a research
about women’s political rights and leadership. organization as CMI in Oslo, Norway.
• Creating synergies among the all current/ongoing
C4. Capacity Building
women’s movements, identifying good examples/
best practices and learning for effecting policy • Women to be groomed to participate in elections
change. and carve out a career in politics; popular perception
is that women will be more effective, honest and
• Coordinating civil society efforts for promoting transparent and more accessible.
women’s political participation.
• Training of women representatives and other
C3. Research Issues potential women to participate in decision making,
problem solving and management of local bodies.
• Barriers to women’s effective participation.
• Provision of continuous support for capacity building
• Enhancing effectiveness of training modules.
of women representatives from the national to the
• Case studies and best practices from the region. local level along with technical assistance.

17
Towards Gender Responsive Governance in Bangladesh

Bibliography12

i. Women in Parliament: Beyond Numbers. A Revised xi. GOB (October 2008). Moving Ahead: National Strategy
Edition; http://www.idea.int/publications/wip2/ for Accelerated Poverty Reduction II (FY 2009-11).
ii. http://www.idea.int/publications/wip2/upload/South_ General Economics Division, Planning Commission.
Asia.pdf (PRSP: World Bank, Bangladesh).

iii. Chowdhury, Najma, 2003. ‘Bangladesh’s Experience: xii. UNDP (n.d.). Implementation of the MDGs: Bangladesh.
Dependence and Marginality in Politics’, in http://www.undp.org.bd/mdgs.php
International IDEA. The Implementation of Quotas: xiii. UNDP (2000). “Capacity Building” Gender in
Asian Experiences. Quota, Workshops Report Series. Development. UNDP: NY.
Stockholm: International IDEA, pp. 50–8. xiv. UNIFEM (November 2007). Promoting Gender Equality
iv. Frankl, Emma, 2003. ‘Quota as Empowerment: The Use in the Aid Effectiveness Agenda in Asia Pacific: Engaging
of Reserved Seats in Union. the Principles of the Paris Declaration. UNIFEM
v. Parishad as an Instrument of Women’s Political Discussion Paper.
Empowerment in Bangladesh’, unpublished paper, xv. World Bank (September 2009). Bangladesh: Bolstering
Stockholm University. Governance to Reduce Poverty. IDA. http://
vi. http://www.idea.int/publications/wip2/upload/South_ siteresources.worldbank.org/IDA/Resources/IDA-
Asia.pdf Bangladesh.pdf

vii. Locating gender in the development discourse – Niraja xvi. World Bank and AusAID (March 2008). Whispers
Gopal Juyal – Essays on gender and Governance-UNDP. to Voices – Gender and Social Transformation in
Bangladesh. Bangladesh Development Series: Paper No.
viii. Inter-Parliamentary Union (IPU). ‘Women in National
22. South Asia Sustainable Development Department:
Parliaments’, available at <http://www.ipu.org>
South Asia Region.
ix. The Nature of Political Empowerment and Gender in
xvii. World Bank, FAO, and IFAD (2009). Gender in
Local Governance: A Comparative Study of Dhaka City
Agriculture: Sourcebook. Washington, DC.
Corporation and Narayangonj Municipality, Farhana
Zaman. http://www.bangladeshsociology.org/BEJS%20 xviii. World Bank (2001). Summary: Engendering
4.1%20Farhana.pdf Development through Gender Equality in Rights,
Resources, and Voice. World Bank Policy Research
x. DFID (February 2007). Gender Equality Action Plan
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2007-2009: Making Faster Progress to Gender Equality.
Briefing: DFID Practice Paper.

12
The web links have been accessed during July 11- 30, 2011.

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 Towards Gender Responsive Governance in Bangladesh

Annexure

Dissemination Workshop on Findings of the

Mapping Study of ‘Promoting Women’s Political
Leadership and Governance in Bangladesh’

Date: July 31, 2011, 10 A.M.

Venue: Lakeshore Hotel (Shomadhan Hall), Road 41, House 46, Gulshan 2, Dhaka.

What strategies for capacity building and creating • Raising awareness of citizens about gender
political space for rural women’s participation have equality.
had the greatest impact since 1997 ? • Building capacity of women to participate in
national level election, party politics and directly
• Created opportunities for women to participate in
in local government.
direct election at the local government.
• Direct election system should be introduced in
• Enhanced leadership of women to participate in
at least 100 reserved seats for women in the
decision-making process.
parliament.
• Direct election system in the reserved seats at UP
level. • Roles, responsibilities and budgetary allocation
for the reserved seat members should
• Promotion of girls’ education.
be ensured.
• Creating women entrepreneurs.
• Civil society engagement increased. • Need for involvement of women in political parties.

• Grassroots focused leadership developed. • Political parties should field more women in the
elections.
What specific areas of women’s political leadership and • Need to enhance awareness among rural women
participation in governance need further intervention? to engage in social and political purposes and
Potential role for UN Women BPO actions.
• Ensure effective participation of women in
• Strengthening of Women’s Coalition for
different coalitions.
policy advocacy.
• Women members need focused training and
• Building capacity of women representatives and
exposure to similar experiences in other countries
other potential women to participate in decision
in South Asia.
making, problem solving, management, etc.

19
In this series:
Towards Gender Responsive Governance in Bangladesh: A Mapping Study
Study Report: Participation of Women in 2011 Local Government Election, Bhutan
Women’s Political Participation at the Sub-national Level in Nepal: A Mapping Study
 UN WOMEN SOUTH ASIA COUNTRY REVIEW SERIES ON WOMEN'S POLITICAL LEADERSHIP

Gender Responsive Governance in

A Mapping Study

Ms Anne F. Stenhammer
Regional Programme Director
UN Women South Asia Sub-Regional Office
Email: anne.stenhammer@unwomen.org