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2.1. Issue Analysis
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During the AWD, women’s representation and participation in governance and decision-making advanced in positive ways across Africa. In some African countries, women’s political participation has risen, whereas in others progress has declined or remained stagnant. In several countries, women’s representation in national parliaments meets or exceeds the 30% mark, often because many of these countries have adopted a form of quota.732 However, in other countries, the implementation of a form of quota has not increased women’s representation in governance and decision-making. Over the Decade, some countries also saw an increase in the proportion of women in ministerial positions, with female ministers increasingly holding portfolios traditionally given to men, such as defence, finance and foreign affairs.
Although more African women participate in governance and hold decision-making positions, progress has often been slow, and implementation of the women’s civil and political rights agenda is unfinished. Institutional, cultural, social and economic barriers and challenges continue to hold African women back from equal and full participation in governance and decision-making. Structural barriers, such as laws, institutions and practices, prevent or limit women from participating at national and local levels. Compared with men, female candidates have less access to financial resources to cover costs associated with seeking elected office. When campaigning, women often experience violence, intimidation and harassment. A 2016 Afro Barometer study revealed that 50% of women candidates surveyed in 34 countries were afraid of political intimidation or violence.733 Persistent cultural and social practices and perceptions of women negatively impact women seeking political and leadership positions. Across Africa, positive attitudes towards women in leadership positions vary, with the highest in Southern Africa, followed by East and West Africa; they are lowest in North Africa.734
The right of women to participate equally in governance, political and electoral processes and enjoy legal protection is recognised in the Maputo Protocol. Article 8 guarantees equality before the law and the right to equal protection and benefit of the law. States Parties shall, among others, take all appropriate measure to ensure support to local, national, regional and continental initiatives directed at providing women access to legal services, including legal aid. They shall also ensure that women are represented equally in the judiciary and law enforcement organs. Article 9 of the Maputo Protocol guarantees the right to participation in the political and decision-making process. It also stipulates that States Parties should take all adequate measures to ensure women’s participation without any discrimination in all elections; women’s equal representation at all levels with men in all electoral processes; and increased and effective representation and participation of women at all levels of decision-making.735
The AWD set up specific objectives concerning governance and legal protection (Goal 7) and women in decision-making positions (Goal 9). The aim of Goal 7 was to support women’s participation in political and electoral processes in countries where elections were held during the Decade. It also aimed to implement gender issues in African Peer Review Mechanisms and national action plans, as well as to achieve universal ratification and domestication of the Maputo Protocol.736 Goal 9 sought to implement the AU parity principle in line with AU gender policy and to ensure that equal opportunities for women in decision-making positions, in the legislature, judiciary and executive were achieved.737
At the continental level, the AU has taken steps to advance women’s political empowerment and reverse gender imbalances. To amplify women’s voices, their representation and participation in leadership and decision-making positions, and to advance women’s political rights and empowerment, the AU together with the UN launched the African Women Leaders Network (AWLN) in 2017. This initiative seeks to enhance the leadership of women in the transformation of Africa with a focus on governance, peace and stability.738 Moreover, in 2018, the AU adopted the Parity Decision. This requires the AU Commission to achieve 50/50 gender representation in its staffing and to have 30% of youth representation by 2025.739 There are currently five female and five male commissioners. Agenda 2063 and the AU Strategy for Gender Equality and Women’s Empowerment, for example, also reflect the commitment to implementing the AU gender parity principle and achieving women’s empowerment in governance and decisionmaking. In 2020, the AU launched the three-year Action Plan on Women in Governance and Political Participation: Enhancing African Women’s Role in Leadership.740 This aims to contribute to the effective implementation of the AU’s mandate in gender equality and women’s empowerment, in particular concerning women in governance and political processes.741
