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Leadership for Inclusion: What skills and qualities do parliamentarians need to be able to promote inclusive change? Rebecca Gordon Victoria Hasson September 2021
Authors Contents
Rebecca Gordon (She/Her) is a Lecturer in Social Science at the University of the
West of Scotland. Rebecca wrote this report whilst a Research Fellow in Leadership Acknowledgements 4
for Inclusive and Democratic Politics for the University of Birmingham and the
Westminster Foundation for Democracy. Executive Summary 5
Her research focuses on political leadership for inclusive change and the role of Introduction 10
grassroots organisations in inclusive change processes and representation and
political leadership. The majority of her work has focused on gender and sexuality, Approach to the Research 12
social inclusion, education and livelihoods; she is also interested in feminist
epistemologies and methodologies in ethics and research and has written on Parliamentarians and Inclusive Legislative Change 13
these topics.
Skills and Qualities for Inclusive Legislative Change 14
Five Essential Skills and Qualities 16
Victoria Ann Hasson is Senior Parliamentary Advisor at WFD.
Victoria works with parliaments and parliamentarians to support inclusive leadership Collaborator 18
and deliberative practice across the globe as the Foundation’s lead expert on
parliamentary institutional strengthening programmes. Victoria holds a PhD on Strategic thinker 24
parliamentary practice and procedure and she is passionate about understanding
Focused 28
and re-shaping the political experience in order to improve democratic outcomes.
Victoria has worked in the National Assembly in South Africa and delivered Relationship builder 32
parliamentary trainings across Africa, Asia, North Africa and Venezuela.
Open to learning 36
Three Important Skills and Qualities 40
Disclaimer
This document is a product of the Westminster Trustworthy 42
Foundation for Democracy (WFD). It was made
possible through funding received from the Foreign, Creative 46
Commonwealth and Development Office. The
document has been written by Rebecca Gordon and Self-aware and reflective 52
Victoria Hasson. The views expressed in this paper
are those of the authors, and not necessarily those of
Reflecting on Institutional and Contextual Factors – Which skills matter, where? 54
the UK Government, the University of Birmingham,
the Developmental Leadership Programme, and
Identity of the Leader – Under what conditions do leaders emerge with these skills
other organisations mentioned, none of which accept 56
responsibility for such views or information or for any
and qualities?
reliance placed on them.
Beyond Legislation 58
Conclusions and Recommendations 60
All rights in this work, including copyright, are owned The information and views set out in this report are
by the Westminster Foundation for Democracy Limited those of the author(s) and do not necessarily reflect
(WFD) and are protected by applicable UK and the official opinion of WFD, its funders, or the UK
References 64
international laws. This work cannot be copied, shared, Government. Neither WFD nor any person acting on
translated into another language, or adapted without its behalf may be held responsible for the use which
prior permission from the WFD. All rights reserved. may be made of the information contained therein.
2 Leadership for Inclusion: What skills and qualities do parliamentarians need to be able to promote inclusive change? 3Acknowledgements
Firstly, many thanks to those who were Secondly, many thanks to those who were
interviewed about their experience of inclusive interviewed for their expertise on our six
legislation as parliamentarians: Karina Banfi case studies or for further information: Jamiu
(Chamber of Deputies, Argentina); Dastan AbdulAzeez Adewole; Emira Bouaouina; Ni
Bekeshev (Member of the Supreme Council of Putu Yogi Paramitha Dewi; Ms Bunmi Dipo-
Krygyzstan); Randy Boissonnault (Former MP, Salami; Andrés Rivera Duarte; Didi Idang;
Canada); Dr Angela Brown Burke (Member of Mehlab Jameel; Nejib Jeridi; Rāwā Karetai;
Parliament, Jamaica); Maria Chin (Member of Hoani Lambert; Cameron Law; Adebowale
Parliament Malaysia); Jamila Debbech Ksiksi Olorunmola; Dr Antoni Tsaputra; Agung
(Member of the Assembly of the Representatives Wardana and Kirsten Windelov. We are also
of the People, Tunisia); Sarah Jane Elago (Member grateful to the five further parliamentarians
of the House of Representatives, Philippines); who chose to remain anonymous.
Baroness Lynne Featherstone (Former MP We are sincerely grateful to Graeme Ramshaw
and Member of the House of Lords, UK); Ruth (WFD), David Hudson (DLP), Nic Cheeseman
Forrest (Member of the Tasmanian Legislative (IDD), Claire Mcloughlin (DLP), Sophia
Council, Australia); Kevin Hague (Former MP, New Fernandes (WFD), Shannon O’Connell (WFD)
Zealand); Ledia Hanifa (Member of the House and Gareth Wall (IDD) for reviewing, supporting,
Executive
of Representatives, Indonesia); Risa Hontiveros and strengthening this work. We are also
(Senat, Philippines); Jang Hye-Yeong (National greatly appreciative of the support of Gustavo
Assembly, Republic of Korea); Delyth Jewell Alvarez and Daniela Cuevas with translation.
(Member of the Welsh Senedd, UK); Rubina
Summary
Khalid (Member of the Senate, Pakistan); Jan Additional thanks to those who supported
Logie (Member of Parliament, New Zealand); this research: Shaun Kirven; Mónica Adame
Jessie Majome (Former MP, Zimbabwe); Maja (Parliamentarians for Global Action); James
Morachanin (Member of the Assembly of Pinnell and Clive Barker (CPA Disability
North Macedonia); Sochua Mu (Former MP, Network); Benité Dibateza (CPA Women’s
Cambodia); Olawunmi Oladeji (Member of Network); Andrew Slin (Global Equality Caucus);
the House of Assembly Oyo State, Nigeria); Oliver Mawhinney (IPNED); Leong Tsu Quin
Syed Naveed Qamar (Member of the National (ASEAN Parliamentarians for Human Rights);
Assembly, Pakistan); Lily Perez (Former Senator, Alistair Stewart (Human Dignity Trust); María
Chile); Manu Sareen (Former MP, Denmark); Baron (Directorio Legislativo) WFD Offices
Houda Slim (Former MP, Tunisia); Louisa Wall in: Kyrgyzstan, Maldives, Nigeria, Philippines,
(Member of Parliament, New Zealand); Valerie Pakistan, and Tunisia; Elisabeth Jackson
Woods (Speaker of the House of Representatives, and Chris Roche (La Trobe University).
Belize) and to four further parliamentarians
who chose to remain anonymous.
4 Leadership for Inclusion: What skills and qualities do parliamentarians need to be able to promote inclusive change? 5The first five we categorise as essential, having been mentioned in two thirds of the interviews.
Executive Summary
Collaborator (S)
Strong democracies need legislation and policies which recognise, measure and
The ability to collaborate across political ideologies and boundaries. Recognise the
plan for the specific needs of, and impacts on, all citizens. In particular for people shared responsibility for inclusive legislative change to ensure that legislation gets
who have been, and are minoritised and marginalised, legislation and policy are enough votes to succeed.
needed that improves and secures their rights. However, political leadership is
Strategic thinker (S)
essential for inclusive legislative change to be successfully realised. We define
Being knowledgeable about the institutional and societal barriers to legislation.
inclusive legislative change as legislation and policy which has explicitly recognised, Carefully plans how to overcome these utilising and unifying the contributions of
measured and planned for the specific needs of, or impacts on marginalised groups, a wide range of stakeholders. Having a political mindset to frame the legislation in
and improves and/or secures the rights for these groups. Whilst the scope of response to potential opposition.
inclusive legislation is broad, in this report we look at gender, LGBTQ+ and disability
Focused (S)
related legislation and rights. Research has demonstrated the structural barriers to Maintaining commitment and conviction to translate motivation and vision into
progress for inclusive change at the institutional level (e.g., evidence, resources, etc). legislative change. Demonstrating determination and patience when the legislative
process is lengthy and complex.
However, there is far less evidence on the skills and qualities that political leaders
utilise to support inclusive legislative change, particularly at the parliamentary level. Relationship builder (S)
Genuinely reaching out to, and working with, affected communities Engaging with
empathy to ensure that the legislation developed is appropriate and comprehensive.
Through thirty-one interviews with This process is strengthened by being an active and respectful listener (Q).
Therefore, this research asks:
parliamentarians and former parliamentarians
Are
there specific skills and qualities and twenty supplementary interviews with Open to learning (Q)
that parliamentarians utilise that enable civil society actors and academics who were Recognising where others’ expertise is needed. Being open to learning from other
them to mobilise for, and achieve, involved in six case studies of successful actors whose knowledge is essential to ensuring the legislation is well designed, and
inclusive change? inclusive legislation, our research identified has its intended effect.
five key skills and three qualities which
How
are these skills and qualities
are utilised by parliamentarians to support The second three are important, but potentially more contextually specific, as they were
utilised in this process?
inclusive legislative change. It is important mentioned in fewer interviews.
Do to differentiate between skills (S) and
these factors change depending on
the structural environment that political qualities (Q), as whilst skills can be learned Trustworthy (Q)
leaders are situated in? and developed, qualities are more difficult Demonstrating integrity and authenticity which results in trust from communities and
to cultivate, and so recommendations for other parliamentarians. Being genuine in their intention with the legislation, which gives
How
can these skills and qualities be parliamentarians may differ as a result. leaders legitimacy to act on behalf of these groups during the legislative process.
supported and sustained?
Creative (S)
The ability to make creative use of existing resources or institutional structures
to successfully introduce inclusive legislation. Being flexible and adaptive when
alternative opportunities are not available.
Self-aware and reflective (Q)
Being committed to thinking critically about their engagement with inclusive
legislation. Dedication to their own development as leaders, both as part of legislative
processes and beyond.
6 Leadership for Inclusion: What skills and qualities do parliamentarians need to be able to promote inclusive change? 71 S
upporting those with these key 2 E
ngagement with existing
Collaborator Strategic thinker skills and qualities to enter political political leaders
leadership roles • Contextualised political leadership training
• Prioritise shifts in the wider enabling - understanding the institutions in which
Self-aware and reflective Focused environment to support the emergence of leadership is situated is essential for honing and
Leadership for more leaders with the experience, skills and developing strategic thinking and creativity in
Inclusion: qualities required to support inclusive change. relation to inclusive legislative change.
skills and qualities This requires not only making parliaments
more inclusive spaces, but also encompasses • Peer to peer political skills and
Creative Relationship builder
addressing the resource disparities in access to experience sharing – the development of a
leadership and providing mentorship and training. global coalition of parliamentarians interested
in promoting inclusive change would provide
Trustworthy Open to learning an opportunity for cross-party international
• Systematic and proactive outreach to
encourage people who are likely to have or experience sharing to strengthen understanding
are able to develop the skills required for of how to support inclusive legislative change,
inclusive legislative change to enter political whilst fostering collaboration.
leadership roles. This should include targeting
These key skills and qualities were identified To address this, we make the case for recognising • Targeted political leadership resources –
those who already have the skills and qualities
as being vital for parliamentarians’ ability to the influence of the enabling environment, there is need for targeted resources and tools to
that are useful for inclusive change, such as
successfully support inclusive legislative change motivations and incentives, as well as support political leadership development. This
civil society leaders and activists. There should
processes, particularly as introducing inclusive encouraging those with the required qualities and will be essential for parliamentarians seeking to
also be a concerted effort to engage members
legislation is rarely a straightforward and linear skills to enter politics. However, it is also important develop their skills privately as well as to support
of minoritised and marginalised groups, or the
process. This paves the way for organisations to support existing political leaders to strengthen specific political leadership training.
‘prototypical’ stakeholder leaders for inclusive
seeking to strengthen democratic institutions their leadership in these areas. Therefore, we
legislative change.
and processes to supplement institutional recommend a two-pronged approach. • Development and strengthening of key
and outcome-focused support with a range skills and qualities– qualities such as empathy,
This first strand of action will require engagement
of individual-level interventions. Through active listening, self-awareness and creativity
with political parties who represent the primary
comparing the experiences of those interviewed need to be given stand-alone focus in work
pathway into political leadership in the majority
it is clear that: to support parliamentarians internationally to
of contexts. However, political parties have also
strengthen them.
• Most parliamentarians do not receive training historically been, and continue to create, barriers
to support them to develop the skills they to inclusive participation in political leadership. • Community mentorship – two-way mentorship
need for legislative work when they enter between communities (such as civil society
parliament. Given the complexities involved in leaders and activists) and parliamentarians
the introduction of inclusive legislation, the lack should be developed to ensure the involvement of
of these skills may create additional challenges those with the required expertise and experience.
during these processes. This would strengthen parliamentarians’
understandings of the lived realities of citizens
• Leaders need opportunities to develop and
whose lives are affected by proposed legislation
strengthen skills, which may be through action
and improve its development.
learning, building coalitions to learn from the
experience of those with expertise required to
develop meaningful legislation, or mentorship.
• The critical skill of being collaborative is
essential for addressing complex, adaptive
problems that are likely to arise in inclusive
legislative processes.
8 Leadership for Inclusion: What skills and qualities do parliamentarians need to be able to promote inclusive change? 9Introduction
Strong democracies need legislation and policies which recognise, measure
and plan for the specific needs of, and impacts on, all citizens. In particular for
people who have been, and remain minoritised and marginalised, legislation and
policy are needed that improves and secures their rights.1 To ensure this is the
case, legislation needs to be inclusive. We define inclusive legislative change as
legislation and policy which has explicitly recognised, measured and planned
for the specific needs or impacts on marginalised groups, and improves and/
or secures the rights for these groups. Whilst the scope of inclusive legislation is
broad, in this report we look at gender, LGBTQ+ and disability related legislation
and rights. Research has demonstrated the structural barriers to progress for
inclusive change at the societal level, including norms, biases and stigma, and at
the institutional level, such as insufficient evidence or resources2 and has shown
that introducing inclusive legislation is rarely a straightforward and linear process.3
Additionally, successful inclusive legislative the background characteristics of leaders.7
Introduction change requires motivated and committed
political leaders who mobilise to introduce the
legislation and work to ensure that it is passed
Understanding skills and qualities is essential,
because they affect the choices that leaders
make; researchers have emphasised the
and implemented effectively.4 Therefore, to better importance of studying leader agency, and the
understand how inclusive legislative change interaction between structures and agency
can be supported, it is fundamental to focus by exploring how leaders put their skills and
on the political actors involved. Indeed, other resources to use.8 However, there remains
research with a focus on defending civic and comparatively little attention afforded to the skills
political space has also focused on the need and qualities that political leaders draw on to
to move beyond structural factors to focus on support inclusive legislative change, particularly
incentives that motivate individual legislators.5 at the parliamentary level. Additionally, as some
There is important literature exploring of the skills needed for inclusive change may
how leaders influence positive change: to differ from work on other forms of legislation,
what motivates them, how they act, and this research takes a leader-centered approach.
what strategies they use.6 However, these A leader-centered approach emphasises the
perspectives do not fully capture the role key characteristics and life histories of leaders
and changing nature of political leadership, and enables the exploration of how personal
particularly personal and performance factors. factors shape leaders’ ability to initiate and
In the existing literature, there are a number support inclusive legislative change.9 It will also
of perspectives on how to best examine how be important to consider whether the relative
leadership skills are acquired and utilised, importance of these factors change depending
including approaches from organisational on the structural environment in which leaders
psychology, sociology of work or a focus on are situated.
10 Leadership for Inclusion: What skills and qualities do parliamentarians need to be able to promote inclusive change? 11Therefore, this research asks: Approach to the Research party, opposition, national level, state level) Parliamentarians and Inclusive
Are there specific skills and qualities that This research utilises a leader-centered and on different forms of inclusive legislation Legislative Change
(gender-based violence, LGBTQ+, disability).
parliamentarians utilise that enable them approach, to explore the key skills and qualities From the thirty-one interviews conducted, the
to mobilise for, and achieve, inclusive of leaders, foregrounding actors and their ‘inner Therefore, we sought as representative a majority of interviewees emphasised that their
change? lives’ to better understand how their personal sample as possible, taking a “most different” motivation for entering political leadership
attributes may motivate and support them approach which allows us to generalise about roles was also linked to the desire to promote
How
are these skills and qualities utilised similarities that occur across different contexts
to initiative inclusive change.12 Our research inclusive legislative change. For some, this
in this process? and areas of inclusive legislation.14 However,
approach utilises in-depth life history interviews desire began from a young age: “My dream
Do
these factors change depending on the that enable individuals to discuss not only we recognise that there will be aspects of to become a politician started in the 10th
structural environment that leaders are themselves and their lives and experiences, but each of these experiences that are contingent grade… I am the first MP with a disability
situated in? also the social, economic and political spaces on contextual social and political spaces, in my country.”17 However, a number of
that they inhabit.13 This is important, as the skills which we explore further in our analysis. interviewees reflected on the fact that they had
How
can these skills and qualities be
supported and sustained? and qualities needed by parliamentarians may We used a purposive sampling approach, using never considered politics as a career path or as a
change depending on the structural environment existing networks, working with parliamentarians desire: “I would consider myself an accidental
Legislative change, whilst important, is not in which leaders are situated. politician. Unconsciously, I realised that I
for recommendations and contacting those
necessarily transformative. It needs to be didn’t have a voice of my own on national
Furthermore, to be able to understand whether who have been directly involved in inclusive
implemented properly, and it needs to be issues… I was aware that the voices from
the skills and qualities needed for inclusive legislative change. Overall, 31 in-depth
accompanied by wider cultural and social a woman’s perspective were very silent.”18
legislative change are consistent across interviews with parliamentarians or former
transformation, which addresses the direct Their involvement in politics was driven by their
types of legislation, we aimed to focus on parliamentarians in 22 countries were conducted
issues faced by minoritised and marginalised growing realisation of the power of political
parliamentarians who had worked on legislation in English, French, Spanish and Russian. The
communities.10 However, inclusive legislation leadership to create change. However, in spite
in three broad areas: gender-based violence, number of interviews reflects theoretical
is an important first step in this process as it of whether they consider their entry to political
LGBTQ+ rights, and disability rights. It is saturation, the point at which new themes,
pledges protection for individual’s rights in leadership was ‘accidental’ or ‘purposeful,’
important to emphasise that parliamentarians dimensions or relationships did not emerge.15
law. In exploring and considering the skills and parliamentarians interviewed tended to come
qualities which support leaders to succeed interviewed were not necessarily working on Each of these parliamentarians’ legislative
legislation in all of these areas, nor will they work from two main backgrounds: either working
in introducing inclusive legislation, we hope experiences is worth understanding and
on more than one of these areas of inclusive in civil society and activism or within the legal
to be able to build awareness into work with documenting in their own right. However, in
legislation, although some were working on profession prior to entering parliament. Those
parliaments and parliamentarians related to addition to these individual interviews, we
more than one of these legislative areas. The who had a background in law referred to their
the broader performative context of what is extended six of these to focus in-depth on a
processes and stakeholders will differ depending understanding of the importance of legislation
required for inclusive change to be realised. case study of successful legislative change,
on the area of legislation but examining more to shift the responsibility of human rights to
Specifically, through this research we hope to interviewing further stakeholders in these
than one form of legislation is important to gain a the state, and those who had a background in
consider in more depth how leadership might be processes. For each of these six case studies,
more comprehensive understanding of the skills civil society spoke about how this experience
supported,11 and programmes designed which interviews with the additional stakeholders
and qualities required for political leaders to best had illuminated the need for better legislation
recognise and strengthen skills and qualities (20 further interviews) were accompanied by
support inclusive legislative change. However, to protect and support minoritised and
that might more effectively stimulate and sustain media sources, Hansards and other reports and
we do not seek to claim that the skills and marginalised groups.
parliamentarians’ work on inclusive legislation. articles which substantiated and triangulated the
qualities that are effective in one of these areas information provided by political leaders. This
will necessarily work in another. approach builds on the approaches utilised by
In order to more extensively explore the skills other leader-centered political science research
and qualities needed for inclusive legislative to combine in-depth interviews with secondary
change, we also considered it important to data that is publicly recorded.16 It is also designed
explore these within different contexts, with to best support our aim to create guidance tools
political leaders from different backgrounds or a framework for supporting parliamentarians
(e.g., activists, lawyers, local government), at in practice, as it allows us to identify those skills
different stages (e.g. new MPs and long-standing and qualities in context.
MPs), working at different levels (e.g. governing
12 Leadership for Inclusion: What skills and qualities do parliamentarians need to be able to promote inclusive change? 13Figure 1 Figure 2:
= Map of Interviewee’s Country Location Key Skills and Qualities required for Inclusive Legislative Change identified from 31 interviews
0 05 10 15 20 25
Collaborator (24/31)
Strategic thinker (24/31)
Focused (22/31)
Relationship builder (21/31)
Open to learning (19/31)
Trustworthy (12/31)
Creative (9/31)
Self-aware and reflective (9/31)
Although many had similar backgrounds Skills and qualities for inclusive country contexts (18 and 19). Relationship which asked parliamentarians to reflect on their
prior to entering parliament, we interviewed legislative change building was mentioned in all interviews own skills and qualities.20 Their motivation for
political leaders in 22 countries (see Figure 1), In spite of different contexts, institutional with parliamentarians who had worked on leadership to pursue inclusive change may have
with at least one politician interviewed in the settings and types of legislation that they were legislation related to LGBTQ+ rights, perhaps contributed to their unwillingness to centre
following geographical areas:19 Northern Africa involved in, eight skills and qualities were reflecting the lower levels of representation themselves, even in interviews about their own
(Tunisia); Eastern Africa (Malawi; Zimbabwe); consistently mentioned in the interviews. There of members from this community within experience and work. In spite of this, many
Western Africa (Nigeria); the Caribbean are five essential skills and qualities that were legislatures worldwide. Whilst issues related alluded to, or directly mentioned the skills and
(Jamaica); Central America (Belize); South mentioned as having been utilised in two to gender-based violence might relate to the qualities that they utilised in their experience
America (Argentina; Chile); Northern America thirds of interviews or more and can therefore personal expertise of women parliamentarians, of working for inclusive legislative change.
(Canada); Central Asia (Kyrgyzstan); Eastern be considered fundamental for politicians it may be that for those who are working on It is thus important to explore these key skills
Asia (Republic of Korea); South-eastern Asia working on inclusive legislation. There are legislation for LGBTQ+ rights, the importance and qualities in more depth to understand how
(Cambodia; Indonesia; Malaysia; Philippines); three further important skills and qualities that of building relationships with communities these are conceptualised by parliamentarians.
Southern Asia (Afghanistan; Pakistan); were mentioned in multiple interviews, and and listening to ensure that the legislation It is also important to consider the choices
Northern Europe (Denmark; UK); Southern thus may be considered important for political was developed based on their experience that leaders make to demonstrate how their
Europe (North Macedonia) and Oceania leaders in working on inclusive legislative and expertise was particularly fundamental. skills and qualities operate and take effect in
(Australia; New Zealand). change. Figure 2 shows these key skills and Trustworthiness was referred to in 12 interviews different contexts and therefore we explore
We were therefore able to capture the qualities, and how often they were noted and nine country contexts, while creativity and how skills and qualities were utilised in different
experience of parliamentarians in a diverse in the interviews with parliamentarians. self-awareness and reflection were each referred processes of inclusive legislative change.
range of contexts and institutional settings. Being a collaborator was mentioned in 24 to ten interviews and ten country contexts. Overall, it is worth underlining that these skills
interviews across 17 countries, whilst the These therefore represent important skills, but and qualities are political; they are required
skill of strategic thinking, also mentioned perhaps skills that are more contextually specific. to adapt and work within deeply entrenched
across 24 interviews was present in One factor that was also common to all country power structures and bureaucratic norms that
interviews from 20 different countries. Being contexts was parliamentarian’s overarching are shaped by political dynamics. They are
focused, and a relationship-builder noted reluctance to speak directly about their own essential for thinking and working politically,
in 23 and 22 interviews respectively were skills and qualities, with many preferring to which encompasses engaging with political
also acknowledged across the majority of speak about themselves as part of a team. context and the characteristics of external actors
This has also been noted in similar research as well as recognising individual behaviour.21
14 Leadership for Inclusion: What skills and qualities do parliamentarians need to be able to promote inclusive change? 15Five Essential Skills Collaborator
and Qualities
Strategic thinker
Focused
Relationship builder
Open to learning
16 Leadership for Inclusion: What skills and qualities do parliamentarians need to be able to promote inclusive change? 17The ability to work collaboratively and reach out across political divides was the most
commonly mentioned skill, referred to directly by 24 interviewees. Collaboration was
referred as encompassing the spirit of working as a team and putting the legislation
before your personal position, as well as the ability to compromise and negotiate
Collaborator utilising rational arguments and persuasion. It is about striking deals with unusual
suspects as “reforms are not made by reformists alone”22, and so can often be a
The ability to collaborate across political ideologies complex and contentious process. It was considered particularly important when the
and boundaries. Recognise the shared responsibility proposed legislation was considered controversial or had large or active opposition.
for inclusive legislative change to ensure that
There were four core reasons provided as to why being a collaborator was essential
legislation gets enough votes to succeed.
for the passage of inclusive legislative change: to persuade those sceptical of the
legislation itself, to ensure the introduction of this legislation, to ensure the passage
of this legislation and to change the wider conversation surrounding the issue.
Firstly, being collaborative was vital to National Assembly in Zimbabwe reflected
overcoming the challenges related to opposition on the challenges she faced in personally
to the legislation itself, particularly in cases bringing in legislation to tackle child marriage:
where the legislation was considered to be “I needed to amend the marriage act to
controversial. For example, collaboration was insert a minimum age of marriage, but I was
noted in Pakistan as being utilised during the a backbencher. Initially I thought I would do
push for legislation on Anti Honour Killing, as a private members’ bill, but the constitution
there was initially great resistance from some makes that difficult. So, I thought, why
politicians: “One of the most important things don’t I persuade the Minister to do this?”24
is to reach out to opponent political parties to In this case, it was considered that the most
discuss with them… A sticking point was that effective way to move forward with this area
the Council of Islamic Ideology had rejected of legislation was to work with members of
DNA tests as evidence in rape cases. My party the ruling party in parliament to introduce
advised me to seek personal meetings with government legislation on this issue. She also
leaders of the religious parties to address any worked with other parliamentarians across all
concerns they had about these clauses.”23 parties to build pressure on the government
Cross-party personal meetings meant that to act, moving a motion on the Unlawful
those opposing the bill were able to question Practice of Child Marriage which was signed
the parliamentarian who was proposing it, by 70 Zimbabwean male MPs. This willingness
and this opportunity to negotiate and explain to work as a team led to the introduction of
the important aspects of the legislation prior the Government’s Marriages Bill in 2019.25
to the public debate in the parliament was Thirdly, even when parliamentarians were able
considered essential to its ability to succeed. to introduce the legislation themselves, either as
Secondly, collaboration was present in all a government, opposition or private members’
situations where a parliamentarian was in an bill, they considered that strong cross-party
opposition or minority party as the support relationships were particularly important if a
of other parties was required to introduce parliamentarian did not have the numbers within
the required legislation. For example, Jessie their own party for it to pass. For example, Sarah
Majome, as an opposition member of the Elago MP, the youngest women lawmaker in the
18 Leadership for Inclusion: What skills and qualities do parliamentarians need to be able to promote inclusive change? 19violated the right to freedom of expression the importance of this legislation and “that this
Philippines, has authored 426 bills during her Case Study 1:
and privacy,34 due to one aspect that referred is something that is good for everybody.”41
time in Congress, but she stressed that: “you Tunisia – Organic Law No 2017-58 on the
to the criminalisation of satire about women.35 The final law was debated in the plenary
have to be open across party lines, because to Elimination of Violence Against Women
There were also discussions about specific session for 14 hours and adopted on 11th
get the numbers you need to get a Bill passed
issues, including marital rape, and the area of August 2017.42 All 145 MPs present voted yes,
in Congress, you have to have the vote of the Since independence in 1956, there have
the penal code which states that if someone and there were no abstentions or objections,
majority…”26 In this way, being a collaborator been multiple actions to ensure women’s
rapes a girl under 18, but subsequently marries which was unusual as even the constitution
encompassed recognising that you are part rights in Tunisia. For example, five days after
her, they will not be imprisoned. Finally, did not get that level of consensus. The
of the movement, and not THE movement, independence, although women didn’t get
the financing of the provisions to support success of this legislation, the culmination of
as working cross-party might mean that one the right to elect members of the National
women who experienced violence, such as numerous drafts and a years-long struggle by
is not recognised as being the key mover or Constituent Assembly, they did get right to
establishing safe houses and special police were civil society activists,43 is part of a long process
parliamentarian involved in the legislation: “I am vote in the first municipal elections. The right
contentious: “some considered that the law and commitment to gender equality “that
someone who does not have preconceived of women to vote was then consolidated in
was too optimistic and it may not be possible to now concerns the state.”44 However, the fact
political judgements… My main task is to the constitution of 1959 and the country’s first
implement some of its components because of that there were no abstentions or objections
find leaders and join forces. I don’t mind female parliamentarian Radhia Haddad was
their high financial costs,”36 but others thought is a clear indication of the collaboration of
sharing leadership.”27 A common refrain among elected that year. Subsequently, Article 46 of
including these was important to ensure the parliamentarians to come together to ensure that
parliamentarians interviewed was that if you are the 2014 constitution enshrined a commitment
government took these provisions seriously. this law was introduced and that all legislators
happy not being the sole mover or getting credit to gender parity and ending violence against
for the legislation, you can be more effective women.29 The law on the Elimination of Violence There was also a need for strong collaboration were on board. The law is considered ground-
in bringing other parliamentarians on board. Against Women was part of the mobilisation among parliamentarians, and particularly cross- breaking because it focuses on prevention and
to implement these provisions. An initial draft party work: “At the beginning, it was a barrier contains broad-sweeping provisions covering
Finally, the importance of being a collaborator
law was authored in 2014 by a group of experts to reach a consensus with women who do not the many types of gender-based violence
was strongly linked to changing the conversation
and civil society organisations, including the have the same political opinions. There are including political violence.45 However, there
and influencing social norms beyond the
Tunisian Association of Democratic Women, but conservative parties, like my party, and there are have been critiques of the implementation of
legislation itself. As noted in Case Study 1,
this law was side-lined by the government. In parties that are liberal…but then we got together this law46 and the Committee on Individual
working across political divides was important
2015, the Minister of Women’s Affairs assigned and started with the principle that women’s Liberties and Equality have made it clear that
for ensuring that work for inclusive legislation
a new team to adapt the text and this was rights are beyond party-political ideologies there need to be further legislation to address
was not siloed as being an ideological issue.
submitted to parliament in July 2016.30 and we are going to seek a common ground.”37 gender equality, such as equal inheritance.47
It was considered crucial to work across party
This approach was supported by others
boundaries to be able to negotiate with and The law was discussed in the committee from
involved, who reflected on the fact that women
accommodate difference in order to achieve 2nd February -21st June 2017, with 31 hearing
parliamentarians who were usually politically
legislative and societal change. In order to sessions. The draft of the legislation changed a
opposed worked strongly together across party
do this, leaders must effectively navigate lot from that submitted by the Minister of Women
lines to open the door for this legislation.38
between different cultural expectations and Affairs, as the committee actively engaged with
ideologies. Previous research has argued that civil society organisations and other experts.31 Collaborative cross-party work was essential for
this involves cultivating a shared identity and Some parliamentarians played an important the success of the legislation, as one of the major
narrating a shared reality in order to overcome role in engaging with these groups: “I had a lot challenges was ensuring that it was not seen as
potential cultural barriers to collective action.28 of experience and associations with networks being part of an ‘international agenda’: “There
for women’s rights… during the legislature of was a lot of discussion that this agenda is against
2014 and 2019 I did a lot to try and create links religion and will change Tunisia.”39 Legislators
between civil society and parliament.”32 The in parties with religious underpinnings, such
engagement with women who had experienced as Ennahdha, played an important role in
violence, as well as experts who had knowledge convincing people that the legislation was
about the how the law would be implemented not against religion: “religion denounces
was fundamental to the drafting process.33 discrimination…. We shared Qur’anic texts to
convince people.”40 Parliamentarians played a
However, there were some challenges. For
key role talking to people to reassure them of
example, some considered that the Draft Law
20 Leadership for Inclusion: What skills and qualities do parliamentarians need to be able to promote inclusive change? 21The importance of working collectively aligns
As Case Study 1 elucidates, collaboration among A number of parliamentarians spoke of the
with substantial research that has argued that
women parliamentarians was fundamental to importance of long-standing cross-party groups
developmental and transformational leadership
the passage of legislation to tackle gender- as having built up their skill as a collaborator,
I needed to be able to sit in is a collective process, involving interaction
based violence. However, there is a gap between particularly when these groups are focused
and negotiation between multiple leaders.57
willingness to work together, and the ability on particular legislative issues or thematic the middle of some deeply However, being a collaborator is not a simple
to achieve this. Parliamentarians interviewed agendas. These cross-party groups operate as
also shared a number of strategies that they collectives, composed of a diverse set of political
held beliefs. I think that it is by skill to learn; it requires pragmatism, particularly
showing respect to all sides, in politics where being seen to work cross-
used initially to collaborate, overcome cross- actors who attempt to align their interests or
party and as a team are not always skills that
party divides and to start to work as a team. preferences for a specific agenda or goal.51 rather than just seek to drive are valued or factored into effective political
The most commonly noted approach was For example, Maja Morachanin MP referred
to handle this networking with respect for to the collaboration of the pre-existing inter-
through policy change” leadership, especially within party structures.
Interview with MP, UK The extent to which a politician is able to engage
people’s perspectives and ideas, even if they party parliamentary group of MPs working on
in collaborative work depends on the issue,
did not align with their own, For example, LGBT+ issues as having been important in
as well as their degree of public exposure in
during work on a piece of legislation that working on anti-discrimination legislation.52 The quality of being a collaborator may cause
the work they carry out on it, which is always
had strong opposition from religious groups, The skill of being a collaborator also required political challenges for parliamentarians, and
negotiated in terms of their electoral support.
one parliamentarian explained how they had the presence of other key skills. Working for meant that in some cases, individuals needed
It will also depend on their motivations for
utilised their collaboration skills: “I needed to inclusive change necessitates a complex to sacrifice other political goals, or had to utilise
inclusive change, as it may result in a cost to
be able to sit in the middle of some deeply process of negotiating and cooperating over their political capital in order to secure the
their political careers. This is explored in more
held beliefs. I think that it is by showing the core values and ideas that shape society:53 passage of inclusive legislation. When explaining
detail below, when discussing trustworthiness.
respect to all sides, rather than just seek “You have to have the capacity to negotiate, this in relation to the Gender Identity Law in
Most current political leadership training takes
to drive through policy change.”48 It was because in these days the subjects are Chile, former Senator Lily Perez noted that she
place within political parties rather than between
also noted that often approaching people in diverse, there are a lot of points of view, “knew I was going to lose a lot of votes and
politicians across political divides. However,
smaller groups, as individuals, was a strong so you must have the ability to reason and support, but I had good public support and so
based on the need to foster teamwork, cross-
way to build connections: “I approach people analyse and negotiate with others.”54 It also it became my mission… I knew I had political
party leadership training may better strengthen
one by one, or in small groups. For me requires the absence of certain qualities, as capital, which I could use for this cause. But it
collaboration skills for political leaders.
that is a good technique, because when pushing for change as a team may require was politically draining for me, because I had
you have 30-50 people, especially people leaders to be flexible and accommodate ideas to leave my party.”56 Another parliamentarian
who are not convinced, it is not that easy that differ from their own. For example, when spoke of the isolation she felt in moving a piece
to pass on your ideas to a big group…”49 asked about which qualities may not support of inclusive legislation that was not supported
Other strategies were to pay close attention collaboration, one parliamentarian identified by the majority of her party. However, she
to what other parliamentarians have said on stubbornness, “anyone who is stubborn argued that this had cemented the necessity
these issues, and then meeting them face to about their views or think they know best. of collaborative working and the importance
face, building personal connections outside Anyone who doesn’t have respect for the of building extremely strong relations with
of the institutional setting of parliament. point of view of the other person.”55 members of other political parties.
Furthermore, having the ability to create a shared
purpose, or identify shared values, potentially
through informal meetings has also been
noted in the literature as being important for
galvanising support for inclusive legislation.50
22 Leadership for Inclusion: What skills and qualities do parliamentarians need to be able to promote inclusive change? 23Working on inclusive legislation of any sort, but particularly if this legislation is
deemed to be controversial, requires strategic thinking. As evidenced in Figure
2, this was the other skill most commonly noted as being utilised by members
of parliament. Strategy requires developing a plan from where you are, to where
Strategic thinker you want to be. It must involve a political mindset that can determine how to
solve problems collaboratively, as well as managing and adapting, and creating
Being knowledgeable about the institutional and societal new opportunities within existing institutional and societal contexts.
barriers to legislation. Carefully plans how to overcome
these utilising and unifying the contributions of a wide
range of stakeholders. Having a political mindset to There were two key aspects of strategic thinking that presenting legislation that encompasses
frame the legislation in response to potential opposition. that were commonly present in parliamentarians’ violence against all people may garner more
explanations about how they had utilised this support than framing legislation primarily
skill during legislative processes. Firstly, the as addressing violence against women.
importance of framing the legislation, such Secondly, strategic thinking was associated
as it being about ensuring rights, as being with the way in which the legislation was
the state’s obligation: “As part of the state, communicated and with whom it should be
we have a responsibility to protect all our communicated with: “You have to be very
citizens. We don’t get to choose, so that is the well-targeted with your messages and you
kind of framing and lens I use.” 58 However, have to think about who you are trying to
in other cases, it was considered that this convince.”61 Strategies to elicit change need to
approach wouldn’t work, as those who didn’t be tailored from within and according to local
support the legislation may not identify with context. They also need to relate to the electorate
the same concept of universal citizen rights. in meaningful ways: “Research shows that
In Cambodia, for example, the parliamentarian the difference in communicating 5 million, 15
involved felt that strategically the argument million and 1.5 billion is very little. You need
for legislation to tackle gender-based violence to say, ‘this new fund is going to help 1000
would be more persuasive if underpinned people instead of 100.’ You can relate to 1000
by the language of protecting the family and people…A symbol without substance is just
culture.59 Overarchingly it was considered that empty rhetoric, and substance without a
strategic thinking about the framing of legislation symbol isn’t going to be remembered. When
required understanding who you were trying to we raised the pride flag on Parliament Hill, it
persuade, and what issues mattered to them. was both symbolic and substantive.”62 A further
In one example, the parliamentarian’s strategy strategy of communication that was present in
was clear: “I went to business leaders and the majority of parliamentarians’ experiences
countered their arguments with the evidence of working on inclusive legislation was the
and communications. You have to do your importance of thinking long term and ‘rolling
homework, get your research and develop clear the pitch’63, or preparing people for what you are
messages and have a sense of understanding going to do, ensuring that there is transparency
of who you’re trying to influence and what about the aims of the policy and the implications
the messages are to get to those people.”60 of the policy: “I tried hard to get psychiatrists,
Additionally, in others’ experiences, thinking doctors, psychologists, sociologists, people
strategically meant recognising that it was from a scientific standpoint, because science
better to conceptualise the issue in a broader is well respected within the centre-right.
way. For example, in Nigeria it was mentioned This could rationally explain to those who
24 Leadership for Inclusion: What skills and qualities do parliamentarians need to be able to promote inclusive change? 25lacked knowledge about the experience of a After Wall’s bill was drawn on 26th July 2012, to go both ways, with campaigners stating Finally, one other aspect of thinking strategically
trans person… people insisted that it was an she and Kevin Hague agreed to work together.69 that parliamentarians needed to trust that was related to the timing of introducing
ideology of gender that is linked to Marxism Both MPs had a reputation for teamwork and the community know what they are doing, legislation. As noted in Case Study 2, Obama’s
and refused to understand that it is a human created a cross-party group for marriage equality be humble and open to engagement, whilst statement on equal marriage played an
rights issue. So, my strategy was to come to get different political parties involved.70 As putting the issue before party politics.77 important role in encouraging the support of
out in all media outlets to educate as many Louisa Wall was at the time an opposition MP, Whilst the strategy within parliament to attract key political actors, but parliamentarians also
people as I could.”64 Case Study 2 provides and the governing coalition had a working widespread support was effective, the main mentioned the importance of introducing
strong examples of the strategic thinking skills majority of seven, the ability to build relationships challenge to the legislation came from outside, legislation early on in the parliamentary term:
that were utilised to develop careful framing across all parties was particularly important particularly from religious groups. Louisa “in the first or second year when nobody is
and communication strategies to support the during the first reading, as parliamentarians Wall MP noted her commitment to actively thinking about elections but engaging with
Campaign for Equal Marriage in New Zealand. aimed to ensure that there was no ‘de facto’ speaking to those that might be against the other things. The trick is to do those changes
position from any party: “I e-mailed people legislation, meeting with people in the regions, at the very beginning, but to do this, we need
Case Study 2: before the first reading… I invited them to come a group of parliamentarians who are aware
Pacific community leaders who in addition to
New Zealand Marriage (Definition of and talk to me… my door was always open.”71 and ready.”83 Related to understanding and
religious leaders (on the whole) were mostly
Marriage) Amendment Bill (2013) On 29th August 2012, the bill passed the first working strategically within the parliamentarian
opposed: “there was no rule book. I went
reading with 80 votes to 40 and moved to the everywhere and anywhere… I went and talked institutions, it was also considered that knowing
This legislation came from the culmination of a Government Administration Select Committee about those fundamental principles that the rules and regulations of parliamentary
long history of legislative action for the rights of for further consideration and public input. underpinned the bill… if they said something practice is fundamental to be able to adapt
LGBTQ+ people and arose partly as a result of Strategic planning was a core part of the provocative, I didn’t react… I didn’t give them strategy depending on how it is working.
the global shift in the conversation on marriage campaign: “we basically used a Likert scale, that space, I just continued to focus on the Therefore, strategic thinking centres on
equality. All those interviewed referred to Barack who is strongly supportive, who needs to be principles of the bill.”78 Wall’s communicating having a political mindset that understands
Obama’s statement of support for same-sex bolstered, who could go either way and who skills were noted by fellow parliamentarians the context in which the legislation is
marriage and how this was considered to have is so strongly opposed that there is no point and activists alike, particularly her charismatic being introduced, the quality of emotional
influenced Prime Minister John Key’s decision to putting effort it. We made sure we had multiple leadership style79 and her consistent messaging intelligence of the leaders driving change and
verbally support same sex marriage, although it points of triangulation and set about a plan of the legislation being about equality. understanding how the legislation should be
was not a priority for his party.65 At this point it to figure out what arguments or evidence framed to convince those who may oppose
was considered, that although the government The committee reported back on 27th February
or persuasion they would need.”72 Activists 2013, recommending that the bill proceeded it. Alongside this is the requirement to be
would not put forward this legislation, that if the referred to Hague’s strategic and analytical able to communicate on the basis of that
legislation could be put before parliament, it with amendments, passing the second reading
approach as having been an important skill on 13th March 2013. However, as a Private contextualised awareness of what will drive
would have a good chance of being successful. utilised throughout,73 including in determining key actors, role-players and stakeholders
Member’s Bill, progress relied on cross-party
Opposition MP Louisa Wall, supported by her how to manage public submissions, and then work to commit to ensuring that the Bill had the to support and effect legislative change.
mandate from her constituents, commitment carefully utilising these to promote the framing smoothest possible path through the House,
from her party, and her role as Chair of Labour’s of the legislation as being about love, equality including parliamentarians taking short speaking
Parliamentary Rainbow Caucus,66 began to draft and respect.74 This framing of the legislation, to slots to ensure that a whole stage of debate
this legislation to submit to the Members’ Ballot. ensure that the state provides equal opportunity was able to take place in one evening.80 During
She consulted with Justice Thomas, who was the to marry, was also outlined in Louisa Wall the final reading, it was clear that the framing of
dissenting Judge in the New Zealand’s Court of MP’s speech during the first reading.75 the legislation as being about equality and love
Appeal ruling on an application brought by three All parliamentarians stressed the importance had persisted through multiple speeches from
lesbian couples. He found that the Marriage of engaging with community groups, but that MPs in numerous different parties.81 “This was a
Act 1955 was discriminatory,67 and helped to “having credibility with the groups outside really good sign of the ability to bridge people’s
determine how the Marriage Act needed to be parliament was important. Our coordinated thinking in areas where the impact of this bill
amended. According to minority former Green campaign with an inside strategy and would be huge.”82 The bill passed on 17th April
Party MP Kevin Hague, who also submitted a outside strategy wouldn’t have worked if we 2013 with 77 votes in favour, to 44 opposed.
bill on marriage equality, “really that was the hadn’t been trusted by the people outside
obstacle, actually getting the bill drawn, because Parliament.”76 However, this trust also needed
it was not going to be a government bill.”68
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