Grassroots pathway of women's representation in Indonesia : a comparative study of PKB and PAN in the 2024 general election

Abstract

This study investigates the persistent gap in women’s representation in Indonesia’s parliament despite institutional reforms intended to promote inclusivity. The National Awakening Party (PKB) and the National Mandate Party (PAN) share some similarities, including quota rules, open-list PR system, affiliation with Islamic social organizations, and the placement of women in strategic candidate list positions in 2024. Yet their outcomes diverged in the 2024 general election: PKB secured 23.5% women’s representation, compared to PAN’s 16.7%. Drawing on a comparative qualitative approach and the Most Similar System Design (MSSD), this study argues that PKB achieved higher women's representation by utilizing grassroots pathway that transformed social networks into political capital. This pathway advanced women’s representation through three mutually reinforcing dynamics: strong linkages with Nahdlatul Ulama’s women’s organizations (Fatayat NU and Muslimat NU) generated a continuous pool of qualified women candidates; inclusive recruitment under consistent party commitment ensured their placement in winnable positions; and the accumulation of social and political capital enhanced their legitimacy and electoral support. By channeling organizational resources into electoral competition, PKB successfully implemented an informal strategy that contributed to women's representation more effectively than relying solely on quotas, pen-list PR system, or single candidate placement. This study concludes that in a clientelistic party system, grassroots pathway play a key role in sustaining women's political representation.