Symposium by GQUAL on CEDAW’s GR40: A Catalyst for Gender Equity and Climate Justice

[Mamta Borgoyary is an Executive Director at SHE Changes Climate]

I believe that 2025 will mark the beginning of a paradigm shift in social transformation, guiding us towards a world that is rooted in justice, compassion and equity. The adoption of the  General Recommendation 40 (GR40) by CEDAW, represents a pivotal step toward elevating women’s participation in historically underrepresented critical spaces, including diplomacy, multilateral forums, international judiciary, peace and security, arbitration, and trade. By emphasizing inclusion and diversity as central to governance and policy-making, GR40 lays the foundation for equitable and sustainable societal transformation.  

CEDAW has long been a cornerstone for gender equity, but the adoption of GR40 expands its scope into critical global challenges, including climate change. The recommendation serves as a powerful tool for climate justice advocates, calling attention to the historically neglected role of women in climate decision-making. Built upon seven strong pillars of inclusion, it paves the way for equity and inclusion of diverse perspectives as the backbone to future social transformation. It strengthens the legal framework for advancing gender equity, advocating for 50-50 representation in shaping climate policies and actions, a crucial gap that has hindered inclusive and effective response to the climate crisis. Addressing this gap is not merely about fairness, but about creating more effective, inclusive, and impactful responses to the global climate crisis. 

Gender Disparities in Climate Leadership 

Over the past two decades, environmental risks have consistently ranked among the greatest long-term global concerns, with state-based armed conflicts and geo-economic confrontations emerging as equally significant threats (Global Risks Report, WEF, 2025). Women are disproportionately affected by both these crises, yet they remain underrepresented in spaces where decisions about these challenges are made. 

A recent research by the International Union for Conservation of Nature (IUCN) highlights that while women are among the most vulnerable to the impacts of climate change, they are also critical agents of environmental conservation and sustainable practices. Promoting gender equality can unlock economic opportunities, accelerate climate action, and reduce poverty. Despite the significant contributions of women in climate action, their underrepresentation in decision-making processes remains a critical challenge.  

The statistics are stark- since COP1 in 1995, only 6 women have been appointed as COP presidents, a clear indication of the entrenched gender disparities in climate leadership. The representation of women in national delegations has remained still around 34%, a sad reminder of the systemic changes required at the national level. The annual family photo of the COP presidency published every year, starkly highlights the systemic imbalance in leadership representation. 

The disparity extends to climate finance. Women-led projects and organizations receive only a fraction of global climate funding, further exacerbating the inequities in climate action. The absence of equitable representation not only limits the inclusivity of climate solutions but also undermines their effectiveness.  

SHE Changes Climate and GR40 

SHE Changes Climate has been at the forefront and actively advocating for systemic shifts towards a 50-50 representation of women and men across all levels of climate decision making. The adoption of GR40 provides a strong legal and institutional foundation for these efforts, offering a concrete framework to demand systemic change. 

In a recent SCC consultation (October 2024) involving women leaders from 30 countries, participants shared their experiences and challenges in engaging with climate governance. A recurring theme was the lack of equal representation, which often led to biased policies that failed to address the specific needs of women and marginalized communities. Many countries reported that this exclusion also limited access to finance for women and women-led projects, reinforcing structural inequities. GR40’s adoption is a significant step forward in addressing these challenges, but its true impact will depend on its implementation and enforcement. 

GR40 as a Climate Justice Advocacy Tool. 

GR40 can also serve as a compelling advocacy tool when aligned with national climate policies and international frameworks like the Paris Agreement. Creating consistent awareness of GR40 is essential to harness its potential as a powerful advocacy tool for advancing women’s leadership in climate negotiations. As the legal framework for climate change continues to evolve, GR40 offers a robust foundation to advocate for gender-equitable participation in decision-making processes. To leverage this effectively, it is crucial to organize targeted training and orientation programs for stakeholders, including policymakers, negotiators, and civil society organizations. These initiatives should focus on unpacking GR40’s provisions, emphasizing its relevance to climate justice, and equipping advocates with the knowledge and skills to incorporate its principles into climate action agendas. 

GR40 in Climate Governance and Accountability Mechanisms 

Furthermore, integrating GR40 into monitoring and accountability mechanisms within climate negotiations can ensure its principles are operationalized, fostering a more inclusive and effective global response to the climate crisis. This will necessitate aligning its provisions with established frameworks such as the Lima Work Programme on Gender (Lima) and the Gender Action Plan (GAP) under the UNFCCC. Both frameworks underscore the importance of gender-responsive climate action, offering a solid foundation for embedding GR40 into the broader climate governance ecosystem. GR40’s mandates can be incorporated as critical indicators in GAP reporting processes. For instance, countries could be required to showcase their efforts in addressing women’s underrepresentation in decision-making spaces, aligning their progress with GR40’s mandatory recommendations. 

Periodic progress reports submitted by Parties to the UNFCCC could include updates on achieving the 50-50 representation target in climate negotiations and policy-making bodies. However, it is vital to ensure that this representation moves beyond tokenism, translates into meaningful participation and includes authentic voices that bring diverse perspectives to the table. By weaving GR40 into the operational frameworks of Lima, GAP, and other UNFCCC mechanisms, the recommendation becomes a robust tool for institutionalizing gender equity and ensuring women’s leadership in climate negotiations. This approach reinforces accountability while driving systemic change in global climate governance. 

Climate negotiators, particularly women leaders, need to be empowered with the knowledge and tools to advocate for GR40’s integration into Nationally Determined Contributions (NDCs) and long-term climate strategies. Developing accountability mechanisms that link GR40 to national climate governance frameworks is crucial. Furthermore, mandating climate financial institutions and funding bodies to align their eligibility criteria with GR40’s recommendations is an essential step forward. 

Climate finance institutions and mechanisms, such as the Green Climate Fund (GCF), should adapt their funding requirements to prioritize projects that emphasize gender equity and include women in leadership roles. Aligning GR40 with these funding frameworks would not only drive equity-focused projects but also ensure that climate finance is more inclusive and impactful, directly contributing to a more just and effective global climate response. 

The Broader Implications of GR40 

The adoption of GR40 is not just a milestone for gender equity but also a critical opportunity to address some of the most pressing challenges of our time. Research has shown that higher rates of women’s representation in national parliaments are associated with stronger climate policies and lower carbon emissions. Countries led by women exhibit a 10% greater commitment to addressing climate change compared to those led by men. These findings underscore the transformative potential of GR40 in driving systemic change. 

However, the road ahead is daunting. According to the Global Gender Gap Report 2024 by the World Economic Forum, achieving full gender parity will take 134 years at the current rate of progress. This timeline, extending far beyond the 2030 Sustainable Development Goal (SDG) target, highlights the urgency of implementing GR40’s recommendations as mandatory measures. 

Moving Forward 

For GR40 to achieve its transformative potential, its implementation should be supported by effective monitoring and accountability mechanisms. While the recommendations themselves are not legally binding, countries should be encouraged to align their policies and actions with them, with rigorous, consistent monitoring to ensure that commitments lead to tangible actions. 

To maximize its impact, GR40 can be positioned as a central pillar of climate governance. This includes integrating it into national climate frameworks, aligning it with international agreements, and using it as a benchmark for funding and policy-making. By doing so, GR40 can help create an enabling environment for addressing the intersecting challenges of gender inequity and climate change. 

The adoption of GR40 has the potential to be a transformative milestone for climate justice. By explicitly addressing the systemic underrepresentation of women in critical decision-making spaces and advocating for their equitable participation, GR40 paves the way for more inclusive and effective climate governance. Its implementation could bridge longstanding gaps in gender equity, ensuring that women’s voices, experiences, and leadership shape climate solutions at all levels. If embraced and operationalized with the urgency it demands, GR40 could redefine the global climate agenda, anchoring it firmly in principles of justice, equity, and sustainability.