It's about the Women's Suffrage Movement and the extreme lengths to which some women would go to gain the right to vote. (Which didn't help their cause). http://www.kiplingsociety.co.uk/rg_female1.htm    It was published in 1911, when the Women's Social and Political Union was making the headlines with militant action.  The last two verses say that women should not govern because they are inherently unjust.

Kipling is, perhaps, the most misunderstood of poets and, perhaps, the most undeservedly unpopular.  He was nothing like his popular image.  Of course, you don't have to agree with everything he said, but his views were not unpopular in his own time and they reflected public opinion.  In fact he was more liberal than most men of his day. 

To loosely quote from wiki:
"Suffragettes carried out direct action such as chaining themselves to railings, setting fire to mailbox contents, smashing windows and on occasions setting off bombs. Many suffragettes were imprisoned and went on hunger strikes, during which they were restrained and forcibly fed and had reached the height of their campaign by 1912."

 The right to vote was gained by some English women in 1918 and by some American women in 1920. 


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