It depends on your view to describe women's empowerment. It is formative when it's assessed based on indicators and it will be reflective when the causality will be described from construct to items.
And I concur with Muhammad. Women's empowerment is mostly formative in nature because a lot of literature just looks at women's empowerment and its relationship to their traits; very few studies, however, contextualize it on multiple levels in order to gain a deeper understanding of the construct.