I think this sort of problem (i.e. not defining a reference group) is larger than just elementary math books. For example, every day the weather person tells us that there is an X% chance of rain. I wonder to myself, "Percent of what?" It could be a number of things:
1) Percent of all the days like today?
2) Percent of the area?
3) Percentage of the next 24 hours?
I tend to interpret it as #1, but I don't think the answer is completely clear. As another example consider that some birth control pills are 99.9% effective. I ask, "99.9% of what?"
1) Percent of the women who use them?
2) Percent of the times one is inseminated?
The answer is not clear to me because no reference group is made. Just as in spadebidder's example, you can say the ratio of men to women is just under 1:1, or you can say the ratio of men to people is just under 1:2. But a reference group is necessary.
On a lighter note, the wife of a colleague of mine is an elementary ed teacher. She was trying to teach her students percentages recently when one student commented, "Mrs. XX, when are we ever going to have to use percentages in real life anyway?"
Sigh.
Sherman