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This article explores institutional and other factors facilitating the substantive representation of women in parliament. It engages with a range of indicators of substantive representation, including process/responsiveness indicators, legislative/policy outcomes and attitudinal alignment of women representatives and women in the community. It presents an Australian case study of a successful initiative by a cross-party group of women parliamentarians to facilitate access to the abortion drug RU486. It finds that critical mass, critical actors and a critical juncture were important but so was institution-building, particularly the under-studied role of parliamentary groups.

The 1990s have witnessed a wide range of initiatives at national and international levels to increase the parliamentary representation of women. It is argued here that the “underrepresentation of women” is an inherently ambiguous slogan that has wrapped up in it quite different families of arguments, including the right to represent, the need for representativeness, and the representation of interests. This ambiguity is politically powerful but may cause problems for the practice of representation. The article concludes that “making a difference” discourse may lead to an over-emphasis on embodiment and a neglect of issues of accountability.

The neo-liberal upsurge of the last twenty years and the neo-liberal case against the welfare state has gained much of its emotional force from a sub-text which is highly gendered. Whereas social liberalism had contained the promise of more autonomy within the private sphere and more caring values in the public sphere, neo-liberalism depicts the results of social liberalism as a loss of self reliance – through ‘over-protection’ by the state in the public sphere and usurpation of male roles in the private sphere. The identification of the welfare state as female (the ‘nanny state’) helps fuel resentment on the part of those already confused by rapidly changing gender roles. This paper tracks the sex change which took place in the image of the liberal state as it evolved out of the night watchman state – the link between the women's suffrage movement and social regulation, maternal principles of distribution and demands for the public organization of caring. It examines the neo-liberal rejection of the breast and neo-liberal claims that the maternal state is incompatible with ‘self-reliance’ and a barrier to competitiveness in the world market.