Andrea Fleschenberg Afghanistan’s parliament in the making Gendered understandings and practices of politics in a transitional country
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7^Wa^d\gVe]^XYViVd[i]Z 6[\]Vc^hiVc¼heVga^VbZci^ci]ZbV`^c\ Content EgZ[VXZ , >cigdYjXi^dc && 1 State- and institution-building in post-2001 Afghanistan 27 &#& 6X]^ZkZbZcihd[VcYX]VaaZc\Zhid6[\]Vc^hiVc¼h hiViZ"VcY^chi^iji^dc"Wj^aY^c\ (( &#' 6X]^ZkZbZcihd[VcYX]VaaZc\Zhid6[\]Vc^hiVc¼h eda^i^XVahnhiZbVcY^ihaZ\^haVi^kZ[jcXi^dcVa^in *% 2 Doing politics – findings from worldwide experiences to raise women parliamentarians’ political effectiveness 75 '#& 8ddeZgVi^dcl^i]eVga^VbZci!ldbZc¼heda^i^XVa bVX]^cZgn!VcYX^k^ahdX^Zin -' '#' 8VjXjh^c\VcYcZildg`^c\ -* 3 Major findings of the survey on women parliamentarians 93 (#& EZghdcVaWVX`\gdjcYhVcYeVi]lVnh^cideda^i^Xh .( (#' 6XXdjciVW^a^in!hjeedgi!VcY^ciZgVXi^dcl^i]hdX^Zin .- (#( 4 Major findings of the survey on male parliamentarians 133 )#& EZghdcVaWVX`\gdjcYhVcYeVi]lVnh^cideda^i^Xh &(( )#' 6XXdjciVW^a^in!hjeedgi!VcY^ciZgVXi^dcl^i]hdX^Zin &(, )#( 5 Conclusions and the way forward 160 6WWgZk^Vi^dch &,& GZ[ZgZcXZh &,' :cYcdiZh &-' Preface I]Z=Z^cg^X]7aa;djcYVi^dc]VhWZZchjeedgi^c\egd_ZXihegdbdi" ^c\YZbdXgVXnVcYi]ZVXi^kZeVgi^X^eVi^dcd[ldbZcVcYbZc^ci]Z egdXZhhd[gZWj^aY^c\6[\]Vc^hiVch^cXZZVgan'%%'#6bdc\i]ZhZ!^i hjXXZhh[jaan[dhiZgZYi]ZLdbZcVcY8]^aYgZcAZ\VaGZhZVgX];djc" YVi^dc L8AG; !6[\]Vc^hiVc¼hhdaZgZhZVgX]^chi^iji^dcidYViZ[dg ldbZc¼hg^\]ih#6hejWa^h]Zghd[Vl^YZanX^gXjaViZYldbZc¼hbV\V" o^cZ!i]ZL8AG;gZVX]ZhVaVg\Z!^ciZgZhiZYVjY^ZcXZ#I]ZbV\Vo^cZ¼h XdkZgV\Zd[eda^i^XVaXdciZciVcYhdX^Va^hhjZhi]ViVgZZheZX^VaangZa" ZkVciidldbZcXaZVganhig^`ZhVX]dgYVbdc\^ihgZVYZgh]^e#I]Z gZcdlcZYVci]gdedad\^hiVcYh^c\ZgHVbVgB^c]VaaVVcYi]Z=Z^cg^X] 7aa;djcYVi^dc_d^cianegdYjXZYVcjbWZgd[hdc\h[dXjh^c\dc X^k^XVXi^dci]ViideeZYi]Z6[\]VcX]Vgih·VcdiZldgi]nVX]^ZkZ" bZci!Xdch^YZg^c\i]Zh`Zei^X^hbl^i]l]^X]aVg\ZeVgihd[i]Z6[\]Vc edejaVi^dchi^aagZhedcYidi]ZegZhZcXZd[ldbZc^cejWa^Xa^[Z# DjgeVgicZgh]^el^i]i]Z6[\]VcLdbZc¼hCZildg` 6LC gZ" hjaiZY^ci]Z[djcY^c\d[Vndji]dg\Vc^oVi^dc[dXjhZYdcVYkdXVXn! l]^X]hjXXZhh[jaancZ\di^ViZYl^i]i]ZB^c^hignd[IgVchedgiid]VkZ heZX^VagZhZgkZYhZVih[dgldbZc^cigdYjXZY^cdkZgXgdlYZYejWa^X igVchedgikZ]^XaZh# ;dgjh!i]ZfjZhi^dcgZbV^ch]dllZXVcXdcig^WjiZZ[[ZXi^kZanid X^k^aYZkZadebZciVcY[dhiZgeda^i^XVaeVgi^X^eVi^dc^ci]Zegdk^cXZh ·VgZVhWZndcYi]ZgZVX]d[i]Z^ciZgcVi^dcVadg\Vc^oVi^dchXdcXZc" igViZY^c@VWja#>ca^\]id[i]^h!^ilVhVk^gijVahigd`Zd[ajX`i]Vi ig^WVaZaYZgh[gdbi]Zhdji]ZVhiZgc6[\]Vcegdk^cXZd[EV`i^nVijgcZY idHl^hheZVXZ^c'%%(idZmeadgZlVnh^cl]^X]i]ZnXdjaYWZXdbZ ^ckdakZY^ci]ZeZVXZVcYgZXdchigjXi^dcegdXZhhZhVcYldg`id" \Zi]Zgl^i]Wdi]i]Z6[\]Vc\dkZgcbZciVcY^ciZgcVi^dcVagZegZ" hZciVi^kZh#>c9ZXZbWZg'%%(!i]ZIg^WVaA^V^hdcD[ÄXZ·h^cXZgZ" cVbZYI]ZA^V^hdcD[ÄXZ IAD ·lVh[djcYZYl^i][jcY^c\[gdb i]Z=Z^cg^X]7aa;djcYVi^dcVcYHl^hheZVXZ#I]Zegd_ZXigVe^Yan \V^cZYbdbZcijb!VcYWn;ZWgjVgn'%%)!i]Zdg\Vc^oVi^dc]VY deZcZYd[ÄXZh^cEV`i^nV!EV`i^`V!VcY@]dhi^cVYY^i^dcid^ih]ZVY" fjVgiZgh^c@VWja#>c'%%-!V[jgi]Zgd[ÄXZdeZcZY^c?VaVaVWVY#IAD ^hcdl^c\gZViYZbVcYVhVhjXXZhh[jabZY^VidgWZilZZci]ZXZcigVa \dkZgcbZciVcY^ciZgcVi^dcVadg\Vc^oVi^dchdcdcZh^YZVcYigVY^" 7 i^dcVaadXVahigjXijgZhdci]Zdi]Zg# ;gdbi]ZdjihZi!dcZd[djgXdcXZgch]VhWZZcid^cXgZVhZi]Z ^ckdakZbZcid[ldbZc^cYZX^h^dc"bV`^c\VcYidZchjgZi]Vi\^gah [gdbXdchZgkVi^kZ[Vb^a^ZhVahd]VkZi]Zdeedgijc^inidViiZcYhX]dda# IdYVn!lZ]VkZidXdcXZYZi]VilZVgZhi^aa[Vg[gdbi]Zegd_ZXi\dVa d[hZXjg^c\[gZZYdb!ZfjVa^in!VcYeda^i^XVaXd"YZiZgb^cVi^dc[dgi]Z Zci^gZedejaVi^dc#I]ZgdVYidi]Vi\dVaVeeZVghZheZX^Vaanadc\^c hdji]ZgcVcYhdji]ZVhiZgc6[\]Vc^hiVc# >ci]^h'%%.ZaZXi^dcnZVg!i]ZgZhjaihd[h^mnZVghd[]VgYldg`dc djgeVgiVcYi]Vid[di]Zgdg\Vc^oVi^dchVgZhdWZg^c\/ZaZXi^dcXVb" eV^\ch[ZVijg^c\XVcY^YViZh!deZcZaZXi^dcZkZcih!X^i^oZch¼]ZVg^c\h! 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Using · Make a point of nominating and · Influence parliamentary agendas: the Rules voting for women in internal introduce women-sensitive elections and within parties. measures (e.g., changes in parliamentary work schedules to Draw attention to absence of · suit working mothers). women in key positions. Establish public enquiries on Invest in committee work. · · women’s issues and use findings to · Push for and establish govern- place issues on government agendas ment equal opportunity positions and within legislative programs. and women’s ministries. · Speak for, co-sponsor, and sponsor · Campaign to expand existing bills. structures to include women’s Seek partnership with male concerns. · colleagues. Set up networks to train in more · Make public issue out of certain convincing and less adversarial · concerns by cooperating with the types of debate. media (e.g., on ways of referring to women in parliament, sexual harassment issues). · Link gender inequalities to other inequalities. · Form alliances with other excluded groups to seek representation. · Use the media as a part of the effective outreach strategy to widen women MPs’ constituencies and public support bases. 90 Institutional / procedural and Influence on representation output and discourse Changing · Change candidate selection rules · Encourage the providing of the Rules for the entire party, especially for financial incentives to programs / leadership positions. projects designed to facilitate women’s decision-making Introduce quota systems on · endeavors (e.g., for leadership- certain committees or issue of training schools; increasing proportionality of men / women government subsidies to political representation. parties with more women in · Establish a women’s whip, i.e., a leadership positions / candidates; manager for parties / legislatures introducing a specific women’s responsible for the politicians’ budget earmarked for enhancing commitments to women’s women’s decision-making). agendas. · Cooperate with the women’s · Establish gender-equality movement and the media to change committees. the image of women as “only” housewives, to portray them as · Establish national machinery to effective and efficient politicians monitor implementation and and to normalize the image of a ensure accountability; institution- woman politician. alize regular debates on progress into the parliamentary timetable. · Be proud of identifying as a woman, instead of attempting to · Establish mechanisms to imitate men and hide or deny encourage female speakers (e.g., womanhood. giving them priority over male colleagues). · Expand legislation to include emerging issues of importance to · Participate in institutional and women (e.g., conflict resolution and procedural reform and moderni- peacemaking, human rights, special zation processes to ensure the women’s budgets). resulting changes are women- friendly. 91 3 Major findings of the survey on women parliamentarians >VbbZZi^c\ldbZcdcXZdgil^XZVlZZ`VcYldg`djii]Z egdWaZbhi]Vii]ZnVgZ[VX^c\a^`Z[dgXZYbVgg^V\Zdgl]Zc \^gahVgZWZ^c\igVYZY#>lZcinZhiZgYVnid<]Voc^VcYbZil^i] bneZdeaZ ldbVcBE^ciZgk^ZlZY # 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[dg^chiVcXZd[ÄX^VabVgg^V\ZgZ\^higVi^dc &gZhedchZ dg^ci]ZXVhZ d[gZkZghVad[ldbZc¼hg^\]ih &BE 0VcY X i]ZcZZYidÄ\]ik^daZcXZ V\V^childbZc (BEh # 8]Vgi/EgZ[ZggZYbZX]Vc^hbhd[^ciZgVXi^dcd[VldbZceVga^VbZciVgn cZildg`dgXVjXjh&%. bjai^eaZVchlZghedhh^WaZ 131 8]Vgi/EgZ[ZggZYadXVa^in[dgbZZi^c\hd[VldbZceVga^VbZciVgncZildg`dg XVjXjh&&% bjai^eaZVchlZghedhh^WaZ UNIFEM Resource Centre Parliamnet/Council (or nearby) /Rented) office Suitable/accessable place Other No answer Unclear ;djgldbZceVga^VbZciVg^VchheZX^ÄXVaanXdbbZciZYdci]Za^`Za^" ]ddYd[hjX]VcZciZgeg^hZVhi]Z^c^i^Vi^kZ[dgVldbZceVga^VbZc" iVgnXVjXjh^ci]Z6[\]VceVga^VbZci#6aaYdjWii]ZegdheZXihWZXVjhZ d[Y^[[ZgZci[VXidghVcYZmeZg^ZcXZh/ · ldbZcdcanjc^iZdcldbZc¼h^hhjZhWjicdidi]Zgh0 · \^kZci]ZaVX`d[jc^inVbdc\ldbZcBEh!^i^hkZgnY^[ÄXjaiid XddgY^cViZi]Z^gldg`0 · hdbZldbZcBEhVgZ^ciZgZhiZY^chjX]XddeZgVi^dc!Wjidi]Zgh VgZcdiYjZidegZk^djhbZZi^c\hl^i]dji[gj^i[jagZhjaih0 · jc[dgijcViZanaVc\jV\ZVcYfVlbVgZkZgn^bedgiVcil^i]^ceVg" a^VbZciVgncZildg`VcYXdbb^iiZZhigjXijgZhVcYi]jhbV`Z Y^[ÄXjai^hhjZ"dgeda^Xn"WVhZYcZildg`^c\# 8]Vgi/A^`Za^]ddYd[ldbZceVga^VbZciVg^VchgZhedcY^c\edh^i^kZanidVc ^c^i^Vi^kZ[dgVldbZceVga^VbZciVgncZildg`dgXVjXjh *2kZgna^`Zan!&2 VWhdajiZanjca^`Zan 132 4 Major findings of the survey on male parliamentarians 4.1 Personal backgrounds and pathways into politics ;dgbdgZi]Vc]Va[d[bVaZBEh^ciZgk^ZlZY^ci]^hb^XgdhVbeaZ! 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B Environment for possible cooperation ;jgi]ZgbdgZ!jcXZgiV^cinVWdjibVcYViZh!gdaZh!V\ZcYVh!VcYegd" XZYjgZhd[eda^i^XVaVcYhdX^VaVXidghVgZYZiZXiVWaZVbdc\VXZgiV^c \gdjed[ldbZceVga^VbZciVg^Vch^ciZgk^ZlZY^ci]^hhjgkZn#6eVgi [gdbVb^hh^c\XaZVgXdcXZeiVWdjii]ZgdaZ!XVeVX^i^Zh!VcY[jcX" i^dcVa^i^Zhd[VldbZceVga^VbZciVg^VccZildg`dgXVjXjh!hdbZ lZgZbdgZXdcXZgcZYcdil^i]edhh^WaZ^hhjZh!WjiVhj^iVWaZZck^" gdcbZciVcYegdXZYjgZh[dgi]Z^gXddeZgVi^dc#I]^hhj\\ZhihVgVi]" ZgÅj^YVcY]nWg^YjcYZghiVcY^c\d[i]Z[jcXi^dch!edh^i^dch!VcY V\ZcX^Zhd[VldbZc¼hcZildg`$XVjXjhVbdc\ldbZceVga^VbZc" iVg^Vch#HZXdcYan!i]Zned^ciidlVgYVkdaVi^aZVcYgVi]Zg]dhi^aZZc" k^gdcbZcibVg`ZYWn]^\]aZkZahd[^chZXjg^inVcYdc\d^c\k^daZcXZ ^cl]^X]ldbZceVga^VbZciVg^VchdeZgViZ i]jhcZZY^c\Vhhjg" VcXZh[gdb^ch^YZVcYdjih^YZi]Zeda^i^XVaVeeVgVijh VhlZaaVhVc dc\d^c\aZVgc^c\egdXZhhd[i]ZgdaZd[VeVga^VbZciVg^VcVcYeVg" a^VbZciVgn[jcXi^dch#DcanV[ZlnZVghV[iZgi]ZÄghi[gZZeVga^VbZc" iVgnZaZXi^dch^cYZXVYZh!i]ZeVga^VbZci^hhi^aajcYZgXdchigjXi^dc ^ciZgbhd[XVeVX^in"VcY^chi^iji^dc"Wj^aY^c\#>cVYY^i^dc!hZkZgVa ldbZceVga^VbZciVg^Vchh]dlY^kZg\Zcik^ZlhVcY_jbeh^ci]Z^g gVc`^c\d[i]Z^bedgiVcXZd[hZkZgVad[i]Z^iZbhegZhZciZYdcldb" Zc¼h^hhjZh Z#\#!]^\]ZggZegZhZciVi^dcd[ldbZc^cd[ÄXZhVcYhjW" hZfjZcifjdiVegdk^h^dc # 162 C Disunity vs. will for cooperation H^bjaiVcZdjhan!VXdcigVY^Xidgne^XijgZZbZg\Zh/LdbZceVga^VbZc" iVg^Vched^ciidi]Z^gdlcaVX`d[jc^inVcY\ZcYZghda^YVg^inVcYZkZc V]^\]aZkZad[b^higjhi!l]^X]^heVgiangZhedch^WaZ[dgb^hh^c\aZ\" ^haVi^dcVcYeda^XnbV`^c\[dgldbZcVcYdcldbZc¼h^hhjZh#GZh^hi" VcXZdgaVX`d[hjeedgiVbdc\ldbZceVga^VbZciVg^VchYZg^kZh· VXXdgY^c\idi]Zk^Zld[[djgldbZceVga^VbZciVg^Vch·[gdb¹i]dhZ V\V^chijc^inVcY^c[Vkdgd[Zi]c^X!a^c\j^hi^X!VcYgZa^\^djhY^k^" h^dch!º¹hZaÄh]ldbZcBEh!º¹ldbZcl]degZiZcYidWZaZVYZgh!º VcY!bdgZ\ZcZgVaan!WZXVjhZldbZcBEhVaaZ\ZYanYdcdiV\gZZdc Vcn^hhjZhdgh]VgZk^Zlh#CZkZgi]ZaZhh!i]ZnYZXaVgZl^aa^c\cZhhid XddeZgViZl^i]i]Z^gXdaaZV\jZhVcY![dgVaVg\ZbV_dg^in!idWZ^ciZg" ZhiZY^c[jgi]ZgXVjXjh^c\^ci]Z[dgbd[gZ\jaVgbZZi^c\hVcY^hhjZ" gZaViZYldg`^c\\gdjeh# D Security, religious expertise, and a supportive environment BdgZdkZg!hjgkZngZhjaihb^ggdgi]Z^beVXid[i]ZdkZgVaahdX^deda^i^" XVaXdciZmil^i]^cl]^X]ldbZceVga^VbZciVg^Vch]VkZidXdcYjXi i]Z^gaZ\^haVi^kZldg`#AVX`d[hZXjg^inlVhdcZeg^bZXdcXZgck^h^WaZ ^ckVg^djhgZhedchZhidY^[[ZgZcifjZhi^dch#Di]ZghVYYZYVldbZc" jc[g^ZcYanXjaijgZ Y^hWZa^Z[^cldbZc¼hg^\]ihVcYldbZc^caZVYZg" h]^eedh^i^dch VhXgjX^Vahed^aZgh#GZa^\^dc^hd[eVgVbdjci^bedg" iVcXZ^c6[\]Vceda^i^XhVcYYV^ana^[Z0^i^hVc^bedgiVci[gVbZVcY WVhZ[dgeda^i^XVaVcYhdX^ZiVaWZ]Vk^dgh!Vg\jbZcih!^hhjZh!VcYk^" h^dch#LdbZceVga^VbZciVg^VchcZZYbdgZ`cdlaZY\Zd[>haVb^X aVlhVcYegVXi^XZhdcY^[[ZgZci^hhjZhVcYeda^XnÄZaYh·jhjVaani]Z ZmXajh^kZYdbV^cd[bVaZhX]daVgh!XaZg^Xh!VcYaZVYZgh·l]^X]XdjaY WZkZgn]Zae[ja[dgldbZc¼heda^i^XVaVg\jbZciVi^dcVcYWVg\V^c^c\! ^ceVgi^XjaVgk^h"|"k^hXdchZgkVi^kZdeedcZcihVcYigVY^i^dcVaedlZg ]daYZgh#:medhjgZidgZ\jaVi^dch!egVXi^XZh!VcYY^hXjhh^dch^cdi]Zg >haVb^XXdjcig^Zh!VcYÄcY^c\hd[YZWViZhVcYhigj\\aZh[gdbldb" ZceVga^VbZciVg^VchVcYVXi^k^hih·hjX]Vhi]ZigVchcVi^dcVacZildg` LdbZcA^k^c\jcYZgBjha^bAVl·ldjaYbdhiXZgiV^canWZV[jgi]Zg VhhZi#;ZbVaZaZ\^haVidghVahd^YZci^[neVjX^ind[hjeedgidggZajXiVcXZ [gdbi]Z\dkZgcbZci!b^c^hig^Zh!i]ZbV_dg^ind[[ZaadleVga^VbZciVg" ^Vch!VhlZaaVh^cÅjZci^VakZidVXidghdjih^YZd[eVga^VbZciVhi]Z bV^cWVgg^ZghidVhhZgi^c\VcY^beaZbZci^c\i]Z^gdlceda^i^XVa^c" iZgZhihVcYV\ZcYVed^cih#HdbZd[i]ZbbZci^dcZY[jgi]ZgbdgZVh VYY^i^dcVadWhiVXaZhidaZ\^haVi^kZ^c^i^Vi^kZhVaVX`d[/ 163 · ZmiZgcVahjeedgiVcY\ddYVYk^hZgh0 · eVgi^ZhgZegZhZci^c\eZdeaZ¼hl^aa^ceVga^VbZci0 · VcZcVWa^c\Zck^gdcbZci^ceVga^VbZci0 · hj[ÄX^ZciZmeZg^ZcXZd[BEhid^c^i^ViZaZ\^haVi^dc# >ilVhVahdbZci^dcZYi]Vihj\\Zhi^dchWgdj\]i[gdbi]Zegdk^cXZh WnBEhVgZcdiiV`Zcje#6ai]dj\]i]ZhjgkZnYZh^\cY^Ycdi^cXajYZ ^c"YZei]dgcVggVi^kZ^ciZgk^Zlh!^iVeeZVghi]VihdbZldbZceVg" a^VbZciVg^Vch]VkZVXg^i^XVahiVcXZdci]ZgdaZd[ZmiZgcVadg\Vc^oV" i^dch[dgi]Z^geVga^VbZciVgnldg`VcY^ciZgVXi^dc#6XXdgY^c\iddcZ BE!¹hdbZdg\Vc^oVi^dch!l]^X]VgZhjeedgi^c\i]ZeVga^VbZci!XgZ" ViZVaVX`d[jc^inVbdc\ldbZcBEhVhi]ZnjhjVaanhjeedgidcZ \gdjed[ldbZcVcYcdidi]Zgh#º E Common denominators for cooperation among women MPs I]^hhjgkZn^ciZcYZYidÄcYZm^hi^c\XdbbdcYZcdb^cVidghi]Vi XdjaYhZgkZVhhiVgi^c\ed^cih[dgV_d^cildbZcV\ZcYV[dgYZX^h^dc" bV`^c\#;daadl^c\i]ZYViVVXfj^gZY!ildZcigneVi]hiV`Zh]VeZ/ ldbZc¼h^hhjZhdg\ZcZgVa$cdc"Y^k^h^kZ^hhjZh!\^kZci]ZXdcXZgch gV^hZYWnhZkZgValdbZceVga^VbZciVg^VchVWdjijc^in!hZXjg^in!VcY XdchZchjVa$XddeZgVi^kZegdXZYjgZh#<^kZci]ZXdchigV^cZYheVXZ d[V\ZcXndjia^cZYegZk^djhan[dgeda^i^XVaY^Vad\jZhVhlZaaVh[dg hjXXZhh[jaanVYYgZhh^c\egd\gZhh^kZldbZc¼h^hhjZh!^i^hgZXdb" bZcYZYid^c^i^ViZeda^i^XVaY^Vad\jZhdccdc"Y^k^h^kZ^hhjZhidVaadl VhjcXdchigV^cZYVcYjcXdcigdkZgh^VaVcV\ZcXnVhedhh^WaZ#BdgZ \ZcZgVa^hhjZhldjaYVahdVaadlVWgdVYZgdjigZVX]VhlZaaVh^beVXi dcVcYhjeedgiVl^YZg\gdjed[Xdchi^ijZcih!l]^X]^hcZZYZY![dg ^chiVcXZ![dggZZaZXi^dcidXdchda^YViZdcZ¼hedh^i^dc![dgcZildg`^c\! 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Attacks, vigilantism, and legal processes that contradict the basic principles of human and women’s rights are the order of the day. The security situation is worsening in step with the disenchantment arising from the lack of results and functional shortcomings of existing democratic structures. In the face of such difficulties, we often forget who should create the legal underpinnings for the power in Afghanistan: the women and men in parliament who are working to build a state in these turbulent times of transition. To what extent will these elected representatives succeed in creating alternatives to established traditional power structures? What are the obstacles they face? What kinds of networks or caucuses are they establishing? This book, which is based on interviews of male and female members of parliament held in Kabul in 2007 and 2008, examines the reali- ties of parliamentary work in Afghanistan. It shows how varied and coercive the patterns of identification prevalent in Afghanistan can be, and it provides a rare opportunity to gain insights into the self- images and roles of women in parliament. ISBN 978-3-86928-006-6 The Green Political Foundation Schumannstraße 8 10117 Berlin www.boell.de