changing the face of local governments a decade of women’s participation in panchayats and...
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Changing the Face of Local Governments
A Decade of Women’s Participation in Panchayats and Municipalities
George MathewInstitute of Social Sciences
at
The World Bank, Washington DC30 April 2003
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Even before the Independence movement women had taken an active role in public life (e.g., Rani of Jhansi, Razia Sultan)
Under Mahatma Gandhi’s leadership women participated in India’s freedom movement. It had created outstanding leaders (e.g., Sarojini Naidu, Aruna Asaf Ali, Sucheta Kriplani, Rajkumari Amrita Kaur)
Between 1947 and 1983 women’s participation in public life was active but did not result in any major achievement.
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Constitutional Guarantees to WomenThe Constitution of India guarantees certain rights and privileges to women through Fundamental Rights and Directive Principles
Equality before Law for Women (Article 14)Equality of opportunity for all citizens in matters relating to
employment or appointment to any office under the state (Article 16).
The State to direct its policy towards securing for men and women equally the right to an adequate means of livelihood (Article 39(a)); and equal pay for equal work for both men and women (Article 39(d)).
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New Panchayati Raj begins
The biggest opportunity came in 1983 when the first non-Congress (Janata) Government in the State of Karnataka provided 25 per cent reservation for women in local bodies
This proved a trend setter
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The Constitution (73rd Amendment) Act, 1992 A landmark legislation for women
Not less than one-third (including the number of seats reserved for women belonging to the Scheduled Castes and Scheduled Tribes) of the total number of seats to be filled by direct election in every panchayat shall be reserved for women and such seats may be allotted by rotation to different constituencies in a Panchayat (Article 234 D(3)).
Not less than one-third of the total number of offices of Chairpersons in the Panchayats at each level shall be reserved for women (Article 243D(4)).
74th Amendment has similar provisions for Municipalities.
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Sex Ratio
State Year Sex Ratio Children(Under 7 Years)
India * 1901 972 --
1991 927 945
2001 933 927
*There are wide regional disparities in India. In theSouth, especially in the state of Kerala, there are manymore girls. But in the 48 of India’s 577 districts, sexratio among children is below 850. Of these, 34 are, likeRohtak, in Haryana or its neighbouring state, Punjab.In Rohtak there are 847 females for every 1000 males,and just 796 girls for every 1,000 boys.
Source: Census of India 2001
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Percentage of Female (Rural/Urban)Literacy Rate
Year Rural Urban Total1951 4.87 22.33 8.861991 30.60 64.00 39.292001 46.70 73.20 54.16
Source: Census of India 2001
Maternal Mortality RatioYear Rate per 100,000 live births1980 4681988 2861998 407
Source: www.censusindia.net
State Rate per 100,000 live birthsUP 707
Rajasthan 670Gujarat 29
There are disparities between states
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Work Participation Rate
Year Rural/Urban Person Female Male1971 Total 34.17 14.22 52.75
Rural 35.33 15.92 53.78Urban 29.61 7.18 4.88
1991 Total 37.50 22.27 51.61Rural 40.09 26.69 52.58Urban 30.16 9.19 49.92
2001 Total 39.25 31.56 68.4Rural 41.96 35.87 64.1Urban 32.2 16.97 83.02
Source: Census of India, 2001
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Women’s Representation inIndian Parliament
Year Lok Sabha (Lower House) Rajya Sabha (Upper House)No. ofSeats
WomenMPs
% ofWomen
MPs
No. ofSeats
WomenMPs
% ofWomen
MPs1952 499 22 4.4 219 16 7.31991 544 39 7.2 245 38 15.51999 543 49 9.0 245 19 7.8
Average 526 30 6.0 238 23 10.3Source: Centre for the Study of Developing Societies
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Women Representation in Selected State Legislatures
State Year Total Seats WomenAssam 1996 122 6Haryana 1999 90 4Jammu & Kashmir 2002 87 2Gujarat 1998 182 4Kerala 1996 140 13Punjab 1997 117 7Delhi 1998 70 9Nagaland 1998 60 0Orissa 1999 147 13Madhya Pradesh 1998 320 26Rajasthan 1998 200 14Tamil Nadu 1996 234 9Uttar Pradesh 1996 424 20West Bengal 1996 294 20
Source: India Report - www.unescap.org
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Women in Local Governments
DISTRICT & BELOW
Rural Population: 700 Million Plus
594 District Panchayats Elect 15815. Out of this 5,272 are women.
5912 Block/Tehsil/Mandal Panchayats elect 145,412.Out of this 48,471 are women.
231,630 Village Panchayat elect 2,971,446. Out of this 990,482 are women
Total Elected: 3,132,673
198 Dist. Panchayat are headed by women.1970 Block Panchayats are headed by women.77,210 Village Panchayats are headed by women.
The Third Stratum Elects
3,200,000 Members (Approx)
Out of this
1,000,000 are Women
800,000 are SCs and STs
Urban Population: 300 Million Plus
101 City Corporations
1430 Town Municipalities
2009 Nagar Panchayats
Total Elected: 68,554
34 City Corporations are headed by women
476 Town Municipalities are headed by women
670 Nagar Panchayats are headed by women
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Before and after 73rd AmendmentEarlier studies of women representatives in panchayats
before the 73rd Amendment noted the major presence of women from the dominant castes/classes e.g., from Marathas and families owning more than 20 acres of land in Maharashtra.
After the 73rd Amendment a majority of women elected to panchayats were illiterate;
A large percentage were from lower socio-economic strata;
They entered at a comparatively younger age;They are first generation entrants to public/political life.
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Post-73rd Amendment Panchayat elections shattered several myths ..
That women are passive and disinterested in political institutions/public life
Only the well-to-do, upper strata women will come forward to contest elections
Women’s political connectivity - only kin of powerful politicians will enter panchayats to keep the seats for them
Women are only proxies - ‘namesake’ members and they do not participate in the panchayats in a real sense
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Enabling and Inhibiting Factors Faced byWomen and Dalit Members
ENABLING FACTORS INHIBITING FACTORSINDIVIDUAL CAPACITIES
High education levels Prior exposure to outside world Initiative and drive Knowledge and understanding
of their roles andresponsibilities
Decision-making capacity Ability to mobilise community
participation
Illiteracy and low educationallevels
Compliance with socialrestrictions
Shyness and submissiveness Lack of comprehensive
understanding of their rolesand responsibilities
Caste system Patriarchy Poor economic background
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Enabling and Inhibiting Factors Faced byWomen and Dalit Members
ENABLING FACTORS INHIBITING FACTORSENVIRONMENT
Family and spouse support(distribution of householdchore/assistance
Support of other panchayatmembers
Community support andparticipation in panchayatactivities
Active involvement ofgovernment officials andfunctionaries
Presence and support ofvoluntary communitygroups/organisations
Male family members/spousesassume the role of sarpanch
Caste and genderconsiderations among otherpanchayat members
Indifferent attitude ofgovernment officials andfunctionaries
Misguidance by the panchayatsecretary in conductingpanchayat activities
Apprehension of no-confidencemotion
Party pressure
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Problems elected women face at the grassrootsAlmost all of them are first timers in politicsA sizeable number of them are illiterate (except Kerala and
West Bengal)Not fully aware of development issues or government
programsMany are socialized in patriarchal valuesMale kin take charge of the Panchayats Increasing incidence of violence against elected womenMore roles, more responsibilities, additional burden.
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Problems elected women face …2
Derogatory references to their lack of capacityNegative attitude of government officials at all levels Character assassinationVacuum in content and methodology of training for
women and inclusiveness. Increasing number of no-confidence motions against
women panchayat heads
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Men 42%
Women 58%80% Women who were removed from office
20% Women who continued in office
No-confidence motions against women, 1995-99 Kutch, Gujarat
No-confidence motions 1995-99 Kutch, Gujarat
Gender-based comparison
Source: PRIA
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Possibilities..1There are new terms in circulation like ‘member sab’
showing the altered and enhanced status of women representatives.
In a Mahila Sammelan organised in Bhopal by the Chief Minister of Madhya Pradesh, chairs were laid out for the Ministers and mats were laid on the floor for elected representatives. When the meeting began, Rummebai Invati, a Gaud tribal member of Kurai block panchayat, Seoni district, stood up and asked the Chief Minister “You keep talking about women and women’s equality, you talk of reservation for women and we are in politics now, the people have selected us. Is there a shortage of chairs in Bhopal?” Promptly the next day, chairs were brought in and the Chief Minister thanked the woman representative for having raised the issue. .
Engendering politics since village women have access to these institutions.
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Possibilities…2
Engendering the development process by paying more attention to education, health, and other welfare schemes.
Chailo Devi, a woman president, from Bagiyana village, Kangra district, Himachal Pradesh took initiative to stop the sanctioning of liquor vends in her village. She approached the panchayat minister and said ‘the women in my village do not want it, you may try your level best, Mister Panchayat Minister, but liquor vends will not function from our village.’ Though illiterate herself, she has opened a school in her village and a centre for adult education where she herself is studying.
Addressing the nutritional needs of the population since women tend to oversee the mid-day meal, public distribution system (PDS), ICDS in a better way.
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Possibilities..3
Domestic violence such as harassment due to dowry, wife beating gets sorted out in the villages.
Change of self-perception and thereby change in the status of the girl child.
Powerful undercurrents in Indian society in favour of women.
Bringing honesty and integrity to public life.More women coming forward to contest panchayat
elections
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Possibilities..4
Proxy rule is coming down To address the concern of proxy rule, the Uttar Pradesh state government issued
an order to the district magistrates, which lays down a list of ‘things not to do’ for enthusiastic husbands. They will not be allowed to enter their wives’ offices (except for ‘urgent work’), take part in meetings of the village panchayat, accept memorandums from villagers or travel in official vehicles.
Positive role of women’s organisations. Women activism very high.
Demand for women’s representation in State Assemblies, Parliament.
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Self-Help Groups (SHGs)Total Number of SHGs in 1999 (All-India)- 32,911Promotion of SHG/Mahila Mandal activities by
women members in many panchayats.Increased interest of women in SHGs to contest
panchayat elections.A potential support system for women members
in power.
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Case Studies 1Chand Beevi, a Muslim woman from north Kerala stood
for election to the local body in the face of severe opposition from her own family and community. She contested in a reserved constituency with population consisting of different communities and without a Muslim majority, and won with a comfortable majority.
Despite her lack of previous exposure to public activity of any kind, she has been handling various economic and political issues coming up in the panchayat with confidence and dexterity. She is a housewife and has four children. Her husband is working abroad.
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Case Studies 1…. Contd.
Chand Beevi has contested and won elections twice.Hurdles: The first time her husband was persuaded by
other men to hold her back at home. She was even given a bad name by her opponents as she went out after evening hours to discuss problems with men.
Family support was an essential pre-requisite for effective performance of women in politics. Once she was assured that her husband had absolute trust in her, she braved the opposition. Her second term of success was proof enough that her determination was working wonders.
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Case Studies 1….Contd.Chand Beevi looks after her children with great attention,
as she does not want to feel guilty of neglecting her duties at home.
She is better aware of nuances and is confident of performing better. She listens intently and is a very effectve public speaker.
During her first term, she was able to throttle a proposal of the panchayat to construct a road through a paddy field in the teeth of stiff opposition from the majority of members and thus avoided potential loss of fertile cropland.
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Case Studies 1…. Contd.
In her second term, Chand Beevi promoted health programmes, family planning campaigns and polio vaccine drive etc.
According to her, given the right opportunity for public participation, ordinary rural Muslim women who have so far remained at home, would come forward to enter politics. They would take up and solve many a social issue for themselves and for the community at large.
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Sukhiya Bai, a tribal woman of Gubrail of Amla block, Betul district of Madhya Pradesh was elected sarpanch in February 2000. She was an active sarpanch and had taken up a number of development works in her panchayat including construction of roads, school buildings and wells.
To receive the legitimate resources for these works, she had to pay bribes demanded by the concerned officials. She used to borrow money from local villagers to make such payments. She sold her buffalo for similar reasons. She went to meet the panchayat inspector who had seized the panchayat records.
In February 2003, she was supposed to go again to the block office after visiting her bank with money withdrawn from the bank.
Case Studies 2
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Case Studies 2…. Contd
Unable to cope any longer she poured kerosene over herself and set herself afire on 11 February 2003, sustaining 80 per cent burns. She succumbed to her injuries after 10 days.
Sukhiya Bai is the latest victim of the reactionary forces that still control these institutions.
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