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Chapter-V

Political Participation of Dalit . Women in Kalahandi District in Orissa: A Case Study of Koksara

and Dharmagarh Block

Chapter-V

Political Participation ofDalit Women in Kalahandi District in

Orissa: A Case Study of Koksara and Dharmagarh Block

Political participation refers to "any voluntary action, successful or unsuccessful,

organized or unorganized, episodic or continuous, employing legitimate or

illegitimate methods, intended in influencing the choice of public policies, or the

administration of public affairs or the choice of the politicalleaders1."

What is of crucial importance in terms of political participation is the

v1ston to associate oneself with the larger social movement for equality and

justice. This kind of political participation reqmres a larger level of mass

mobilization with very clear and coherent understanding of one's socio-political

context, a vocal and committed leadership and transparent organizational structure

which can associate in different ways; formal and informal as well.

Having such a kind of understanding of political participation one wonders

whether women as a category have the required level of political participation in

their movements, which are variously termed as fragmented, sparse or even

fizzled out. Whereas the role of women in the changed domestic and global

perspective have been considered most important to the political life our society, it

is the area of socio-economic equality, liberty and decision-making where they

have to carve out a meaningful space for themselves.

Women, particularly in rural areas, operate in a closed social system where

they are subordinate to their male members in every sphere of their lives. The

1 Myron Weiner, "Political Participation: Crisis of the Political Process," in L. Binder et al. (eds.), Crisis and Sequence in Political Development, Princeton, Princeton University Press, 1974, p. 164.

Political Participation of Dalit Women. ...

situation of dalit women is more precarious. Because they carry a triple handicap-

as women, as rural persons and as Scheduled castes2• In fact, political equality is

meaningless where the mass of the population suffers from poverty, the

continuous threat of starvation, lack of health and inequality of class, status and

power. It is more so in the case of women who suffer from another dimension of

inequality, namely, the weight of traditional attitudes that regard them as

physically and socially inferior to men. Women's participation in the political

process is central to their struggle against oppression. All the different aspects of

women's liberation depend on the articulation of their demands and aspirations,

politically associating themselves with the larger movements of liberation,

equality, liberty and justice.3

It is in this context, the focus of study is on the political participation of

dalit women of Kalahandi district in Orissa.

Kalahandi

Kalahandi is one of the 30 districts of the Orissa. The district of Kalahandi

occupies the southern-western portion of Orissa. It is bound on the north by

Bolangir district, on the east by Phulbani and Rayagada districts, on the south by

Rayagada and Nawrangpur districts and on the west by Nawarangpur,

Chhattisgarh and Nawapara district4• Total area of the district is 7920 sq. km and

the administrative headquarters is located at Bhawanipatna.

2 Sakuntala Narasimhan, Empowering Women: An Alternative Strategy from Rural India, New Delhi, Sage Publications, 1999, p.23. 3 Pradeep K. Sharma, "Political Participation and Dalit Women," in Kiran Saxena (ed.), Women and Politics, New Delhi, Gyan Publishing House, 2000, pp. 79-80. 4 S.C Bhatt (ed.), "Kalahandi," The Encyclopaedic District Gazetteers of India: Eastern Zone, vol. 9, New Delhi, Gyan Publishing House, 1998, p. 641.

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Political Participation of Dalit Women ....

History

Whatever doubt there may have been about the name of the district according to

the records of old Central provinces, it has always been known in Orissa as

Kalahandi (black pot). What the name 'Kalahandi' may have to do with black

cotton soil which brings out black pots from the potters' wheel that are

predominant in the markets of the district and neighbourhood can only be

speculative.

The district has magnificent scenic spots with towering hills and deep

valleys. Standing on the hilltop one can see very thick valleys with wild banana

catching the eye. The Kandha living in the wild tract enjoy the babbling brook by

the side of which they have built their huts. They also make their home brewed

liquor without which they cannot live. Kalahandi also boosts of pre-historic

paintings showing that man many thousands of years ago had an artistic mind,

which was striving to find expression while living in forests. The pre-historic

drawings at Gudhandi, and Jogimath near Khariar are worth visiting.

No record is available to show how the name Kalahandi originated. It was

previously known by the name Karond. According to Lieutenant Elliot, Deputy

Commissioner, Raipur (1856), "This dependency is known only on the Nagpur '

side as Koronde (Karond), the Oriya name being Kalahandi, and as there is no

place or village corresponding to the former name it would appear to be a

corruption of the latter, though it has been originally entered in the accounts."

According to popular belief, a powerful man of Rajputana named Kalahambir,

came to this part and ruled it for many years. After his name this country was

called Kalahambir, which in course of time, corrupted into Kalahandi. The name

163


Kalahandi may literally mean 'black pot,' or may also mean 'pots of arts'.

According to the later interpretation, the name has possibly derived from

'Gudhandi', a hill located close to Koksara police station of the district, in the

caves of which are painted pre-historic paintings with red and black colours.

These interpretations concerning the origin of Kalahandi are, however,

conjectural5•

The district of Kalahandi was divided into two parts vide state

Government Notification No. DRC-44/93-14223/R. dated 27 March 1993

according to which Nawapara sub-division was detached from it to form another

district. At present, the district comprised of two sub-divisions namely

Dharmagarh and Bhawanipatna and thirteen Community Development Blocks6.

Population

Total population of the district according to 2001 census is 1,335,494 persons,

comprising of 667,526 males and 667,968 females. Rural population of the district

is 1,235,275 persons (615,612 males and 619,663 females) and urban population

is .100,219 persons (51,914 males and 48,305 females).

· In Orissa the sex ratio (number of female per 1000 male) according to

census report 2001 is 9727• It is interesting to note from the table given below that

sex ratio in Kalahandi is 1001. However, in the universe of study i.e., Koksara and

Dharmagarh block, the sex ratio is quite baffling. In the Koksara block the sex

ratio is 1014 whereas in Dharmagarh block it is 982. As the way of living, culture,

5 Orissa District Gazetteers, 1980, pp. 1-2. 6 S.C Bhatt (ed.), op.cit., p.641. 7 Orissa Human Development Report 2004, Government of India, p.134.

164


language of these blocks is similar; no clear-cut explanation was found as to why

the sex ratio is so different.

T bl N 51 P a e o. t ercen age o fP I f . K ks op_u a 10n m 0 ara an dDh armagar h Bl k oc !District Total Population Male Female Sex Ratio

(Percent) (Percent) (Female per 1000 Male)

Kalahandi 13,35,494 49.98 50.02 1001

Blocks in Kalahandi District

Koksara 1,37,739 49.65 50.35 1014

Dharma garb 1,18,965 50.45 49.55 982

Source: Census of India, 2001

Table No. 5.2: Different Population Category in Koksara and Dharmagarh Block

z Category lfotal Total %of Male Total %of Female

~opulation Male Female

s ~alahandi Scheduled 2,36,019 1,17,344 49.72 1,18,675 50.28

Castes

Scheduled 3,82,573 1,88,646 49.31 1,93,927 50.69 lfribes

Koksara Scheduled 22,830 11,298 49.49 11,532 50.51 Castes

Scheduled 44,894 22,091 49.21 22,803 "50.79 Tribes

!Dharma garb Scheduled 19,912 10,035 50.40 9,877 49.60 ~astes

Scheduled 20,728 10,242 49.41 I 0,486 50.59 Tribes

Source: Census of India, 200 1. ,

Languages and Religion

Main languages spoken in the district are Oriya (Sambalpuri) and Hindi.

Religion-wise break-up of population on undivided district is indicated below as

per 1991 census: Hindus: 1586840, Muslims: 5919, Christians: 5042, Sikhs: 1022,

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Buddhists: 4, Jains: 1508, Other religions and persuasions: 19, Religions not

stated: 21.8

Geography and Physical Features

The district is broadly divided into two distinct natural divisions, the hill tracts and

the plain country. The former chiefly comprises the ranges of hills, which run into

the southwest ofthe district, the later constitutes the river valleys of the Tel and its

tributaries and the Jonk. About eight km South-east of Bhawanipatna commences

the mountain tracts called the Dongarla, which cover a vast area of about 3665 sq.

km on the eastern side of the district and extends towards southwards. These tracts

rise in a series of precipitous hill ranges from the plains. Severe droughts and

floods also often visit this region and some areas in quick succession. Therefore,

backwardness ofthis region is multi-faceted: (i) tribal backwardness, (ii) hilly area

backwardness, and (iii) backwardness due to severe natural calamities9.

The district is noted for its forest wealth. The major forest products of the

district are: timber, bamboo, firewood and kendu leaf. Other ·important minor

forest products are: Mahua flower, sabai grass, broom grass, gum, lac, myrobalan,

sunaribark, kusum-seed, karanj seed, mahua seed and tamarind, etc. These are

collected by the local tribals and sold in the local market through the purchasing

units of the Orissa State Tribal Development Corporation. Trade on Kendu-leaf is

export oriented and has been taken over by the State Government Undertaking.

Collection of minor forest products, cutting of timber and bamboo provide

subsidiary occupation to a large chunk of inhabitants.

8 Ibid. 9 Chandra Pal, A. Sekhar, and Sugan Singh, Report on Tour of the KBK Districts on J9'h July 2005 and 20'h July 2005, Government oflndia, Planning Commission, p. 8.

166


Towns, Villages and Amenities

The district, according to Census 2001, at present comprised of 2 Sub-Divisions

(Bhawanipatna and Dharmagarh); 7 Tehasils (Bhawanipatna, Kesinga, Madanpur

Rampur, Lanjigarh, Thuamul Rampur, Dharmagarh and Jaipatna); and 13

Community Development Blocks (Bhawanipatna, Kesinga, Thuamul Rampur,

Narla, Madanpur Rampur, Lanjigarh, Karlamunda, Dharmagarh, Junagarh,

Koksara, Jaipatna, Kalampur and Golamunda). It has 3 towns (Bhawanipatna,

Junagarh and Kesinga); and 2,236 villages (inhabited villages: 2,099 and

uninhibited villages: 137. Number (with percentage) of villages having one or

more amenities in undivided district of Kalahandi as per 1991 census is given

below:

Table No. 5.3: Number of Amenities in Kalahandi: Census 1991 SI. No Amenities No. of inhabited Percentage

villages 1 Education 1896 69.94

2 Medical 174 6.42

3 Drinking Water 2068 100.00

4 Post & Telegraph 384 14.16

5 Market/Hat 213 7.86

6 Communications 370 13.65

7 Approach by pucca 529 19.51 Road

1-->

8 Power Supply 577 21.28

Source: Census of India 1991.

Education

According to 2001 census, total literacy rate in Kalahandi district is 513,383

persons, out of these, 349,4 73 males and 163,91 0 females. In the rural areas of the

district, out of 448,741 persons (69.36 per cent males and 30.64 per cent females)

are literates and in the urban areas out of 64,642 persons (59.10 per cent males

1 ()7


and 40.90 per cent females) are literates. The following table shows the literacy

rate in Kalahandi district.

Figure No. 5.1: Literacy Rate in Kalahandi District

Literacy Rate in Kalahandi District

80.00

70.00

60.00

50.00

40.00

30.00

20.00

10.00

Rural Urban

Area

Source: A-5 State Primary Census Abstract 200 I.

The literacy rates of SC in Kalahandi according to 1991 Census was 28.20

percent (Male: 44.47 per cent) and (Female: 12 per cent) 10• Among the total

literate SCs in Kalahandi there were 57,744 persons, out of which 89.74 per cent

(males) and 10.26 per cent (females). In rural areas the total SC literates were

51,817 persons, 72 per cent (males) and 18 per cent (females). And in the urban

areas the total literates among SCs were 5,927 persons, 7 per cent (males) and 3

per cent (females).

Whereas, in Koksara block the total SC literates were 3,730 persons, out of

which, 2,778 (74.48 per cent) males, and 952 (25.52 per cent) females. In

10 "Kalahandi: District Fact Sheets," Orissa, Human Development Report, 2004, p. 297.

168

Political Participation of Dalit Women. .. .

Dharmagarh block the total SC literates were 4,607 persons, out of which, 3,601

(78.16 per cent) males, and 1,006 (21.84 per cent) females. The following two

tables show the literacy rates of SCs in Kalahandi district and the two blocks i.e.,

Koksara and Dharmagarh.

Figure No: 5. 2: Total Scheduled Caste Literacy Rates in Kalahandi ,--------------------------- -- ---------------.-- ------------------ ., I Literacy Rates of SCs in Kalahandi District

Kalahandi Rural Urban

loMale I [•Female i

Source: Census of India 1991, Series-19, Orissa, Part-B (II), Primary Census Abstract: SCs and STs, Directorate of Census Operations, Orissa, p.l41.

Figure No: 5. 3: Literacy Rates of Scheduled Caste in Koksara and Dharmagarh Block

Literacy Rates of SCs in Koksara and Dhramagarh Block

%

80.00

70.00

60.00

50.00

40.00

30.00

20.00

10.00

0.00

Koksara Dharmagarh

Blocks

I oMale !

l_!~emale j i

Source: Census of India 1991, Series-19, Orissa, Part-8 (II), Primary Census Abstract: SCs and STs, Directorate of Census Operations, Orissa, p .141.

169


From the above mentioned tables it can be inferred that no region or nation can

prosper if majority of its population is illiterate. Therefore, adequate attention

should be paid to the education of this region.

Profile of the Two Blocks

The block Koksara is one of the 13 blocks of Kalahandi district. It is 60 km away

from the head quarter Bhawanipatna. It has 20 Gram Panchayats (GP) which are:

Ampani, Kaudola, Kashibahal, Koksara, Khuntia, Gambhariguda, Temra,

Dahgaon, Dalguma, Dudukathenga, Phupgaon, Badpodaguda, Baradanga,

Mahima, Majhiguda, Mushapali, Moter, Rengalpali, and Ladugaon. Among the

four GPs taken as the universe of the study, in the Khuntia GP, the Revenue

Villages (RV) are: Khuntia (Hamlets: Mirjapur, Pipalpada, Bandhpada and

Baarabakhra), Tentulipada (Hamlet: nil), Sardhapur (Hamlet: nil). In the Temra

GP, the RVs are: Temra (Hamlets: Hanspada, Nuapada and Khurselguda),

Sirliguda (Hamlet: Aampada), Karlamunda (Hamlet: nil) and Bobria (Hamlet:

nil). In the Mushapali GP, the RVs are: Mushapali (Hamlet: nil), Khaparamal

(Hamlet: Aampada), and Gahanamunda (Hamlet: nil). In the Badpodaguda GP the

only RV is Badpodaguda, and the Hamlets are: Bheliajor and Rainguda. The

language spoken by the people in this block is Sambalpuri dialect, which closely

resembles with the mainstream Oriya language (mother tongue of Orissa). The

economy of the block is agriculture with no industrial base.

The block Dharmagarh is another block of the Kalahandi district. Under

this block, there are 21 GPs which are: Kanagaon, Kankeri, Khairpadar, Gatiajor,

Chhanchan Bahali, Chhilipa, Jayantpur, Tipiguda, Dumerguda, Tambachhada,

Tarapur, Tendapali, Dharpur, Dharmagarh, Nalgaon, Parla, Badbasul, Behera,

170


Boden, Brahmanchhendia and Sandhikuliar. Among the four GPs taken as the

universe of the study, in the Tambachhada GP, the RVs are: Tambachhada

(Hamlet-nil), Telipalash (Hamlet-nil), Taranja (Hamlet-nil), Khanatara (Hamlet-

Malpada), and Mathia (Hamlet-nil). In the Kankeri GP, the RVs are: Kankeri

(Hamlet-nil), and Kotmer (Hamlet-nil). In the Badbasul GP, the RVs are:

Badbasul (Hamlet-nil), Kanter (Hamlet-nil), and Haldi (Hamlet-nil). In the

Kankeri GP, the RV is only Kankeri (Hamlet-nil). The language and agriculture of

this block is same as the Koksara block.

Sampling Design

The objectives of the study and the peculiar setting of the universe of study largely

determined the type of tools and techniques, to be adopted for the collection of

information from the field. The literacy rate of Kalahandi is not high and so far as

the dalit women are concerned their literacy rate is very low in the district and in

the two blocks chosen as the area of case study and that they are people's

representatives who might not have tl}e time to fill the questionnaire meant for

data collection, which requires the respondents to fill up personally. So ·

questionnaire was avoided in favour of interview schedule. The interview

' schedule included both closed-ended and.open-ended questions. The objective of

the closed-ended questions was to record the quantifiable information such as: the

demographic profile, economic status, educational status, and occupation. On the

other hand, the open-ended questions were to record the qualitative information of

the respondents such as: their perceptions about the PRis, the experience of being

in the system, and the problems they face or faced. In fact it so happened that

many a time the researcher formulated questions then and there to further get

some more insight into the problem and their experience. To elicit complete

171


information from the respondents, the questionnaire was translated into the native

Sambalpuri language. At the same time, another research technique, FGD was

also resorted to, as most of the respondents were women. Through the FGD, the

respondents were more forthcoming with their opinion on several issues. The

process helped the researcher to freely interact and establish easy rapport with the

respondents.

The other important consideration was relating to sample size. Adequate

attention was given to make the sample size more representative and objective

one. This decision was basically due to the time and financial constraints of the

researcher.

After the 73rd Constitutional Amendment Act was passed in 1992, women

and SC/ST were given reservations in PRis, only two elections were being held in

Kalahandi in 1997 and 2002. And after collecting the dalit women representatives'

list of both Koksara and Dharmagarh block from the District Collectorate Office,

Bhawanipatna. Four ( 4) G.Ps each from each block were selected taking into .

account the reserved seats for SCs and particularly for the dalit women and also

where they have major participation and in important posts like Sarapanch and

Samiti Members. The 4 GPs of Koksara that are reserved for SCs and women

were: Khuntia, Temra, Badpodaguda and Mushapali. Out of which only Khuntia

GP was reserved for SC women. The 4 GPs of Dharmagarh block so selected

were: Kankeri, Badbasul, Parla and Tambachhada. Out of which only 2 GPs were

reserved for SC women (Badbasul and Kankeri). Though Parla G .P was reserved

for SC it was not reserved for women. However, during 1997 a SC woman had

been elected from that G.P. The total dalit women representatives of the two

172


blocks were 28 (11 from Koksara block and 17 from the Dharmagarh block). Out

of which only 2 had been re-elected again in 2002 (1 ward member of

Badpodaguda GP under Koksara block and 1 Sarapanch of Kankeri GP under

Dharmagarh block).

Along with that interview of the Panchayat officials, village heads and

elders, Members of Legislative Assemblies (MLAs), students and youths of the

locality were also conducted to collect information about the performance of the

dalit women representatives and what they felt about the entry of the dalits and

women representatives into PRis.

The following tables show the number of elected dalit women

representatives during 1997-2002 in Dharmagarh and Koksara block.

Dharmagarh Block

Table No. 5.4: Number of Elected Dalit Women Panchayat Representatives During 1997

Sarapanch Naib Sarapanch Ward Member Panchayat Name of G. P. Samiti

Member

Kankeri 1 - 2 -Tambachhada - - 1 1 Parla 1* - 1 -Badbasul l - 2 -Total 3 0 6 l

• Means Elected from Unreserved Seat.

Table No. 5.5: Number of Elected Dalit Women Panchayat Representatives

During 2002

Name of G. P. Sarapanch Naib Sarapanch Ward Panchayat Samiti Member Member

Kankeri 1* - 1 1 Tambachhada - 1 - -Parla - - 2 -Badbasul 1 - 1 -Total 2 1 4 1

* Re-elected.

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Koksara Block


During 1997.

Name of G. P. Sarapanch Naib Ward Member Panchayat Sarapanch Samiti

Member Khuntia 1 - 1 -Temra - 1 - 1 Mushapali - 1 1 -Badpodaguda - - 1 -Total 1 2 3 1


During 2002

Name of G. P. Sarapanch Naib Ward Member Panchaya Sarapanch t Samiti

Member Khuntia 1 - - -Temra - - 1 1

Mushapali - - 1 -Badpodaguda - - 1* -Total 1 0 3 1

Note: * Means re-elected.

Profile of the Elected Dalit Women Representatives

Table No. 5.8: Age-wise Distribution of Respondents

Age Group Koksara Dharmagarh Total

21-35 Years 4 5 9

35-50 Years 7 11 18

50 & Above 0 1 1

Total 11 17 28

Age: Age by itself can be a significant variable in the structural analysis of

political representation of women. All the dalit women representatives were

already married. During the survey it was found that out of the total dalit women

174


representatives interviewed, 18 representatives were in the age group of 35-50

years. Only 9 were in the category of 21-35 years. Only 1 representative was

above 50 yrs. Among the married, 1 ward member of Kankeri village under the

Dharmagarh block was a widow. Interestingly not a single women representative

was found to be unmarried. This was due to the patriarchal nature of the village

society and pervasive male dominance in the rural political structures. The entry

of the married women to PRis was due to the following reasons: 1) early marriage

is common in rural areas, 2) unmarried girls were not allowed by their parents to

hold such posts, 3) the village committees have strong reservation in selecting

unmarried girls for contesting political offices, 4) girls would stake their marriage

if they indulge in public activity before marriage.

Table No. 5.9: Reasons for the Participation in Politics (Multiple Answer)

KOKSARA DHARMAGARH

Due to Reservation 9 14

Family Influence 9 14

Influence by Villagers 9 14 Personal Interest 2 3

More than anything else, all the dalit women representatives entered into

the PRis only because of the reservations for them. Because without reservations

they would not have been allowed to enter into the PRis by other higher castes or

the dominant castes of the locality. Positions of power at this level still rested with

the upper castes. The Temra G.P Samiti Member and Sarapanch of K.huntia said

that without reservation for the women at grassroots level, they could not have

come to village panchayats. The other factors were also due to the persuasion of

family members i.e. husbands or kin-group, influence from the village people and

175


their personal interests. Actually their personal interest was created by the above

factors. Jayanti Ghadei, Sarapanch (1997) of Parla GP, under the Dharmagarh

block was elected as Sarapanch by the people of her village even though it was

not reserved for women. The reason was that the dominant population of Parla

was of Bairagi caste (OBC) and they did not want to elect a SC male candidate for

the post of Sarapanch. They were afraid that if they would elect a male Sarapanch,

with power in his hand, he might ignore them. Instead of that they wanted her to

contest for election on the condition that she would listen to them. Her husband

being a tuition master was highly respected in the village for his simplicity and he

had declined to contest for the post of Sarapanch, but looking at the persuasion of

the villagers agreed to allow his wife to contest the panchayat election.

Political Experience: Among the total dalit women panchayat representatives

interviewed only three women had prior political experience and all others were

first time entrant to PRis. And not a single respondent was from political

background. The three representatives with prior political experience were: 1

Sarapanch of Kankeri under the Dharmagarh block and 1 ward member of

Badpodaguda under the Koksara block (twice elected- 1997 & 2002). The Samiti

Member of Temra Panchayat under the Koksara block was the ward member of

Ampani (20 km away from Koksara Block).

Table No. 5.10: Educational Qualification of the Respondents

Educational Koksara Dharmagarh Total

Qualification

Illiterate 0 1** 1**

School Educated 12 15 27

(upto 1 01h Standard)

College Educated 0 0 0

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Education: The all round development of any country shows through the level of

education the females received. The women's education plays an important role in

the process of socialization of children and to be aware about their rights and

duties. It can be said that the basic education is necessary for women to cope with

the male dominated society. But, most of the representatives were found to be

school and high school literate (5- 10 standard). Only two representatives had

studied 10 standard where as all the other representatives were under ih standard.

Only 1 ** ward member of Kankeri village under the Dharmagarh block admitted

that she was illiterate and the only thing she knew was to write her name to give

signature 11• However, during the interview, it was observed that even if most of

the representatives said that they had passed 5111 or 61h standard, they seemed to be

illiterate. Because their language and hesitation to answer to a simple question

without taking the help of their family members, made the researcher to think

them to be illiterate.

Therefore, to make the policies and programmes for women successful, the

government must give importance to their education first of all.

Table No. 5.11: Occupational Pattern of Women Representatives and their Family

(Multiple Answer)

OCCUPATION KOKSARA DHARMAGARH TOTAL HOUSE WIFE 11 17 28 FARMER 0 0 0 I,ABOURER 0 1 1 PVT./GOVT JOBS 1 1 2 (Husband)

11 According to Section 11 ofthe Orissa Gram Panchayat Act, 1965 to be qualified as a member of the gram Panchayat one must be able to read and write in Oriya. See Mahendra Kumar Das, Orissa Panchayat Niyamavali (Oriya), Cuttack, Orissa Law Reviews, 2002, pp. 22.

177


Table No. 5.12: Income (monthly) of the Respondents

INCOME KOKSARA DHARMAGARH TOTAL GROUP Less than 500 0 1 1 501- 1000 2 5 7 1001-3000 7 7 14 3001-5000 1 4 5 5001-7000 0 0 0 Above 7001 1 0 1

Occupation and Income: All the dalit women representatives were house wives

and declared themselves as home makers which includes child rearing, field

working (taking food for their family members working in the field, weeding

grass from the paddy crops, cutting crops, etc.), fetching water from the pond and

well, wash clothes of the family, cook food for the entire family, looking after the

old members of the family; activities that put limits on the time they can spend in

political affairs. All of them also mentioned that they were required to play

multiple roles in society- wife, daughter-in-law and elected representative of the

people. Almost all the representatives said that the occupation of their husbands

was agricultural farmers. Only two respondents' husbands were found to be a

schoolteacher and a veterinary hospital peon. Therefore, the monthly income of

majority of respondents was Rs.l 001-3000. According to a few it was Rs.300 1-

5000. Only 1 respondent told that the monthly income of her family was less than

Rs.500 so she had to work as laborer to earn a living. One Samiti Member said

that her family monthly income was above Rs. 7001, which meant she was the

only representative who had an economically sound background.

House Condition: Most of the representatives are poor. They had little land

property or no land at all. Most of them are living in houses made of clay and few

were living in pukka houses, which they had been provided by government's

178


Indira A was Y ojna (IA Y). Only one Samiti Member had a pukka house owned by

her husband.

So, the socio-economic condition dalit women representatives is a cause

and concern as it is linked with the role perception. If they are economically poor,

they might not think about the development of the Panchayat. Our policy makers,

who have in mind putting reservation to develop both women and panchayat

through various measures, must bear in mind that mere representation is not

enough, they need to be strengthened socially and economically. As the report of

the Planning Commission on the tour of KBK districts says more focus should be

given to livelihood schemes so that incomes of very poor SC/ST and other

disadvantaged groups rise to make a dent on poverty 12•

Table No. 5.13: Personal Affiliation to Political Parties

Political Party KOKSARA DHARMAGARH TOTAL

Congress 5 10 .15

BJP 0 0 0

BJD 2 3 5

No Answer 4 4 8

Political Affiliation: When enquired about their political affiliation, all

respondents told that they had no relation with any political party, but after some

cajoling and persuasion 15 of them admitted that they supported the Congress

Party and 5 supported Biju Janata Dal (BJD), 8 did not answer at all. The most

interesting fact was that not a single respondent accepted to support the Bharatiya

Janata Party (BJP).

12 Chandra Pal, A. Sekhar, and Sugan Singh, op.cit., p. 33.

179


Table No. 5.14: Response of the Representatives regarding their Attendance . th p h t f m e anc ay_a mee mg

KOKSARA DHARMAGARH TOTAL Always 10 12 22 Very often 1 4 5 Rarely 0 1 1 Never 0 0 0

Majority of the dalit women representatives maintained that they always or

very often attend the panchayat meetings. However, they even admitted to take the

help of their husbands and other family members to know about the dates of

panchayat meeting and other related information about the PRis. Their family

members i.e., husbands, sons or near relatives also accompany them to the

meeting place or to the block office.

When asked as to how they were feeling being in the Panchayati Raj

system, almost all the representatives maintained, "we are now feeling good,

independent and self-confident. Earlier we were nothing. In our initial

involvement in the village politics, we suffered a lot. According to the traditional

thinking, a woman cannot bring any good thing for her; so she cannot do any good

for others. Earlier we used to get jitters going before village elders or government

officials, but now we can freely talk to them, discuss the problems of our villages.

We had always desired to do something for our locality or village people because

the problem they face, we face. However, after the reservations for SC/ST and

women we have got a chance to fulfill our dreams and aspirations. Within our

limited knowledge and capacity, if we could change the lives of at least few

people of our locality, we would feel satisfied as human beings. The position of

~omen has definitely ,got better after coming into the Panchayati Raj and now

lRO


they we are in a position to learn from the mistakes and in future we will

definitely not face the same problems, which we are facing now."

T bl N 5 15 R a e 0. espouses o fth El t d R e ec e t t' epresen a 1ves on D .. eCISIOD-ma k' m_g KOKSARA DHARMAGARH TOTAL

Take Decisions 2 2 4 Independent} y \

Discussion with 4 5 9 Husband/relatives Influenced by 2 4 6 leaders of PRis No answer 3 6 9

When asked how do they take a decision or form an opinion on some

issues in the PRis, only 4 respondents told that they take the decision

independently. 9 of them told that they take the decision after discussion with

husbands, family members or other village elders. 6 of them (particularly ward

members)·told that all the decisions were taken by Sarapanch and other influential

panchayat leaders or all the decisions were taken in the palli sabha.

Table No. 5.16: Support of Other Castes Male/Female Representatives in D' h . D . ISC argmg uhes

KOKSARA DHARMAGARH TOTAL

Always 2 2 4

Very often 2 3 5

Rarely 4 7 II

No answer 3 5 8

Table No. 5.17: Reasons for Non-cooperation of Other Castes Male/Female R t f . D. h . th . D f epresen a 1ves m 1sc argmg e1r U 1es


As less educated 2 2 4

As a woman 4 5 9

As minority caste 5 7 12

Any other 0 3 3

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To the question as to how often did they get the cooperation of other castes

male/female representatives in discharging their duties? The representatives were

initially not forth coming and hesitated to answer. But after some persuasion, 4 of

the respondents replied that they always had the cooperation of other castes

male/female representatives, 5 of them said very often and 11 rarely got the

cooperation and 8 did not answer at all. When asked what was the reason(s) for

their non-cooperation, 12 of the total respondents told the reason was basically

due to their caste, 9 told because they were women, 4 told because they were less

educated, and the rest told that they were the victims of jealousy and others. To

th,em some people did not want them to be in system or could not see their rise in

their social status and position.

Table No. 5.18: Responses on the Socio-Economic Changes acquired through P r . I P f . t• . PRI o 1hca ar ICIPa IOn Ill s


Increased social 3 4 7

status

Increased 3 5 8

economic status

~adelndependent 4 6 10

No change 1 2 3

To the question what changes their political involvement brought to them

in their personal (socio-economic) lives? 7 our of the total respondents said it had

increased their social status, 8 told that their economic status 13 had improved, 10

respondents maintained it had made them independent and 3 told that it had not

13 The members of the gram panchayat including the Sarapanch and Naib-Sarapanch shall be paid such sitting fee for every meeting they attend and such traveling and daily allowances [as the State Government may, by notification, determine] and such fees and allowances shall be paid from out of the Gram Fund.] Substituted vide Orissa Act No. 23 of 1987. For details see Panchayat Laws in Orissa, Cuttack, Orissa Law Reviews, 2005, p. 17.

182


changed anything (socio-economic status). According to them, "They are where

they were earlier."

Table No. 5.19: Problems faced by the Elected Representatives while Discharging their Duties (Multiple Answer)

KOKSARA DHARMAGARH TOTAL Caste-based 2 5 7 Discrimination Gender-based 3 6 9 Discrimination Administrative 4 3 7 interference All the above 2 3 5

To the question what problems they face while discharging their duties? 9

out of the total representatives maintained that they generally face gender-based

discrimination. Most of the administrative officials and other co-male members

think that we women are incompetent and do not understand anything, therefore,

most of the · time their decisions were not entertained. 7 dalit women

representatives said that somewhere or the other they always felt being treated as

untouchable (however, they declined to give any explanation to that) and 7

representatives told that "they rarely get the administrative support from so could

not do anything for the development of our locality even if we want to". 5 of them

without being specific said all the above reasons.

When asked what were the problems they identified to address urgently,

being the representatives of the population, almost all the respondents maintained

that road repairing, housing, drinking water facilities, sanitation facilities, schools

for children were the major problems of their areas and they had been trying their

best to solve those problem. Few of the respondents also told that they had no

panchayat office in their GP. However, most of the representatives maintained

1R3


that they were not getting enough support of the BDO or Chairmen of the block.

To them, "People think we are not doing anything for the locality we represent.

We want to do so many things. But they do not understand what can we do

without the support and assistance of the Block Development Officer or Chairmen

of the block or other officials."

Table No. 5.20: Perception on whether Women arc adequately represented in

the Political System

KOKSARA DHARMAGARH TOTAL Yes 7 11 18 No 4 6 10 Any other/ No 0 0 0 answer

When asked whether women are adequately represented in the political

system, 18 of the total respondents said yes without giving any reasons and 10

said no. However, all the representatives maintained "there should be more

reservations for women. What men can do, we can do the same. Then why should

we not get 50 per cent reservations?" The reason for saying yes might be due to

their lack of awareness or that at least they feel that women have got some kind of

reservations to be a part of the decision-making process which used to be the sole

prerogative ofthe males in the society.

Table No. 5.21: Opinions of the Elected Representatives on being called as the P . fth . M I C t rOXIeS 0 e1r ae oun erparts


True 6 11 17

Somewhat true 3 5 8

Not true 2 1 3

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When they were asked what was their opinion on being called as the proxies of

their male counterparts, 17 out of the total respondents admitted it to be true, 8

said somewhat true and only 3 said it was not true at all. The reason they cited was

that "To look after our own households and the works of the panchayat

simultaneously is an arduous task. For some information from the block office or

about the date of our meetings if we take the help of our husbands or some

relatives, what is the wrong in it? If they accompany us to the panchayat office or

some places we are required to visit, or we ask about their opinion regarding some

decisions, it does not mean we are proxies of our male members. After all we take

the final decision so far as the panchayat activities are concerned."

To the question as to what needs to be done to empower women. Almost

all the representatives were unanimous that education is necessary. "Due to lack

of adequate knowledge, we have to accept the dictates of the B.D.O, chairman or

other officials, even if we know that it won't help our cause. Besides this, there

should be opportunities like: cow & goat breeding, Dhan kutaa, pregnancy bhatta,

free medicine for the poor, health facilities, etc.

Opinion of Officials:

According to the BDO of Koksara, in each financial year, new plans like:

Pradhan Mantri Gramodaya Yojana (PMGY), Jawahar Rozgar Yojana (JRY),

Self Help Groups (SHG), Women Self-Help Group (WSHG), Sampoorna

Grameena Rozgar Yojana (SGR Y), Swarnajayanti Gram Swarozgar Yojana

(SGSY), Rastriya Sam Vikas Yojana (RSVY), Employment Assurance Scheme

(EAS), Special Component Plan (SCP), Tribal Sub Plan (TSP), IA Y, Annapurna

Scheme (AS), Antodaya Anna Yojana (AA Y), Integrated Child Development

185

l


Services (ICDS), Jawahar Gram Samridhi Yojana (JGSY), Sarva Sikhya Abhiyan

(SSA), etc. and funds are coming for the villages and the women members

implement it properly. For every developmental work, which comes to their area,

all the village Sarapanchs are united to implement the work. In some instances,

the less educated village women Sarapanchs are not able to understand the

language and take the help of their husbands and other family members. This is

just the beginning. However, with experience they will be able to perform better,

after all mistakes make us learn.

According to the Chairman Koksara PS, to call the women representatives'

proxies is partly true. Gender bias and lack of education are the two major

hindrances, which the women representatives face in carrying out their functions.

He thinks that the present system of women's political representation contributes

to the empowerment of women in society to some extent. However, if they were

given the power to look into the matters of loans, funds meant for women, the

situation would be better. There should be more SHGs, with women being in the

power. He also mentioned that SC/ST women representatives are better

performers in comparison to the general castes women representatives. The reason

he cited was that the higher castes women rarely come out of their houses, mix

with people or look into the problems of their locality. It was generally their

husbands who takes all the decisions and do the work on behalf of them. Whereas,

the dalit women representatives never shy away to come to look into the problems

of the locality even if they come with their husbands or other male members and

try to solve them.

1R6


According to Panchayat Secretary, Badbasul, Dharmagarh block, there should be

50 per cent reservations for women because they are better performer and not as

corrupt as their male counterparts. So far as the question of proxy is concerned, it

is very true, but ultimately they take the final decision because each decision is

taken in the palli sabha.

According to the Village Level Worker (VLW) of Dharmagarh, it is true

that women representatives are the proxies of their male counter parts. But the

reasons are many. Due to their lack of education, they do not understand the

policies and programmes of the government. Lack of infrastructural facilities like

electricity, road, etc. are also the stumbling block in the way of their information

regarding various development policies and programmes of the government. She

also maintained that SC/ST women representatives are the better performer in

comparison to the women of higher castes.

According to the Principal, Panchayat Samiti College, Koksara, it is 90 per

cent true that women representatives are proxies of their husbands and other male

members. But there are few like Tilottama Naik, P.S Member, Temra and

Pankajini Meher, Sarapanch, Khuntia are taking every decision independently. To

the question does the present system of political representation contribute to the

empowerment of the society, he said, "This is in the primary stage. So result is not

that satisfactory. However, I am fully optimistic that in the long run it would yield

the desired result. For this compulsory education for women is the key. With

education and knowledge, they will be the true representatives of the population.

Administrative inconvenience and lack of political awareness and training are

1R7


other major factors, which hinder them to carry out their responsibilities in an

effective manner."

Opinion of the Villagers (Heads, Elders, Youths and Students)

In both the Koksara and Dharmagarh Block, 40 % male members believe that the

female members do not know anything about the village Panchayat and they need

the help of either their husbands or their sons. They also believe that in the name

of the Panchayati Raj, the villagers get cheated by the administrative staffs of the

higher level. They also said that in the name of SC, ST and the weaker sections

and women reservation in the village politics, the capable and the most efficient

persons are debarred from coming into politics. Many of the elected members do

not know the value of the society and they cannot work for the development of the

society. Generally honest and literate persons rarely come to politics and wherever

they want to fight and work for the society, the constituency is already reserved

for the SCs, STs and women. The capable and the efficient persons do not get a

chance to work for the society and this was planned by the higher authority to

exercise their monopoly in the local administration. The people and particularly

youths of Badbasul under the Dharmagarh block were unhappy with the

Sarapanch and termed her as corrupt. To them, "She does not know anything and

whatever her husband says she does that. She is the nominal Sarapanch of our

village; her husband is the real Sarapanch. "

Where as the remaining 60 % maintained: "It is not proper to criticize

them now. There is no doubt that barring one or two, almost all the women

representatives are proxy candidates. However, this is just the initial phase, with

experience they will be able to perform better." They gave the examples of Ms.

188


Tilottama Naik, the Samiti Member ofTemra and Pankajini Meher, Sarapanch of

Khuntia and said that these two women are doing a fine job.

The most interesting finding came out during the conversation with the

villagers was that in comparison to the general castes women representatives, the

SC/ST women representatives are better performers. The reason they cited was

that the higher castes women representatives do not mix with people freely and

very rarely come out of their homes to look into people's problems. Their families

are highly patriarchal and therefore, women are not allowed to participate in

public affairs. Where as the SC/ST women representatives do not shy away to

come out of their homes and mix with people freely and try to hear the problems

and also to solve them.

Discussion with Member of Legislative Assembly

According to Bira Sipka (BJD), and Chhabilal Nag (Ex-Congress candidate) the

decision to give women 33 per cent reservation in Panchayat was a bold step by

the government. This process is still in its infant stage. Therefore, the result might

not look that satisfactory to others, but in their opinion it is the dawn of a new era.

Women, who have been subjugated, exploited by our male dominated society,

have now got their long awaited due to be in the decision-making process. Even

the dalits who are the worst sufferers due to the heinous form of untouchability

have got an opportunity to be at par with other high castes. No doubt, most of the

women representatives take the help of their husbands or other male members,

however in course of time they will be able to take decisions independently. For

this education, political campaign and training is necessary. The government is

189


trying hard to make people educated. However, every noble work takes time to be

a success, but this not that far away.

Conclusion

From the above discussion, it can be inferred that it is easy to point out numerous

examples of women who have worked entirely according to what they were told

by their husbands or other male members of their families. In some cases elected

women remained at home while their husbands attended the panchayat meetings

and carried out official transactions on their behalf. Some of the elected women

were approached by men only when their signatures were needed.

All this is true to a considerable extent, but this is not the whole picture. It

is very much easy to argue that reservation for women has failed. However, in our

male dominated society it is not that easy for women to come out of their homes

and make a nick in the outer world straight way. In order to realize the greater

potential created by these reservations, we should look at several other examples

in which women got an opportunity to play an independent role. In such situations

time and again, we see them making remarkable achievements for the

development of their villages or locality.

The yearning of several women to assert their independence and make a

significant contribution to the welfare of the people is visible in many examples.

In many cases they have been helped by their family members, husbands and have

been encouraged to realize their potential of initiating meaningful social change.

There are few noteworthy examples to be taken into consideration. The

Sarapanch of Kankeri village sanctioned 80 Indira Awas for poor people in her

190


locality, concretized the village roads and drainage system, dug 4 bore wells as

her village people were suffering a lot for the drinking water.

The Sarapanch of Khuntia in her short stint fought with the block officials

because there was no Panchayat office in her village. She also constructed the

road to her village, sanctioned 40 Indira Awas for the poor, 2 clubs for the youths.

The Samiti member of Temra commands respect in her village and even

among the officials, because of her assertiveness and independent decision

making quality. Her village had no electricity; she fought with the B.D.O for the

electrification her village, constructed three village roads, water tank, 1 godown,

and sanctioned 54 Indira A was for the poor.

From such examples it is quite clear that when conducive atmosphere exist

for women to play a leading and active role in the decision making of the village,

the entire village community benefits. This increased participation of women is

often associated with better utilization of financial resources, increased harmony

among the villagers and prioritization ofsome important but neglected aspects of

development such as girls' education and sanitation. Corruption has been one of

the main problems of PRis. Interviews in several villages confirm that when

women representatives function in an independent way, possibilities for

corruption are lesser. Even if a Sarapanch is honest, there is the other threat that

government officials refuse to release money and do not cooperate in other ways

unless a certain commission is paid to them. There have been numerous examples

of women Sarapanch resisting these demands of officials.

191


Thus it is in the interests of not just women but the entire village community to

encourage the further empowerment of women in village affairs. The 33%

reservation for women in PRis is an important part of this empowerment of

women. To further strengthen the effort of elected women representatives, the

government should provide greater security to women from the anger of powerful

vested interests who try to harm and harass them in various ways. Voluntary

organizations should also play a crucial role in helping and training elected

women representatives.

Bringing these women into politics was an act of positive discrimination. It

was· the pressure of law, combined with the political imperative of winning

elections that changed political parties' perception of women's limited capacity for

public office. But, crucially, PRI has helped to change women's perceptions of

themselves. Women have gained a sense of empowerment by asserting control

over resources, officials and, most of all, by challenging men. PRI has also given

many women a greater understanding of the workings of politics, in particular the

importance of political parties. On the other hand, some women's involvement in

PRI has helped them affirm their identity as women with particular and shared

experiences. This self-perception arises from two sources: from women's' own

sense of their shared experience and from attitudes and metaphors imposed on

them by the men. Women have opened up the possibility for politics to have not

only new faces but also a new quality.

But obstacles to the realization of PRI's transformative potential are many.

There continues to be a resistance to devolve power and funds from centres of

(male) power to the periphery. Women still face considerable handicaps to their

192


· involvement in politics; for example, inadequate education, the burden of

reproductive and productive roles, a lack of self-confidence and the opposition of

entrenched cultural and religious views.

There is thus a need to provide women with specific kinds of support,

which go beyond technical training. They need support to build solidarity amongst

women, through strengthening links between women's organizations and elected

bodies. They need information about innovative organizations, which enhance

women's lives such as health providers and credit institutions. It is also necessary

to strengthen women's sense of common identity by articulating the elements of a

feminist consciousness and presenting it as the special quality of women's

leadership. There has been insufficient elaboration of what that leadership has to

offer which distinguishes it from men's leadership and which commends it as

something special. Such an elaboration through feminist discourse and action is

essential for this revolution to deliver the promise it holds.

There is also a need for a more encouraging environment, which would

allow PRI to become a process for the empowerment of women, not to mention

other social groups who have been left out of participation in representative

governance. Such an environment would include legal frameworks and services as

well as packages of technical support.

Democratic politics is, in reality, the interplay of vested interests and PRI's

great achievement has been to mandate a vested, and mutual interest, between

women and the political process. The lesson of PRI is clear: if the wisdom of

grassroots organizations, especially the courage and clarity of women, is to

become policy, it will not be through the art of intellectual persuasion but by the

193


arrangements made within a political system for their voice to have power.

Bringing women into power is thus not only a matter of equality, but of correcting

an unjust and unrepresentative system.

Political Participation ofDalit Women ....

Table No. 5.22: Form no.lS

Section-3 (A)

List of reserved seats for Scheduled Castes, Scheduled Tribes, Backward Castes and Women for the post of Sarapanch in the Gram Panchayats

Name of the Panchayat Samiti- Dharmagarh District- Kalahandi

Sl. Name ofG.P Scheduled Scheduled Backward Unreserved Women

No Caste Tribe Caste

1 Kanagaon - - BC - Women

2 Kankeri sc - - - Women

3 Khairapadar - - BC - -

4 Gatiajor - - BC - -5 Chhanchan - - BC - Women

Bahali 6 Chhilipa - - BC - -7 Jayantpur - ST - - Women

8 Tipiguda - - BC - -

9 Dumerguda - - - UR Women

10 Tambachhada sc - - - -11 Tara pur - ST - - -12 Tendapali - ST - - -13 Dharpur - ST - - Women

14 Dharmagarh - - - UR -15 Nalgaon - - - UR -16 Parla sc - - - -17 Badbasul sc - - - Women

18 Be hera - - - UR -

19 Boden - - - UR -

20 Brahmanchhendia - - - UR -21 Sandhikuliari - - - UR -Source: Dtstnct Collectorate Office, Bhawampatna, Kalahandt.

195


Table No. 5.23: Form no.lS

Section-3 (A)

List of reserved seats for Scheduled Castes, Scheduled Tribes, Backward Castes and Women for the post of Sarapanch in the Gram Panchayats

Name ofthe Panchayat Samiti- Koksara District- Kalahandi

Sl. Name ofG.P Scheduled Scheduled Backward Unreserved Women

No Caste Tribe Caste

1 Ampani - ST - - Women

2 Kaudola - - BC - Women

3 Kashibahal - ST - - -4 Koksara - - BC - -5 Khuntia sc - - - Women

6 Gambhariguda - - BC - -7 Gotomunda - - BC - Women

8 Temra sc - - - -9 Dahgaon - - BC - -10 Dalguma - - - UR Women

11 Dudukathenga - - - UR -12 Phupgaon - ST - - -13 Badpodaguda - ST - - Women

14 Baradanga - ST - - -

15 Mahima - - - UR -16 Majhiguda - - - UR -

17 Mushapali sc - - - -18 Moter - ST - - -

19 Rengalpali - ST - - Women

20 Ladugaon - - - UR -Source: D1stnct Collectorate Office, Bhawampatna, Kalahand1.

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