Institutional Change and its Impact on the Poor and

Excluded:The Indian Decentralisation

Experience

D Narayana,

Centre for Development Studies, Trivandrum, INDIA

2OECD Conference

Implications of Panchayati Raj/ Municipalities as the Third Tier of Governance in India

UNION

|

' |--------------------------- STATE -------------------------- | |----- ------|-- --------------| | | PANCHAY

ATI RAJ MUNICIPALITY

|

| | | | | 3. Zilla

Panchayat Municipal Corporation

|

| | | | | 2. Block

Panchayat Municipal Council

|

| | | | | 1. Gram

Panchayat Nagar Panchayat

|

| | | | | GRAM

SABHA

WARD MEETINGS

|

| | |

|

'|------------Autonomous Councils for Tribal Areas--------| Source: Figure 2, Mathew, G and Mathew, A (2003)

OECD Conference 3

Salient Features of Local Governance

Persons chosen by direct election to fill seats

Seats shall be reserved for SC/ST

One-third the number of seats reserved for women

Offices of chairperson shall also be reserved for women/SC/ST

Shall plan for economic development and social justice

OECD Conference 4

Institutional Change for Participatory Democracy

•Representation for socially and gender disadvantaged•Gram Sabha (village assembly) has to approve plans

and budgets

•In conception Panchayats are local self governments•In practice size and structure of Panchayats vary

across Indian states•Devolution of functions, powers, and resources vary•Some are truly local governments; some mere agents

OECD Conference 5

Research Questions• Do women, the socially excluded, like scheduled

castes and tribe, and the poor actively participate in the LSGIs?

• What are the determinants of their participation? • What are the policy conclusions?

• Question is addressed by taking three states:• Kerala, Tamil Nadu and Madhya Pradesh• Falling into three distinct size structure of LSGIs

6OECD Conference

Variation in Participation by Aspect, Group and State

Women Scheduled Castes and Tribes

Poor Aspect of Participation

TN KER MP TN KER MP TN KER MP Attendance in election

meetings VL VL L - VH - VL VH -

Participation in contesting L L L - - - VL - -

Participation in Gram Sabha - VL VH - VH -

Raise issues in Gram Sabha

- VL - - H - - H -

Sign petitions L - - - H - L H

Contact Elected Representatives

L L VL - - L - H -

Contact Block/ District Panchayat

L - - -

- - - VH -

7OECD Conference

Lower Participation by Women• F Literacy (%<5 years schooling)

-MP(70), TN(30), KER(20)

-GG: MP(20), TN and KER (0)

• F NP Readership: MP(7), TN(49), KER(69)

-GG 20,10,10

• SHG membership: MP(15), TN and KER (>30)

-Regular meetings: 0, 67, 75

-%Discussing PRI: 0, 3, 55

• Membership of Political parties: 2,1,11

-GG: 0,30,17

8OECD Conference

Participation by SC/ST vs. Others

Literacy: MP, TN- no difference; KER- SC lower

NP Readership: MP, TN- no diff.; KER- SC lower

MP, TN: ST/SC on par with OBC economically

SHG membership: MP- ST<OBC; TN- SC=OBC; KER- SC>OBC,FC

Political Party membership: MP, TN- no diff; KER- SC>>OBC,FC

9OECD Conference

Participation by the Poor vs Rich

• F Literacy: MP- no difference; TN, KER- Poor < Rich;

• F NP Readership: MP- low for all; TN- poor<rich; KER- poor<<rich

• SHG membership: MP- poor<<rich; TN,KER- no difference

• Pol Party membership: MP- no difference; TN- poor<<rich; KER-poor>>rich

10OECD Conference

Participation of the Poor and Excluded

• Literacy and NP readership is necessary but not sufficient to ensure participation

• A vibrant civil society does not necessarily lead to higher participation

• A vibrant political society leads to higher participation

• Lack of political mobilisation leads to the exclusion of the poor and elite capture

• Size of local governments has no influence but structure has