gender quotas and panchayat raj institutions in india: a...

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Gender Quotas and Panchayat Raj Institutions in India: A Reflection

Abstract

Dr. S. Padmanabha Bhat Associate Professor With the implementation of gender quotas since the 73rd and 74th Constitutional Amendment Acts, the percentage of women in the political activities at the local level have risen from 4-5% to 25-40% in India. It has initiated a positive momentum of changes especially in the lives of women. The control over resources and the collective power of women has made women to discover their own personal power and mobilize women power to make an impact on the growth of rural areas .It has become the best innovation in grassroots democracy giving voice to the voiceless. The entry of women into Panchayat Raj institutions has made qualitative difference to the issue of poverty, inequality and gender injustice. The women who have entered politics represent various backgrounds-rich and poor, dominated and oppressed, educated and illiterate, working and non-working.

The present paper focuses legal initiatives to increase women’s political participation, the level of awareness of elected women members about their role, analysis of their participation in decision making, planning and implementation of the decisions to attain progress and development. It is a case study of Udupi districts of India by utilizing primary and secondary data to support the arguments. Political participation at the local level ensures women’s empowerment to participate in issues which affect their lives. This paper seeks to examine the impact of gender quotas at the local level on ensuring development.

Key words : Gender quota, Panchayat Raj Institutions,73rd constitutional amendment act ,political participation, India.

Introduction

The question of women’s political participation is on the international agenda. Women participation in political activity has important implications for the broader arena of governance. It is imperative for women to be on the corridors of power & gather strength to negotiate a better deal for themselves. In India women are poorly represented in various governance & decision making bodies. The omission of women from positions of power seriously affects their ability to challenge the subordination in all its various forms. So there is a compelling need for women to be in politics without which the goal of total development of the entire society ca not be achieved .Kofi Annan opines that gender equality is more than a goal in itself. It is a precondition for meeting the challenge of reducing poverty ,promoting sustainable development and building good governance. Gender equality is very essential for the progress of any society. This could be achieved by promoting women’s political participation. The rationale behind this is twofold: it promotes growth, reduces poverty and promotes better governance Furthermore , it provides social justice.

Department of Political Science, St. Mary’s College, Shirva, Karnataka, India. E-mail: [email protected]

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Political participation has been defined in various ways. Political participation means not only exercising the right to vote, but also power sharing, co-decision making, co-policy making at all levels of governance of the state. 1.

Political participation includes wide range of political activities like membership of political parties, electoral campaigning, attending party meetings, holding demonstrations, having good communication with leaders, holding party positions, contesting elections, membership in representative bodies, influencing decision making and participating in other related activities. Participation of women in voting is almost equal to men and in fact there is an increase in the number of women votes in elections after elections. But regarding other political activities participation of women is not impressive in India. The number is smaller compared to men. Women who are able to influence decision-making process are also mostly from urban and elite groups. Rural women are kept out of political arena due to various reasons. Gender quota is a serious attempt to accommodate women in politics. Women have talent and intelligence. But due to social constraints, prejudices, cultural environment and other reasons their participation in decision making process is weakend. They are allowed less space in legislative bodies. Most countries of the world including India have failed to give due space and representation to women in their political system. The statistics of Intra Parliamentary Union 2010 indicate that the world average of women representation in legislature is 19.1, both the houses combined. Representation of Indian women in parliament is far from satisfactory.

Comparatively our neighboring countries such as China Bangla Desh and Pakistan are in a better position with 23.47% 19.7% and 22.5% respectively. Therefore, like social and economic empowerment, political empowerment of women has become the main agenda of governmental and non- governmental organizations in rural areas. The 73rd constitutional amendment has fulfilled this demand. It provided opportunity for more rural women to participate in Panchayat Raj Institutions under quota system. It is a historic step of far reaching implications on the political process in rural India.

Panchayat Raj Institutions are an ancient institutions with a new concept. They are the grass-root units of self-Government which have been proclaimed as the vehicles of socio-economic transformation in rural India. The concept of Panchayat Raj is Indian in origin. Panchayat Raj Institutions are genuine and effective democratic institutions which provide ample opportunities for a large number of rural people to enjoy genuine and effective participation in the development and democratic decision making process. They influence the minds of rural people with help and a spirit of self-help and non-dependence to obtain experience in the art of local self-government.

Panchayat Raj institutions have been in existence in India from time immemorial. They have covered a long distance from their traditional past existence to present day structure. In ancient period and before independence there were village level institutions based on traditional customs, which took important decisions in matters pertaining to village community and to redress disputes among their members. But these institutions could hardly be described as democratic, as they were based on the social legitimacy conferred on them by existing power structure and social order. Women were denied the right to participate in those local bodies.

After independence, the equality guaranteed by the Constitution of India, demands active political participation by women which is integral to the empowerment of women.




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Women constitute forty nine percent of the rural population in India.This gives them the legitimacy to play an important role at the grass roots level. The government of India has taken many measures to attract women into political leadership positions by ensuring 33% reservation in Panchayat Raj Institutions.This reservation has been an important government intervention for maximizing the participation of women in different activities at local self government levels and thereby to improve their socio-economic status. It has become the best innovation in grass roots democracy giving voice to voiceless people. The present paper details legal efforts to increase women’s political participation, the level of awareness of elected women members about their role , analysis of their participation process in decision making, planning and implementation of the decisions to attain progress and development. It also takes into account the challenges, problems faced by women members in attaining equality and identity.

The paper is based on the case study of three village panchayats of Udupi District of India. The present research paper is an analytical study based on both primary and secondary sources and data collection. The data was collected through observation method ,formal interviews and informal discussion with all the members of three grama panchayats.My main objective of study is to analyzse the actual impact of quota system on womens empowerment. This research paper is based on the hypothesis ‘women reservation in Panchayat Raj system has lead only to formal and not real political empowerment of women’ .

Political participation of Women in India

Women are the pivot around which the family, the society and humanity revolves. Their political empowerment is very essential for the wholesome growth of Indian society. Political empowerment of women stands for women inclusion in the decision making process. In India, till recently the entire political process was male dominated. However since a decade women got more empowered and started to have positions of higher rank in society. In politics they used to be marginalized. It is in this context gender quota gains importance in voicing women’s issues and, at the same time, help to have a greater say in politics.

Can the hand that rocks the cradle, rules the nation? Definitely yes. It is evident from the history and mythology of India that in ancient times, women enjoyed great respect in the society. During ancient times they were treated on a par with men even in political and philosophical spheres. However down the centuries, the position of women in society deteriorated and politically they were pushed to the background. Many lop sided customs and traditions stepped in, which enslaved women and limited their access to society. They were only wives and mothers but not business persons or astronauts.

The untold miseries and sufferings of women of the 19th century awakened the conscience of mankind India also got awakened to this change. The root of participation of women in politics can be traced back to 19th century reform movement .Many reformers like Raja Ram Mohan Roy, Swami Dayananda Saraswathi, Ranade, Ishwar Chandra Vidyasager and many others championed the cause of women emanicipation. In the twentieth century, during the freedom movement under the leadership of Mahatma Gandhi, involvement of women in politics was accepted as the natural course . Gandhiji wished women to play a much meaningful role in politics, making it more accountable, transparent and corruption free. He prophetically said, “as long as the women of India do not take part in political life, there can be no salvation for the country.”2




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As a result, as early as 1917, Indian women raised the issues of universal adult franchise. In 1920 Smt. Sarojini Naidu and Ms .Margaret Cousin led a group of women which demanded equal rights of representation for the fair sex in the Indian Legislatures. Bal Gangadhar Tilak was of the view that political action on the part of women was possibly most important than social reforms in empowering women. By 1929 women were allowed the right to vote on the basis of wife hood, property and education. In 1931 the Indian National Congress adopted a resolution in favour of women’s franchise and representation.3 The Act of 1935 has provided all the women above 21 years the right to vote. India attained independence in the year 1947 and it became Republic. After independence India has adopted and enacted the constitution in 1950,guaranteeing to its citizens Justice, Liberty,Equality of status and Opportunity and Fraternity assuring dignity of the individual and unity and integrity of the nation. The constitution of India also prohibited discrimination on grounds of caste, creed, race and sex. It guaranteed equal political rights to men and women. There are many provisions in the Indian constitution which lay stress on equality between men and women. Many laws have also been enacted by the Central Government and State Governments to protect the rights of women, and to provide equal opportunity for them. India has also ratified the U.N International convention for the elimination of All Forms of Discriminations against women(CEDAW)in the year1993. Yet politics remained to be an inhospitable terrain for women.

Representation of Women in Indian Parliament and State Legislatures

The constitution India adopted a parliamentary form of government. The government functions at national, state and local levels. In these three levels people have opportunities to participate in the affairs of Government. In Independent India, many women have held important political and administrative positions. Despite the increase in women participation in the political process and in decision making their representation is not in proportion to their position. During the last 67 years of independence and sixteen Lok Sabhas, the percentage of women members in parliament has moved up from a mere 4.4% in 1952 and 11.26% at present (2014). It does not exhibit an impressive picture The table no 1 presents the yearwise participation of women in the two houses of parliament.

Table No—1

Year wise membership of women in the Lok Sabha and Rajya Sabha

Year

Members in Lok Sabha Members in Rajya Sabha Total

Members Female % Total

members Female %

1952 499 22 4.41 219 16 7.31 1957 500 27 5.40 237 18 7.59 1962 503 34 6.76 238 18 7.56 1967 523 31 5.93 240 20 8.33 1971 521 22 4.22 243 17 7.00 1977 544 19 3.49 244 25 10.25 1980 544 28 5.15 244 24 9.84 1984 544 44 8.09 244 28 11.48 1989 517 27 5.22 245 24 9.80 1991 544 39 7.17 245 38 15.51 1996 543 39 7.18 223 19 8.52 1998 543 43 7.92 245 15 6.12 1999 543 49 9.02 245 19 7.8 2004 543 44 8.10 245 28 11.4 2009 543 59 10.86 245 24 9.79




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2014 543 61 11.23 245 29 11.83 Source- Election Commission of India.2014

The above table shows the percentage of women in the LokaSabha and Rajya Sabha in relation to the total number of seats. In the first Lok Sabha it was 4.4 %. Over the years the percentage of women members has increased slightly. In the present Lok Sabha it is 11.23%. This shows that the percentage of women representation in the Lok Sabha is very low and it has not crossed 12% till date. But the presence of women in the Rajya Sabha has been slightly higher compared to Lok Sabha, probably due to indirect election and nomination of women members. The representation of women in the council of ministers of Government of India also has been very low. It never crossed ten in number. It shows that even today Indian politics remains very male dominated.

In State Legislatures :-

Women representation in State Legislatures has also been equally dismal. At present the average percentage of elected women in state assemblies is 6.94 percent, the highest being is 14.44 percent in Haryana and lowest being 1.34 percent in Karnataka. States like Arunachal Pradesh, Manipur, Mizoram, Nagaland and Union Territory Puducherry have no representation of women in their Assemblies.

It is evident from above discussion that women have remained invisible and marginalized in decision making bodies. Data shows that there has been only a marginal increase in the last few decades in the women representatives in the parliament and state legislatures. In India women constitute half of the population. According to the 2011 censes total population of the country was 121 crores .Out of this 49.5% are females, that is, nearly 50% of population . But women are still fighting for their political empowerment. It is not surprising that the Global Gender Gap Report 2007 of UNDP had placed India at a disappointing rank of 114out of 128 countries studied, based on indicators, among others of political empowerment. However, many attempts have been made to reserve seats for women in the Loka Sabha and the State Legislative Assemblies

The bills for women’s reservation were introduced in the Parliament in 1996,1998,1999 and 2008 respectively. According to these bills one third of seats filled by direct elections in the house of the people and Legislative Assemblies of the states shall be reserved for women. These bills are aimed at eliminating gender inequality and discrimination against women, by political empowerment of women. But due to the indifferent attitude of political parties these bills have not been passed in the Parliament so far. Now the Bill is pending in Rajya Sabha. The new Modi Government may take step to pass this Bill in the Parliament.

Many factors are responsible for this state of affairs.’ Socio- Political environment of a country determines the participation and involvement of women in politics’.4 Traditional division of labour, illiteracy, economic barriers, criminalization, cultural system, criminalization, the type 0f electoral system have been keeping women away from politics . Today elections have become a very expensive affair. Women are not able to generate large amounts of money required to fight elections. Apart from this the gender biases of political parties comes in the way of women empowerment. There is need for political parties to work towards this goal. It is in this context that the 33% women reservation in all political bodies acquires urgency.

Gender Quotas and Panchayat Raj Institutions in India




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Gender Quotas means reservation of seats for women. It entails that women must constitute a certain number or percentage of the members of a body. It may be a Parliament, a State Assembly or local governments. Quotas aim at increasing women’s representation in legislatures or government –funded institutions. They draw legitimacy from women’s under –representation due to exclusionary practices of the political parties and the political institutions.

There are three main types of political quotas. They are voluntary party quotas, legal candidate quotas and reserved seat quotas. First voluntary party quotas adopted voluntarily by political parties. Under this a party committee is given liberty to nominate a certain percentage of female candidates while preparing candidate list..Second ,legal candidate quotas are laid down in the electoral laws or a political party laws. It stipulates that a certain number of candidate positions must be reserved for women. Third, reserved quota. These are positions for which only female candidates can compete. Generally, it is specified either in the constitution or by legislation. Of the countries that currently have gender quotas 61% have voluntary party quotas, 38% have legislated candidate quotas, and 20% have reserved quotas.5

Panchayat Raj Institutions are the part of local self-governments of India. They are the instruments of participatory democracy and decentralization at grass root level. It is the training ground for future leaders. After independence Government of India has introduced Community Development Programme in 1952 with people’s participation as it’s central concern. In 1957 Government appointed Balawantrai Mehta committee to examine the working of the Community Development Programmes and National Extension Service Scheme and suggest measures for their better working. Democracy within local self-governing institutions can be achieved in its genuine spirit only when women become partners and participate in the process of decision making. So . Balwantray Mehta committee report (1958) recommended to establish three tiered Panchayat Raj system and inclusion of two women members in every Panchayat to carry on the specific programmes for women and children. In case of two women not getting elected provision should be made to co-opt them. Following the recommendations of the committee, women reservation system got implemented in Panchayat Raj Institutions in many states. But in most cases they were neither aware of their roles, their rights and duties, nor did they know much about the functioning of Panchayt Raj institutions. They had no experience to participate in the proceedings of Panchayat Raj Institutions or taking up specific problems of women and children. Thus their contribution to decision making process has been inconsequential.

The formation of a committee on status of women(1975) was an important land mark in the development of women in India. The committee recommended the establishment of statutory Women’s Panchayats at the village level with autonomy and resources of their own for the management and administration of welfare and development programmes for women and children. They could be directly elected by the women of the village and should have the right to send representatives of the Panchayat Samithis and Zilla Panchayat. But unfortunately such women Panchayats have been formed only in Andra Pradesh. Other states had not implemented this recommendation. However, in 1976, the publication of the Report of the Committee gave rise to a demand for the representation of women in the Panchayat Raj through reservation.

The Ashok Mehta Committee was setup to examine the working of Panchayat Raj System in 1977 by the Janatha Government. It recommended two tier Panchayat Raj system and inclusion of two women members each should be elected to these Mandal Panchayat




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and Zilla Panchayat. So some states made provision for reservation for women in Panchayat Raj institutions. The scheme got implemented in Karnataka in 1985. Karnataka Government has provided 25 percent reservation for women in local bodies. After a long gap, the National Perspective Plan for Women, 1988, proposed the empowerment of women at the grass-root level of democratic institutions. The plan recommended 30percent reservation of seats for women from Grama Panchayats to Zilla Panchayats. It was also recommended that 30 percent posts of chair persons of all panchayats should be reserved for women.

Women’s movement gained further momentum under the leadership of late Rajiv Gandhi. For the first time, the Government of India setup a separate department for women. He also presented the 64th Constitutional Amendment Bill in Parliament in May 1989 providing for a constitutional status of Panchayat Raj Institutions and 33% reservation of seats for women. The bill failed to secure a two-third majority in the parliament. Later Narasimha Rao Government, enacted the 73rd and 74th Constitutional Amendment Acts in December 1992 which became effective on 24th April 1993.These Acts gave Panchayat Raj Institutions and urban local bodies a constitutional status and made it obligatory for all the states to establish three-tier system of Panchayat Raj institutions. These Acts provide that not less than one-third of the elected members are women in urban and rural local bodies.The Act also provides for reservation of seats for Scheduled Castes and Scheduled Tribes in proportion to their populations.

The 73rdConstitutional amendment of Indian Constitution is considered a land mark in the history of local government in India. It has the following provisions relating to women (Art.243D):

1. Not less than one-third of the seats should be reserved for women. These seats may be allotted by rotation to different constituencies of a Panchayat.

2. There should be reservation for women in the seats that have been allotted to Scheduled Castes and Scheduled Tribes. Not less than one third of the SC and ST seats may be reserved for women.

3. Not less than one third of the total number of seats for the office of the chairpersons at each level should be reserved for women. Rotation method should be followed while implementing this process.

The 73rd constitutional amendment came in force in April 1993.This led a large number of women leaders came to power at the grass root levels. Panchayat Raj Institutions is a three tier system .It consists –

a. Grama Panchayat for a village or a group of villages having population of not less then 5000 and not more then 7000 or the geographical distance of an area with in a radius of five kilometers from the center.

b. Thaluk Panchayat for every block. c. Zilla panchayat for every district.

The introduction of reservation and quota system in the Panchayat Raj Institutions is a great beginning in the direction of legislative empowerment of women .Before reservation, the percentage of women in this rural area was merely 4.5 percent. After reservation it has gone up to 40 percent. It indicates that the percentage is higher than the reserved seat which means that women member have been elected on general seat also. The union cabinet of UPA Government has taken a decision in 2009 to raise reservation for women from one-third to 50 percent of seats at all the three levels of Panchayat Raj Institutions. Today more




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than 26 lakh representatives stand elected to the three levels of Panchayats. Of these, over 10 lakh are women. The last twenty years of Panchayat Raj, have thus succeeded in empowering marginalized groups who have gained political representation and valuable experiences. The work of several women representatives in panchayat in Karnataka, Maharastra,Gujarath,Westbengal,and Rajasthan have been widely acclaimed. The table 2 and figure 1 shows Percentage of women representation in National, regional and local bodies.

Table-2

Percentage of women representation in National, regional and local bodies in India

Parliament State Legislature. Panchayat Raj Institutions 12% 7%

40%

Fig 1:Percentage of women in National Reginal and local bodies in India

Case Study

This paper is based on the study of three villages of Udupi district of Karnataka State. Karnataka is one of the states of India which experimented with Panchayat Raj Institutions from time to time. Its population is 61 million of which 69% is rural. About one-fifth of the population belongs to scheduled castes and scheduled tribes. The rural population is inhabiting 27024 villages. These villages have been administratively grouped into 5640 Panchayats. The state has passed a new statute entitled ‘Karnataka Panchayat Act 1993’ based on the 73rd constitutional amendment. This has led to a large number of women leaders coming to power at the grass roots level. Initially, women were reluctant to enter this new political arena, Political parties and vested interest groups took advantage of the situation and proxy rule prevailed. Thus as usual the power remained in the hands of the traditionally powerful groups. A new class of presidents also emerged where the husbands of the women presidents managed the affairs of

0%

10%

20%

30%

40%

Parliament State Legislature.

Panchayat Raj Institutions

Figure-1 Percentage of Women representation in National, Regional and Local bodies in India

Series1

Series2




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the panchayats, and the women presidents acted only as a rubber stamps. Various studies have shown that many women elected to the panchayats are surrogates for husbands and fathers who could not contest because of reservation. But now situation has changed. Many interested, educated women have become the members of Panchayat Raj Institutions . Many state governments have conducted training programmes for newly elected panchayat members. As a result, they are trying to participate actively in the administration of Panchayat Raj Institutions.

Udupi is one of the costal districts of the state of Karnataka. The district is divided in to three taluks viz Udupi, Kundapur, and Karkala. The district has 146 village panchayaths. I have taken one panchayat from each taluk. The total number of members in these three panchayats are 42. Among them 16 are women. All these 42 members were selected for the interview. Besides ,3 women member of taluk panchayats and 3 women members of Zilla panchayats were also interviewed. Among them one is president and two are vice presidents . A total 22 women members were selected for eliciting opinion and 26 men members were selected for cross examination. I also observed the meetings of Grama Sabhas , Ward Sabhas and Panchayat of one village .

According to 2011 censes, the district recorded a total population of 1112243 comprising of 5222231 males and 590012 females.6 There were 810584 literates in the district of which 4091135 were men and 401449 women. Of the total literate population 642903 lived in villages. There are many educational institutions in this district. This is the third most literal district in the state. 7 Cooli, Beedi rolling, Cashew factory work, Tailoring, are the main occupations of the women in this district. Among the respondents 60% are engaged in these jobs and 40% members are jobless. Most of them are house wives.

Regular Participation in Panchayat Meetings :-

The meetings of the Panchayats are held to run local administration. The frequency of the meetings of the panchayat council is generally regulated by the Panchayat Raj Act. In Karnataka Panchayat meetings are held once in two months. The Panchayat chairmen convene these meetings. They preside meetings of the panchayats and have full access to its records. In their absence the Vice chairpersons preside such meetings.

The chairperson has to maintain order in the meeting. Any member may call the attention of the chairman to any negligence in the execution of the panchayat work or to some waste of panchayat property or to the wants of any locality and may suggest improvements . Every member has the right to move resolutions and ask questions to the chairman in matters connected with administration of the Panchayat. All meeting proceedings are recorded by the Secretary. Issues raised in the meetings are decided by a majority of votes of the members present while voting.

Karnataka Panchayat Act of 1993 has provision for two sabhas - Grama sabha and Ward sabha. These “sabhas” should meet at least twice in a year. All the adults of village take part in the meeting. The problem of the village are voiced in these meets, discussed in detail and remedied in these meetings. Beneficiaries of rural development programmes are also selected in these meetings. Members of panchyats are required to attend these meetings and listen to the problems of people. Later they present the matter in panchayat meetings and find solutions for the problems.




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The 73rd constitutional amendment has created a space for women for political participation and decision making at the grass root level. The meeting provides them an opportunity to voice their grievances and problems of their own village. Most of the women show interest to participate in the Panchyat Grama sabha and Ward sabha meetings. . The meeting records of the panchayat reveals that after the election, members have not forgotten their responsibilities. Though most of the members are engaged in different professions for the purpose of their livelihood, they participate in the meetings regularly. Women members feel that it is a privilege to them. But men members are of the opinion that women member are not actively participating in the panchayat meetings. Many women members are unable to express their views. This may be due to attitudinal and cultural barriers . The survey reveals that many women members lack confidence, they have inferiority complex and they have no clear idea about the panchayat goals and methods to achieve them. But some women members who are in local organizations like Self Help Group, Bhajana Mandal (Prayer meets) ,Women’s club, School betterment committees meaningfully participate in the panchayat meetings.

Active Participation In Panchayat meetings

There is a difference between mere participation and active participation. Active participation is major component of political empowerment of women. Active participation requires awareness about panchayat laws, rural development programmes and social problems. Thus participation and awareness are inter related. It is generally assumed that increased awareness leads to better and more active participation.

Fig 2: Active Participation of Women Members in Panchayat Meetings

Though women member participation in panchayat meetings is quite regular it is not effective. But most of them yet to gain experience, knowledge and self confidence to actively and meaning fully participate in the Panchayat Raj Institutions .

Backward class women members are fear conscious while participating in the meetings. That is why men members with better education and economic positions continue to dominate these institutions. The figure-2 Shows that only 27.3% members are very actively participating and 31.8% members actively participating in the panchayat meetings. But 40.9% respondents admitted that they are not actively participating in panchayat

Active Participation of

Women Members in Panchayat Meetings

Number, 22

Active Participation of

Women Members in Panchayat Meetings

Percentage, 100

0

20

40

60

80

100

120

Very Active Active Less Active Total

Figure -2 Active Participation Wimen Members in Panchayat Meeting Number




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meetings and they are only attending the meetings. But women members participation is better at the taluk panchayat meetings and zilla panchayat meetings because they are better educated and supported by political parties.

Participation in Rural Development Programmes :-

The term ‘Rural Development’ refers to a wide array of developmental programmes which aim at all round development of the rural areas and improve the conditions of the rural poor. Since a large majority of the people(833crores) live in the rural areas and live below the poverty line, rural development has become the primary concern of India. In India rural development programmes include agricultural development, rural industry establishment, provision of roads, electricity, communication, markets, water supply, welfare services, improvement of nutrition, family planning, village sanitation….etc.The 73rd Constitutional Amendment Act transferred twenty nine subjects to Panchayat Raj Institutions. The concern here is not only about the economic progress but also social progress of its poor, women and children in rural areas. So Government of India and State Governments are implementing all the rural development programmes through Panchayat Raj Institutions. Beneficiaries of different rural development schemes are selected through Grama Sabha and Panchayat meetings. Panchayat members should have the knowledge of these rural developmental programmes and about finance to implement these programmes.Today, there is a public development officer to implement these rural development programmes. So panchayat members active participation in these programmes is the key to the success of rural welfare.

In order to assess the knowledge and participation of women members in rural development programmes of the panchayats, certain questions were posed to the respondents. Opinions expressed by them is sorted out in the following figure.

Fig 3: Awareness about Rural Development Programme

It is quite evident from the above figure-3 that 54.5% respondents have no clear idea about rural development programmes. They cannot be counted as actively involving in the rural development programmes. So provisions of adequate post electoral training should be imparted to the newly elected women representatives enabling them to effectively participate in the decision making process of the Panchayat Raj Institutions. Law making procedure is not a layman’s work. It needs some expertise knowledge. Through training programmes women representatives should be informed about various rural development programmes of

0

50

100

150

Very Good Good Bad Total

Figure-3 Awarness about Rural Development Programmes Number.

Table4 Awareness about Rural Development Programmes. Percentage

Table4 Awareness about Rural Development Programmes. Number




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Government, so that they can convey it to women to take advantage of them for their improvement.

Frequencies of presentation ofvillage problems by respondents in Grama Sabha

aand Panchayat Meetings The following figure illustrates how members present the problems of village in

meeting .

Fig4: Frequencies of presentation of village problem in Grama Sabha and Panchayat meetings.

The above figure shows that only 18.2 percent members present the problem always

and 22.7 percent members often. But a majority 45.5 percent members precent the problems less oftes and 13.6 percent of the respondents did not present the problems at all. This is not a good sign. There are many reasons for their passive participation in the region surveyed.

0

20

40

60

80

100

120

140

Always Often Less Often Not at all Total

Figure-4 Friquencies of presentation of village problem in Gram Sabha and Panchayat meetings.Number

Percentage

Numbers




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Fig 5: Reasons for Less Active Participation

The above figurre reveals the various problems of their active participation in Panchayat Raj politics. The one of problem is gender discrimination 27.3 percent respondent admitted that they are hurted by male domination. They do not hear their voice. For 22.7 percent of the respondent problems is lack of political experience, because They are becoming the members of the Panchayat for the first time. For 22.7 percent members the problem pertains to lack of knowledge about Panchayat Raj Act and Government circulars sent from time to time. Other members especially Backward class members lack confidence they have inferiority complex and fear complex.

Women members’ perception of their roles :

The first step towards the empowering process is to make women aware of their

roles and responsibilities, rural development programmes and finance of panchayat and develop self perception. “Increased awareness is one of the most valuable means of achieving gender equality and the women empowerment”.8 The presence of women in Panchayat Raj Institutions for over two decades has provided opportunities of becoming aware of the Panchayat Raj finances and resources. Holding office or responsible positions in the public sphere provides a trend as boost to an individual’s perceptions .In order to assess the women members perceptions of their role certain questions were posed to respondents. Opinion expressed by them is stated in the following figure 6.

0

50

100

150

Figure-5 Reasons for Less Active Participation Number

Percentage

Number




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Fig 6: Women members’ perception of their role

The above table reveals that most of the women members are not aware of their roles associated with becoming elected officials.40.9 percent of women leaders said that they were not aware of their roles in Panchayat Raj Institutions , 18.2 percent thought that their role was to attend Grama panchayat meetings while 9.1 thought that their role was to solve peoples problem . Only 9.1percent were aware that grama panchayat could sponsor peoples development projects through a governmental programmes .Further most of the women members are not aware of the sources of finance that met the needs of their constituencies. They were not aware of panchayat budget allocation of funds To avoid this kind of situation. women representatives should keep themselves informed of matters like, functions of the panchayat,income expenditure involved to fulfill those functions.

Constraints and challenges faced by women in the participation of Panchayat

Raj Meetings. The quota system for women representation in Panchayat Raj Institutions augur many

positive signals.It is accepted not only as a tool to increase women’s participation but often as a necessity. Women have slowly started to play important roles in Panchayat Raj Institutions and local bodies. Panchayat Raj Institutions are good training grounds for women politicians who want to move towards higher levels of elected or appointed office in the government. At this level of government women can enter in to political life easily as the cost of election campaigns are relatively low and require focus on the local issues only.

Various other studies and field experiences of women participation in Panchayat Raj

Institutions in varies states of India have listed the challenges and constraints faced by them. The studies reveal women have not been able to utilize effectively their constitutional opportunity due to many personal, social and institutional reasons. They are disadvantaged by patriarchal social system, social and cultural prejudices, financial dependence, lack of media

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Figure-6 women members' preception of their role

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support and exposure to political processes, limited training opportunities , family and child care responsibilities and by the criminalization of politics. Some have identified the serious problems faced by the women to participate in the functions of Panchayat Raj Institutions as the four Cs-“Cultural, child care , cash and confidence”.

Women are generally asked to contest only because the seats are reserved for them. In

reality, gender identity and practices limit their capacities to articulate and act upon their claims and concerns. It is surprising to note most of the women members admit that they cannot participate freely with and in the presence of male members. They say that inferiority complex, shyness, social inhibition etc keep them away from free participation. The gossips that women move with men and consequences arising from such gossips are major obstacles that affect women member participation in local government. This has been a major constraint Most of the women president who are sympathetic and conscious towards problems faced by the village women community are indifferent towards raising the issues in the meeting of Grama Panchayat. Backward class women members face the problem of caste discrimination in many areas.

It is also true that women have less political experience and they lack exposure.

Therefore, they lag behind in the execution of political duty. Years of discrimination have incapacitated them to articulate the priorities of their constituency and influence decision making. They need skill, knowledge and information to express their concerns and influence the decision making process .So periodical training, orientation, incentives, and sensitization can help the women leaders to perform the assigned role in a better way. Basically Indian women have no interest in political affairs. Most of the women think that politics is not their field of interest. But they have economic interest. They want jobs and lead secure family life.

Panchayat Membership and Social Status of Women

The 73rd Constitutional amendment aims at empowerment of women in the India.. It makes provision for 33% reservation of seats for them. It is increased to 50% in many states of India. It provides opportunities for women to assert their rights over social problems and have a definite say in their welfare. Political empowerment of women has enhanced their social status. It has enabled them to participate in all matters connected with the society on an egalitarian basis.

Opinion expressed by the respondents about enhancement of status in society after membership (%) :-

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Enhanced Social status with 73rd constitutional amendment Act

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The above figure illustrates that majority of respondents i.e. 68.2 percent are in favor of 73rd Constitutional Amendment Act. They agreed that their political empowerment enhanced their status in society. Only 13.6 percent respondents said that reservation has not enhanced their social status. The panchayat membership has given better status to women in public sphere. They are invited to participate in all the social functions of the panchayat area. But political participation has not improved their economic condition. It has not helped them in improving the literacy ratio, health condition and secure sanitation benefit offered by the Government of India. It has not stopped violence oppression menace of divorce, rape, etc being worked out against them.

Conclusion :

This paper has assessed how legally binding gender quota affected the representation of female at Panchayat Raj Institutions. The study reveals that the Panchayat leadership in India is undergoing rapid transformation; the traditionally privileged leadership is being replaced by the new social leadership. It has given women a vision and equipped them with access to world beyond the four walls of a house. The women’s entry into the functioning of the Panchayat Raj Institutions at all levels, particularly at decision making levels will usher in an era of equality and prosperity in the villages. The women have a very positive attitude and view of capacity building. They do not regard their womanhood as a hurdle in itself. But they need political education programmes. Political education means information about stakeholder powers, rights and responsibilities which energies them with basic knowledge about the concept and relevance of Panchayat Raj Institutions.

It is important to remember that quotas for women do not obviate all barriers for women to be in politics. Difficulties in combining family life , work life and politics still remain a severe obstacle to women in the political field . Further political representation cannot stand alone, but must be complemented with necessary socio-economic changes in society at large.9 Women have to be empowered with reservation system. The support of political parties is very essential for the success of quota system. Reservation system must be embedded in the selection and the nomination process of political parties from very beginning. But in India political parties are hesitant to select women candidates for legislative bodies .Even when they are chosen they are usually fielded from losing constituencies. No political party wishes to waste a male candidate. Some political parties are not at all in favor of reservation. However, 73 and 74 constitutional amendment provided a space for women to participate in local governments. These amendments put strong pressure on political parties to provide reservation for women at lower level. It is ,therefore, first at the party level organization the principle of equality must be put into practice. Traditionally male based political parties need to be encouraged to revise their statutes and accommodate more women into their internal structure and include these candidates in elections.

The affirmative action adopted by the government of India providing for reservation of not less than one- third seats in Panchayat Raj Institutions has facilitated members of rural women folk to participate in the decision making process .Further women are now in a position to access resources and utilize the power vested in them. This is a significant step towards achieving the constitutional goal of equality . However , much more needs to be done to provide an conducive environment in the political institutions to enable women to participate effectively in the process of women empowerment.




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It is not enough to begin the attempt to political space creation in the local and lower levels of governance. The struggle for women reservation at the higher levels of political office must continue. The enactment of 85th Constitutional Amendment Bill is still a dream. The struggle for equality in income, social and political spheres will continue until they are achieved .Only then women can charter their political agenda to turn a Bill into a gender just society.

One of the most important positive system of reservation is the growing political socialization of women . We can understand this by comparing the twin situations of pre reservation and post reservation period . In the former case the women had the option to join or not to join politics. But after reservation came in to force ,a lot of women are coming to politics because of the pressure exerted over them for the purpose . By compulsorily coming to politics, the representatives are now creating an atmosphere when female mentality is getting socialised politically. Women are gradually learning to articulate their demands, thus enabling them to act upon their visions of a better society and to make a meaningful contribution to national development.

I have tested my hypothesis at different levels. Finally I found that even after the twenty years of reservation facility in Panchayat Raj Institutions, women members have not risen up to expectations. It appears some more years are needed to improve the quality of participation. Political participation of women may increase gradually, stepwise. A concerted effort and state intervention is very much needed to get this vision fulfilled.

End Notes

1. Singh J.P( 2000), “ Indian Democracy and Empowerment of women” The Indian Journal of Public Administration or – Document VolXL.V1 No 4pp619.

2. Speach at women’s conference, Sojitra Gujarath in collected works of Mahathma Gandhi, vol. 30, 27december 1924,21st march (1925).p.108

3. AICC Resolution of Fundamental Duties and economic programme Bombay,19 4. Sinhe Niraj(2000) (ed) Women in Indian politics, Empowerment of women Through

political participation, Gyan Publishing House, New Delhi pp 17-18 5. Pande, Rohini and Deanna Ford (2012), Gender quotas and Female Leadership in

World Development Report p-8 6. Government of Karnataka, Udupi District at Glance.p 84 7. Ibid-84. 8. Bejeing Declaration: ‘Increased awareness’ Bejeing Conference 1995. 9. 9Sonia Palmieri and Karun Jabre(2005) case study The 1PU,Promoting Partnerships

between men and women in Parliament p220.

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