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First Printed in January 2004 No. of Copies : 500 @ sakhi_womens resource centre Printing Caxton Press Vettucaud, Tvpm. - 695 007 Phone: 2500685 Published by Sakhi Womens Resource Centre T.C. 27/1872, Convent Road Trivandrum - 695 035 Phone : 0471-2462251 Fax : 0471-2574939 Table of contents List of Tables List of Acronyms Acknowledgements Chapter - 1 Gender and Decentralized Planning :Programme Context 1.1 Introduction 1.2 Gender and decentralized planning: Global and Indian experience 1.3 Kerala and Decentralization process Chapter - 2 Gender, Citizenship and Governance programme 2.1 About Sakhi and relevance of the study 2.2 Major Objectives and Research questions 2.3 Strategies/activities-phase 1 2.4 Strategies/activities Phase 2 Chapter - 3 Analysis 3.1 Outcomes and findings Phase 1 3.2 Outcomes and findings Phase2 3.3 Changes Chapter - 4 Government, WCP and Engendered governance Chapter - 5 Key learning points; Conclusion Bibiliography Appendix 1. Historical background of local governance in India 2. Basic criteria adopted by panchayats to select beneficiaries 3. Budget analysis 4. Offical set up of panchayats 5. Report of gender training for panchayat members List of Tables PAGE NO Table 1 Comparison of quality of life indicator-Kerala VS India 14 Table 2 Comparative profile of Panchayat A and Panchayat B 26 Table 3 Number of people who attended the Gram Sabha to discuss about Peoples Planning Programme (first meeting in 1996) 29 Table 4 The number of people who attended Grama Sabha in Panchayat A 30 Table 5 The number of people who attended Grama Sabha in Panchayat B 30 Table 6 Share of LSGIs in the States Plan 32 Table 7 Allocation of plan funds, 1997  1998 33 Table 8 Allocation of Funds Panchayat A 34 Table 9 Expenditure by Panchayat B in 1998-1999 35 Table10 Allocation for Women Projects for the year 1998 99 in the State as a whole 37 Table 11 Brief profile of panchayat C and panchayat D 43 Table 12 Approximate number of people who attended the Special gramasabha in total 45 Acronyms: LSGIs - Local Self Governing Institutions SPB - State Planning Board PPC - Peoples Plan Campaign WCP - Women Component Plan UDF - United Democratic Front LDF - Left Democratic Front BLEC - Block Level Expert committee DPC - District Planning Committe DIC - District Industrial Center KRP - Key Resource Person PHC - Primary Health center SC/ST - Scheduled caste/Scheduled tribe VEO/LVEO - Village extension officers/ Lady VEO Acknowledgments This study is part of an international research programme Gender, Citizenship and Governance facilitated and financed by the Women, Gender and development programme of Royal Tropical Institute(KIT), Amsterdam, Netherlands. The study was conducted in South Africa and South Asia. Maitrayee Mukhopadhyay, the project Director, took keen interest in assisting us to gain conceptual clarity and carry on the study with clear focus. K.Lalitha the regional coordinator was always available for consultation, guidance and help. The Inter agency meetings with other partner organizations in India, Sri Lanka, Bangladesh and Pakistan were immensely helpful for capacity building as researchers and for mutual learning. This study would not have been complete without the help of many people who willingly interacted with us and gave all the necessary information and guidance. The president, committee members and staff of the 4 panchayats with whom we interacted at the 1st and 2nd phase of this study were extremely helpful and enthusiastic in allowing us to participate in the planning process at every level and to have access to their data. We gratefully acknowledge their contributions in terms of ideas, knowledge, time and good will. We gratefully acknowledge the assistance rendered by eminent persons of the campaign cell of the former State planning Board , especially to Dr.Thomas Issac, Dr.T.N.Seema and Mr.Jagajeevan. We want especially to thank Ms.Sarada Muralidharan I.A.S, the Collector of Trivandrum when the study was going on, for her keen interest and enthusiasm to make things work in the decentralization process. Our deep gratitude to Ms. Nalini Nayak, and all our fellow team members of Sakhi for their moral and all other valuable support Aleyamma Vijayan Sandhya J. December 2003 Chapter 1 Gender and De-centralized Planning PROGRAMME CONTEXT 1.1 Introduction The achievement of democracy presupposes a genuine partnership between men and women in the conduct of the affairs of society in which they work in equality and complementarity, drawing mutual enrichment from their differences (universal declaration of democracy-Inter parliamentary Union, September, 1997) Against this backdrop, when it came to define priorities for the 4th World Conference on Women, the United Nations wished for special attention to be paid to the question of womens participation in Politics and Public affairs. The 4th World conference of women held in Beijing in 1995, in session G183 speaks about women in Power and decision making The universal declaration of Human Rights states that everyone has the right to take part in the Government of his/her country. The empowerment and autonomy of women and the improvement of womens social economic and political status is essential for the achievement of both transparent and accountable government and administration and sustainable development in all areas of life. The power relations that impede womens attainment of fulfilling lives operate at many levels of society, from the most personal to the highly public. Achieving the goal of equal participation of women and men in decision- making will provide a balance that more accurately reflects the composition of society and is needed in order to strengthen democracy and promote its proper functioning. Equality in political decision-making performs a leverage function without which it is highly unlikely that a real integration of the equality dimension in government policy-making is feasible. In this respect, womens equal participation in political life plays a pivotal role in the general process of the advancement of women. Womens equal participation in decision-making is not only a demand for the simple justice or democracy but can also be seen as a necessary condition for womens interests to be taken into account. Without the active participation of women and the incorporation of womens perspective at all levels of decision-making, the goals of equality, development and peace cannot be achieved Womens entry into the political arena in India is a long process of struggle starting with the pre-independence era to the present. The debate which was dormant after gaining the universal franchise re opened again, with the publication of the report on the Status of Women in 1974 75. But it was only in 1988, in the national perspective plan formulated by the Rajive Gandhi Government which recommended 30% reservation of seats for women in the Local Self Government institutions (LSGIs) or the panchayats. This became a reality with the 73rd and 74th the constitutional amendments in 1993. But the bill to reserve seats for women in the state and national legislative bodies is still pending before the parliaments since last 5-6 years!! The 73rd and 74th amendments of the Indian constitution is hailed as a major step in bringing women in to the public realm and into political life. Womens entry in to the local bodies and local planning has brought about remarkable changes both for women themselves, their families and communities. But the crucial question is whether representation in politics and governance is same as effective participation? 1.2 Gender and decentralized planning-Global and Indian experience During 1980s and 90s many countries of Africa, Asia and Latin America have adopted decentralization as a means of managing the resources effectively and better provision of public services. A recent world bank study noted that Out of 75 developing and transitional countries with population greater that 5 million, all but 12 claim to be embarked on some form of transfer of political power to local units of Government(Dillinger, 1994) Decentralization is viewed as the best method to provide space for the people and their organizations to assert their interests and make the system more responsible to local needs and development problems. Some other debates on decentralization point out to more advantages like mobilization of the marginalized and poor, better community involvement, improved access of the poor to public goods and services, efficient utilization natural resources, improved efficiency in implementation. Democratic decentralization can also improve the efficiency of implementation, particularly if the development process is made participatory and transparent. This helps prevent misuse of resources and allows for better monitoring of programmes. Participation can also help tap dormant local resources in the form of monetary donations, material contributions and voluntary labour. In labour-surplus communities with disguised unemployment, community participation can mobilize significant human resources to create social and physical infrastructure. Democratic decentralization can help mobilize what some theorists call social capital: interpersonal relations or small group and community networks (Ellickson 1991). These networks can significantly reduce the transaction costs of collective action and economic exchange and, when appropriately linked to state interventions, can generate significant synergies (Evans 1997). Not all forms of trust or social networking are conductive to promoting developmental objectives. Democratic decentralization, however, has the potential for nurturing useful state  civil society synergies. (Issac Thomas &Frank WR) Indian experience India is one of the very few countries practicing Parliamentary democracy in the world. The Union Government positioned at the Countrys capital, New Delhi and the federated States are the major governing institutions which has to function as per the provisions of the Indian Constitution. Indian democracy is of highly centralized nature. The reverse of the pyramid was attempted by amending the Constitution (73rd and 74th) in 1993. This happened after a long drawn out process. Before the colonial rule itself, local governance was practiced in the Indian society informally. The first local body was formed in the town of Madras in1687. By the end of 19th century, all major urban centers in India had municipal bodies. During the national movement and later on in the post independent phase, there were debates on the need for self-government in the villages but they were not mandatory part of the structure of Government. A brief history of decentralization in India is annexed (annex-1). After a long drawn out process finally it was in 1993, that the 73rd and 74th amendment to the constitution was passed. The landmark amendment made the Local Self Governing Institutions (LSGIs) mandatory as part of the government. A uniform 3 tier system: district, taluk /block (a cluster of villages) and village levels in the rural areas and Municipalities and Corporations in large urban centers came into formal existence. These elected local bodies should have a 5-year term and in the event of dissolution, elections are to be held in 6 months time. Reservation for Scheduled caste and scheduled tribes (in proportion to the population) and one-third reservation for women were introduced at all levels of the local self-government institutions (LSGI). All States had to appoint finance commissions to decide on the sharing of revenue. A separate 11th schedule was added to the Constitution listing 29 subjects that could be devolved to the local bodies. However, the Article 243G of the Constitution mandated the State Governments to decide on devolving powers and functions to the local bodies. Following the enactment of 73rd Constitutional Amendment Act, Kerala Legislative Assembly passed two acts (1) Panchayat Act and (2) Municipality Act in 1994. Legally, powers and functions were transferred to the panchayats in 1995 1.3 Kerala and decentralization process Kerala is one of the 28 States in India. It has an area of 38,863 Sq.km occupying 1.18% of Indian Union with a population of 3.1 Crore (Census of India 2001). Administratively Kerala is divided into 14 Districts, 152 Block Panchayats and 991 Gram (village) Panchayats**. Besides these rural local bodies, there are 53 Municipalities and 5 Municipal Corporations. With an average area of 20-30 Sq km under population between 20,000 and 30,000, the Keralas village Panchayats is larger in size when compared to those in other states. An average Grama Panchayat in Kerala has a population of 25199 (1991 census). These Panchayats are divided into a number of wards, often quite arbitrarily. The number of wards varies from 7 to 20. Kerala has been considered to be unique in many aspects as compared to the rest of India. In spite of having a poor economy, lower per capita income and unemployment, the state of Kerala has been known to achieve a quality of life, which is much higher than all the other states in India as well as some developed countries . Kerala is often quoted for its high achievements in the field of health and family welfare at a low cost (Krishnan, 1985; Thankappan and Valiathan, 1998). This unique phenomenon of socio-economic development has also been very widely referred to as the Kerala Model of Development (Zachariah, 1998). Kerala ranks the highest among the Indian states in HDI with a value of 62.8 followed by Maharashtra with an HDI of 55.49. The set of quality of life indicators put Kerala closer to high-income developed countries than to the rest of India or its counterparts in the low-income world despite its poor economic status. Keralas performance on the basic indicators has continued to improve since the early 1980s. On the whole Kerala achieved high physical quality of life in terms of literacy, life expectancy and infant mortality, at low per capita income. But Keralas achievements in the social sector do not go hand in hand with its progress in material production sectors. There is economic stagnation, increasing unemployment and fall in per capita income. Table 1 COMPARISON OF QUALITY OF LIFE INDICATOR-Kerala VS India Kerala India Adult Literacy rate as % of total adults Males 94.20 65 Females 87.86 38 Life expectancy(in years) Males 67 62 Females 72 63 Infant Mortality(Per 1000) 13 80 Birth rate (per 1000) 18 29 Percentage of couples using contraceptives 80% 43% Average age of marriage 21 14 - 15 Census 2001 Women in Kerala Women in Kerala have achieved parity with respect to literacy levels and this has been true for almost two decades now. The recent 2001 census indicates the literacy rates for women were about 88% as against 94% for men. The Age at marriage for men and women in kerala has always been consistently higher than the national average The states excellent gender-development indicators are also clouded with contrasts. The gender paradox is more visible when we take into account the work participation of women, which is lower than the national average and it has also tended to decline. An important reason for this decline is the severe unemployment rate in the state (Issac et all: 1999) The level of unemployment is higher among women than men in both rural and urban areas. The social status of women in this state is considered to be high as a consequence of matriliny being practiced among some communities and due to the higher educational level. Yet this is not reflected in the political participation as one would expect and here Kerala reflects the trend in the country with the participation rate of women in state legislature bodies less than 10 percent. Womens representation is also low in the various decision making bodies of the political parties and the trade unions Kerala also has the distinction as one of the few states in India with overall sex ratio favoring women. Yet according to the last census, sex ratio of 0-6 years shows a trend not in favour of girl child; it was 963 girls for every 1000 boys. The extent of female headed households is much higher in Kerala (19.37%) as compared to the country as a whole, which is about 8% (Gulati, Ramalingam, Gulati, 1997: p 47). Violence against women in Kerala shows increasing trends . According to Crime records Bureau data, in 1991, reported cases of violence in the state were 1867 and it multiplied 4 fold in 2002 and a total of 7298 cases were reported that year. Another multi-cite survey of domestic violence in seven sites in India during 1997-99 indicated that Trivandrum in Kerala had relatively higher levels of physical violence reported (25.9 percent). The overall level of domestic violence (including mental violence) in Kerala was about 68.9 percent. (ICRW-INCLEN Study: 2000) Kerala also have the dubious distinction of having the highest suicidal rate among Indian states as reported in several studies. 1.3.1 Local self Government Institutions and decentralized planning in Kerala For the first time a direct role in planning was sought to be given to the local bodies, when in 1989-90 the State government, following the recommendations made by Shri.S.B. Sen decided to provide every panchayat with an untied plan grant for local level development. One of the first decision made by the Left Democratic Government (LDF) elected to power in 1996 was to earmark 35 to 40 percent of the outlay of the Ninth Five Year Plan towards projects and programmes to be drawn up by the Local Self Government Institutions (LSGIs) During 1997-98, the total resources devolved worked out to Rs. 10,250 million and in 1998-99 to Rs.11, 780 million, not counting funds from centrally sponsored schemes or the loans that could be taken out by the local bodies with Government guarantee. (Issac T and Frank WR). A new path-breaking and revolutionary experiment of power sharing under the banner of Peoples Planning Programme was launched formally in Kerala on 17th Aug 1996 to formulate the 9th plan in a participatory way. The act was also amended in 1996. The implementing agency for the programme was the State Planning Board (SPB). A high level Guidance council, with all the members of Kerala legislative assembly, parliament members, Government officials, leaders from all walks of life was constituted. An executive body from this council was elected to assist the SPB in day-to-day decisions. A special campaign cell was established with necessary staff, to undertake all activities related to the campaign. The following were stated as the objectives of the peoples plan programme: 1) Decentralization and Peoples Participation 2) 35-40% Plan Funds for Projects/Schemes to be formulated and implemented by Local Bodies. 3) All Departmental Schemes to be implemented in consultation with Local Bodies. 4) Local Bodies to prepare and prioritize a list of projects. 5) Maximum popular participation at every stage of planning process. 6) To break the atmosphere of cynicism. 7) To tap new resources both material and human, and 8) To empower the Panchayats and make them real self-governments. The peoples planning campaign (PPC) or the peoples planning process was introduced as a means to overcome the problems of Keralas development crisis. The campaign was an attempt to operationalise, conceptualize and institutionalize a system of multilevel, people centered planning process suitable to the regional specifications of Kerala (Economic Review, Planning board, Government of Kerala) Gender dimensions aiming at better quality of the life of women also was given due importance in the campaign. In a nutshell the following were the steps followed Phase-1 Gramasabhas or Village assemblies Keralas Panchayati Raj Act of 1994 had endowed the gram sabhas with substantial powers and functions. They have to be convened at least twice a year. To overcome the problem posed by the large size of the panchayats, the kerala legislation limited the gram sabhas to voters in a ward. A typical gram panchayat has 10-12 wards. The village panchayat is to present before them the financial account, work report and a statement of the development activities that are intended to be undertaken. Grama sabhas also participate in the preparation and monitoring of the panchayat development plans. Participants in a grama sabha, numbering about 200-300, divide into small groups, each group dealing with one of the 12 development sectors, such as Agriculture & Irrigation, Animal Husbandry & Fishing, Education, Drinking Water, Sanitation & Health, Industry, Transport & Energy, Housing & Welfare, Culture, Womens Development, Scheduled Caste/Scheduled Tribe (SC/ST) Welfare and Cooperatives & Resource Mobilisation. This small group arrangement made it possible for ordinary people, particularly women, to participate in the discussion. Gram sabahas (ward vise assemblies) were considered to be the best form for identification of felt needs of people, to discuss local development problems and possible solutions. Major efforts were made through media advertisements, articles, television slots and cultural programmes to ensure maximum participation of people. Around 100,000 resource persons at the local level were mobilized and given training to act as facilitators in the group discussions. In the first phase, it is estimated that about 2 million persons participated in the gram sabhas and urban ward assemblies. If we examine the average participation levels, it was just about 11.38 percent of all gram panchayat voters and female participation rate was 26.22 percent. The level of participation was maintained in the gram sabhas in the subsequent years yet they still involve only around10-15 percent Phase 2 Development seminars The development seminars were organized later in every panchayat and Municipality. The discussions were centered on the development reports. The panchayats were given responsibility for planning projects for the 12 development areas allotted to them. Each panchayat had to prepare a development report analyzing each sector with a historical perspective. This development report was discussed in the development seminars. In the seminars, a list of recommendations for development action for each of the sectors was drawn out. Phase 3 Task Forces Sector wise task forces constituted at the grass root level were supposed to make projects with the recommendations and suggestions, which emerged from the development seminars. On an average 12 such task forces were constituted in each local body to cover various development sectors, about which powers were devolved to local bodies. Each task force was chaired by an elected representative and comprising of 10-12 members, trained to prepare the project proposals. Task forces undertake detailed review of the suggestions made at the development seminars and draw up scheme proposals giving necessary technical, cost, benefit, time frame and other details mandated by the State Planning Board Phase 4 Plan finalization This is actual formulation of panchayat plan consisting of eight chapters on introduction, development strategy, pattern of finance, projects by sector, integrated programmes, programmes for SC/ST, programmes for womens development, and monitoring system and 4 annexes on statistical statements, project texts, selected documents related to the Peoples Campaign, and suggestions for the plans of the higher tiers (Block and Zilla or District). Plan formulation is such that it wouldnt be confined to scheme proposals directly funded by the State government. Projects prepared by the task forces were prioritized and incorporated into the five-year plans of the panchayats by the elected bodies Phase 5 Plan for higher tiers of panchayat plan: This phase consists of integration of local plans at the block and district levels. Phase 6 Plan Appraisals: The sixth and final phase is the formulation of a State plan to be integrated with the district plans drawn up from below. At this stage, local plans are to be approved by the District Planning Committees (DPC), which would lead to the release of funds from the state government. This requires a detailed appraisal of the local plans. Expert Committees, comprising of non-official technical experts, are formed at the block, municipality and corporation levels to undertake the appraisal of plans and help the panchayats. Their job is to ensure that the projects conformed to government guidelines and met the requirements of technical feasibility and financial viability. Kerala is fortunate enough that it has the expertise from large number of retired experts in various sectors. At each phase training programmes were organized for key resource persons(KRP), facilitators of gram sabha, members of task forces etc; Number of handbooks were prepared on various aspects of planning, project formulation and financial procedures After one year of experience steps were taken to institutionalize the process. Necessary legal amendments were made; officials were redeployed so that the panchayats had more powers and become truly self-government institutions. Transfer of institutions was completed in the year 2000 when the last set of institutions was transferred to the local self-governments. Following the political change and change in the government, few other modifications were made in late 2001 and early 2002. This includes a slash in the Plan resource allocation to the panchayats from 35-40% to 33% and a decision to allow the local bodies to spend up to 10% on maintenance of institutions transferred to them based on second State Finance Commission which has the mandate to deal with issues related to resource transfers from State to the panchayats Chapter 2 THE GENDER, CITIZENSHIP AND GOVERNANCE PROGRAMME The Gender, Citizenship and Good Governance (GCG) Programme was initiated by the Royal Tropical institute (KIT) in partnership with organizations in South Asia and Southern Africa. The project began in 2000 and Sakhi was invited to be one of the partner organizations in India*. 2.1 About Sakhi Sakhi, in most Indian languages means woman friend. Sakhi- Womens Resource Center is based in Trivandrum, the capital city of Kerala and it came into being in 1996. Sakhis long-term objective is to contribute to the establishment of a society without any discrimination/exploitation based on caste, class and gender. Sakhi attempts to bridge the gap between national and international debates on feminist thought, between local and global events around feminist praxis amidst groups of women and men working at the grassroots level in Kerala. One major aim of Sakhi, a feminist organization is to mainstream gender in the political discourse of Kerala. Sakhi has a well-equipped library, the only one of its kind in Kerala and bring out a bi-monthly newsletter in Malayalam as part of information dissemination. Activities includes various training programmes on gender and related issues for both men and women; violence intervention programmes; life-skill programmes for adolescents; involvement in gender and governance issues including spearheading the network of elected women representatives; facilitating and strengthening the network of autonomous womens groups in Kerala and bringing out publications in local language. Sakhi also promote and undertake various action research programmes on issues pertaining to women in Kerala. The organization is also involved in advocacy and campaign activities. Rationale behind Sakhi taking up the project. The scope of the action research is very much linked to the major aim with which Sakhi functions - to mainstream gender in the political discourse of Kerala. Sakhi believes that Governance is an area which womens organizations should pay special attention to as conscious and purposive intervention will only ensure gender aware policies and programmes and lead to gender equity in Governance. Womens involvement is politics is crucial in the context of emerging issues of globalization and internal structural transformation, the changing nature of nationalism and the rise in religious fundamentalism. We believe that every issue has to be analyzed from a multi cultural and gender perspective. Women, who live in deeply gendered institutions, are the worst hit by the fast changing and violent global forces. Womens capabilities need to be enhanced to analyze such issues through the prism of their own experiences and genuine needs of society. Sakhi was associating with the Peoples Planning Programme right from the beginning. As Sakhi is also involved in networking the elected women representatives of the Panchayats, the lessons drawn from this action research could be useful in guiding the elected representatives to see local governance within a gender framework. Being a feminist organization, Sakhi could analyze all the situations with a gender perspective, which is the essence of the programme. 2.2 Major objectives of the programme The overall objective of the GCG programme is to develop best practice in making gender justice central to the way we are governed. The aim of the project is to do this through three inter-linked components: 1 Capacity building 2 generating best practices 3 Building a platform for action /networking In Kerala, the major goal is to intervene in the decentralized planning process so as to make gender concerns central to the decision-making regarding allocation of resources and to secure gender (practical and strategic) interests through planning. The Programme has the following objectives. Understand the aim and process of decentralization of governance, which is taking place in Kerala and to study the way in which power and privileges are shared and livelihoods and basic human rights are insured. From this study and discussions with experts, evolve some criteria for good governance. In this context understand the process of whether and how governance is gendered? What are the obstacles and hurdles in the process? Document the experiences of elected women representatives and to assess how far their participation in the public realm enabled them to bring gender issues center-stage of politics. To undertake capacity building of elected women so that an empowered constituency is created to carry on the gender advocacy effectively. Precisely the focus of the research is to map the structures, players and processes through which decentralized planning addresses gender strategic interests. The action research had to be carried out in two stages as the Panchayats had elections in between the research period. 2.3 Objectives and Activities of the 1st Phase of Research In the first phase (prior to the local government elections in October 2000) the objective was o to undertake a detailed analysis of whether gender was a concern and criteria in the general projects undertaken in 2 Panchayats; o study and document how the local bodies handled the mandatory provision of 10% for womens projects; o identify the key institutional actors and strategies that facilitated the design and implementation of programmes with a gender perspective. The project was initiated in June 2000. Because of the time constraint imposed by the election in September 2000 we limited ourselves to document the process of decentralized planning in two selected Panchayats of Trivandrum District. The activities comprised: Undertake a detailed analysis of whether gender was a concern and criteria in the general projects for which 40% of the state funds were given. Study and document how the local bodies handled the mandatory provision of 10% for womens projects? (Womens component plan) How were projects identified? What was the participation of women in Grama Sabhas? Has it increased over the years? Whether women were involved at various levels of project formulations? What were the different mechanisms and processes through which projects for women were identified and finalized? Who was responsible for implementation? Monitoring? What were the major problems in executing the projects? In the above cases, identify the key institutional actors and strategies that facilitated the design and implementation of programmes with a gender perspective. Whether any outside agency (NGOs, Planning Board, Local Organizations, individuals) intervened or assisted with training programmes or any other interventions? During the elections (Panchayat election in October 2000 and Assembly election in 2001) leverage political parties to include the issues of re-distribution of resources from a gender perspective. This study though confined to a very limited sample of two Grama Panchayats out of 991 in the State addresses itself to these and other related issues. Methodology of study 1.1 Selection of samples Two Gram Panchayats  Panchayat A under Athiyannnur Block and Panchayat B under Trivandrum rural Block  were selected for the study. A multi-stage purposive sampling method applying the following criteria was used in making the selection. (i) One panchayat should be controlled by a ruling Left Democratic Front (LDF) and the other controlled by an opposition United Democratic Front (UDF). (ii) The geo-physical conditions of both the Panchayats should be similar (iii) Comparable socio-economic development. (iv) Neither of the Panchayats should have any locational advantage or exogenous growth impulses; and (v) both headed by women Presidents. Method of study Source materials like Development Reports, plan documents, project reports, list of beneficiaries, performance reports, and secondary statistical data were collected from the Panchayat offices; Government guidelines and directions in the formulation and implementation of the plan were obtained from the State Planning Board. This evaluation is done purely on the basis of secondary resources unless and otherwise mentioned. Comparative profile of the selected panchayats The following table (Table 1.1) gives a comparative profile of the two panchayats that were selected for study using multi-stage purposive sampling. As can be seen from the table, the physical size and population of the two panchayats is more or less similar. The proportion of females in the population as compared to males is also comparable. Neither panchayat has major or medium sized industries which points to their rural profile. Both have similar number of administrative units (wards). Both have one primary health centre. As was intended, the political control of the panchayats is with different political groupings. Selecting two similar panchayats for study but with different political groupings controlling each was deemed necessary to understand whether the Peoples Plan Campaign was uniformly understood and applied irrespective of the political leanings of the different political groupings. A comparative profile of the two Panchayats is given in Table 2.1 below Table 2 Comparative profile of Panchayat A and Panchayat B Panchayat A Panchayat B 1. Block Panchayat Athiyannur Trivandrum Rural Block 2. Taluk Thiruvananthapuram Thiruvananthapuram 3. Geographical area sq.km 12.4 sq.km 7.69 (sq.km) 4. Population (1991census) 38912 33,534 Female Population 20,317 17,028 5. Major and Medium industries Nil Nil 6. Female Literacy level 71% 90% 7. Number of hospitals/ PHCs I PHC 1 PHC 8. No. of Panchayat wards 13 13 9. No. of wards represented 5 6 by women (including the President) (including the President) 10. Political control LDF UDF How Peoples Plan Campaign took off in the Panchayats The Peoples Plan Campaign was launched as part of the Ninth Five Year Plan (1995  2000) in the state of Kerala. The State Planning Board issued directions to the Panchayats regarding the steps to be taken in the Peoples Plan Campaign. The starting point at Panchayat A was as follows: F 6 people from the Panchayat including the President attended a district level PPC programme in September 9, 10 and 11,1996. F A meeting of similar nature was conducted in a school at Panchayat A and 96 people attended it. But could not locate Local Level Resource persons in the meeting. F As per the decisions taken in the above meeting it was decided to hold special grama sabhas in every ward from 22.09.1996 to 6.10.96. F On the basis of the discussions that held in the Grama sabha, a draft report was prepared. This draft report was later developed and formatted as the development report of the Panchayat, which is considered as ready reckoner for the local level developmental activities. Similar process was held in Panchayat B too. Development Reports Since the Development Reports constitute the reference point for undertaking local development activities, it was necessary to analyse the contents of these reports in order to reach an understanding about the development priorities that the panchayats set themselves. The Development Reports of both the Panchayats, contain the following information: The socio-political and cultural history of Panchayats, The availability of local resources and an analysis of development needs, Problems and potentials of development, Development strategy for the Panchayat and specific development programmes to be carried out in the Panchayats during the Ninth Five Year Plan period. The reports of both the Panchayats, which are very comprehensive, mention strikingly similar goals for development: - increasing agriculture production, promoting industrial activities, expanding road and transport facilities etc. In other words the priorities were to expand economic activities  both in agriculture and industry  in order to expand peoples livelihood opportunities and also to build infrastructure necessary for promoting economic development. Womens Chapter in the Development Reports: A separate chapter on women and development is mandatory as per the guidelines of the State Planning board. The 93-page Development Report of Panchayat A sets aside 3 pages for matters related to women in a separate chapter. The chapter began as follows: India has a rich culture, which gives an elevated status to women. In Kerala women are worshipped as goddesses and mothers; this has its reflection in our Panchayat too. It goes on to say that the problems faced by women are due to lack of gainful employment. No mention is made of the reproductive roles that women perform. This is followed by suggestions as to how these problems can be countered. Needless to say that all the suggestions are geared towards income generating activities that women can undertake. The suggested income-generating programmes include garment- making units, telephone booths run by women, medical stores run by women etc. Only one suggestion that stands out and is not just about income-generating activities is the suggestion to improve the condition of the Primary Health Centre. The 90-page development report of Panchayat B contained two-and-a half pages on matters related to women. This report says nothing about the present condition of women. However, all the other sections detail the present condition. As for example, the section on Agriculture discusses extensively the current situation of agriculture in the panchayat. The section on women, on the other hand, while not analysing the current position of women goes straight on to discussing what needs to be done. In the list of the projects that needs to be taken up in future, the need to improve the primary Health Centre finds place and a proposal to prohibit alcohol, since alcoholism (mainly a male problem) creates problems for women in the maintenance of their families. It is evident that the development reports of both panchayats do not analyse the position and situation of women and, therefore, do not indicate the priorities necessary to promote womens development. As 10% of the budget available to the panchayats is supposed to be reserved for womens programmes, this lack of analysis and priority setting was a major handicap in the planning process. Grama Sabha The Constitution grants a very important role to the Grama Sabha(Ward wise assemblies) and it is considered as the most basic unit of democracy where every citizen can and is expected to participate. The organization of the Grama Sabhas received due importance in Kerala, because it provided the opportunity for maximizing peoples participation in the decentralized planning exercise. Special emphasis was given to encouraging the participation of people, especially women and other weaker sections of the society, in order to discuss the local development programmes in the later stages of PPC. Table 3 Number of people who attended the Grama Sabha to discuss about Peoples Planning Programme (first meeting in 1996) Panchayats Men Women Total Percentage of women Panchayat A 1097 616 1713 36% Panchayat B 1636 480 2116 27% From the above table it is evident that fewer women attended the initial meeting than men, a meeting in which the concept of Peoples Planning Programme was discussed for the first time. The Panchayats did inform the people in advance regarding the meetings but not many people were interested to attend the meetings. In the following three years, attendance at the Gram Sabhas (held both to undertake planning and implementation of the programmes) registered an increase as compared to the first meeting held in 1996. However, there was an overall decline in numbers of people attending over the three years. Table 4 The number of people who attended Grama Sabha in Panchayat A Planning Execution Men Women Total Men Women Total 1997-1998 1031 1076 2107 904 1240 2144 1998-1999 1853 919 2772 967 1118 2085 1999-2000 497 392 889 460 504 964 As can be observed from the above Table 2.2, over the three years there was a steady decline in the participation of women in the Grama Sabhas. While in 1997-98, more than one thousand women attended the meetings in Panchayat A, in 1999-2000 their number declined to half this number. This decline is observable for both men and womens attendance. Table 5 The number of people who attended Grama Sabha in Panchayat B Planning Execution Men Women Total Men Women Total 1997-1998 1452 1832 3284 1027 2263 3290 1998-1999 865 1536 2401 922 1865 2787 1999-2000 485 825 1310 525 952 1477 Like in Panchayat A, grama sabhas of Panchayat B also registered a steady decline in participation over the three years although the number of people attending had increased from the initial meeting held in 1996. In 1997-98, 3284 people participated in the GS while after two years in 1999-2000 participation went down to 1310. There are some interesting differentials in the participation of women and men in the Gram Sabhas that are indicative of the differences between the interests of women and men. In panchayat A the numbers of women attending the second gram sabha, which discussed execution or implementation, was higher than men. The same trend can be seen in panchayat B too. Further, in panchayat B the numbers of women attending both Gram Sabhas is higher than men in all the three years. These differentials can be attributed to a number of reasons. First, the fact that in both panchayats more women than men attended the second meeting, which was about the implementation/execution of the programmes, can be attributed to the fact that the panchayats had to observe very strict rules given by the State Planning board in choosing beneficiaries for the programmes. These rules stipulated a positive bias towards women, and women from marginalized sections of the society defined in terms of class and caste. Second, the overall decline in numbers of people attending the Gram Sabha can partly be attributed to the fact that the rules for distribution of benefits favoured the poor and more vulnerable sections and as a consequence the middle-class (and especially men) stayed away. Third, there was a more conscious effort to elicit the participation of women by getting the Anganwadi (pre-primary schools) teachers to mobilise women, and by forming self-help groups. The panchayats had to pay special attention to implementing the Womens Component Plan and since the beneficiaries of this component were women, they were far more interested in the Gram Sabha meetings than men. Devolution of Funds The main sources of revenue of Local Self Governing Institutions (LSGIs) in Kerala are the following: - Own Taxes: Taxes assigned by State to the local bodies and which they levy. Assigned Taxes: Taxes, which are statutorily assigned to Local Bodies but collected by State Government and made over to Local Bodies. Shared Taxes: Taxes, which are assigned to the State Government and collected by them but a share of the proceeds, is disbursed among Local Bodies. Non Tax Revenue: Income from sources such as property, license fees etc., Grants from government which may be either tied or untied and Loans from Government and other financial institutions. These comprise capital receipts. In the traditional pattern of expenditure of the Local Bodies in Kerala, the establishment charges were a major claimant of the income of the Grama Panchayats accounting for 42% of the total expenditure in 1993-94. For the urban Local Bodies the corresponding ratio was only 16%. Public works such as roads and buildings constituted the main developmental activity of the Local Bodies. The share of the plan expenditure by the Local Bodies was not very significant. Their involvement in the plan has been confined to the utilization of the untied plan grants and the implementation of the schemes, particularly, the centrally sponsored schemes that are implemented through the Local Bodies. With the initiation of decentralized planning, the entire scenario has undergone a dramatic change. Table 6 Share of LSGIs in the States Plan (Rupees in Crore) Year Grant in aid State Sponsored Scheme Total 1997-98 749 276 1025 1998-99 950 166.50 116.50 1999-2000 1020 134.40 1154.40 The budgetary provision for grant-in aid to the Local Bodies has three components: Tribal Sub Plan (TSP), Special Component Plan (SCP) and General Sector Plan. Broad guidelines were given regarding sectoral allocation in the plans of the Local Bodies. Thrust was given to three broad development sectors, namely productive, service and infrastructure sectors. Rural LSGIs has to invest 40% of their grant-in-aid for the productive sector and maximum of 30% for the infrastructure sector and the rest of the 30% in the service sector. Allocation and utilisation of funds for the Panchayats (Panchayat A and Panchayat B) The allocation of funds for the first year (1997  1998) was based on the population figures in the 1991 census. A per head allocation provided the basis of the amount disbursed. Table 7 Allocation of plan funds, 1997  1998 Panchayat Grant by the Amount spent Percentage government spent Panchayat A 92,34,000 57,35,721 92% Panchayat B 55,72,000 52,83,088 94.8% A close scrutiny of the programme contents of 1997-98 annual plans of the Panchayats shows that there was a lack of planning of the proposals and most of the sanctioned schemes had not come up for discussion in the Grama sabhas. The selection of projects was undertaken on the basis of the Criteria for selection of Beneficiaries provided by the State Planning Board. (Annex 2). How the money was used in 1997-98 In Panchayat A, the plan was to spend much of the money for the productive sector, on four agricultural improvement projects  vegetable cultivation, coconut cultivation, paddy cultivation and other farming activities. However, the panchayat did not have a strategy for disbursement of the funds and somehow managed to get rid of the money by subsidising some families to drill for water, others were provided money to buy pump sets, some to cut and remove diseased coconut plants and 2000 families (identified as beneficiaries according to a strict criteria of poverty and caste indicators) were given vegetable cultivation kits. In addition to this almost five hundred families were given 5 hens each and 700 were given sheep under the productive sector. The service sector money was given to build latrines, houses for the houseless and seventy women received sewing machines. A similar picture is evident in the budget allocations and spending of Panchayat 2. The overall evaluation by the panchayats themselves is that they were unable to spend all the money given to them and in a manner that met their development goals. Allocation of funds for the second year 1998  1999 For the second year, 1998-99, the formula for allocation of money to the panchayats was changed. Sixty five per cent of the allocation was based on the population. Thirty-five per cent was allocated on the basis of a composite index based on the following parameters and weights: geographical area 5 %, area under paddy cultivation 5%, own income of the panchayat 10 %, and composite index of agricultural labourers, persons raising livestock, fisheries and marginal workers 15%. The amounts allocated were as follows Table 8 Allocation of Funds Panchayat A Carry forward from the 1st year Rs.4, 98,279 Allocation by Government Rs.68, 02,000 Total Rs.73, 20,279 Total amount spent Rs.46, 85,888 (Around 64.18%) In the year 1998-99 panchayat A had a total of Rupees 73,20,279 available to it of which it allocated Rupees 50,02,342 (67.75%). The major share of the allocation went to infrastructure development projects that constitute almost 38% of the allocation. However, within the infrastructure development sector, money was spent for buying small pieces of land for forty people presumably for housing. As such this allocation is welfare expenditure. Almost 69% of the money for infrastructure development was allocated for repairing roads. Allocations for the productive sector were for agriculture and animal husbandry development projects and for small projects to generate income. An expensive item in the allocation for the agriculture and animal husbandry projects is for building an agricultural extension office, an investment that has an indirect benefit for the sector. The largest allocation was for subsidies to poor families to buy cows thus contributing directly to their livelihoods. However, a mini irrigation project, which would have increased the productivity of agricultural land and for which money was allocated, could not be implemented. The small income generation projects constitute 4.5% of the allocation. Many of the projects target women beneficiaries. However, the projects are not well defined. Thus there is an allocation for the self-help groups for credit schemes without specifying how this credit will be used to generate income. The allocation for self-help groups is seen by the panchayat as an effective way of disbursing the money in fulfilment of the Womens Component Plan (which stipulates that 10% of the money available has to be allocated for womens development). Table 9 Expenditure by Panchayat B in 1998-1999 Allocation for the year 1998-99 Panchayat B Category Money allocated(Rupees) Money spent(Rupees) General 46,44,000 38,24,558 SCP 1,48,000 7,93,467 Total 61,22,000 46,18,025 The allocation of these funds was as follows: About 30 percent of the funds went for construction and repair of roads. Agriculture received 23.73 percent of funds. A major share of this fund was for purchase of milch animals (diary unit). Sectors like health and education received about 15 percent of funds and rural electrification received around 14 percent A detailed analysis of the fund allocation (Annex-3) shows that panchayat B did not abide by the mandatory 40 percent for productive sectors. Moreover it opted for schemes, which benefit individual beneficiaries, which was discouraged by the planning board. Women Component Plan (WCP) For the first time in the history of the local self-government, womens development is closely knitted with the over all development process. Firstly, special instructions were given as part of the Campaign to ensure greater participation of women. Secondly, Gender and womens development was an important component in the training programmes for elected representatives. Thirdly, in the cost benefit assessment of the projects, a gender impact statement was made mandatory. Fourthly, the Local Bodies were advised to set apart 10% of the plan funds for projects directly targeting women. How the WCP was handled in the State in general Almost all the local bodies prepared Special Projects for women. However, during the first year, the grant-in-aid set apart for special programmes for women, added up to only 4.26%. In this year a significant proportion of the grant-in-aid in WCP was for the creation of common physical facilities like housing (4.05%), roads (1.68%), power distribution (6.87%), drinking water (1.31%), minor irrigation (0.6%), Soil and water conservation (0.84%) and Sanitation (0.76%). Many of the projects were in the traditional mould of women development projects such as kitchen gardening (9.8%), backyard poultry and animal husbandry (27.81%) and garment making (3.87%). There was hardly any project, which addressed the strategic gender needs of women. In the second year, some sort of conscious intervention was made and the share of WCP in the total grant-in-aid rose to 11.25%. Table10 Allocation for Women Projects for the year 1998  99 in the State as a whole Department Total For womenProjects Percentage Grant  in-Aid (in crores) (in crores) Grama Panchayat 549.54 63.28 11.52 Block Panchayat 135.02 16.04 11.88 District Panchayat 142.67 14.35 10.06 Municipality 81.90 8.38 10.23 Corporation 40.87 4.61 11.28 Total 950.00 106.66 11.23(average) It can be seen that Government had allocated around 106.66 crores for women in the year 1998-99 compared to 99.29 crores in 1997-98 Three significant features mark the WCP in the second year. First was the emphasis given to industrial projects. The incremental share of industry is 14.96 percent and a corresponding decrease of 8.85 percent in share of agriculture signals a reallocation of resources from agriculture to industry. Second, there is a diversion of service sector projects to employment, labour welfare and other social welfare programmes. Third, there is a significant fall in the infrastructure projects as they were transferred to the general plan component(Seema T.N. and Vanitha N. Mukherjee. Paper presented at the International conference on Democratic decentralization: May 2000) A perceptible improvement in the quality of projects could also be seen. The share of vegetable project and animal husbandry, which was 36.6% in 97-98, went down to 22.4% in 98-99. The share of housing sector rose from 4.05% of 1997-98 to 10.96% in 1998-99. The share of other common facilities (latrines, drinking water etc) declined from 6.06% to 1.65%. The share of industrial projects in the WCP has increased from 18.1% to 22.95%. A major development during 1998-99 was the rapid expansion of neighbourhood groups and Self-help groups. The neighbourhood groups were considered sub units of gram sabhas and men and women, one from each household could become members. The self Help groups (SHGs) regularly collect thrift savings that are regularly collected for providing loans to members and also financing micro-enterprises. Many local bodies have initiated and encouraged the formation of SHGs and plan funds have been utilised to stabilise these groups and subsidise the micro-enterprises. As part of WCP, some panchayats have promoted cooperatives of women too. The above positive trends in the WCP got strengthened further during 1999-2000. The share of vegetable projects and animal husbandry projects further declined to 12.42%. The share of industrial projects continued their ascendancy by claiming a share of 31.8%. Despite a major shift in the focus of local plans to the housing sector that occurred in 1999-2000 the increase in the share of housing in WCP was only marginal. There was strict adherence to the guidelines that only housing meant for the female-headed households could be included in the WCP. On the whole, there was steady improvement in the womens component plan allocations. At times more than the mandatory 10 percent was set apart. Quality of projects improved. Guidelines provided by the campaign cell of the planning board on innovative and model projects provided new ideas for addressing practical need and sometimes also strategic interests of women. In general, the attempt opened up the space for mainstreaming gender discourse in relation to development and planning in Kerala. Womens Component Plan of the two Panchayats First year In the first year the State Planning Board had given a guideline for all Panchayats that 10% of the funds should be allocated for women. Panchayat B did not adhere to these guidelines and Panchayat A allocated some money and spent the same for distributing 70 stitching machines to women. In the second year, reports of Panchayat A say that Rs.45, 000 was allotted for training women to drive auto-rickshaws (three wheelers) but there were no takers for this project. Seema and Vanitha, in their paper on Gender, Citizenship and decentralised planning makes this observation Narratives of womens experiences in imitating these non conventional roles indicate the hurdles of implementation. In one panchayat when auto-rickshaw driving lessons for women began, men jeered at the women and passed insulting and scathing remarks. In another rural panchayat, mothers refused permission for sending their daughters for learning driving as the trainer was a man and the norms of strict gender segregation in the cultural context of Kerala places a taboo on women and a man sitting in close proximity to one another An allocation of Rupees 1,40,000 was allocated for 2 garment making units. However, the units did not materialise. Another major project was the assistance for anthurium / orchid units for which an amount of Rupees 88,250 was allocated in this year. Case study 1 shows the status of these units. Rupees 34, 000 were allocated for women co-operatives but there were no takers for that project. Self-help groups were allotted Rs. 65,650 and this was disbursed easily. Each SHG was supposed to be registered at the panchayat and only these registered units were given Rs. 3000/- each. This was to bring them all under the control of panchayats Case study 1-Anthurium Unit run by Sujatha The panchayat gave financial assistance under the WCP in 1998 to 9 Self help groups in Panchayat A to start floriculture. Sujatha was the leader of one such group .The proposal was to start cultivate anthurium and orchids. Panchayat gave Rs.30000/-to the Agro Industries to help Sujatha to build 2 green houses, buy saplings, pots and other necessary materials. Sujatha started it with 50 units and now she has 100 units. She sells the flowers every week and earns Rs. 50/-. Out of the 9 such units to which the Panchayat gave assistance Sujathas is the only one unit that survived the difficulties. The eight other units failed as the leaders were not interested to go out of way to meet experienced persons and find out markets for flowers. They were not happy with the meagre income. It was Sujathas entrepreneurship that helps her succeed. Since the amount was given to the group, she had great difficulty in taking others along. She feels that things would have been different if assistance was given to individuals rather than to groups. WCP helps woman like Sujatha to do something of her own. In the second year as there was strict guideline from SPB to allocate 10% of the funds for women welfare; hence Panchayat B allocated Rs.3, 60,000 for an electronic choke unit. Case study 2 gives in detail regarding the state of affairs of that project. Rs.17, 950 were also allocated to counter anaemia among women. For this a camp was conducted in two wards of the Panchayat and iron tablets were given for 1445 women who visited the camp. It was the doctor of the PHC who came up with this idea but the impact was questionable as there was no follow-up. Rs.1, 74,634 were also allocated for the nutrition programme for Anganwadi children and their mothers who are pregnant or lactating. This was considered as a good programme because around 1000 kids and their mothers attached to 31 anganwadis could get the benefit of it. Case Study: 2 Situation of an electronic choke unit run by women under WCP Panchayat B allotted around 7.5 lakh rupees over two years for women to run an electronic choke unit. The idea was to generate jobs for 50 women over 5 years. An employee of Keltron who used to assist the Panchayat for the developmental activities conceived this project. Block Level Expert committee (BLEC) gave a sanction for the project and a sum of Rs. 3.5 lakh as working capital. Now the search began for 10 women who could contribute Rs. 1000/- as shares. The proposal was presented in the Grama Sabha but nobody was willing to take the risk. Finally, Mr X helped the Panchayat to get 10 women (most of them are his relatives) and the Panchayat Committee deputed Ms. Rema Devi, a member of the Panchayat to be the promotor of the unit. The unit started its operation in Nov 1998. As none of the women was equipped with the technical know how of an electronic choke, a girl was asked to teach them and she was paid Rs. 50/- per day. Seven women learnt the process and 720 chokes were made and sold to the Panchayat. The Panchayat was considered as a major buyer of the product because the Electricity Board does not supply electric item to Panchayat. The Electricity Board refused to buy this particular choke that the women made because the specifications were different. The Board uses only Copper chokes and not the one that were made by the women, which can be only be used in households. The Panchayat stopped buying the chokes as it encountered auditing problems. Hence, marketing of these chokes became a major problem as the unit had to approach the local market and faced stiff competition. The unit cost of the product amounted to Rupees180 whereas the chokes were available in the local market for a much lesser price. At this point, many other problems cropped up. As the unit was registered under District Industrial Centre (DIC) it had to meet the stipulations of the DIC. This meant that any decision has to be ratified by them. The payments have to be through treasury and they have to employ a paid secretary with certain educational qualifications. If they deposit money in treasury, they can withdraw that only with permission from General manger of district industrial office. Basically all this meant a lot of hassle. Lack of group cohesion, lack of managerial and entrepreneurial skills, marketing problems, dispute regarding profit sharing all contributed to the collapse of the unit within one year of its inception. 2.4 Objective and activities of Phase II of the programme The second phase of GCG programme try to answer the following research questions. Whether the newly created institutions of decentralized planning, the devolutions of power, the deployment of officials and other processes have a clear vision of addressing the gender needs and interests? What are the good practices of an engendered Governance system? What are some of the systemic hurdles, negative forces in this process? To achieve this, the following activities were undertaken in the second phase of the programme 1. Work closely with 2 panchayats by Attending meetings of a) Elected Representatives b) Gramasabhas (Ward level gathering of people a minimum of 3 times a year to identify needs and propose projects) c) Neighbourhood groups (NHGs) or Self-Help Groups (SHGs)(Regular forums in which process of need identification happens) Actively involve in the task force (sectoral committee) on women to influence projects of the Womens Component Plan. 2. Interact with elected representatives To assess how the State sponsored training programmes helped them To facilitate a process of change in their understanding of gender issues. 3. Motivate activities with focus on three areas Livelihood issues Health Issues Violence against women 4. Advocacy at broader level on issues of Citizenship, Gender and Governance. METHODOLOGY In phase II of the project one objective was to intervene and work on gender sensitive decentralized planning process in two selected panchayats with a view to influence the budgetary allocations for generating livelihoods for women, focus on womens health issues and programmes to resist violence against women. A second objective was to engage in state level consultation to develop tools and indicators for gender based planning and also advocates for gender planning through membership in state level networks. Intervention and learning at micro-level. For the purpose of anonymity the selected panchayats of the second phase are named as panchayat C and panchayat D. We could not continue with the selected panchayats of the first phase as one of them was merged with the Trivandrum city corporation just before the elections. Panchayat C is situated in the coastal area where poverty is widespread, there is more illiteracy, the health problems are more acute and infrastructure is poorly developed. Panchayat D is more akin to the normal Kerala panchayats, which have both rural and urban characteristics, where the general literacy level is higher, infrastructure is better developed and while there is poverty it is not an acute as in coastal area. Table 11 BRIEF PROFILE OF PANCHAYAT C AND PANCHAYAT D PANCHAYAT C PANCHAYAT D Total population 42,402 38,364 (1991 Census) (Densely populated) Area 12.62 Sq.km 10.61 Sq.km Total number of wards 20 17 Ruling party LDF LDF Members of LDF (With CPM as the Leading party) 12 10 UDF (With Congress as the Leading party) 8 6 BJP 1 Number of wards represented By women 7 6 President Male Female Secretary Male Female No.of panchayat staffs 19 14 Literacy level low 75% Nature of the area Coastal Suburban The activities undertaken by Sakhi in the two panchayats can grouped as follows 1) direct involvement and intervention in the planning process with a view to prioritizing womens needs, formulating projects which are viable and sustainable and contribute to the above mentioned objectives 2) Training for both men and women on gender awareness training and exchange programmes for elected women and on practical skills for womens self-help groups on income generation 3) undertaking studies and surveys to ascertain womens development needs with a view to informing the planning process 4) Technical support to setup vigilance committees for Violence against women. Activities Gramasabhas In January 2001, the state Planning Board asked the panchayats to hold Special gramasabhas to develop plans for the 10th five year plan and the emphasis was on Watershed management. Panchayats had to prepare a draft plan before convening Gramasabhas and they were asked to form groups especially on 3 subjects: - Women welfare, SC/ST development and watershed management. The majority of people attending the gram sabha were women. The draft plan on Women welfare in Panchayat D contained objectionable statements about women and irrelevant reasons were cited as constraining womens development. As for example, it was mentioned that women dressing improperly invite trouble; that exposure to foreign Television channel programmes corrupt women; and that women who are seen in public realm are those who have nothing to do at home. Further in both panchayats there was lack of ideas regarding the projects to be undertaken under the heading of womens welfare. Most of the projects suggested in the name of economic development were handouts to women for economic activities that neither pay nor are sustainable. Since the educated and middle class women hardly attended gram sabhas, any facilitation that could take place on issues related to other aspects of their lives like health, education, mobility etc are missed out. Strategic interests of women hardly receive any mention. Given the situation, the observer role of the Sakhi researcher changed into that of having to intervene as she raised questions about the objectionable statements in the womens welfare plan and the proposed projects. Sakhi was invited to offer alternatives both in the analysis of what is impeding the womens welfare and to the projects. Sakhi prepared a 20-point programme to improve the strategic needs of women in the areas of livelihoods, health and combating violence. Similarly in Panchayat C, the role of the researcher changed to that of intervention as she was requested to inaugurate the gramasabha and initiate discussion in the womens welfare group. A number of important suggestions were made by the women themselves -the need for a day care home for the elderly, creation of a meeting place for women, measures to improve the functioning of health center and make it more women friendly. Watershed management remained a complex subject for people. In Panchayat D the resource person could not explain the concept well, hence the discussion on watershed management was far more constructive in Panchayat C than in Panchayat D. Although the former had more illiterate people attending the discussions and projects suggested were more creative and relevant because the Village Extension Officer in charge of explaining watershed management was both knowledgeable and able to explain the context in a simple manner. Table12 Approximate number of people who attended the special gramasabha in total (2001) Panchayat Men Women Total Panchayat C 1298 2602 3900 Panchayat D 1402 1995 3397 The number of women who participated clearly outnumbered the number of men. In panchayat C, around 10% of the total population attended the gramasabha where as in panchayat D 9% attended the same. The majority abstained from planning level meetings for the 10th five-year plan. Ethnography of the planning process In May 2001 the government directed all panchyats to submit their development plans by July. By this time the government in power at the state level had changed due to the elections. The Left Democratic Front, the architect of Keralas peoples planning model, were no longer in power. Although this led to some changes in the organization of the model, the peoples plan itself was continued. The process followed in panchayat A in planning the womens welfare component is analyzed here. According to the rules sectoral committees had to be set up for each component. The sectoral committee on womens welfare was headed by an elected woman and had as its members an anganwadi teacher (pre-school teacher), two women from the Self-Help groups and a man whose name was called out at the last moment in the panchayat committee meeting. The researcher was asked to sit in as observer. In the first meeting of the sectoral committee, not many projects were suggested. Among those projects suggested were those that are traditionally seen as womens income-generating projects: tailoring unit, beauty parlour etc. A man suggested a dairy unit in which 140 women could be employed arguing that a group of women were willing to take up this project. This suggestion found its way into the plan. The researcher was asked to intervene and she suggested the following: a multipurpose center for women (which could be used as training center, daycare for older women, a rest room for fisherwomen etc); a health survey and awareness generation programme; funds for the Self Help group to start small units of production. The first suggestion  the multipurpose center was a suggestion that came up in the January Gramsabha. In trying to work on the ideas for small production units to be run by the Self Help groups a number of problems were encountered. Finally, it was suggested that one of the production items could be making cheap, affordable sanitary napkins for the women in the area. This would serve a number of purposes. First, to minimize health problems faced by women since a number of women in the area had reported white discharge (leucorrhoea) because of poor menstrual hygiene (women were using and re-using rags which could not be properly sterilized;). Second, it would generate employment for the women in the Self-Help units. Asked whether such a project would get the approval of the Panchayat committee the chairperson in the sectoral committee said After all it is we who decide. A number of other production projects were suggested including a soap-making unit employing women. At the Gramsabha organized for the purpose of getting peoples ideas on the projects a number of suggestions were given both to improve the employment possibilities for women and to improve the pre-school centers and public health facilities. At this Gramasabha too women outnumbered men  in fact only 20% of those who attended the Gramasabha were men. The idea of the sanitary napkin unit was mooted and the women welcomed it while the men grumbled that they found it embarrassing to discuss such an intimate topic in public. The project ideas were then finalized by a meeting of the sectoral committee, which was poorly attended. Then it had to get the approval of the Panchyat Committee where all the elected members congregate and this is where the sanitary project unit got into trouble. The chairperson of the womens welfare sectoral committee walked out in protest as she was being accused by the men in the committee that she had put forward a vulgar and obscene proposal. The researcher was contacted late at night to intervene with the president whom she contacted and explained the need for such a unit. Other members were also consulted to explain the purpose of the project. The sanitary napkin unit did not make its way into the plan circulated in the development seminar. Development seminar  this is to discuss the projects again and about 200 people attended. This time men and women were represented in equal numbers. Suddenly the atmosphere became electric as all the women members of the Panchayat Committee got up from their seats on the dais and walked out protesting that none of their suggestions had found place in the draft development plan. In the afternoon a group was to discuss the womens development projects. In this group, besides all the other projects that had been suggested the sanitary napkin unit came up for discussion again. Here women were divided  if it had the potential to give at least 40 women employment then they would support it. When the idea was raised in the bigger group the men simply shot it down and the fate of the unit was sealed. The chairperson the womens sectoral committee had by this time become worm out by all the attacks and did not pursue it. Panchayat Committee meeting  the Panchayat Committee met to finalize the plans. They had received the message that their budgetary allocation had been reduced and so the whole exercise of prioritizing projects started again. It was observed that the sectoral committees on fisheries development and schedule caste / schedule tribe development were given priority by the President and the chairperson the womens committee was sidelined. The final list of projects on the womens budget that made its way into the plan (PanchayatC) were as follows - Garment making unit (despite the fact that at the sectoral committee meeting it had been pointed out that such a unit never makes money. Readymade clothes from Bombay are cheaper). - Fish net making unit (here again the sectoral committee members pointed out the lack of viability of the project) - Soap making unit ( the allocation was far higher than is necessary for small non industrial soap making units) - Assistance for 50 widows in the coastal area (a welfare programme rather than a development one) - Assistance to women in the coastal regions during the lean season. - Umbrella making unit - Assistance to self-help groups The multipurpose center and the health programme were also shelved. The final list of projects, which figured in Panchayat D, where the president is a woman, is as follows: - Assistance for Self-Help groups Marketing center to sell products by women Assistance to widows for house construction Awareness generation on womens health and legal matters (panchayats own fund) Analyzing the discussions at these meetings especially of Panchayat C, it was clear that the immediate concern was NOT addressing the felt need of women from the community but submitting proposals which would easily cover the technical and financial stipulations and directives from the Planning board. For example when women pointed out the lack of viability of the first two projects, the VEO (village extension Officer) suggested that since these are spill over projects, one need not write the project again and it would be easy to get the sanction. None of the discussions also spoke of training in skills of accounting and management of programmes by women themselves. What were the institutional mechanism to organize and run the programmes were also not clear. This is not peculiar to the two panchayats where we worked. Analysing the nature of womens development projects at the state level Seema and Vanitha observes. Most of these projects were thus prepared without taking into consideration of their backward and forward linkages particularly, the marketing facilities and sustainability. The garment making projects in many instances did not go beyond distribution of sewing machinesThe projects in general were gender stereotyped and did not attempt to challenge existing gender division of labour either by starting industries in the male dominated areas or by upgrading the skill of women to increase their occupational mobility into new sectors. There were hardly any projects that attempted to address the cultural and ideological issues related to women (Seema T.N &Vanitha N.Mukhrjee) The third gram sabha was held in September 2001. Against anticipation of greater participation since selection of beneficiaries of various programmes were to take place, the attendance was lesser than the 2nd gram sabha. At some wards, even the necessary quorum was lacking. The change of Government and the apprehensions about continued financial allocation affected the enthusiasm of people. The panchayat president of panchayat C, reiterated that Gram sabhas are convened just because it is a constitutional mandate. At some places, the issue of lack of visible support form the present government was pointed out as a reason for not able to meet expressed demands and needs of people and this led to heated political debate. The major agenda was to read out the list of beneficiaries, which was prepared with the help of the Self Help groups. Those who were not in the list created problems and some ward meetings had to end abruptly. Panchayat Committee meetings The elected members of the panchayat had the right to finally decide which projects and programmes should be included in the annual plan. Since elections to the Local Self Government Institutions (panchayats) are held on party basis in Kerala, the meetings also become highly politicized with ruling and opposition members taking sides along party lines or positions. Most of the elected women are new to politics and hence they either keep silent or follow party instructions on voting Gender relations in panchayat committee meetings In panchayat .C, where the president is man and the secretary (government official) is a woman, the latter has been ridiculed on more than one occasion so much so that the president had to be reprimanded and the researcher was approached by the opposition members to write up this as a form of sexual harassment Only two of the women among seven in Panchayat C are vocal, the others are silent most of the time, three of whom were observed never to have said anything in 12 successive meetings. Similarly in panchayat D, three out of six women speak and others remain silent. In panchayat D as opposed to C, the president is a woman and the secretary (government official) is a man, the secretary takes the main role in discussions and talks mostly to men present. Most of women members do not participate in discussions unless it is about the pre-schools run by the panchayats or about issues of drinking water or sanitation The women sat together at one corner of the table and this is the same in both panchayats. After the gender sensitization programme organized by Sakhi, the seating was changed to ward wise seating in both the panchayats Male members taunt women-if the women talk together, then they are told that if this continues then 33% reservation will have to be discontinued, that the panchayat committee room is not their kitchen! Other activities undertaken as part of the action research From September 2001 to June 2002, Sakhi undertook the following activities in the two panchayats v Surveys and studies -An in-depth survey of the elected women representatives of both the panchayats was held .One part of the survey was to assess their male colleagues. Panchayat elections were held in October 2000 and it was since a year that they were in office. The survey helped to understand the struggles of these women, many of whom were first timers in politics or public office -Status of women study: Each panchayat was mandated by the planning board to conduct a study and write a status report. v Gender training programmes to panchayat members as well as members of self-help groups The gender sensitive programme conducted for the panchayat members were with a view to provide conceptual clarity on sex and gender and develop an understanding of patriarchy /construction of masculinity. b). To develop collectively the need to have a women perspective in developmental aspects c) To work out ways and means to make the panchayat women friendly. The two day process conducted in a participatory and non threatening way helped to create an atmosphere where on second day, the men and women sat together to develop ways and means to make their respective panchayats women friendly (A detailed process report of this training is attached separately. (Appendix 5) v Close monitoring of activities was carried out through attending the panchayat committee meetings as well as gram sabhas v A demonstration on rainwater harvesting and vermicompost was organized in one panchayat v Helped both the panchayats to form vigilance committees to counter violence against women. There is a Government order (GO) regarding the setting up of the vigilance committee and its composition. This was communicated in the training programmes organized for this purpose. Related laws were also explained v Training for self-employment (Soap making) was organized for two groups in one panchayat as this was one of the project sanctioned under the WCP in one panchayat Chapter 3 ANALYSIS This chapter is divided into two parts. The first part details outcome and findings from Phase I of the action research and the second part details key outcome and findings of Phase II. Key lessons learnt-Phase 1 The overall evaluation of the outcome of the first two years of spending by the Panchayats indicates the following. - Under spending - neither of the panchayats could spend the total amount allocated to them. Being inexperienced and not possessing the technical expertise to draw up strategies meant that the absorption capacity was limited. - Who benefited?  In terms of gender the highest number of individual beneficiaries were women. This is attributed to the fact that the guidelines received by the panchayats for the selection of beneficiaries was woman friendly. Further, the guidelines stress the criteria of poverty in selection of beneficiaries and female-headed households are the poorest. - Programme quality improvement  The quality of programmes improved rapidly from the first year to the second. There was a decided shift in allocation from individual benefits to group benefits. Further, the investment in housing for those families who were shelter less directly benefited poor people, and especially women headed households. Both panchayats see the housing programme as one of their achievements. - A problem with the productive sector  The state of Kerala while enjoying high human development indicators is nevertheless very poor and has a stagnant economy. In both the panchayats studied the problems of investing in the productive sector through the money available to the local government bodies exemplify in microcosm the overall problems of investment in production. The investment in traditional areas of production  i.e. agriculture  is not expanding employment opportunities. The traditional hens and sheep handouts do not create an asset base. The investment in infrastructure to promote agricultural growth  e.g. water shed development  is incremental and does not make a substantive contribution. The linkages between macro and micro issues for examples, of import policy and its effects on pricing of agricultural commodities, etc are not paid sufficient attention and importance - The Womens Component programme  It is stipulatory for panchayats to spend 10% of their budget on womens development. In the first round while all the panchayats prepared special projects to be funded under this head, the spending overall in the state did not exceed 4.26%. In the two panchayats the situation was similar to the state wide fund utilisation. Most of the projects funded under this component in the first years were for creating and developing common physical facilities like housing, roads, power distribution, drinking water and minor irrigation. Some women oriented projects were undertaken too  kitchen gardening, poultry keeping, tailoring. However in the second and third years the overall spending went up to the expected amount and there was also a shift from spending the money on physical infrastructure in the name of women to investing in economic activities that women could undertake, investing in womens health and childrens health, to supporting the womens Self-help groups (started as thrift and credit groups) that had begun to be formed all over the state. The overall outcome of the first three years of spending by the panchayats on the Womens Component Plan indicates the following: - Move away from women were here too projects  Any and every physical infrastructure development project that needed funding was being labelled a womens project and funded under the WCP. Following on from the instructions received from the state planning board, panchayats have desisted from doing this, in the second and third years. - Investment in alternative employment schemes  both panchyats invested in agro- industry and small scale industry projects to expand womens employment opportunities. However, it has been observed that non- traditional occupations did not have many takers among women, as for example, in the schemes to give auto-rickshaws to women. Small industrial units have run to ground because of faulty planning, lack of market surveys, lack of technical and management skills to run the units. - Investment in health and education  both panchayats invested in meeting some of the womens specific health problems, as for example, anaemia and poor nutrition among pregnant and lactating mothers. However, these are not problems that can be overcome through a one-time investment and needs long-term planning and investment. - Self-help groups  the formation of womens Self-help groups provides the panchayats with an organised way of planning womens development projects and funding them. However, these groups were just being organised when the study took place and need further investigation and nurturing. - Practical and strategic needs  Most of the project ideas for womens development stem from the need to meet the practical needs that women face, living in poverty. While this is important, there is a need to move towards identifying and meeting the strategic needs of women. As for example, while women constitute the majority of individual beneficiaries of the panchayat spending, in neither of the panchayats has there been an assessment of their strategic need to sustainable livelihoods and how this can be secured. Violence against women is on the rise in Kerala but there is hardly any project which addresses this issue Observations about the decentralized process in the panchayats under study: While the steps to maximize the participation of the people in deciding on priorities and projects were stipulated, an overall assessment of how the planning process actually worked in practice is necessary. From the case studies of the two panchayats undertaken in Phase I, the following observations can be made: 1. Gram Sabhas  The Gram Sabha is the cornerstone of the democratic edifice of local self-government and decentralised planning. The experiences of the two panchayats in organising the Gram Sabha indicate the problems encountered. First, fewer people are attending the Gram Sabhas which means that participation is dwindling Second, although more women attend than men especially in the second Gram Sabha (to discuss execution/implementation of plans), they do so primarily as the main beneficiaries of the panchayat programmes and not as decision-makers for priorities to be supported. Generally the old mindset, which sees panchayts as performing functions of building and maintaining infrastructure like roads and bridges, still prevailed. The middle class and professionals who could help with broader perspectives on local development stayed away from gram sabhas 2. Planning process  Priorities identified in the Gram Sabha should be carried through into the committees and lead to plan finalisation. However, as observed very few of the projects finally sanctioned were discussed in the Gram Sabha. 3. Planning for the productive sector  Planning for the productive sector, whether to promote agricultural and animal husbandry development or non-agricultural activities, (e.g. small-scale industry projects) does not include planning in the areas of human resource, management, skill development and marketing. As a result many of these projects have either not been implemented or have failed. This is particularly so in the case of the income generation projects that target women beneficiaries. 4. Ad-hocism - However, this lack of long-term planning was also evident in the health and welfare programmes. As for example, combating anaemia among pregnant women is an important programme. However, there needs to be sustained efforts in this direction and long-term follow-up. The organisation of a one-time event for checking anaemia levels and distributing iron tablets cannot begin to deal with this problem. Some projects were formulated because it was easy to write it up because they were given as model projects in handbooks distributed by the planning board or because certain influential members had a particular interest in them! 5. Needs assessment  The basis of planning should be a needs assessment exercise. While this may have been carried out for some sectors, this is lacking for the womens development sector. The womens development chapter in the development reports of both panchayats is based on hearsay and commonly held prejudices about women. Without a proper needs assessment exercise priorities for womens development cannot be identified and projects for womens development will continue to be those that treat women as recipients of welfare. 6. Lack of perspective or vision on development. The key resource persons or the elected representatives did not have a comprehensive vision of what are the macro realities in which this micro-level planning was taking place. Even if they were aware, they never tried to make these linkages. Very few of them had the skill to handle group processes to elicit needs and priorities of local development from the gram sabha Lessons learnt from activities in Phase II (a) The planning process A detailed ethnography of the planning processes undertaken in both panchayats is explained already. A gender analysis of budgetary allocations made in both panchayats is attached as Appendix 3. What follows is a summary of main issues and learnings related to influencing budgetary allocations for generating livelihoods for women, for womens health issues and for programmes to resist violence against women. l Development reports The development reports should provide the blue print for the formulation of plans. The chapter on womens development is based not on an analysis of womens position and the problems they face in development. Rather, it is based on commonly held prejudices and assumptions about women that are derogatory and reinforce womens traditional roles. As a result project ideas do not reflect the priorities for womens development at the local level l Gramasabhas - The Gram Sabha, or village meeting, is the cornerstone of participatory democracy. A number of Gram Sabhas were held in the two panchayats in 2001 and 2002, to formulate projects, to prioritize and then to finalize projects. A number of problems were observed in the participatory process, which undermines the concept of decentralized planning and specifically the integration of gender issues in planning. The first issue has to do with the quantity of participation. The number of people attending the Gram Sabhas has been dwindling. This trend has two main characteristics. Very few men as compared to women attended these meetings. More poor women attended because they are often the direct beneficiaries of individual projects. Further, the social groups in the village ward who do not stand to benefit from panchayat budget allocations, as for example, the middle-class, stayed away almost as if village development was not their concern. This has led some panchayat committee leaders (elected representatives) to declare that these meetings are held because the government has stipulated that it is a procedure. The way meetings were held did not leave any room for discussions on development needs or aspirations of people. It was usually a top down approach, with a pre determined agenda and externally manipulated by some key players who are often the few men who were present. The second issue is the quality of participation and this is most evident in the discussions regarding womens development. On the one hand, there is a general lack of ideas for projects that would benefit womens development. In the absence of an analysis of womens interests, there is no coherent articulation of project ideas. On the other hand, the ideas that are put forward are generally those that might provide women with an income in the short run. Projects that help womens livelihoods in a sustained way or address their health and other strategic interests do not feature in the discussions. There is hardly any expertise at the panchayat level to undertake status studies and then plan on the basis of that information The third issue is whether the project ideas put forward or worked on in one Gram Sabha will get followed up through the sectoral committees, the panchayat committee and appear in the plan and budget allocations. This is most noticeable with the womens component of the plan although not limited to it. In the initial Gram Sabhas a mix of projects, income generation and those that address womens health and welfare needs, were suggested by Sakhi and enthusiastically taken up. However, the projects that were retained through their passage from project ideas to plans were mainly those that would provide some women short-term income-generation activities. Although the budget allocation for projects other than income-generation did increase in both panchayats, most were dropped. l Implementing mechanisms. In most of the other sectors like agriculture, health, there was clarity as regards to who is the implementing officer of the programme. There is an agriculture officer, or a doctor in the Primary Health center in each panchayat. But when it came to WCP, there was confusion as who will be the implementing officer? Some panchayat entrusted this to the ICDS (Integrated Child Development officer) supervisor or gram sevikas (Lady extension officer). There was very little expertise at these levels to manage and efficiently run income-generating programmes Moreover there was very little gender sensitivity or at least a broader gender perspective. This contributed in the inefficient handling of the WCP funds. l Sectoral Committees These committees are set up to formulate the projects. The setting up of at least three sectoral committees is mandatory and one of these is the womens component plan committee. Since it is stipulated that an elected woman must head this committee, in both panchayats a woman heads this committee. However, women- headed committees are limited to womens welfare, education and drinking water. None of the elected women have been invited to head industries, fisheries or agriculture. The formulation of projects for the womens plan is hostage to two considerations. First, projects for womens development have been equated with income generation. Secondly, this is limited to traditional activities with little consideration for developing the technical and marketing possibilities that are necessary to make them sustainable. In both panchayats to retain non-traditional activities or to insist on feasibility studies and marketing involved prolonged battles between women and the researcher on the one hand, and men on the other. (b) Trainings/ capacity building programmes Training in gender awareness for panchayat committee members  Gender power relations play an important role in the decision-making process in the panchayat both because elected women feel dis empowered, and because decisions on what is an appropriate womens project is based on the proper role of women as perceived by men. Sakhi organized a two-day gender-training programme for all the representatives of the panchayat. The first day of the training was for the male members of the panchayat and the women were asked to join only on the second day. Sakhi observes that this training workshop allowed men to talk about gender issues for the first time, get acquainted with the women members perspective and since all of this was happening in a non-confrontational and non-threatening atmosphere, men conceded that it was time for a change. Numerous suggestions were proposed to make the panchayat more women friendly, some of which are already being implemented. A follow up meeting was organized a few months later and this was also well attended. One of the issues focused on at this meeting was the construction of masculinity in Kerala society that helped the men to think through their own attitudes towards man/woman relationships. Training elected women  Women elected to political office face a number of problems one of which is their insecurity and unawareness about womens issues that they should profile in their political work. As part of Sakhis plan to form a network for Elected Women Representatives, monthly one-day training sessions are held with the elected women where womens issues are discussed, public speaking and representation is taught, project ideas developed. In the initial years there were several training programmes organized by the State Planning Board towards capacity building of elected women. But later this was institutionalized and is now limited to trainings by the Kerala Institute of Local administration (KILA) This is insufficient as all members do not get a chance to be away from home and participate. Moreover there are some cultural, institutional and technical aspects over which women find themselves at a disadvantage. In formulating plans and projects, a number of technical matters are involved. Women find this alienating at times as they are not trained technically. Men take advantage of this, and say that only they can appease the engineers and contractors in a proper way ( which means taking them for a drink in the evening to a hotel or liquor shop) to get things done. Often key decisions are taken late in the evenings when women could not be present and they later find that projects of their wards are eliminated. Another issue is the rotation of reserved seats for women. Since reserved wards for women change every 5 years, most often parties field different candidates and training and capacity building has to be a continuous process. Women who gained experience and training as elected representatives, disappear after 5 years to be just home makers. l Self-Help Groups The self-help groups are being set up all over the state as part of the plan to organize women to better enable their development. Since these groups began as thrift and credit groups through which the panchayats can channelise the funds for womens development, their ability to articulate womens needs and priorities can in the long run improve gender planning at panchayat level. But how and how long this process will take is a matter to wait and see. There are several questions related to the sustainability of these groups and the programmes undertaken by them. This needs separate study and critical analysis l Undertaking surveys and studies to ascertain womens development needs with a view to informing the planning process Two kinds of studies and surveys have been undertaken. The first is a survey of elected women in the two panchayats. The objective was to build a profile of these women, to understand their political aspirations and the difficulties they face as women in performing their public role. The other survey is to ascertain the position of women in the two panchayats. This was undertaken at the request of the panchayats who had been instructed by the state planning board that they have to compile this data in order to improve planning. Sakhi agreed to undertake the survey on two aspects  health and violence. This is published as part of the status report of the Panchayat. Chapter 4 GOVERNMENT, WCP AND ENGENDERED GOVERNANCE The role of government in engendering governance through the system of panchayati raj has been significant. Facilitative mechanisms have evolved, but there have also been issues that have been either overlooked or glossed over. The experience of government policy in the matter of empowerment through panchayati raj, started off with certain adhoc instructions, leading up to review, midstream corrections, and accommodation of gender principles. But there has also been the inability to address cardinal problems, engage in meaningful debate or capacity building, thereby leaving reforms half baked. The intent of policy decisions is demonstrated in the executive orders and circulars issued from time to time. The Peoples plan campaign period was witness to a plethora of such directions aimed at guiding the process of democratic decentralization in the state. These instructions provide interesting insights into the approach of government in the matter of engendering governance. They also show how government orders have shaped the initiatives for inclusion of women in local structures of governance and the systemic response to the womens component plan. It is proposed here to examine selected government orders and circulars for instructions that have had an impact on womens issues in governance. The most comprehensive instructions issued in the context of the Peoples Plan campaign have been in the guise of the directions for formulation of the panchayats annual plans. It is through the instructions for plan formulation that the womens component plan has evolved. We shall also be looking at certain other government directions that have had implications in the way gender issues were approached within the plan framework. 1. THE INITIATION OF THE PPC: As per G.O. (MS) No. 10/96 dated 30.7.1996, the peoples plan campaign was formally launched. Among other things it touched upon the process of the campaign, the resource persons to help take it forward, training aspects, preparation of local level plans etc. The lack of specific efforts to bring the issues of women on board at the start of the Campaign can be seen in the fact that very little attempt was made either to engage gender advocacy groups and other organizations concerned with women empowerment prior to the Campaign. At that point of time efforts taken to ensure the presence of women in the expert working group at the State Planning Board, or in the instructions on selection or among Key Resource Persons, District Resource Persons and Local Resource Persons, or in the task forces and expert groups to be set up in the panchayats were not adequate or effective .The state Planning board (SPB) itself did not had a woman member. THE PLAN FORMULATION G.O.s (Phase I of Study) 1. G.O. (MS) 19/98/Plg dated 4.6.1998  formulation of Annual Plan 1998-99, Guidelines: The G.O. stipulated that at least 10% of the plan grant under the general sector should be set apart for programmes benefiting women. This was the first time that the provision for schemes benefiting women was made mandatory. The Grama Panchayats were also directed to earmark adequate funds in their plans for providing the supplementary nutrition programme of the anganwadis, the requirement of which was to be communicated to the panchayat by the Social Welfare department. Anganwadi workers were to be paid honararium for their services in mobilizing women in the grama sabhas/ward conventions and assisting the Kudumbasree programme. The compulsory provision for meeting the anganwadi feeding requirements from the plan was something that most panchayats managed to meet out of the provision to be set apart for womens schemes. This reduced the provision for conceptualizing and implementing other women oriented schemes considerably. It is to be noted that only general sector funds and not the funds set apart for SCP and TSP were included in the WCP. One positive step that has been taken through the G.O. was to make it mandatory to have a separate task force on women development. It was also specified that 30% of the members of all the task forces were to be women. (However, no stock taking was done to ascertain that this provision had been complied with). In the task force on womens development, the majority of the members were to be women, and the chairperson was to be invariably an elected woman representative. The task force on womens development was given the authority to draw up recommendations for projects and instruct the relevant subject task force to prepare detailed project proposals. In the part pertaining to the process of plan preparation, it is laid out that it is mandatory to have separate discussion groups for womens development in the grama sabha. It was also specified that out of the 2 people to be selected from each discussion group to participate in the development seminar, one should compulsorily be a woman. A brief discussion and listing of development projects of WCP was included in the sections of the draft plan document. 2. G.O. (MS) No. 26/98/Plg. Dated 28.8.1998  this G.O. contained the guidelines for appraisal of projects and programmes of annual Plan 1998-99 of local bodies. This order directed that special care be taken to ensure that all projects included in the Women Component Plan directly benefited women and that notional flows were avoided. It specified that women component projects were to be examined by a sub committee specially constituted with women in the majority by the Chairman of the expert committee, till new women expert members are nominated and the subject committee on women development and welfare was constituted by the government. This G.O. also instructed on the planning procedures to be verified during appraisal by the expert committees and the DPC. While this included details of participation in the grama sabha, development seminar and the list of members of the task forces, only in the case of the grama sabha and ward conventions were sex disaggregated data specifically called for. This meant that the compliance to the provisions for 30% participation of women in the task forces and for 50% subject committee representation in the development seminars would not be verified. 3. G.O.(MS)No.20/99 Plg dated 5.4.1999 Annual Plan 1999-00: Plan formulation guidelines - The plan formulation guidelines as per this G.O. are by and large a reiteration of the guidelines of the previous year, elaborated in greater detail. The notable change is that the WCP is now stipulated to be 10% of the overall grant-in-aid and not of the general sector funds alone. The provisions for Anganwadi feeding and honararium to anganwadi workers continue. By G.O.(MS) No.26/99/Plg. dated 10.6.99, the plan formulation G.O. was modified to the extent of earmarking twice the provision made by the local bodies in 98-99 from their plan grant for the supplementary nutrition programme. The previous years plan had shown that the WCP projects being taken up were not being given priority in implementation in many cases, and that with the 75% expenditure buffer for local governments to avail of the next years full grant, the risk of WCP schemes being discarded was very real. A provision was included for compensatory provision in case of downward deviation from ceiling in the case of the productive sector (and excess investment over ceiling in the infra structural sector) in the following years plan. Similar shortfalls in SCP and TSP were also to be compensated the following year. However the benefit of this provision was not extended to WCP. Thus there was no disincentive for non compliance with the mandatory allocation to be made for WCP. The stipulations regarding representation in task forces and development seminars continued without change. 4. G.O.(MS) No.18/2000/Plg dated 3.4.2000  plan formulation guidelines 2000-2001: Many of the deviations noticed in plan formulation approval and implementation were sought to be addressed in this G.O., which was the most comprehensive till date. Instructions were issued to detail all spillover projects, that would cover the carry over balance. The relevance of neighbourhood groups in micro plan formulation regarding the slum development programme, the SGSRY and other poverty alleviation programmes was emphasized. The micro plans were to be given to the task forces dealing with poverty alleviation, SC/ST development, and women development. (the involvement of Kudumbasree in plan formulation thus gets formalized for the first time though this G.O.) Other provisions regarding mandatory allocation, anganwadi feeding, honorarium for Anganwadi workers, participation in task forces, development seminars etc, were as before. But in this order, it was specifically mentioned that compensatory provision was to be made for any shortfall in WCP in the previous year. The local governments were exhorted to ensure proper monitoring of projects entrusted to other task forces for formulation by the task force on women development. An entire section was set apart for guidelines on WCP. It was stated that the 10% provision made in WCP was over and above the consideration given to women in general projects. Schemes where men and women were equally benefited, like roads, toilets, electrification projects, smokeless Chula were to be met from funds outside the WCP. District panchayats and city corporations were allowed to take up total housing projects under WCP for women headed households. Schemes like kitchen garden, poultry rearing and goat rearing were not to be included in WCP, unless the full control over the management and income of these projects were with the women concerned. The funds for anganwadi feeding programme and pre primary education programme were directed to be met from outside the WCP. It was also clarified that construction of only those anganwadi buildings which could function as community halls for women were to be included in WCP. It was suggested that WCP projects should as far as possible, base themselves on SHGs, NHGs, cooperative societies or other such groups. It was permissible to give assistance in the form of loans on small savings of poor families at the instance of Kudumbasree, NHGs or other SHGs. It was also deemed permissible to meet the expenditure for basic amenities, marketing facilities, development of micro enterprises etc., from the WCP. Projects of small entrepreneurial groups of women assisted under the aegis of the Industries department could also be included. The G.O. thus made an attempt to address straightforward practical gender needs, and to ensure that funds for WCP were used exclusively for women centric projects and not for general beneficiary oriented projects. It was finally suggested that a comprehensive study on the status of women be undertaken in the form of a special project in grama panchayats and municipalities. Apart from this there were no specific instructions that facilitated consideration of strategic gender issues through the plan. The plan formulation G.O. while making the provisions for spillover projects clear, nevertheless gave the local governments the discretion to either stop or avoid spillover projects in the new plan. The implications for WCP were not good, as it was now possible to drop challenging or difficult projects. Adequate safeguards were not provided against such a possibility. Participation of women in community and other structures arising out of Decentralization: One of the means of enhancing the space for women in the development dialogue is by ensuring their representation in social forums, organizations and committees through mandatory instructions. Political decentralization offered an opportunity to revisit development agendas and redefine priorities, and Government has generally attempted to insist on the participation of women in the organizational structures set up at community levels to do so. However, this is not seen to permeate into the structures closer to the government, probably because of composition based on official roles, rather than individual contribution. As per G.O. (MS) No. 8/97/Plg, dated 30.7.1996, the voluntary technical corps was set up and the procedure for approval and appraisal of projects was enunciated. Neither the need for specific mention regarding the participation of women in these structures nor the modalities of addressing womens issues was evident at the time. It was only suggested that the committees examine whether due consideration had been given to women development during project scrutiny. As per G.O. (MS) no. 21/97/Plg, dated 7.11.1997, expert committees were set up and the process for project approval and technical sanction was spelt out. Participation of women experts was not a specific consideration. A separate subject committee for womens projects was also not conceived. Instead womens concerns were to be handled by the committee for development of Scheduled castes and Scheduled Tribes and Social Welfare. G.O. (MS) No. 102/98/ LAD dated 20.5.1998  pertains to the constitution of a working committee to operationalise the recommendations of the Committee on decentralisation of powers (the Sen Committee). The committee had recommended reservation for SC/ST and women in the District Planning Committee, and had suggested that for the present purpose, selected people form among elected representatives could be made permanent invitees. G.O. (P) No.33/99/LAD dated 15.2.1999  pertains to the setting up of state and district level coordination committees for decentralized planning. At the state level, the committee consisted of the minister for Local Administration, government Secretaries, members of the State Planning Board and concerned Heads of department. The district level committee was to be chaired by the District collector. There were 7 district level officers, 2 DLEC members and the District Coordinator of the Peoples Plan Campaign. These official committees had a vital role in the realization of the objectives of the Plan campaign, but no inherent capacity to identify, highlight or resolve gender issues that were thrown up in the course of plan formulation and implementation. G.O. (P) No. 105/98/LAD dated 25.5.1999 - This was a notification published by the Government in the Kerala Gazette to amend the Kerala Panchayati Raj (implementation of Public works). A sub clause was introduced to rule 13(2) by which the the panchayat was bound to call a meeting of the people of the locality to elect a beneficiary committee and an executive committee which was to have not more than 15 members and not less than 7 members. The committee was to have a convenor and one third of the members were to be women. G.O. (P) 12/97/Plg dated 30.8.1998  this G.O. was on the district level committee for SC/ST development which was being reconstituted in the light of decentralization. The main intervention was to give chairmanship of the committee to the District Panchayat President, and co opt the Chairperson of the Welfare standing Committee of the District Panchayat. There were no instructions on women representation in this committee. G.O. (P) No.177/98/LAD dated 24.8.1998 - this was the order through which the State Development Council was constituted. By virtue of the inclusion of all the district panchayat presidents (as DPC Chairpersons), the representation of women in the SDC was ensured. The Municipal Chairpersons Chamber, Block Panchayat Association and the Panchayat Association were to nominate two persons each to the SDC, of whom one was to be a woman. By G.O. (Rt) No. 158/99/LAD dated 12.8.99 a Technical Audit team comprising of 15 senior engineering professionals to test check implementation of public works and to verify complaints was set up. There were no women on the team. G. O. (MS) No. 44/99/Plg dated 27.9.1999  pertained to the constitution of the block and district level watershed development committees. The block level committee contained the Block panchayat committee members, members of the subject committee on watershed development, gram panchayat presidents and representatives of the NGOs. The district committee consisted of the concerned district officials, the district coordinator of decentralised planning, and experts or interested persons in the area of watershed. There was no conscious effort to bring women on board in the district level committee, whose official nature was more pronounced. It was the district level committee that was to take the lead in both capacity building and awareness generation, so the absence of community and women interests were likely to have an impact on the kind of capacity building attempted. Micro watershed committees were constituted as per G.O. (MS)No.8/2000/Plg dated 4.2.2000. In this committee however, a concerted attempt to bring in women was made. Of the 6 representatives of the grama sabha, 3 were to be women. The other members included officials, elected representatives, VEOs/LVEOs and subject experts from NGOs. The rural development departments centrally sponsored schemes were also undergoing change in the context of panchyati raj, both at the policy level at the centre, as well as regarding the modalities of implementation adopted by the state. This is indicated in the working instructions for the RCSRP ( the Total Sanitation Campaign and the Allocation based Sanitation programme, issued by the Commissioner, Rural Development as per circular no.15799/IEC/99/CRD dated 15.12.99. The instructions for conduct of ward level conventions for the total sanitation Campaign states that the participation of anganwadis, mahila health sanghs, mahila samajams, SHGs, and representatives of community based organizations and NGOs in the conventions was to be ensured. The health promotion team should consist of a man and a woman each from each NHG. The guidelines also carried instructions on the construction of women sanitaty complexes, which were to be built at places adjoining womens work sites. The management of these complexes was to be entrusted to Mahila samajams and SHGs . Missed Opportunities: The extent of conscious effort to create a facilitative environment for bringing gender equity to governance is reflected in the extent to which these concerns have been kept in mind while framing policy and executive orders of a general nature. This section looks at some orders on decentralized planning which could have benefited from a perspective that covered gender concerns. G.O. (P) No. 220/97 LAD dated 2.10.1997 - The first order on process of selection of beneficiaries was silent on matters of gender equity and considerations. Circular no. 44008/P1/LAD dated 12.10.1998  this was the provision made for compensatory allocation for SCP/TSP in case of shortfall in expenditure in the sector in the 1997-98 plan, and instructions to the DPCs to ensure this during approval of the following years plans. A similar condition was not imposed for WCP that year. This had a bearing on the extent of expenditure incurred under WCP. Circular no.47754/P3/98/LAD dated 12.11.1998 mentioned that although SCP and TSP provisions were not separately indicated during release of funds to local governments, this was not to be construed as a reason to delay implementation of SCP/TSP. It was informed that the release of the third installment would only be after verification of proportionate expenditure under SCP and TSP. No similar instructions were issued for WCP, which was seen as part of the general fund. G.O.(MS) No.13/98/Plg dated 15.4.1998 -These were the criteria for allocation of funds to local bodies which was worked out on the basis of objective criteria suggested by the State Planning Board. The factors that were taken into consideration included size, area under paddy cultivation, total and SC/ST population, and general status of development, but did not include gender sensitive indices. G.O.(P) No. 20/98/Plg dated 15.6.1998  this pertained to the allocation of funds to various sectors under pooled funds of SCP/TSP for the financial year and guidelines for implementation of SCP/TSP schemes. There were no instructions on how to link up with WCP or on maintaining gender equity in the formulation and implementation of schemes. G.O. (MS) No.43/99/Plg dated 24.9.1999  this was the order recognizing task forces as monitoring committees and stipulating the functions and modalities of monitoring. However the scope for feedback, correction and dissemination in a wider audience was not adequately addressed either in this order, or through subsequent orders, leaving the monitoring function very weak, and unable to inform the system. This could have had an impact on scheme implementation and addressed to a certain extent the bottlenecks that were being faced in WCP. Government had directed that seminars be conducted at block and district levels under the supervision of the DPCs for reviewing the financial and physical benefits accruing from the implementation of the local governments annual plans over three years of decentralized governance. Although this would have been a good opportunity to discuss the issues in sectoral plans like WCP, no specific instructions were issued. While the participation of a large spectrum of people involved with decentralized planning was envisaged, here too, there were no specific instructions to ensure womens participation. The planning exercise for the district plans also did not ensure the participation of women although WCP was being deliberated upon (circular no. 2822/A1/2000/Plg dated 24.2.2000). Against this backdrop there still were some conscious efforts for facilitative interventions. An effort was made to focus on assistance to SHGs. As per circular no.49905/P3/LAD dated 23.11.1998, it was clarified that an SHG should be at least 6 months old before becoming eligible for assistance. An exemption was made for the current year in view of the short time available (the incubation period was limited to 4 months). Women were consciously given preference in the beneficiary selection criteria that were adopted especially for poverty alleviation programmes. While the unit of assistance was the family, attempts to prioritize women within the family were made. As per G.O. (P) No. 138/99/LAD, dated 9.7.1998, eligibility criteria for housing schemes for the poor were fixed. Among other criteria, it was stated that highest priority would be given to those families who were willing to have the house built in the name of the female member. For prioritizing housing, preference was to be given to female headed houses. A study of the G.O.s in chronological order would show how the Government has progressed from a state of limited awareness to a more expansive strategy for inclusion of women and addressing their issues, especially through the instrument of WCP. A major disadvantage was that by the time a perspective on the WCP had evolved, the massive capacity building exercise was already more than half way through and the inputs on WCP could be provided only to the WCP taskforces and women representatives. This meant that panchayat representatives other than women, implementing officials, expert committees issuing technical sanctions and even KRPs and DRPs were not oriented to the issues that needed to be addressed by the WCP and the strategies that could effectively make a difference. The experience with the sanitary napkin unit is a case in point. Conclusion: Following the evolution of the WCP and the gender agenda in the decentralized plan campaign as reflected in government orders, certain conclusions can be made. These are: l At the start of the campaign, gender issues were not part of a well thought out agenda. There had been no attempt at generating a gender based debate to work out the modalities and strategies aimed at empowerment of women through community processes and structures. l The mandatory WCP came in as a response to the evident marginalisation of women in the development priorities of panchayats and was originally intended only to ensure that women were among the beneficiaries of development initiatives l The lack of application of mind to gender issues at the start of the programme is reflected in the selection and training of the people who were to facilitate the programme  the resource persons, the expert committees, the official support structures. Neither was there adequate representation of women nor were there strong enough inputs regarding recognition and redressal of gender concerns. l The lack of direction and purpose to the gender programme as reflected in the WCP meant that adequate safeguards against misuse and misinterpretation were not made in time. This meant that WCP was vulnerable to extraneous compulsions within the local government. l As feedback regarding WCP shaped the altering perceptions about its rationale and relevance, a broader and more inclusive interpretation of the role of WCP in development planning evolved. l Emphasis on using WCP only for empowerment programmes began to appear in plan formulation guidelines. The interpretation of empowerment remained limited to practical gender needs and only passingly touched on strategic gender needs. l By the time a clear perspective and strategy for WCP had evolved, the decentralization programme had already come a long way, and the capacity building of both institutions and personnel was over, thereby leaving WCP at the mercy of people who did not feel obliged or compelled to understand and prioritise gender concerns into the development programme. Besides, gender concerns had not translated into a visible political agenda thereby keeping it a marginal issue with most of the stakeholders of the decentralized development process. l The training of the task forces and women representatives though welcome in itself was not sufficiently empowering to handle gender blind attitudes of the other stake holders of the panchayat, whom gender training had bypassed. Chapter 5 Lessons learnt from the involvement in the decentralization process of the four panchayats The goal of the project was to intervene in the decentralized planning process now underway in Kerala so as to make gender concerns central to the decision making regarding allocation of resources and to secure gender practical and strategic interests through planning. It has to be acknowledged that the peoples plan campaign and the entire decentralization process mainstreamed gender in the discourses in Kerala, more than at any other time in the history of the state. Womens issues and concerns have been discussed and focused in the peoples plan campaign but the centuries old beliefs and value systems embedded in the mind sets of people especially of policy makers and implementing officers needed much more focused attempts at change. This participatory research process clearly shows the difficulties in the process of engendering governance at the micro-level The following lessons were learnt and which provide clues to the ways forward. Adequate democratic procedures do not automatically promote democracy in gender relations. Central to the process of decentralized planning is the notion of democratic decision-making. Priorities have to be agreed by the community at large, looked into by the sectoral committees, projects proposed to meet priorities, presented at the development seminar attended by the larger community, budgets have to be allocated, and the panchayat committee has to approve and finalize the projects for funding. The procedures to enable this level of participation are all in place. And all these structures to ensure democratic participation come with specific guidelines form the State Planning board regarding womens participation and specific budgetary allocation for womens development. Despite the existing procedures to promote democratic decision-making, this in itself does not guarantee democracy where gender relations are concerned. The procedures are gender neutral in that they assume that women and men have equal power and status to be authoritative about what should be done. Further, they are gender blind because the procedures in themselves do not uphold a model or vision of society and development that is gender fair and that aim towards the transformation of gender relations. Gender power relations affect decision-making processes at the level of committees Sakhis involvement in the day to day activities and in the planning process undertaken by the panchayats shows that gender power relations play an important role in the decision- making process in the panchayat both because elected women feel disempowered, and, because decisions on what is an appropriate womens project is based on the proper role of women as perceived by men. We learnt that there has to be sustained effort to free up unequal power relations both by efforts to empower women members of the committees and by initiating a dialogue with male members about gender relations and making more equitable relations their responsibility. Womens Development  What does it mean ? In trying to secure gender practical and strategic interests through planning, Sakhi learnt that a major obstacle is the way in which womens development is conceived. First, there is an equation of womens development projects with income generation. The analysis of budget allocations reveals that the money for womens development was either allocated for income generation projects, which are not sustainable, or for womens welfare handouts or a smaller proportion for nutrition and education for pre-school children and pregnant and lactating mothers. Non-traditional employment generation schemes were shunned because of the problem of technical expertise and lack of forward and backward linkages leading to failure. The mandatory procedures for allocation reinforce this tendency. There is very little freedom to earmark funds for activities like the collection of gender-disaggregated data, awareness building programmes, intervention on health and violence issues. Second, commonsensical notions about the proper role of women, propriety in man-woman relations shape the ideas about what is proper womens development project. The case of the sanitary napkin unit citied above is an example of how this happens. The role of elected women representatives. In order to improve planning to make gender concerns central to the decision making regarding allocation of resources, the role of the elected women representatives is crucial. They should be able to uphold womens interests and take forward a strategic gender agenda. For this reason it is very important to invest in building their capacity to be able to facilitate discussions in the Gram Sabha and to be able to carry this through the different committees. The critical need for a collectivity of women Better articulation of womens needs can only take place if there is a growing demand from women themselves regarding their needs and interests. The formation of self-help groups provide this possibility but only if these groups are exposed to social and development issues and are enabled to organize themselves as pressure groups. This is true also regarding elected women representatives, who also are divided strongly across party lines in Kerala, than on any other identity. They are in politics due to reservation and hence their political perspectives and analysis has to be nurtured and facilitated. Their gender perspectives have to be strengthened so as to counter patriarchal structures of parties and institutions of governance Ghettoization of womens issues! The political reservation (33%) and Womens component plan, in practice results in ghettoization of womens issues. Womens issues are not considered social issues and the feeling is that women have 10% of funds to deal with all their problems! Conscious efforts have to be made to change this thinking and to make the polity understand that this is a proactive step to correct past anomalies and the WCP is over and above general fund allocation Need to amend the Panchayat Raj act vis a vis women The rotation of the wards reserved for women every 5 years is not going to help women to go up the ladder in political leadership. Just because a ward is reserved for women, someone who can win is brought to compete and after 5 years they are unceremoniously packed out of party politics. If they have managed to survive and are enthusiastic, they may continue with the Self-help groups or in the service sectors. If each reservation ward is for 2 terms (10 years), as has been done in Tamilnadu, it will help the women to assert their position within party politics It is important that political parties are also be willing to give a second term to women in general wards. If a ward is not reserved for women it does not mean it is a mens ward as is seen in practice now. In the politics of seat sharing, womens leadership has to be purposefully kept in mind. Gender sensitization of men In our experience, providing gender sensitivity training for men is very crucial in promoting gender sensitive planning at the micro-level. In a non threatening and non invasive space, at least some men will be open to understand the process of gendering and will act as support group for women who are a minority in the elected bodies of decision making Lack of gender sensitivity of mainstream parties/social movements In the Kerala context, mainstream political parties and movements constitute the key organizational frames in local decision making. They have not taken the WCP seriously and have not made any special effort to mainstream gender concerns into planning. Even those who vehemently argue for womens reservation in politics has considered WCP only very mechanically as a mandatory requirement. Hence the vitality and vibrancy expected if the movement were strong was missing. The crisis of the production sector As has been mentioned, the state of Kerala while enjoying high human development indicators is nevertheless is economically backward and has a stagnant economy. The problems of investing in the productive sector through the money available to the local government bodies exemplify in microcosm the overall problems of investment in production. While funds are available for disbursement to self-help groups for income- generation projects, the absorption capacity is limited. In order to build sustainable livelihoods, much better overall economic planning needs to take place cutting across panchayat boundaries. This would require feasibility and market studies, investment in non- traditional occupations, skill and management training and marketing support. The limited power of Local self-Government institutions. As more and more economic decisions are influenced and controlled by International financial institutions and the state is withdrawing from welfare sectors under the guise of Structural adjustment programmes, the limited power of LSGIs becomes clear. Since they are the lowest level of governance and very close to people, they have to face the irk of people. The LSGIs need to have more powers over the natural resource base on which the people depend on for livelihood. Conclusion The democratic decentralization is a right step in the right direction but this is not a sufficient step to really decentralize power and democratize decision-making process. Just putting institutions and systems in place is not going to change gender relations and hierarchies of power. This will require very concrete steps to change mindsets and attitudes of society leading to the process of empowering women. xxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxx Bibliography 1. Dawn, Bangalore (1998) Beyond the mainstream  Report on the South Asia regional workshop on political restructuring and social transformation. 2. Economic Review (1999): Chapter on Local self-government. 3. Fourth world conference on women Beijing (1995) Country paper India draft 4. International Conference on Democratic Decentralization, Kerala 2000 papers. l Jagjeevan, N & Ramakantan, N: Grama Sabhas l Tornquist, Olle: Of new popular politics of development. l Gurukkal, Rajan: Coalition of conflicting interests and the politics of decentralization. l Chandrasekhar, C.P: Democratic Decentralization and the planning principle l Muraleedharan, K: Dynamics of womens participation in development. 5. Joseph, Neena ((2001) Gender related problems of women, womens empowerment and panchayati raj. 6. Participation of women in political life (1999) Inter-parliamentary Union 7. Seema, T.N & Mukherjee, Vanitha Nayak (1999): Gender Governance and citizenship in decentralized planning  The experience of peoples campaign in Kerala. 8. Thomas, Issaac, T.M & Franke, Richard, W (2001) Local Democracy and Development; Leftward Books 9. Workshop Material (1995): Post Beijing Scenario  Strategies for Advocacy, IWID, Madras Annexe-1 1. Historical background of local governance in India The idea of local governance is not new in India. Before the colonial rule itself local governance was practiced in the Indian society. There were clear division of labour on the basis of which mutual help and close association of villagers were practiced. Gramasabhas didnt exist at that time. But there was an executive committee consisting of 5 members in each Panchayat to look after the governance in the local level. Karl Marx during the first war of Indian Independence stated that (1852-59) the basis of self governance in India is its control on land generally. When Britishers arrived in India, the villages were under the control of Village Governments. Charles Metcalf observed once that here each village is like one small Republic. In each of these republics, representatives of the British Governments entered with new tax provisions and development mode. In 1882, India Government announced its policy on local governance. Government headed by Lord Rippon tried to mobilise public opinion in this regard through provinces. Later in 1885, local bodies Act was passed as to take control of local Governance. By this, local Governance came to the control of someone nominated by the Government. A report published by the Royal Commission in 1909 recommended for giving importance to local citizens and to enforce decentralization was put under carpet. In 1909, at Lahore Conference, Congress passed a resolution condemning the interference of Britishers in the local Governance. In every village there should be a Panchayat elected by the people. A non-official should chair this and they should be provided enough funds. This was the crux of the Congress resolution. The Montague-Chelmsford Administrative reforms made the local governance under central Ministry. Then a series of Acts were passed which lessen the resources and powers of Panchayat. Bengal Village Self Government Act, 1919, Madras, Bombay, United Provinces Village Panchayat Act 1920, Assam Rural Self Government Act 1926, Punjab Village Panchayat Act 1935 etc., came into being. This situation continued till 1950. The crusader of Indias Independence, Mahatma Gandhi, strongly criticized the interference of British Government in the Village administration. In 1942, he said now power is concentrated in big cities. This power should be decentralized. Decentralization of Power and the benefit people gain out of it are directly related . In 1948, Gandhiji observed, those 20 people who sit in one place and decide measures for the well being of the people can never practice real democracy. Villagers who are in the low strata of the society are the ones to do it  to decide on their future. Constituent Assembly members couldnt accept Gandhijis idea of Grama Swaraj. Indias first Prime Minister Nehru and Dalit reformist Ambedkar vehemently opposed the idea. Pandit Nehru said a village, normally speaking, is backward intellectually and culturally and no progress can be made from a backward environment . B.R Ambedkar commented what is the village but a sink of localism, a den of ignorance, narrow mindedness and communalism? I am glad that the draft constitution had discarded the village and adopted the individual as its units. As a solution to this difference of opinion by the stalwarts of Indian politics K Santhanam, brought an amendment which was later accepted by everyone. Thus in the chapter of Directive Principles of State Policy of the Constitution Article 40 was introduced which mentions that State Governments should take initiative to form Panchayats and to give it power and authority as to make it self governing units. In 1952 general election, Congress, which was considered as a party with strong base, had to satisfy with only 45% of the votes. To appease the people Nehru formulated some populist programmes. Moreover, West too was in search of a Low cost strategy to keep Indians away from communism, and this primarily determined, its support India in the form of the community development programme (V.R Gaikward, Rural developments strategies: Evaluation of some early experiments in India in M. L Dantwala et.al (eds) Asian Seminar on Rural Development  The Indian Experiences, Oxford, IBH New Delhi 1986) In those Programmes, the matters, which were dearer to villagers, were included. Such as agriculture, animal husbandry, education, communication, village Industries etc., Though it was formulated with the idea of changing the basic village scenario, the programmes were failures. Reason for this was found to be lack of involvement of people in general. The discussion on how to enforce the participation of the people attributed the concept of Panchayati Raj. In 1959, Balwantrai Mehta Committee did an in depth study on these, and brought out a report. The committee recommended for a 3-tier governance system (grama-block-district) without the intervention of political parties. It hoped that through democratic decentralization and peoples participation in implementing programmes Panchayats would act as links between people and government. On the basis of this report, many states amended the provisions in the laws related to Panchayat. Elections were held subsequently. New Panchayats with different modalities were formed. So many years passed but goals were not yet attained. In 1977, Janata party government formed a new committee with Ashok Mehta as its chairman to examine the PR system. In 1978, the committee published its report. The committee found out that mistakes in structural matters, apathy of the beaurocracy, power hungry leadership in the Center and States, corruption, lack of resources, lack of political will as the reasons for the failure of PR system. Ashok Mehta Committee also recommended a 3-tier Panchayat System. Planning shouldnt be limited to Grama Panchayat level and Block level is not suitable too. Apparently, Committee ignored the importance of Gramasabhas. They saw Panchayats as an agency to do the development works rather than as self-governing bodies or village governments. The nationalist leader of communist party, Mr.E.M.S. Namboothiripad wrote a protest note on this and stated his idea of the real local governance routed in the Directive Principles of the Constitution. Limited sectors like defense, external affairs, currency communication should be handled by central government. All other responsibilities should be handed over to State Governments. And the later should hand over the responsibilities to different elected authorities from top to bottom. May be due to the change on the leadership at the central level, G.V.K. Rao committee was formed in 1985 to study the changes needed in Panchayat Administration. This committee suggested strongly that for Panchayats to involve in developmental works with peoples participation, enough resource allocation and power for governance should be imparted to the Panchayats. District Panchayat Committees should be made stronger. Proportionate representation of sub-committee should be there. L.M Singhvi Committee formed in 1986 also put forwarded many suggestions to the government to improve functioning of Panchayats. Panchayat Raj institutions should be given the recognition entitled in the Constitution. To try the cases that occur in Panchayats, Nyaya Panchayats should be established and judicial Tribunals, which handle subjects related to Panchayat Raj, should be established in each of the states. These were the major recommendations of the committee. Sarkaria commission, which was formed in 1988 to study the center-state relationship, also recommended for Panchayat to be endowed with more power and resources. In 1988, the Parliament Consultative Committee headed by P.K.Thungan also recommended for more powers to Panchayat Raj Institutions. In 1989 the Congress committee headed by V.N.Gadgil reiterated the same. This committee also noted the necessity for reserving seats for schedule castes/tribes and women in the Executive Committees of Panchayats. The West-Bengal government faired well especially in the Agriculture and Small Industries sectors by revamping Panchayat Raj Institutions (PRIs) in the State right from 1977. And also opposition led governments in Karnataka and Andhra Pradesh made PRIs stronger and popular. These achievements forced the central Ministry to think seriously about revamping PRIs. Thus the then Prime Minister of India Sri.Rajiv Gandhi started to moot the idea of amending the constitution. 2. Torch bearers of decentralization The achievements of 3 states, Karnataka, Andhra and West Bengal (led by opposition parties) resulted through revamping PRIs were widely discussed through out the country. And these States can be considered as torchbearers of decentralization. In June 4, 1978 Panchayat elections were held in West Bengal for the first time and later in every 5 years elections were conducted. The Panchayats of the state could effectively implement several schemes with peoples participation like jobs for landless people, and several other schemes for the development of village economy. (Krister Wester guard - peoples participation in Local government and Rural Development. The case study pf West Bengal, India, Research Report No.8. Center for Development Research Copan Hagen 1986-EPW 15- 1-1988) In 1985 Karnataka government, to constitute Zillah Parishat, Taluk Panchayat, Mundal Panchayat, Nyaya Panchayat passed laws. In Andhra, the Telungu Desam government started to implement the Panchayat Raj system from 1987 June 15 onwards. The advantages of PRI system seen in the above 3 states had its ripples in other states of India as well as the Central Government. Subsequently, On August 5, 1985 Rajiv Gandhi, Prime Minister of India, wrote a letter to all the Chief Ministers of the states to know the status of the system in each of the state. Excerpts from the letter. It is obvious that peoples participation can be secured only through the Panchayati Raj Institutions. They have to be actively involved in the local level planning and implementation of schemes reflecting the felt needs of the area and the implementation of the schemes reflecting the felt needs of the people. After the initial enthusiasm in the establishment of these institutions in the days of community development, they have been allowed to languish in many areas. Elections when due have not been provided with a strong resourceful base. Their involvement in rural development programme had not been uniformly satisfactory. These require remedial action wherever necessary I shall be happy if you arrange to hold regular elections of these bodies wherever due, given them adequate administrative power and financial back up to make them vibrant instruments of popular participation in development process. May I expect a quick response on Panchayat Raj Institutions in your state? This letter can be termed as a new beginning on the change in attitude of the Central Government on Panchayat Raj system. But many states didnt send any reply to the letter especially the Congress-led states. (Sheo kumar, Elections of PRIs in West Bengal, Panchayat Sandesh NewDelhi, Vol. XX VII No.12, March 88) Later Prime Minister called for a meeting of Chief Ministers and during the discussions it was held that elections should be conducted in PRIs without hitches and for that it should be made as a constitutional necessity. Thus the 64th Amendment Bill of the constitution was introduced in the parliament. But Rajiv Gandhi couldnt convince the opposition parties on matters such as the power and authority on conducting elections, auditing etc. Hence the Bill was not passed in the Upper House of the Parliament (Rajya Sabha). Only in 1992, the Government headed by Narasimha Rao could amend the Constitution after incorporating the suggestions put forwarded by the opposition parties. Thus 73rd and 74th Amendment of the Constitution came into being. 3. A New step forward - 73rd and 74th Amendments The 73rd and 74th amendments prescribed a uniform three-tier system: - district, taluk / block and village levels in the rural areas and town Panchayats in smaller urban centres besides the traditional Municipalities and Corporations in the larger urban centres. Local bodies should have a uniform five-year term and in the event of dissolution, elections are to be held within six months. SC/ST representation proportionate to the population and one-third reservation for women were introduced at all levels. A state Finance Commission has to be appointed by every state government to decide on revenue sharing by these local bodies. District Planning Committees (DPCs) is to be constituted in every district with two-third of the membership reserved for district Panchayats and urban governing Institute in proportion to the population. A separate 11th schedule was added to the Constitution listing 29 subjects that could be devolved to local self-governments. However, powers, finances and functional autonomy of the local self-governments were left to the discretion of the state governments. Annexe-2 Basic criteria adopted by Panchayats to select beneficiaries. Criteria for preference 1. Annual family Income Up to 5000 5001-10,000 10,001-15000 15001-20000 Maximum Mark 50 marks 45 marks 40 marks 35 marks 50 2. Households headed by widows who have only daughters More than 3 Two daughters One daughter Maximum daughters marks 10 marks 8 marks 5 marks 10 marks 3. Families with handicapped members 90% 80% 70% 60% 40% Maximum handicap handicap handicap handicap handicap 5 4 3 2 1 5 4. Families that have mentally handicapped children 90% 80% 70% 50% 40% Max.marks problems problems 5 4 3 2 1 5 5. Families, which has members with non-curable disease-5 marks 6. Unwed and destitute women-5 marks Total of 80 marks Preference will also be given to those who dont have shelter, whose annual family income is less than 20,000/- who do not own 2 cents of land in villages and 1and, 1/2 cent in rural areas. Only one application is accepted from one family at one time. Based on the above factors marks are allocated and those who get highest will get the benefits Appendix 3 Phase II. BUDGET ANALYSIS Panchayat B Sector wise Expenditure for the year 1998-99 No Name of the project Amount Physical achievements Spent AGRICULTURE 1. Paddy cultivation 26,975 Could increase the cultivation in 432 Hectares of land. 2. Mixed crops 16,500 Seeds were given to 165 farmers to encourage farming. 3. Vegetable cultivation 3,250 325 householdsCould make Kitchen garden 4. Mush room cultivation 1620 6 farmers were encouraged to start the farming. 5. For Agriculture office 10,000 The office received infrastructure 6. Recognition for best farmers 7500 10 best farmers received encouragement. 7. For hens 24,600 123 families were given 5 hens each. Intend to increase egg production. 8. Anti rabies vaccination 16,950 Could give preventive injection to 230 domestic dogs. 9. For the veterinary hospital 8,724 One microscope each was given to two of the veterinary hospitals. 10. For rearing of cows 6,19,996 63 people were given assistance to buy cows. Could increase the production of milk. 11. For electronic choke units 360,000 Deposited in the District co-operative Bank. EDUCATION 12. To improve the educational 26,768 200 primary students were given standard of LPS students special tuition to improve their level of understanding. 13. Nutrition for LPS students 1,13,104 1000 students were given nutritious food. Internal to increase the health status. 14. Mid day meal for 19,200 Will help 1000 Students at least. LPS student 15. Mid day meal for 12,200 Will help to improve the health status. pre-primary school 16. To counter anaemia 17,950 1445 women between the age group of 14 among women. to 50 were tested and given medicine to counter anaemic problems. 17. Chlorination 16,614 2228 wells were chlorinated. 18. To repel mosquitoes 53,787 Places around 10000 households were cleaned so as to prevent mosquitoes flourishing. 19. To improve the condition 10,300 To prevent the leakages, rooftop was of Primary Health Centres repaired and fans were supplied. 20. Latrine for family welfare centres 20,000 Basic conditions got improved. 21. 2 Public taps 16,484 Providing 2 public taps could contain drinking water shortage. 22. Nutrition for Anganwadi 1,74,634 1000 kids and their mothers of 31 kids and their mothers Anganwadis were given nutritious food. 23. For latrines 3,50,000 140 families were given support to have latrines. 24. Furniture for the Anganvadi 15,200 Could improve the conditions of the hospital. dispensary HOUSING 25. Roofings (tiles) 5,30,000 Helped 53 houses 26. For a colony to make 60,000 10 houses were built single houses 27. For thatching the roofs 65,000 Helped 130 houses of the houses 28. Execution of projects 61,000 Expense for executing the project INFRASTRUCTURE 29 Extend the electricity line 6,45,000 Helped for new electricity line and thus and provision of street light bulbs. streetlight. 30 To buy electric articles 23,275 Bought tubes bulbs and chokes ROADS 31 For roads 13,53,789 Several roads were tarred and many culverts were made PROJECTS FOR SCHEDULED CASTES 32 To rear cows 57,000 6 SC families were given assistance to buy cows 33 To rear goats 47,988 12 SC families were given assistance to the same 34. To thatch the roofs 3,70,000 37 houses were helped for the same of the houses 35. To make wells 16,000 4 families could rack new wells 36. To make latrines 65,000 26 families now have latrine 37 To give electricity to houses 22,350 40 families were supported 38 To a Laksham veedu colony 67,500 Helped 10 houses (One lakh housing scheme) 39. Road to the colony H colony 45,000 75 m road was tarred (Harijan Colony) 40. H colony childrens park 45,041 Could build a childrens park in the colony 41. Renovation of road 1,19,943 Road was renovated in the area 42. To build a lane(General) 12,000 Helped many families in the area. 43. To make a culvert (general) 17,000 The total money available for Panchayat C for 2001-2002 Rs. 96,24,923 .00 (The present allocation is Rs.75,98,000/- Added to it is last years carry over Rs. 23,93050 and from this total amount Rs. 3,65127 had to be reduced (punitive action by Plannning Board. as the Panchayat couldnt spend the 75% of the last years allotment-) A total of 162 projects have to be carried out by the Panchayat. Out of this, 114 are new ones and 48 are of the previous years. Panchayats decided to carry out a total of 11 projects exclusively for women welfare (9 new and 3 from the previous years). WOMEN SPECIFIC PROJECTS (Under Women Component Plan) Projects Allocation Likely no. of Beneficiaries 1. Vessel for fish vending 1,00,000 250 2. Assistance for women to sell salt fish 2,00,000 50 3. Shed for fish vending women to Take rest. 40910 100 4. Loan for coastal women 25000 5. For assistance for fishing families In the lean period 2,90,000 580 6. Garment making unit 50,000 10 7. Fishing net making unit 50,000 10 8. Assistance for SHGs 2,53,249 103 9. One Cow for one family Scheme 3,50,000 35 10. Assistance for SHGs run by SC/ST Women 1,00,000 200 11. Subsidy to buy autos 1,60,000 8 A total of 15,69,159 is allocated for projects exclusively for women as beneficiaries. This amounts to around 15 %. Of the total fund of the panchayat (Inclusive of previous years) allocation. ANALYSIS ON GENERAL BUDGET WITH A GENDER LENS. A. PROJECTS OF WHICH WOMEN ARE MAJOR BENEFICIARIES. Projects Allocation 1. Assistance to make wells 1,80,000 2. Assistance to buy cows 4,50456 3. Assistance to maintain houses 22,0078 4. Assistance for SC/ ST households for electrification 20,000 5. Honorarium for Anganwadi teachers 41400 6. Nutritutious food through Anganwadis 8,50,00 The first three projects are decided by the virtue of marks allotted as per the basic criteria formulated by the Planning Board, which is a very woman friendly. Weightage is given for widows and women headed households. Hence for the above projects women can be considered major beneficiaries. Most of the Anganwadi teachers are women hence the honorarium increase will be helpful for women as such. . Nutritious food is distributed for pregnant women through Anganwadis hence the benefits go to women as well as children. B. PROJECTS INDIRECTLY BENEFICIAL FOR WOMEN Projects Allocation 1. Fund for Ayurvedic hospital to buy medicines 50,000 2. For Anganwadi buildings 2,68,000 Government Ayurvedic hospital is approached by women mostly, hence the allotment to buy medicines is indirectly beneficial for women. Many pregnant women are getting assistance through Anganwadis hence, the improvement in the situation of Anganwadis will be of indirect benefit to women. C. THE PROJECTS UNDERTAKEN WITH GENDER NEUTRALAPPROACH Projects Allocation 1. Subsidy for development of paddy fields 1,00,000 (For those who have 11 hector land) 2. Subsidy to have well (25 nos.) 1,25,000 (For farmers who have 20 cents of land) 3. for small scale farming 14,000 (For those who have 20 cents of land) 4. for banana farming 1,0000 (For those who have at least 10 cents of land) 5. Bio-gas production 10,600 (For those who have two cows) 6. Subsidy to buy 2 HP engine for fishing boat 2,50,000 7. Subsidy to buy Fishing net 2,25,000 The above projects do not specify who could be the beneficiaries. As the first 5 projects are directly linked to ownership of land or other assets women are not in advantageous position to gain the benefit. The last two projects are directly linked to the occupation, fishing, which is a male dominated area. D. PROJECTS, WHICH ABSTAIN WOMEN FROM GETTING THE BENEFITS The below mentioned projects are executed exclusively for men Projects Allocation 1. Vessels for fish vending 25,000 2. Hollow-bricks Unit 3,95,138 3. For fishing equipments 50,000 All other projects other than the ones mentioned above are the projects carried out for infrastructure development in Panchayat C 2. BUDGET ANALYSIS OF PANCHAYAT D A total sum of Rs.66, 71,383 are available in panchayat D for the year 2001-2002. Out of this, 13,12,000/- is meant for womens welfare programmes (around 19% of the total). Panchayat intend to take 132 projects in the current year out of this, 7 projects comes under Women Component Plan (WCP). PROJECTS UNDER WCP IN PANCHAYT D Projects Allocation Likely no.of beneficiaries 1. Project for vegetable cultivation 22,000 50 2. Assistance for kudumbasree groups For income generating programmes 3,00,000 1200 3. For production/ sales unit of SHGs 5,00,000 1000 4. Legal/health awareness classes for women 40,000 5000 5. For the expansion of hotel run by women 30,000 5 6. Assistance for Kudumbasree groups 40,000 60 7. For house construction 3,80,000 14 A large part of the 13.12 Lakhs allocated under WCP goes for Self- Help Groups (around 8.4 Lakhs). The other non-stereo typed projects also found place in the WCP, which is a welcome step. There are five projects related to cultural activities which are gender neutral Projects Allocation No.of beneficiaries 1. To improve the basic facilities for education / Other cultural activities -1,00,000 600 2. For Kaliyarangu activities in the primary School - 30,000 400 3. For the distribution of Sports kits -1,00,000 20 4. For New Star Cultural Center 1,50,000 250 The beneficiaries of the above programmes can be both men and women. Like wise there are 10 other projects under Agriculture Sector whose beneficiaries could be both men and women. Projects under the area of health (most of the beneficiaries could be women.). Projects Allocation No.of beneficiaries 1. Project to improve Public Health Sub Centre -75,000 400 2. Camps to detect diabetics -14,315 1000 3. Family welfare programmes and preventive medicines - 20,296 500 4. To improve the condition of Homeo Hospital - 39,000 500 5. To improve the condition of Ayurvedic Hospital - 41,000 500 There are 9 projects related to the infrastructure development of Anganwadis of different areas and women can gain some indirect benefit from these programmes as some of the welfare programmes of Anganwadis target pregnant women as well. Poor women go to Government hospitals to get treated and the improvement in the conditions of these hospitals will be indirectly beneficial for women. Camps to detect diabetics are an innovative programme undertaken and this was carried out in the month of May. A free Urine test was carried out to people who are above 40 years in 6 places on 6 different days. Turn out of women was more in all the camps. Appendix 4 Official set-up of Panchayats Until the decentralization programme came into being, the Panchayat Secretaries were vested with executive powers. Now that power has been shifted to Presidents. Secretaries play a major role in the Panchayat. A good Secretary can be considered the backbone of a panchayat. In panchayat C, during the study period, 3 Secretaries came and went. They were functioning without a Secretary for many weeks in between and it was reported in papers as well. In panchayat D, during the initial period of study, a man was the Secretary and he always helped the members to take decisions. He got retired few months back and now the panchayat has a lady Secretary. Thus the Panchayat D became women-headed panchayat by all means. In both the Panchayats, one staff is deputed exclusively for the works related to decentralization programme. # Implementing officers Implementing officers are the government officials working in the panchayat and responsible for the execution of the projects taken up by the Panchayat. They are given the required fund and these officers have to be accountable to the Panchayat Committee. Standing Committees The panchayat committee consisting of elected representatives has to work with government officials at two levels. Has to work with the Secretaries and staffs housed in the same building to oversee the day to day functions of the panchayats as well as to execute the directions of the Government. Secondly the Committee has to work closely with Government officials who are implementing officers of various projects. Panchayats usually has three Sub- Committees. Standing Committee Financial Welfare Development Committee Committee Committee These Sub-Committees, having very crucial powers for decision-making consists of 5 members. Financial committee, oversees the budgetary matters, Welfare committee deals with the welfare issues of the locality and it is the responsibility of the development committee as the name suggests to deal with development matters. In panchayat C, there is no Standing Committee. On the day of the election of the Committee members, there was big tussle and matters even went up to having fisticuffs between members. There is a criminal case pending in the Court regarding the incident. One of the woman members of the ruling party is also involved in the case. In Panchayat D, the Committees do function, and men head all the Committees. There are two women in each of the Committees. Appendix  5 Report of the gender training for male panchayat members The gender sensitive programme conducted for the panchayt members were with a view) to provide conceptual clarity on sex and gender and develop an understanding of patriarchy /construction of masculinity. b). To develop collectively the need to have a women perspective in developmental aspects c) to work out ways and means to make the panchayat women friendly. The two day process conducted in a participatory and non threatening way helped to create an atmosphere where on second day, the men and women sat together to develop ways and means to make their respective panchayats women friendly In the first day of the two-day programme (held in August 2001), only men attended the sessions and the discussion was initially on the changes they see when 33% women are now members in the panchayat. The outcome of the discussions were written and displayed in a board. In the second day of the training it was decided to involve women too so that an open discussion could be held to solve the issues. The men pointed out the following problems that they see in their female colleagues. - Women members do not often participate in the crucial discussions that take place in the Panchayats .90% of the women do not participate in discussions - Few women are very articulate. They do not respect opinion of others. They try to dominate others and are adamant. - Though seats are reserved for women, many women who possess experience and education are reluctant enter into politics. Hence many inexperienced hands get into the field of politics - Political parties are reluctant to field women who possess experience in social work. - Many times women have to function as proxies of their husbands /brothers. The seats, which are supposed to be of party men, are given to the women of their households because of the reservation. - Many a time especially when there are problems (eg: - suicide or other natural calamities), which are to be tackled by the elected representatives, women do not respond in relation to the urgency of the matter. They are unable to attend if anything happens at night and involve in the matter. It indirectly affects the whole of panchayats functioning. - Many people do not wish to have a woman as their representative. This is because women are unable to put forward the wish and will of the people. - Women who lead a family life cannot work properly. For good women politics is not a suitable field. - Women often limit themselves to their own area. They dont give much care to look into the problems in a much broader level which could in turn help them to form their own constituency at the local level, which is necessary if to contest in a general seat. (The above were written down in the board so as the women members could think about these on the second day). It was the time to look into the above problems concretely and assess it so as to see why women are subjected to the above. And what are the problems women faces generally. Men listed out the following as the reasons for the above: - - Women have to bear the responsibilities of the household by themselves, which limits their potential. - They face strict control of the political parties. - Lack of education or lack of general awareness. - Disinterest of the husbands to send their wives for social work. The fear that wife may become public property and wont remain as private property.! - Inferiority complex of the women. (They dont accept the equal position even if they are endowed with the same by men) - Fear of malicious campaign (apparently it is the women who spread it) - Dependency - Aspiration for posh lifestyle. The facilitator tried to help them to understand the existing patriarchal system in a very informal, non-threatening way. Differentiation of sex and gender was emphasized further at the end of the day. On the second day, 26 members including the women members participated in the programme. The previous days discussions were given briefly with help of what was written on the board regarding the mens perceptions about their female colleagues. Women started to counter most of these perceptions. Women do operate within lots of limitations. Most of the time they are unable to deliver good speeches because of the lack of experience. But men countered that this is applicable to in experienced men too. But women have lots of limitations in acquiring the basic skills of politics. Girls have only few opportunities to increase their knowledge level. Traveling, meeting and discussing with other people usually helps to develop knowledge. In our society women do not possess the opportunities for these. There is strict control on the mobility of women. Women members face lots of problems connected to their mobility. Many members underlined this factor. One of them explained one such incident that happened just 2 days before. She received a phone call in the midnight that one of the houses in her ward was washed away by incessant rain. As her husband was away she couldnt go to oversee the operations in the night. But she reached there when the day broke. But she had to hear lots of criticism from the local people for not reaching on time. But men were not ready to accept mobility as problem faced by women. They confronted that many women tourists do walk around at odd times and they do not face problems from any one. And it is the women who limit themselves by considering this as a problem and this is just an excuse for them not to perform well. If they dare to go out alone in the nights, it is unlikely that anyone will harass them. The facilitator intervened at this point and asked whether the male members who say this will dare to send out their female family members alone in the nights. We have to accept the fact that mobility during nights is a real problem for women. Women do not attend meetings, which are held during evenings for this reason. The men, who wish to have active participation of women in public sphere, should actually, help women to solve this problem. They can accompany women to see to that they reach home safely. Or similar sorts of measures should be taken care of. Women members raised another important issue. This was about the seating arrangement. Often men sit closer to dais and women who sit far often are unable to follow the deliberations. And this often impairs their active participation. This was countered by the argument that the men who possess the official position such as standing committee chairman ,opposition leader should sit closer to the dais. But it was pointed out that when it comes to matters related to anganwadi or self help groups there is a deliberate attempt to enquire the opinion of the female members. This is because of the assumption that women can express their opinion only on these matters. Men became attentive listeners to womens problems at some point of time. And during the long discussion, many of them started to be restless and kept on asking what is to be done to make things set right. Then the following question was raised for group discussion What measures can be taken in panchayat C and panchayat D to make it as women-friendly? There were many suggestions for formulating a women-friendly panchayat. Some of them are given below. - In Committees women should be given chances to express their opinion. - Women should also be encouraged to speak in public functions. - When the committees go late in the evening, there should be some arrangement to help women to reach their homes. - Their involvement should be taken care of on important matters like budgeting and project execution. - There should not be any negative remark or unhealthy remark regarding the behaviour of women members, which could hamper their self-confidence. Instead they should be encouraged well. - There should good friendship irrespective of party identities. - Political parties should give women chances to raise issues in panchayats. - Committees should begin on the stipulated time. - Communication strategies we use should be subjected to introspection. - There should be community feeling among Panchayat members. Interaction between family members should be encouraged. - Women should also try their best to be prepare themselves so as to have healthy contributions from their side for the over all development of the Panchayats. As an immediate effect it was decided to change the seating arrangement in the panchayat D. Members suggested for a follow up workshop after 6 months so as to come together again to see what changes each others could make in their approaches to their female colleagues and women in general. A follow-up workshop was later carried out which was also well attended this was a one day programme for both men and women. As there were men who didnt attend the first session, we had to discuss the issues again; further the facilitator went on to the concept of sex and gender. In the afternoon the discussions revolved round the notions of masculinity in the Kerala society. Apparently problems regarding the construction of masculinity in the society were accepted easily by the male members (who came for the first time) than the issues pertaining to women. In both the panchayats, the members are making efforts to promote the panchayat as women friendly. In panchayat D the women members do say now that there is considerable change in the approach of men. 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