Women Leadership at the Grass-Root Level in India

Women Leadership at the Grass-Root Level in India "You can tell the condition of a nation by looking at the status of its women" --Pt. Jawaharlal Nehru Women constitute nearly half of the total population of the country but when the utilisation of the resources comes, they lag far behind from rest of the society. As per the world economic profile, women contribute 50 per cent of food production, make up 30 percent of the official labour force and utilise 60 percent of all working hours but receive only 10 percent of world income and own less than one percent of the world property. (Satnam Kaur,1987) Efforts are going on continuously to improve their condition etc from top to bottom at governmental and non-governmental level and individual and group level. Although the impact is visible on several levels but not as expected. This half population's representation is very below in comparison to the other half population. Throughout history in many societies including India, gender inequality was a part and parcel of an accepted male dominated culture. The traditional mentalities of India assumed that the place of women is mainly concentrated to the household activities like kitchen work and upbringing of the children and they have been considered as inferior to men in different spheres of knowledge and life. But with all these hurdles in the society they are participating in social, political and economic activities of the country. After independence several constitutional provisions are made to improve this existing situation and to bring them at par with the other members of society. Women in modern times, are given liberties and rights, freedom and expression, as well as right to education etc. Article 15 of the Indian constitution provides for 'prohibition of discrimination on the grounds of religion, race caste, sex or birth place. At the same time, women are still fighting with such evils like dowry, female infanticide, sex selective abortions, ill health, poverty, education, gender disparity, trafficking, sexual harassment, domestic violence etc. Women today are educated but they are less aware in terms of knowing rights properly. (Sharma, Gopal and Das Kumar Ranjan, 2008.) In this perspective to fill this gap Indian constitution has guaranteed several rights to women assuring them the equal opportunity to live in dignity with their fundamental rights in the society. These rights empowered the women in social, political and economic sphere of life. After independence their achievements are really remarkable and they are showing their presence almost in every aspect of the life. Although they have been provided with equal rights and opportunities but when matter comes to the participation of women in decision making process their roles comes out to be less visible especially in national level politics. The Page 1 of 14

women's representation in lower house can be analysed with the following table which shows that very few countries have their representation at par with their male counterpart. Table 1: Percentage of women representatives in lower house in following countries Sl. No. Countries Percentage of women representatives in lower house (In %) 1. Rwanda 63.80 2. Cuba 53.10 3. Sweden 43.60 4. Nepal 29.60 5. New Zealand 31.40 6. Pakistan 20.60 7. China 23.60 8. U.K. 29.40 9. Bangladesh 20.00 10. Indonesia 17.10 11. U.S.A. 19.40 12. India 12.00 Source: Inter Parliamentary Union September "Women in National Parliaments" 1 st May 2016, www.ipu.org/wmn-e/classif.htm, accessed on 27-06-2016. Among the 193 countries, 14 countries have more than 40 percent women representative in their parliaments. Another 22 countries have women representatives between 30 to 40 percent while 46 counties have 20 to 30 percent women representatives in their parliaments while 62 countries have representative between 10 to 20 percent. Thirty nine countries have women representatives less than 10 percent. In other words, only a little more than one third of world countries have 20 percent or more women representatives in their parliaments. In India there are three levels of politics as national, state and local. National and state level politics is known as government at the highest level while local level is known as Panchayati Raj Institutions. These institutions are the most important at the grass root level because India is a country of villages where 70 per cent of the population of the country still live in these villages therefore if these institutions are strengthened then rest of the level will be strengthened automatically and goal of national development can be achieved. Panchayati Raj Institutions are the basic institutions of the political system in India. These institutions provide the opportunity to all to take part in decision making process of the country. This opportunity is availed by heart by the citizens of India and compels the government to take the decisions to this direction and strengthen the institutions. Page 2 of 14

In India, while women participation in formal decision making arenas is less visible, their participation in grassroots level democracy and social movements is very high. While this participation is not directly in the traditionally male dominated political arenas such as party and parliamentary politics, it is vital for women parliamentarians and politicians to raise women specific issues in the formal political sphere. Hence women issues are gaining legitimacy and visibility at national and state level. in India women's representation remained 4 to 12 percent after independence that is why policy makers of the country began to think in terms of constitutional amendments. Therefore the 73 rd constitutional amendment in India was introduced to empower the women politically in rural areas. Women leadership at grass root level in India In the US, it has been shown repeatedly that female legislators have different policy priorities than men (see, e.g. Thomas (1991), Carroll (1994), Thomas (1991)). The idea that women tend to be more public spirited, less corrupt, and more fair is often advanced as an argument in favour of active measures to facilitate women s participation in political decisions (World-Bank (2001), Dollar et al. (1999)). Women attach more importance to and spend more time for advocating women s specific issues (abortion, equal opportunity) and child welfare issues (such as child support), while men concentrate on business and economic policies. Thus, the number of female legislators predicts whether policies preferred more by women than men will be adopted (Berkman and O Connor (1993), Besley and Case (1997). Female legislators devote more energy to women-specific issues than men do, and are more successful in passing legislation on women s issues when they propose them (Thomas (1991), Thomas and Welch (1991)). In India, Pande (1999) argue that reservation for minorities affect targeted transfers. In words of Madeleine K. Albright, NDI Chairman "every country deserves to have the best possible leader and that means that women have to be given a chance to compete. If they are not allowed to compete in the electoral process then the countries are really robbing themselves of a great deal of talent. (NDI, 2013, p.1). In consideration with these facts it was felt that if women will have adequate representation in the decision making bodies than the policy might come in favour of women. In India several policies and programmes have been started to empower the women. The prime objectives of different policies, laws and constitutional amendments since independence is to make women conscious about their rights under law and empower them socio-political and economic field. To strength the democratic basis and bring the efficiency and quality of the activities of local government, integration of women in total is required at Page 3 of 14

local level. If the local governments have the men and women representation at par then these institutions fulfil the needs of the men and women in equal manner. Keeping this in mind and to enhance the women representation in decision making system, Indian government took the initiative to make constitutional amendments to have the visibility of women at grass root level. Reservation for Women at grass root level under 73 rd Constitutional Amendment Act, 1992 It was in the year 1992 that 73rd amendment was brought in the constitution of Panchayat as the means of decentralization of power at grass root level. This has added a new Part-IX to the constitution of India. It is entitled as "The Panchayats' and consists of provisions from articles 243 to 243O. In addition, the act has also added a new Eleventh Schedule to the constitution. This schedule contains 29 fundamental items of the Panchayats. It deals with article 232-G. This act is significant landmark in the evolution of representative democracy into participatory democracy. It is revolutionary concept to build democracy at the grass root level in the country. (Simmi Agnihotri and Vijay Singh 2014) It envisaged the emergence of local leadership to solve the problems at local level. The 73rd amendment of Indian constitution gives women 33% reservation in the Pachayati Raj Institutions of India and it is a milestone towards ensuring women s equal access and increased participation in political hierarchies. Reservations have been provided for women not only at the level of members, but also at the level of chairperson as well because not less than 1/3 of the chairpersons are to be women. This would be rotated among different Panchayats at each level. This amendment provided for direct elections for reserve seats for women in local level elections. The Act also authorises the legislature of a state to make provisions for reservation of seats in any Panchayat or office of chairperson in the Panchayat at any level in favour of backward classes. As a strategy of affirmative action for providing the structural framework for women s participation in political decision-making process this step has provided an opportunity to bring women to the centre of local development as well as develop new grass-roots level leadership. The reservation for women in the local bodies is aimed at securing their active involvement and support in socio-economic development. Reservation became imperative as in the normal process women were reluctant to contest the elections either because of murkiness and violence that often characterise electoral politics. A look at the number of women in the parliament would clearly indicate that there has not been any substantial increase in the number of women parliamentarians after independence. The same is the story of state legislatures. In addition, apathy of the political parties to nominate women to contest Page 4 of 14

elections necessitated reservations for women. Despite the rhetoric to reserve seats in the political institutions by different political parties, this issue also remained unfulfilled like many other electoral promises either because women were considered unsuitable for a political career or inexperienced. Politics was perceived to add to the social responsibilities and burdens of the women. It was also a popular belief that it was easy for men from the socially disadvantaged groups to move upwards in the political ladder or electoral politics than women with similar background. This brought out the need for affirmative action to enable women to join the political mainstream. Meeting women needs is critical to sustainable development as women see development from different perspective than men. In traditional Indian society women's interest are conventionally underrepresented in policies and planning. (Ravindra Prasad 2014) Though reservation of seats for the SCs/STs is based on their actual proportion in the population, yet some states have also held seats for Other Backward Classes (OBCs). But there is no discretion with the States to reduce the reservation for women, which is prescribed to be not less than one-third of the total seats. The actual reservation for women in the PRIs ranges from 35 to 43 per cent in various States. As a result, people belonging to the backward and the vulnerable sections, including the women, have almost 50 per cent seats in the PRIs to themselves, which is expected to result in their actual empowerment. (Shivaji Chinchkar, 2014) After 1993, women participation in local governments increased quite radically, with the enactment of the legislation providing 33 per cent reservation of seats for women in local bodies. The legislation and its implementation have added another level in participation. Reservation of seats for women in Panchayat bodies has shown that it has tremendous implications, not merely in terms of the number of women entering the public arena and holding public office, but also in terms of the social, economic and political impact these reservations have had for the total system. It is for these reasons that those women are increasingly demanding political roles for themselves. (Neelima Deshmukh, 2014) With the provision of reservation at local level, women of the country were given an opportunity to come forward and contribute in the political development of the country. The role of women at grass level leadership has considerable broadened the base of women participation at state and national level. Contribution should not be assessed only in numbers but in quality also. After the reserve seat in local bodies they are coming out and performing their role very significantly and in noticeable manner. The involvement of these women in formal meeting reshaped the local bodies in few years. Due to their significant role in these bodies other women of the country could be attracted and now they are actively engaged in formal and informal meetings. There are 2.51 lakhs Panchayats in the country, Page 5 of 14

which include 2.39 lakhs Gram Panchayats, 6405 Block Panchayats and 589 District Panchayats or Zilla Parishads. The position of elected representatives is given below: Table 2: Number of Panchayats and Elected Representatives in India Sl. No. Panchayats Elective representatives (in lakhs) % of elected women % of elected SC % of elected ST 1. Gram Panchayats 27.32 43.81 22.99 10.01 2. Block Panchayats 1.68 40.03 19.39 7.07 3. Jila Panchayats 0.16 43.19 16.57 10.78 Total 29.16 Sources: Annual Report 2014-2015, Ministry of Panchayati Raj, Government of India, accessed On 06 June 2016 Three tier systems of Panchayats exist in India as Gram Panchayats, Block Panchayats and Jila Panchayats. The data of above table reveals that in India there are 29.16 lakhs elective representatives from gram Panchayats to Jila Panchayats level. At all three levels women have more than 50 percent of the total representatives which is very much higher side from the one third of the reserved seats. In terms of SC and ST women have good representation at all levels as well. The last decade of the last century was a landmark for the development of women. Earlier (prior to 1993), women were not showing interest and participation in politics but now after two decades, their participation in the political process has enhanced their political consciousness, awareness and empowerment. As a result, other women (besides reserved seats) are ready to contest election at local and higher level. All this goes to reveal that elected women members of the Panchayats value their new knowledge and their new sense of freedom and their new political status as representatives of people which has relatively improved their social status both at home and outside. These motivated women encourage others to participate and are ideal for other women. Due to this positive change women are playing very crucial role at grass level politics. All this has not only broadened the social base of national democracy and widened the extent of women's participation but also given them the opportunity to articulate and express the views of the marginalised sections and the developmental needs of their community. The elected women representatives seemed to be holding some kind of a hope for the weaker sections whose voices was being suppressed till now. Page 6 of 14

Table 3: State-wise Elected SC, ST and Women Representatives in Panchayats (as on 1 March 2013) States SC ST Women Total Andhra Pradesh 46,755 21,078 85,154 2,54,487 Arunachal Pradesh NA 9,356 3,889 9,356 Assam 1,344 886 9,903 26,844 Bihar 22,201 1,053 68,065 1,36,130 Chhattisgarh 19,753 63,864 86,538 1,58,776 Goa NA 92 504 1,559 Gujarat 8,340 23,719 39,206 1,18,751 Haryana 14,684 NA 24,876 68,152 Himachal Pradesh 7,467 1,215 13,947 27,832 Jammu & Kashmir NA NA NA NA Jharkhand 5,870 18,136 31,157 53,207 Karnataka 17,723 10,275 41,577 95,307 Kerala 867 120 9,907 19,107 Madhya Pradesh 59,537 1,07,167 1,98,459 3,93,209 Maharashtra 22,175 30,211 1,01,466 2,03,203 Manipur 21 38 836 1,723 Odisha 16,390 22,240 NA 1,00,863 Punjab 26,937 NA 29,389 84,138 Rajasthan 18,807 13,777 54,673 1,09,345 Sikkim 77 418 NA 1,099 Tamil Nadu 28,655 1,194 41,790 1,19,399 Tripura 1,508 309 2,044 5,676 Uttar Pradesh 1,85,159 NA 3,09,511 7,73,980 Uttarakhand 12,230 2,067 34,494 61,452 West Bengal 17,605 4,168 19,762 51,423 All-India 5,68,181 3,42,157 13,64,154 29,21,381 Notes:SC: Scheduled Caste; ST: Scheduled Tribe; NA: not available; All-India includes figures for UTs. Source: Ministry of Panchayati Raj, Government of India, www. panchayat.gov.in, accessed on 06 June 2016 Page 7 of 14

Table 3.1 : State-wise Proportion of Elected SC, ST and Women Representatives in Panchayats (Per Cent) (as on 1 March 2013) States SC ST Women Andhra Pradesh 18.4 8.3 33.5 Arunachal Pradesh NA 100.0 41.6 Assam 5.0 3.3 36.9 Bihar 16.3 0.8 50.0 Chhattisgarh 12.4 40.2 54.5 Goa NA 5.9 32.3 Gujarat 7.0 20.0 33.0 Haryana 21.5 NA 36.5 Himachal Pradesh 26.8 4.4 50.1 Jammu & Kashmir NA NA NA Jharkhand 11.0 34.1 58.6 Karnataka 18.6 10.8 43.6 Kerala 4.5 0.6 51.9 Madhya Pradesh 15.1 27.3 50.5 Maharashtra 10.9 14.9 49.9 Manipur 1.2 2.2 48.5 Odisha 16.2 22.0 50.0 Punjab 32.0 NA 34.9 Rajasthan 17.2 12.6 50.0 Sikkim 7.0 38.0 50.0 Tamil Nadu 24.0 1.0 35.0 Tripura 26.6 5.4 36.0 Uttar Pradesh 23.9 NA 40.0 Uttarakhand 19.9 3.4 56.1 West Bengal 34.2 8.1 38.4 All-India 19.4 11.7 46.7 Notes:SC: Scheduled Caste; ST: Scheduled Tribe; NA: not available; All-India includes figures for UTs. Source: Ministry of Panchayati Raj, Government of India, www. panchayat.gov.in, accessed on 06 June 2016 Constitution provides 33 per cent reservation at grass root level but data of above table reveals that in most of the states they are occupying the seats more than their reserved ratio. It shows the interest of the women in decision making process and the power to motivate the other women of the country. They are coming with very determinant issues in the meeting related with the women's development i.e. the issues which were not highlighted Page 8 of 14

earlier. Due to the leadership of women in these grass root level institutions rest of the women are being motivated to join the politics and play their decisive role at all level. Women occupied up to 58 per cent seat instead of 33per cent reserved for them. It is a great signal for Indian society that not only the women i.e. those who are posted at governmental bodies but rest of the women are conscious about their rights and how these rights can be awarded by the local people. The literacy rate of the women is lesser than that of men but even beyond these constraints, they are regularly attending the meetings and showing their political presence. In most of the states women are not holding the minimum number of mandatory reserved posts but also more than the seats reserved for them at local level. The results are proof of women empowerment in the states and women leaders are sure to play a major role in the future at local level. The interesting thing is that in the election of Uttar Pradesh the victorious women included four PhD degree holders. (Times of India, 2015). Although women are playing prominent role in decision making process at local level but still they face hurdles on several fronts therefore sometimes they are not in position to perform the best. Some of major constraints that prevent women from participation at local level are as follows Social Factors Illiteracy or low standard of education among the women in rural areas Family responsibilities and family pressure Lack of confidence in public speaking Discrimination in decision making at party level Male dominated bureaucracy and politicians Women act as proxies for men Intervention of family members in the functioning of elected women Political Factors Political intervention in the functioning of Panchayats Lack of political awareness among the women in rural areas Negative public opinion regarding women's the leadership capacity Lack of Orientation training courses for women representatives Dominance of elected male members of the Panchayats. Economic Factors Unequal property rights Economic independence of women and political participation Lack of resources to sustain in the electoral campaigns (in spite of code of conduct by election commission) Page 9 of 14

Other Factors Lack of training/orientation in developmental issues Lack of knowledge of rules and regulations Lack of support from senior male/female colleagues in the party/organisation The above mentioned hurdles create problems to improve women leadership at local level bodies. Political parties have visibility of women in the form of a platform for giving proper representation in their party but support is required at the same side which can improve their involvement extra election activities. Suggestions to improve women leader participation at grass root level in politics: Although with their hard efforts they are coming out but there is still a big need to work with them. It is seen that most of the time the political parties intervene in the functioning of Panchayats. They even intervene in the election process directly or indirectly. It creates uncomforting for the women contestants and women representatives. The government should take a strict action in such an intervention of political parties and elections should be conducted fairly so women could be attracted towards the political process. It is also seen that most of the women are elected because of the status of their husbands, fathers or sons and that such women often act as proxies for men' view at the councils being advised by their men relatives. It shows that women representatives perform their duties under the direction of the above mentioned relatives. There is a need to change this negative mentality and government should also organise camps to restrict male members from intervening in their independent functioning. Mostly it has been found that the husband of an elected women representative always intervenes in her day to day functioning. The intervention is not only in small matters but also in her decision making matters which is a big drawback in the women's participation. In rural areas political awareness among the women is negligible. It is the duty of the state government, local administration and non-governmental organisations to educate women about the political issues and create awareness among them. The government should organise awareness camps in rural areas with the help of local administration from time -to- time. The feudal thinking of Indian society is a big problem for the society as well as in the path of women leaders of the Panchayati Raj Institutions. Most of the people of our Page 10 of 14

society have a negative opinion about the women's leadership capacity. But it is wrong. Here is a problem of the mentality which needs to be changed. The education facilities in rural areas are not so good. This creates hindrances in the path of achieving easy education. That is why the education standard of the women is also not so good. It causes lack of awareness among the women about their rights. Efforts should be made to increase their literacy rate so that more and more women can enter in the politics and perform their role in an efficient manner. When the women leaders respond to the socio-political challenges in society, they are to be supported by government organizations and institutions and non government organisations, which are working for the political empowerment of women. It gives them confidence and creates political awareness and power. Political literacy lacks among women. As a result they are generally exploited by the bureaucrats and politicians and even literate women too face such problems. In this context they are not able to face complex social and political issues and exercise their powers and rights. It can be suggested that special training, refresher courses sensitisation courses for women representatives should be conducted from time-totime so that emerging women leaders could perform the assigned role much better way. Therefore there is a great need to organise formal and informal training/ orientation programmes of political education for them. These programmes will enlighten and strength them about the system and their fundamental rights- which is the need of the hour. Reservation for women in Panchayat is limited to only one or two seats. The other elected male members dominate them easily. It is mostly found that the male members dominate even head women member. It can be seen in most of the meetings of the local institutions and decision making process. Efforts are required to bring more women leaders in the Panchayats so that they could have a say in women related issues very boldly. Government should make special provisions for the women representatives and give them more powers as compared to male counterparts and educate them about their powers. It helps them to work efficiency and effectively. The government should also make efforts to make the women realise about their powers, functions and leadership capacities through their various programmes. Although efforts are going on but need is to make them more popularise. Support is required from administration which is still male dominant. Administrators take the advantages whenever political leader at the local level is woman. It is due to the patriarchal culture of the Indian society, lack of knowledge of rules and regulations and lack of acceptability of women leaders in the organisation. This type Page 11 of 14

of mind set up decreases the efficiency of women leaders especially for those who are new comer in the politics. There should be a provision to give honour to the women leaders/members. Special financial reward/incentive should be given to the Panchayats in which more women members get elected unopposed as well as to those women centric Panchayats which perform their job in a better way. Women are greatly beneficial of reservation policy of 33 percent reservation at grass root level. They not only participate in the political process in Gram Panchayat and even as Sarpanch in which seats are reserved for them but also for those unresearved seats through open competition. Women devote more energy and have sensitiveness towards women specific issues, the issues which are generally neglected. Legislations are passed in Gram Panchayats more in numbers during the leadership of women representative's regarding women related issues. The leadership at the grass root level brought among them a high level of confidence. They have gained a sense of empowerment by asserting control over resources and have become source of inspiration to other women. They are challenging the males in their dominant areas and getting the confidence to move ahead at different levels. Low literacy is being beaten by them even in adverse conditions and they have been able to handle the administrative machinery and politician. The women leadership has successfully changed the conventional political platform which was based on caste, religion, culture and gender etc. They have focussed on critical issues as drinking water, education, health and domestic violence and ban of alcohols. They have used their authority to address these issues very promptly and with seriousness. With the participation in rural political institutions, women leaders have acquired a legitimate space and social recognition that can perform political functions like as male member of the society. Their active role at local level has raised their position in the society and is leaving the stigma of minority in the politics. They are getting the opportunities to interact not at the local level only but higher level too which was very far and to reach them. Now they have opportunity to work at higher level and have the meetings and interactions with the officials and take part in higher level discussions. Politically dominated areas are converting and women are given equal opportunities in these spheres. Their mobility inspires the local women and brings confidence that they can perform which was the known as the male dominant area. Legitimacy brings the confidence and prepares a platform where other women rights can be realised and transformed into practice. The different approach which believes to exclude Page 12 of 14

women on social and religious ground needs to be deconstructed in a gender sensitive approach by the nation state and here grass root leadership can play a very positive and important role to realise this. Women leadership at grass root level is playing a very crucial role despite all odds imposed against them in the society. They have got tremendous success and entered in the PRIs in a critical number. Constitution amendments have opened new avenues for rural women to empower themselves, specifically political power would enable most of them to improve their socio-economic conditions in the society, participatory abilities and thereby tap leadership potentialities which would help them to come forward at state and national level. Their image is reflecting a positive side of their role in decision making process. In the process, women have changed and have acquired New identity, recognition, assertion, confidence besides excelling in performance (Buch 2000a; Aziz 2002; Pillai and Badari 2004; Jain 2005: 2). "Women is the real architect of society" Harriet Beecher Stowe Page 13 of 14

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