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CHAPTER - IV
THE FUNCTIONING OF GRAM SABHA: GENERAL FEATURES
4.1 INTRODUCTION
This chapter is based on the field study conducted among Panchayat
Members, Participants and Non - Participants in Gram Sabhas in the district
of Kottayam. A brief profile of the district is presented in this chapter
mainly to acquaint the reader with the setting of the study. Factors such as
age, sex, marital status, socio-economic background would significmtly
determine the knowledge, awareness, interests, attitudes, caliber,
preferences and behaviour patterns and political participation of people's
representatives in Panchayats as well as members of Gram Sabhas. Hence,
it is only befitting that we analyse the characteristics of respondents and
their level of participation in local administration and development.
4.2 PROFILE OF THE DISTRICT
Kottayam is one of the 14 districts in Kerala. It lies a little south to
central Kerala and is bounded by Emakulam district on the North, Idukki on
the East, Pathanamthitta on the South and Alappuzha district on the West.
The district lies between 9".5' and 10" 21' north latitude and 76" 25' and 77"
25' east longitude. The area of Kottayam district is 2203 square kms, which
forms 5.7 per cent of the total area of the state.
Kottayam district has acquired its name from Kottayam town, which
is the headquarters of the district. Its name is said to be derived from the
compound word - "Kotta +Akam9' which means the interior of a fort. The
present district of Kottayam was previously part of the erstwhile princely
state of Travancore. Kottayam revenue division was formed in 1868. After
the integration of the state of Travancore and Cochin in 1949, the revenue
divisions were called districts there by deading to the birth of Kottayam
district. Kottayam district consists of five Taluks, Viz, Vaikom, Meenachil,
Kottayam, Changanasseny and Kanjirappally. There are two revenue
divisions in Kottayam district with headquarters at Kottayam and Pala.
There are four ~unici~a1ities.l
KOTTAYqM DISTRICT I B R E Y C E
DL*- -..-.. -..- - . SHOWING PANCHAYATS r.him--v -.-. -.-.-
ERNAKULAM I i
I - Emmannor 11 - Kanakkari I11 - Kanjirapwy IV - Kumarakom V - Maravanthwthu
VI - Njeezhwr VII - Pallickathodu VIII - Thidanadu 1X - vazhappall!. x - Vazhwr
Kottayam had played a key role in the political agitation of modem
times. The Malayali Memorial agitation (1891) had its origin in ~ o t t a ~ a m . '
'The Malayali Memorial' sought to secure better representation for
Travancoreans in the Civil Service of Travancore against persons &om
outside. The historic 'Vaikom Satyagraha' which had the blessings of
Mahatma Gandhi took place in this di~trict .~ Kottayam was one of the
strongholds of the 'Nivartharia ~g i t a t i on '~ and the agitation led by the State
Congress for responsible govemment in Travancore.
According to 1991 census, the total population in the district is
20,62,000. Male population is 10,29,500 and female population 10,32,500.
The total Scheduled Caste population in the district is 1,35,876 and
scheduled Tribes is 17,996. Sex ratio between male and female is
1000: 1003. The density of population is 830 per square km. The number of
hohseholds is 3,6 1,8 13 with 2,99,070 located in rural areas.
According to agric~~ltural census, 1990 - 91 the number of
operational holdings in Kott;iyam district is 3,48,017, which constitute 6.42
per cent of total operational holdings in the state. The total area under
cultivation is 1,46,533 hectares, which constitutes 8.13 percent of the total
area under cultivation in the state. Majority of the population depends on
agriculture and allied actitities for their livelihood. Agriculture is the
mainstay of the economy. Food crops as well as crash crops are cultivated
here. Paddy is the most important food crop. The area under paddy
cultivation is 36,392 hectares. An average of 2,325 kg ha . paddy is
produced. Next to paddy is tapioca. It is cultivated in 11,620 hectares and
2,67,260 tomes of tapioca is produced per annum. Rubber is the major cash
crop in the state. Pepper, tea, ginger, coconut, pulses, plantains, pineapple,
sugar cane, cocoa are also cultivated in the district.
Table 4.1
Kottayam District: A Statistical Profile
I Marginal Workers I 33.761.00 1
Area (Sq. Km)
Population
Males
Females
Scheduled Castes Population
Scheduled Tribes Population
Density of Population (per sq. km)
Sex ratio-Females 11000 males
Literacy rate (YO)
Number of house holds
Average Family Size
Number of operational Holdings - Total area under Cultivation (ha)
Number of Registered Small Scale Industries
Total Number of main workers
I Non-Workers 1 12.57.423.00 1
2,203.00
20,62,000.00
10,29,500.00
10,32,500.00
1,35,876.00
17,996.00
830.00
1,003.00
95.72
3,61,813.00
5.05
3,48,017.00
1,46,522.00
1,730.00
5.37.087.00
1 Number of beneficiaries of PMRY 1 1.300.00 1 Per capita Income at current prices 7,479.00
Source: I . Primary Cen.ws Abstract 1991 2. District National Znfonnafics Centre
Industrially Kottayam district is not highly advanced. At present
there are 15 large and medium scale industries and two major industrial
estates. There are 14,834 small-scale units registered at the District
Industrial Centre. The number of Male workers is 4,43,092 and female
workers is 93,995. The number of cultivators is 84,327 and the number of
agricultural labourers is 1.25,424. There are 33,761 marginal workers and
12,57,423 non-workers in the district. The total number of beneficiaries of
Prime Minister's Rozgar Yojana (PMRY) is 1,300, and total amount of
disbursement is Rs. 462.28 lakhs.
Kottayam is the first town in the country to have secured the unique
achievement of cent percent literacy. According to 1991 Census, the
literacy rate in the district is 95.72 percent, which is the highest in the state.
The male literacy rate is 97.46 percent and female literacy rate is 94 per
cent. The literacy level of scheduled Tribes in the district is 78.96 percent.
Facilities for education are quite developed in the district. The fust English
School in Kerala was stated by missionaries of Church Mission Society
(C.M.S) at Kottayam in the beginning of the 19" century. There are 478
lower Primary Schools, 204 Upper Primary Schools and 258 High Schools
in the district. There are also 24 Arts and science Colleges, 4 Training
Colleges, 3 co-operative colleges, 2 polytechnics. One Engineering College,
Seven Teacher Training institutes, 2 Industrial Training Institutes and a
number of private parallel colleges who coach students to take examination
as private candidates. The Mahatma Gandhi University has its headquarters
in ~ o t t a ~ a m . ~
In the history of journalism, Kottayam occupies a very prominent
place. Kottayam is the centre of newspapers and periodicals. The oldest
daily in Malayalam, Deepika (1887), had its origin at Maananam, near
Kottayam. The Malayala Manorama, one of the largest circulated dailies in
India was started at Kottayam in 1890. Five major dailies are being
published fiom here. The number of periodicals published £tom Kottayam
is about thirty.
4.3 FIELD STUDY
The study was conducted mainly among the ward members,
participants and non participants in Gram Sabhas in the district of
Kottayam. The information obtained fiom ward members as well as by
means of Participant observation constitute the main basis of this study.
The sample of 200 persons each fiom the participants and non-participants
have been used partly for the purpose of triangulatioh and partly for
knowing general patterns of participation.
Table 4.2
Sample Size used for Estimation and Analysis
Types of Respondents
I Participants in Gram Sabhas 1 100 1 100 1 200 1 40 1
I I I I -
Sex
Panchavat Members
All
Non-Participants in Gram Sabhas 100 100 200 i v - - t - 266 234 1 500
Male I Female I Number I Percentage
40
100
20 66 1 34 100
The distribution of respondents is shown in table 4.2. The sample
size used for estimation and analysis fiom each category is shown in the
table. The total number of respondents was five hundred. Of the 100
Panchayat members, 66 are men and 34 are women. Of the 200 participants
in Gram Sabhas, men and women constitute 100 each and, of the 200 non-
participants, men and women constitute 100 each. The size of the sample
selected from each stratum was not proportionate to the number of eligible
persons. The data obtained from the field study shows the following
features.
4.4 CHARACTERISTICS OF RESPONDENTS
4.4.1 Age
Among the 100 Panchayat members, the largest (43%) proportion
belong to the age group of 41-50 years as shown in the table 4.3. '
Table 4.3
Age and Sex Structure of the Panchayat Members 1 1
I All 66 34 100
Sex Age Group (years)
Male % 1 Female % All % 1
The age-wise distribution of the members reveals that 71% of the
members belong to the age group c ' 31-50 years. Those below 30 years
and those above 60 constituted only 12% of the members. (see Table 4.4).
The age of the participants as shown in the table shows that 61% of the
participants belong to the 3 1-50 age group category.
Table 4.4
Age and Sex Structure of the Participants in Gram Sabhas
Age Group (yean)
18-30
4 1-50
51-60
6 1-70
The age and sex wise distribution of the non-participants in the Gram I
All
Sabhas reveals that majority of them (56%) fall within the age group of 3 1-
50 years. Of 100 women non-participants, 57% are below 40 years of age.
All %
14.5
27.5
33.5
18.5
6.0
Sex
50.00
Table 4. 5 Age and sex structure of the Non-participants in Gram Sabhas
Male %
7.00
14.00
15.00
10.00
4.00
50.0 1 100.0
Sex Age Group (years) All %
Male % Female %
7.5 10.5 18
3 1-40 13.5 18 31.5
Female %
7.5
13.5
18.5
8.5
2.0
4.4.2 Religion and Caste
Distribution of Panchayat members by religion is shown in the table
4.6. In this sample the percentage of Muslims is quite low, i.e. 4%. This is
because Muslims in the district are concentrated in certain pockets alone
and the sampling procedure did not include religion of the Panchayat
members as a category of stratification.
Table 4.6
Distribution of the Panchayat Members by Religion and Sex
Religion
Christian
IHindu 1 3: 1 1; 1 4; 1 Muslim
' ~ 1 1 66 34 100
Figure 4.2 Religion of Panchayat Members
Muslim 4.00%
Caste background of a person plays a significant role in determining
hisher socio - economic status. For the purpose of analysis, the respondents
are categorised into three broad caste groups, viz, General, Scheduled
Castes and Scheduled Tribes (SCIST) and other Backward Castes. The
general castes consist of Brahmins and Nairs among Hindus and Syrian
Christians. The Ezhavas, Muslims and Latin Christians constitute the other
Backward Castes and Communities. In this sample there is a preponderance
of Panchayat members belonging to the general category, i.e., (80%). This
is reflecting of the general caste character of representatives in the sample
Panchayats. However, the reverse seems to be the case in respect of
participants and non-participants.
Table 4.7
Caste of Panchayat Members by Sex
Figure 4.3
Castes of Panchayat Members
Caste
General
Scheduled Castes
Scheduled Tribes
Other Backward Communities
Total
General 80.00%
OBC ST SC 12.00% 0.0096 8.00%
Male %
49
8
--
9
66
Female %
31
--
--
3
34
All %
80
8
-- 12
100
Of the 200 participants, included in the sample, Hindus, Christians
and Muslims constitute 53% 30.5% and 16.5% respectively. In terms of
caste composition. The other Backward communities constitute the largest
proportion among the participants (53.5%). When the percentage of
Scheduled Castes and Scheduled Tribes is added to the Other Backward
Category, it comes to 62 percent.
Table 4. 8
Religion and Caste Composition of the Participants in Gram Sabhas
Figure 4.4
Religion of Participants in Gram Castes of Participants in Gram Sabhas Sabhas
Non-participants in Gram Sabhas also belong to Hindu, Christian
and Muslim community. The data relating to non-participants shows that
their number is higher in general categoly (6 1.5%).
Table 4.9
Religion and Caste composition of the Non-Participants in Gram Sabhas
1 Relieion 1 Caste 1 General
S.C. % S.T. % 0.B.C All % All % %
Figure 4.5
Religion of NonParticipants in Religion of NonParticipants in Gram Sabhas Gram Sabhas
0.B.C 36%
X'tian Hindus S.T. S.C. Muslims
46% 9% 45% 1% 2% I
4.4.3 Marital Status
Regarding the marital status of respondents (Panchayat members),
majority(91%) are married.
Table 4.10 Marital Status of Panchayat members
I Marital Status / Male % I Female % I All % 1
1 All 1 66.00 1 34.00 1 100.00 1
I-- Unmanied
60.00
5.00
3 1 .OO
1 .OO
91.00
6.00
Regarding marital status of participants in Gram Sabhas, Majority
(81%) are manied, 12.50% are unmarried. Widows constitute 5% and
'Separated' 1.50%.
Table 4.11
Marital Status of participants in Gram Sabhas
The data regarding the marital status of non-participants in Gram
Sabhas shows that majority (55%) are unmarried.
Table 4.12
Marital Status of non-participants in Gram Sabhas
Married 1 16.00 1 25.00 1 41.00 1 Marital Status
Unmarried ( 25.00 30.00 1 55.00 1
Male %
WidowtWidower
Divorcee
All 1 41.00 1 59.00 1 100.00 1
Female %
Separated
A11 %
--
--
I I I
--
3.00
.50
3.00
.50
.50 .50
4.4.4 Educational Qualifications
Regarding the educational level of the ward members, it was found
that 76% have undergone education ranging between S.S.L.C., and
Graduation. Of this 44% have been to college. No Panchayat member is
illiterate.
Table 4.13
Educational profile of the Panchayat-Members by sex
Education seems to have not played much role in participation in
Gram Sabha meetings. Those who have better education had shown not
much interest in attending the Gram Sabha meetings. The study reveals a
negative relationship between education and participation in Gram Sabha
meetings.
Educational level
Primary
Upper Primary
High School
S.S.L.C.
Pre-Degree
Graduation
Post Graduation
Professional
All
Male %
2.00
5.00
5.00
22.00
14.00
15.00
1.00
2.00
66.00
Female %
-- --
4.00
10.00
8.00
7.00
-- 5.00
34.00
All %
2.00
5.00
9.00
32.00
22.00
22.00
1 .OO
7.00
100.00
Table 4.14
Educational Profile of Elected representatives of Local bodies in Kerala
The state wise data regarding educational level of the elected
representatives in Kerala reveals that those who have studied up to high
school and below constitute 67.22%. Those with educational level ranging
the upper primary schooling to matriculation constitute 68.5% of the
participants in the Gram Sabha.
Table 4.15
Primary Upper High Pre-
11.16 48.56 15.86
Female 52.65 17.38
Total 6.77 9.33 50.61 16.62
Educational level of the participants in Gram Sabhas by course of study
I
Degree
14.10
16.48
15.29
Post- Grad.
121
1.57
1.39
Total
100.00
100.00
100.00
I No Schooling I -- 1 1.50 1 1.50 1 Educational Level I Male % I Female % I All %
1 Upper primary 1 6.00 1 10.00 1 16.00 1
I
High School 15.00 19.00 34.00
S.S.L.C. 10.00 8.50 18.50
Pre-Degree
Graduation
Post Graduation 3.50 3.50
/ Professional I 1.00 1 .50 1 4 All 50.00 50.00
- -
100.00
As regards the educational level of the non-participants in Gram
Sabhas, there is greater spread as shown in the table although the range
between Upper Primary to S.S.L.C. account for 50.5% of the non-
participants.
Table 4.16
Educational level of the non-participants in Gram Sabhas by course of study and sex
Educational Level 1 1 Ma;: % re" % "1% No Schooling
1 S.S.L.C. 1 7.50 1 8.00 1 15.50
1 I Post Graduation 1 6.00 1 2.50 1 8.50 1
Pre-Degree 1- Graduation
5.50
5.00
Professional
5.50
7.00
N = 200
4.4.5 Family Occupation
Of the 100 ward members, 43% males are Gom agricultural
background and farming is their main occupation. 26% of women ward
members said that their main occupation is looking after the household.
3.50
50.00
11.00
12.00
4.00
50.00
7.50
100.00
Table 4.17
Family Occupation of the Panchayat-Members by Sex (Gram Panchayat)
Occupation I Male % ( Female % I All ./o
1 Labour ::" 1 1.00 1 5.00 1 Service 5.00 10.00
Business 14.00 - 1.00 15.00
I House Wives I -- 1 26.00 1 26.00 (
The data regarding occupational status of the participants in Gram
Sabhas is shown in table 4.18. The table also reveals that no woman is
involved in agriculture as thus is seen as an activity undertaken by men only.
All
Table 4.18
Family Occupation of the Participants in Gram Sabhas by Sex
66.00 34.00 100.000
Non-participants in Gram Sabhas include all sections of people in the
village as shown in the table 4.19. But when we compare the number of
educated participants in &am Sabhas with the number of educated non-
participants, the latter's number is high.
4.5 PERCEPTION OF PEOPLE'S REPRESENTATIVES OF GRAM SABHA
Table 4.19
Family Occupation of the Non-Participants in Gram Sabhas by Sex
In the course of the field visit of selected Panchayats, the researcher
used tools of empirical investigation such as observation, interview and
All %
8.00
13.50
15.50
18.50
'9.50
35.00
100.00
Male %
Unemployed 4.50
Agriculture 13.00
Labour 11.50
Service 12.00
Business 9.00
House Wives --
9.00
focus group discussion. The information so collected are presented in the
Female %
3.50
0.50
4.00
6.50
0.50
35.00
50.00
following pages of this chapter. The data pertaining to the study of
Panchayat members and filnctioning of Gram Sabha show that among the
100 Panchayat members, 9 are Presidents, 6 are Vice-Presidents, 7
members are Standing Committee Chairpersons and 78 are ordinary
members. Of the 100 Piulchayat members, 34 are women. Detailed
interview schedules were used to collect primary data from Panchayat
members. Formal and irtformal discussions were also held with the
Panchayat members individually and collectively.
With regard to the awareness of the Panchayat members about the
ward and voters, 30 males and 4 females (34%) said they know the voters
individually and 36 males and 30 females (66%) said they do not know
most of the voters in their ward. Again, to a query as to whether they know
the heads of the families, 61 males and 25 females (86%) answered in the
affhnative where as 5 males and 9 females (14%) did not know them. It is
evident from the investigation that males usually have contact with heads of
the family while there are many handicaps in the way of women to get in
touch with the people intimately. Most women came to the Panchayat
through marriage and the means available to them to get to h o w the heads
of families is through the male or female members of husband's family.
With regard to the structure and duties of Gram Sabha, 55% of the
members felt it was very good, 43 % respondents stated it as good and 2%
said it was bad. It is clear that 98% respondents appreciate the institution of
Gram Sabha. Thirty twc, per cent of the Panchayat members were of the
view that delegating more power and responsibilities may help in making
Gram Sabha viable and effective.
Panchayat members replied to various queries regarding participation
of women in the functioning of Gram Sabha. Twenty four per cent
respondents felt that women representatives face difficulty in convening
Gram Sabha whereas 7696 said that they do not face any =culty in
convening Gram Sabhas, and also added that the male counterparts who
belong to the same political party and the husbands of women members
help them in publicising and managing Gram Sabhas. 95% Panchayat
members aid that Mahila Sabhas are necessary to promote women's
participation in Gram Sablias. But 5% respondents opined that the Mahila
Sabhas are not necessary. 86% members claimed that they had made
significant efforts to increase women's participation in Gram Sabhas, while
14% agreed that they did not make any special effort. Regarding
participation of Scheduled Castes and Scheduled Tribes, 33% expressed
that they took measures to increase their participation, whereas 67% agreed
that they did not make any effort to bring them to the Gram Sabhas. 1
To a supplementaqr as to what kind of measures were taken by the
members to increase the participation of women, Scheduled Castes and
Scheduled Tribes, 35% respondents said that they resorted to distributing
notice through Mahila Samajams and Anganwadis, 23% said they
distributed notice through Ayalkkoottams and 42% claimed that they
contacted these categories personally. It is revealed from the investigation
that personal contact is the best method to bring women and members of
Scheduled Castes and Scheduled Tribes to Gram Sabhas as majority of
them do not care for notice or other written materials.
There was a question regarding the participation of their opponents
in Panchayat election in Gram Sabhas. Sixty one per cent of the members
said that the opponents who failed in Panchayat election did not participate
in Gram Sabha meetings, and 39% aflimed that they participated. To a
supplementary question as to whether there was unhealthy competition
along partisan lines in the Gram Sabha meetings, 40% replied that there was
no such problems in the Gram Sabhas. The study reveals that since the
opponents in election are persons of some stature in the village, their non-
participation in Gram Sabha meetings will directly affect the quality of
discussions, and the type of consensus that local level development
demands.
r As regards the awiueness of the ward members about the existence
of voluntary organisations in their own wards and Panchayats, 34% pointed
out that there were voluntary organisations and 66% stated that they were
not familiar with such org.anisations. The former (34%) stated that they had
either membership or hold office in some of these voluntary organisations
and get the help of these organisations to ensure orderly conduct of Gram
Sabha meetings. Out of the 100 Panchayat members, 43% said that they had
formed Ayalkkoottams (neighbourhood forums) in their Wards. Fifty Seven
percent of the Panchayat members said that formation of neighbourhood
forums is taking place in their Panchayats and wards at a fast pace.
With regard to relationship between officials and representatives of
the people in the Panchayat, 30% of the respondents felt that the
relationship is very good, 62% pointed out that it is good enough and 8%
said that the relation is bad. During the course of field visit, the investigator
could understand that the relationship between officials and People's
representatives, which was not very smooth earlier had improved
considerably following the People's Plan Campaign.
For a deeper understanding of the functioning of Gram Sabhas, the
investigator made some queries relating to the Gram Sabha and the wards
the member represent. In answer to the question as to whether they
convened model Gram Sabha in their wards, 23% respondents pointed out
that they convened model Gram Sabhas as decided by the Panchayat
Committee. Model Gram Sabhas set the tone for Gram Sabhas in other
wards. It is found! that those who had conducted model Gram Sabhas are
relatively more popular among voters, efficient and hard working. A
question related to the location of the venue was asked. Fifty Seven percent
stated that it was in the middle of the ward. Sixty six of the members
admitted that the venue of the meeting could not accommodate 500 persons.
With regard to the complaint that the ward members ignored the
ward, 32% Panchayat rnembers agreed that there were such complaints.
However, the majority (68%) did not experience complaints of neglect of
wards. Those who coulci not fmd their names in the list of beneficiaries of
the various projects expressed their dissatisfaction by alleging inefficiency
and neglect of the ward by the Panchayat member.
During the "plan c:ampaignW it was suggested that Gram Sabha
meetings could be follow~:d by cultural programmes using local talents.
Only 6% of the members said that they had organised such programmes,
and that too not more than once.
Majority of the members had attended training programmes relating
to either Panchayati Raj or decentralised planning. However the proportion
of male members who received training (82%) is higher than the female
members (67%). All the Panchayat Presidents under the study had
undergone training. All the Panchayat presidents had attended the training
programmes either on Kerala Panchayati Raj Act or on People's Planning
conducted by the Kerala Institute of Local Administration. Most of the
I Panchayat Presidents are aware of the functions and responsibilities of the
Gram Panchayat. But it was observed that women Panchayat Presidents
have to depend on their male counterparts or the Panchayat Secretaries for
day to day affairs of the Panchayat.
On enquiry, the respondents mentioned divergent views about Gram
Sabha meetings. With regard to minutes of Gram Sabha meetings, 92%
respondents confirmed that the decisions were minuted. Twenty Eight
percent of the Panchayai members pointed out that people demanded
minutes during Gram Sabha meetings. In reply to a query as to whether
they prepared report of the preceding six months administration for
presentation inthe Gram Sabha meetings, most of them replied that they
did so.
Regarding agenda for Gram Sabha meetings, 95% of the respondents
mentioned that it was displayed in the Panchayat office for the information
of the members and voters. It was observed that in all the Panchayats,
Panchayt Committee prepared the agenda in advance and the same agenda
was used in all the wards. Regarding f i c u l t y in formulating decisions
during Gram Sabha meetings, 68% expressed the view that they faced
difticulty and 32% said that they did not face any diEculty. With regard to
discussions in Gram Sabhas, 55% were in favour of it and 45% against.
Again, to a query whether the discussions in Gram Sabhas were useful for
the whole Panchayat area, 43% respondents expressed that the discussions
were useful for the whole Panchayat area, while 57% said that the
discussions were confined only to wards. They also added that some people
were interested only in the common needs of the ward and some others
were keen on fulfilling their own personal interests. It is observed that 95%
of the participants were interested in their own personal needs. People
evolved consensus only on matters like drinking water, roads, electricity
etc. About the quality of discussions in Gram Sabha meetings, 55%
respondents pointed out that the members of Gram Sabhas have the
tendency to criticise unnecessarily the people's representatives, 30 replied
that some people were simply criticising as they were not aware of the
rights and duties of the members of Gram Sabhas and 5% ward members
expressed that people did not make any criticisms during the time of
meetings. The investigator observed that people questioned and criticised
members for providing mirumum information and publicity regarding Gram
Sabha meeting and selection of beneficiaries.
Another question was asked as to whether the people were given
time to ask questions and seek explanations. Fifty five per cent respondents
expressed that they were given time and 40% expressed the view that due to
allocation of veIy little time for each item in agenda there was not much
time for discussions and errplanations and 5% respondents replied that the
people were not aware of asking questions effectively. The investigator
observed that many Gram Sabha meetings took much time for felicitations.
The conveners were not punctual in starting Gram Sabha meetings in the
fixed time. In some wards there were no arrangements to start the meetings
in time. So people were found unenthusiastic and impatient. Twenty two
percent respondents replied that some people demanded Gram Sabha
meetings in advance as they were to be selected as beneficiaries of the
schemes and 78% did not demand.
With regard to sugestions for improvement of the functioning of
Gram Sabhas, 17% respondents suggested that people should be aware of
the functioning of Gram Sabha and 15.5% opined that decisions of the
Panchayat Committee should be final. 15% respondents expressed that due
to devolution of powers ;tad People's Planning the Panchayat has to handle
various activities. But the Panchayats have no adequate staff to meet such
functions. Thirteen and a half' percent respondents suggested that individual
schemes of the People's Planning progamme should be avoided. They
said that majority of the participants attended Gram Sabha meetings only
for individual benefits. Twelve percent respondents suggested that adequate
fund beset aside to meet the expenses of Gram Sabha meetings. Ten and a
half percent of the respondents suggested that all the concerned officials of
the Panchayati Raj Institutions should participate in Gram Sabha meetings.
Sixty five per cent respondents expressed that there should be common
venue with adequate space for Gram Sabha meetings. Seventy five percent
respondents were of the opinion that income should be the criteria for
selection of beneficiaries of various plan schemes and 2.5% opined that
orders, circulars and other materials regarding Panchayati Raj Institutions
should be published in Malayalam.
r A query to know the respondents' stand on the curtailment of powers
of Gram Sabha, 5% respondents replied that powers should be reduced,
whereas 95% respondents were in favour of the powers of Gram Sabha. A
question regarding participation of people's representatives in Gram Sabha
meetings was asked. Eighty percent respondents expressed that Panchayat
Presidents participated in Gram Sabha meetings and 78 respondents stated
that Vice-Presidents also participated. All the respondents agreed that
Panchayat members convened the Gram Sabha in their respective wards.
Forty two per cent respondents said that Block members had participated in
Gram Sabha meetings and 30% ward members confumed that District
Panchayat member participated. But, regarding the participation of Member
of Legislative Assemblies imd Members of Parliament, 12% respondents
expressed that Member of Legislative Assemblies participated and only 2%
respondents stated that Members of Parliament participated in Gram Sabha
meetings.
As participation of people' s representatives is an incentive to
increase the quality of discussion and effective functioning of Panchayats,
the Local Administration Department gave directions to all the Panchayats
to inform Block Panchayat members and District Panchayat members about
the date and venue of the Gram Sabha meetings. It was observed that
participation of MLAs, MPS and three-tier Panchayat level representatives
helped to increase people's participation in various Gram Sabhas. In reply
to the query regarding pmcipation of officials in Gram Sabha meetings, 1
70% respondents stated that Panchayat Secretaries participated, 50%
respondents expressed that Agricultural officers participated, 30%
respondents expressed that veterinary doctor participated and only 10%
respondents stated that Assistant Engineers of the Electricity Board
participated in Gram Sabha meetings. It is observed that participation of
officials is very necessary for the effective functioning of Gram Sabha
meetings. These officials can help in solving many doubts of the people
regarding various schemes of the Government.
In the preceeding pages the views expressed by the Panchayat
members have been presented in a descriptive form. The explanation is
based on the statements and answers expressed by the respondents in the
questionnaire schedules. :Some statements of the respondents are presented
in the following pages in tabular and graphic forms also.
Since majority of the ward members are part and product of the
political parties, the political affiliation of the members should be analysed.
The following table provides the political affiliations of the respondents.
Table 4.20
Political Affilintion of the Respondents (Panchayat Members) by sex
Political Parties
CPI
CPI W) r Kerala Congress (J)
Kerala Congress (M)
Congress (I)
Muslim League
Janata Dal
BJP
Congress (S)
No affiliation
All
As regards political influence on the Gram Sabha activities, a
question was put to the respondent as to has there any party level discussion
before Gram Sabha meeting In reply to this question all the Panchayat
members belonging to Communist Party of India (11%) and Communist
Party of India (h4) (23%) agreed that there were discussions at party level
before Gram Sabha meetings. Janata Dal (2%) also expressed that there
were discussions at party level before Gram Sabha meeting. It is
understood fiom the discussions with Panchayat members that in the case of
male members the influence of politics in the administrative process and at
the decision-taking level is more pronounced. This may be due to the
active involvement of men in politics even before they contested the
election. Most of the women are novices in local level politics.
Table 4.21
Response on Whe$her Party Level Discussion Took Place Before Gram Sabha Meetings
CPI
CPI (M)
Kerala Congress (h4)
Janata Dal
Kerala Congress (J) Congress I
Muslim League
BJP
Congress (S)
Independent All
Percentages are given ~n the brackets
Political Party Yes No All
In Kerala, as per the Panchayati Raj Act, Gram Sabha met 6 times
during 1996 -1998. Before: each session certain directions for conduct of
Gram Sabha meetings have been framed by the State Planning Board.
Regarding the structure and duties of Gram Sabhas, 35% respondents
stated that the structure is .very good, 43% expressed the structure as good
and 22% expressed that the structure is bad
Table 4.22
Respondents on Structure and Duties of Gram Sabha
To a query as to either the Gram Sabha or the Gram Panchayat
should be strengthened first, 45% respondents pointed out that Gram Sabha
should be strengthened, whereas 55% expressed that Panchayats should be
strengthened and they expressed their views that Panchayats should have
absolute freedom in deciding the priorities within a functional domain
including preparing schemes and projects to cany them out.
Nature of Response
Very Good
Good
Bad
All
No. of Respondents
35
43
22
100
All %
35
43
22
100
Table 4.23
Respondents on Strengthening of Gram SabhalPanchayat
On enquiry regarding ideal frequency of Gram Sabha meetings, the
respondents mentioned divergent views. Sixty percent of the respondents
said that Gram Sabha should meet at least twice a year, 3% respondents
expressed that since Gram Sabha has a lot of functions to perform, it is
necessary to have six meetings a year. Twenty per cent respondents were of
the opinion of having four meeting a year and 13% wanted three meetings.
But 4% respondents wanted only one meeting as they were doubtful of the
functioning of Gram Sabhz~. The following table reveals the different views
of the respondents. I
Opinion
Gram Sabha
Panchayats
Table 4.24
Respondents' opinion on the Ideal Frequency of Gram Sabha Meetings
Respondents Percentage
I
No. of Respondents
45
55
100
Percentage
45
55
100
All 100 100
Regarding quorum of the Gram Sabha meetings, 54% respondents
suggested a quorum of 50 voters. During discussions with ward members, it
is understood that they do not want more than the required quorum as they
find it difficult to manage: the meetings. Table 4.25 shows the different
views of respondents.
Table 4.25
Respondents on the Ideal Quorum of Gram Sabha
Regarding ideal number of voters, respondents expressed different
views. Since Gram Sabhas are of vital importance, they should not be
unwieldy in size. Sixty six per cent respondents opined that the optimum
strength of Gram Sabha should be between 750-1000. Table 4.26 gives a
detailed picture of the respondents' views.
Respondents
54
29
5
10% 5
No Response 7
100
Percentage
54
29
5
5
7
100
Table 4.26
Respondents on the Ideal Number of Voters in a Ward
The following table reveals the mode of communication for inviting
No. of Respondents
500-750 19
66
1000- 1200 15
100
people to participate in Gram Sabha meetings.
Percentage
19
66
15
100
Table 4.27
Respondents on Mode of Communication
Mode of Communication
Personal Contact
Ayalkkoottam*
News Papers, Notiee, Mike announcement
1 All I 100 I 100 1
The respondents gave different views regarding the effective method
of inviting people for Gram Sabha meetings For 63% respondents, personal
contact is the most effective method to bring the people in Gram Sabhas.
' Neighbourhood groups
Table 4.28
Respondents on the Effective Method of Communication for Inviting People
As regards decision-,making in Gram Sabha meetings, the practice in
most of the Panchayats was three fold, i.e., decisions were arrived at by
Percentage - 63 - 14
13
10
100
Personal meeting
Notice
Mike announcement
Ayalkkoottam
voting, show of hands and consensus. Table 4.29 shows this at a glance.
Respondents
63
14
13
10
100
Table 4.29
Rmpondents on Mtbhodr, of Reaching Decisions in the Gram Sabha
Methods
Voting
Show of hands
Consensus 70 70
It may be noted that most of the members had attended Gram Sabha
( All
held in other wards. Those who have attended more than 50 are Presidents
of large Panchayats, who are expected to preside over the Gram Sabha any
100
way. Most Vice-Presidents are also bound to preside, during the absence of
100
the Presidents or when more than one Gram Sabha is held on the same time.
Table 4.30
Respondents' Participation in Gram Sabha Meetings
Number of Gram Sabhas Respondents Percentage
24 24
11-20 13 13
21-30 19 19
16 16
41-50 23 23
5 5
100 100
The following table tells about the reason for non-participation of
respondents in Gram Sabha meetings. Inconvenient time was listed as the
major reason for non-participation in Gram Sabhas of other wards.
Table 4.31
Reason for Not Participating in Gram Sabha Meetings of Other Wards
Respondents
Inconvenient time
Inconvenient date
All 100 100 100
The average amount of time spent by the members is eight hours.
The following table shows the distribution.
Table 4.32
The Amount of 'rime Spent for Panchayat Level Duties - -
Regarding the ideal time for Gram Sabha meetings, 76.5% said that
evening is ideal for holding Gram Sabhas. It is understood that women
representatives are busy in the morning in preparing food, sending their
children to schools and colleges, and other household works.
Table 4.33
Respondents on Ideal Time for Gram Sabha Meetings
3
Total
33
4 1
26
100
Time Spent (hours) Respondents Per Day Male %
30
37
33
All 100
Es+j-+j-+fgj All 100 100 100
Female %
38
50
12
100
Respondents Ideal Time
Male % I Female %
- -
A further query was rnade as to which day is the ideal day for Gram
Sabha meeting. Sixty nine per cent of the respondents answered that
working day is the ideal day. But during the time of discussion most of the
respondents expressed that Panchayat and other concerned officials can
participate on working days.
r Aggregate %
Table 4.34
Respondents on Ideal Day for Gram Sabha Meetings
On the question regarding participants' expectation from Gram
1 All
Sabha, 89% of the respondents replied that material benefits are the main
expectation and 11% were of the opinion that people participate in Gram
100
Sabha only to criticise the ward members.
100
4.6 PERCEPTION OF PATICIPANTS AND NON-PARTICIPANTS OF GRAM SABHA
Table 4.35
Respondents on People's Expectations from Gram Sabha
With regard to non-.participant's awareness about ward members,
Expectations
Material Benefits
Criticise the Ward Members
Gram Sabha and Neighbowhood groups, 70% male respondents stated that
they know the ward member personally, while 30% expressed that they did
Respondents
89
11
100
not know. Similarly, 63% of the females stated that they knew the ward
Percentage
89
11
100
member while 37% stated they did not know. A further query was made as
to whether they had heard about Gram Sabha. Among the males, 83% said
that they have heard about Gram Sabha. The corresponding percentage for
females is 73%. Among the male non-participants, 37% stated that there
are Ayakkoottams in their wards. In respect of the females, 55% stated they
h o w about Ayalkkoottam.
In order to know the level of awareness of the Participants about
ward members and the functioning of Gram Sabhas, the investigator asked
various questions as to their perceptions about the ward member, political
&ations etc. Regarding political atliliations, 81.5% of the participants in
Gram Sabhas were aware of them. With regard to opinion about ward
member, 37.5% 51% and 11.5% of the Gram Sabha members rated it as
veIy good, good, and poor respectively.
Some Gram Sabha members, even though they have not participated
in Gram Sabha, stated that they have heard about it, and since some of them 1
have good relations with ward members, the investigator wanted to measure
their level of awareness about Gram Sabha. The respondents gave
divergent views about their awareness of the institution of Gram Sabha.
Among the participants, 28% respondents said that they knew about the
Gram Sabha fiom ward members, 27.5% stated that they were informed
about it in the church on !Sundays, and in neighbourhood groups, and 17.5%
stated that they got infomation fiom newspapers, 17% could knew by mike
announcement and 2.5% knew fiom notices. But 7.5% respondents did not
hear about Gram Sabha Regarding the relationship of non-participants
with Panchayat members, 10.5%, 61.5% and 28% non-participants stated it
as very good, good and bad as respectively.
The data reveals that even though the respondents were non-
participants, majority of them know the Panchayat member and are aware
of the institution of Gram Sabhas. An inference can be drawn &om the
data that there is less r1:lation between participation in Gram Sabha
meetings and awareness about Panchayat members. At the same time lack
of awareness may result in poor quality of discussion in Gram Sabha
meetings. It is also found that if the relation with the Panchayat members is
bad, it may affect participation badly.
With regard to the views on the nature of the Gram Sabha meetings,
84% respondents (participants) stated that the conveners observed rules and
procedures, while 16% expressed they were not adhering to procedures. In I
reply to another question, 42.5% respondents stated that political parties
influenced the decisions of Gram Sabha, while 57.5% stated that the
political parties did not influence the decisions of the Gram Sabha. In order
to know the involvement of the people in Gram Sabha meetings, a question
was asked as to whether the participants got opportunity to ask questions
and seek explanations. Eigfity-three and a half percent of the respondents
stated that there were opportunities while 16.5% stated that there were no
opportunities for seeking explanations. Fifty two per cent respondents
pointed out that there were ref?eshments during Gram Sabha meeting, while
48% stated there were no refreshments. Of the 200 respondents
(participants), 32.5% said that the influence of some of the affluent persons
of the ward was felt - in Gram Sabha meetings, while 67.5% stated that
there was no such influence. But it was observed that in the first two Gram
Sabhas there was influence of political parties and elites of the locality.
This may be one of the reasons for non-participation .
As regards, motions for people's participation, respondents stated
different views. Among the respondents 30% stated that they participated
to get more information about the activities of Gram Sabha, 59.5% stated
that they did so because they have interest in social activities and 5% stated I
that they participated due to request of the ward member. These data reveal
that those who have the inclination to participate in social and political
activities also have the tendency to participate in Gram Sabha meeting.
In order to elicit information about people's involvement in Gram
Sabha meetings, the investihtor put different questions. In reply to a
question, 90% respondents stated there was stipulated quorum, while 10%
expressed that there was no quorum. Regarding the convening of Gram
Sabha, 94.5% stated there was regiswation, but 5.5% stated there was no
registration, at the beginning of the meeting. It was also observed that in
many Gram Sabhas conveners were not interested in keeping the attendance
register. Thuty -nine and a half percent of the respondents pointed out that
participants demanded reading the minutes of Gram Sabha meetings, while
60.5% stated nobody demanded reading the minutes. In reply to another
question 59.5% responderrts expressed that there was pandemonium during
Gram Sabha meetings, while 40.5% expressed there was no pandemonium.
Sixty five percent of the respondents were of the opinion that the venue of
Gram Sabha meeting was convenient, while 35% stated the venue was not
convenient for them. When asked, 77% of the participants replied that they
will participate in the next Gram Sabha meetings, while 23% expressed
disillusionment.
The above data reveal that about 25% respondents are not satisfied
with the present way of functioning of Gram Sabha. One reason may be
that the people have the feeling that once the representatives are elected, it
is their duty to make available everything for the pqople.
In order to know the respondent's opinion regarding the benefit of
participating in Gram Sabha meetings, several queries were asked. Of the
200 participants 24% expressed that they expected material benefits,
16%stated that there would be development in the wards, 8%said they could
involve in decision maldg process, 27% said that they could know more
about peoples planning and Panchayti Raj activities and functioning of
Gram Sabhas and 25% stated that participating in Gram Sabha meetings is a
useless exercise.
The data shows the attitude of the respondents towards the
functioning of Gram Sabha. Among the respondents, 35% could more or
less understand the real objectives of the institution of Gram Sabha. The
25% who felt that no purpose would be served by the Gram Sabha, also
indirectly agree that they expected material benefits, which were actually
denied to them.
With regard to the reason for not participating in Gram Sabha, 55.5%
respondents (non-participar~ts) stated that they could not participate due to
inconvenient day. Similarly 6.5% respondents expressed that they did not
participate as they had no interest. Fourteen and a half percent of
respondents pointed out that they do not get anything and also added that it
is a matter of wasting time. Due to political influence, 1.5% do not like to
participate in Gram Sabha meeting. But 21.5% respondents stated that the
conduct of Gram Sabhas was dominated by a group of pebple by virtue of
their position, economic status, and political support.
As regards the level of interest of non-participants in Gram Sabha
meetings towards the functioning of Gram Sabha, it was found that 56% of
the respondents felt that they would not be heard in Gram Sabha meetings,
while 44% said they would be heard. The data reveals that as some non-
participants find n? benefit in the functioning of Gram Sabha, they have not
yet formed any interest towards the institution of Gram Sabha. Many
people, especially the relatively well off, have the feeling that Gram Sabha
is the institution of socially and economically backward people. This may
be also the reason for poor participation of the reasonably well off sections
in Gram Sabha meetings.
With regard to the tune on which the respondents reach for the Gram
Sabha meetings, 66.5% respondents expressed that they reached in the
beginning of the meetin& 16% stated as they reached in the middle of the
meeting and 17.5% said they could reach only at the end of the meeting.
The investigator could observe 20 Gram Sabhas and found that no one was
started in time.
The participants in Gram Sabhas suggested measures to strengthen
the institution of Gram Sabhas both structurally and functionally. Among
the respondents, 20% suggested that the Panchayat members should be
above politics, 15.5% suggested that income should be the criteria for the
selection of beneficiaries and 15% suggested that beneficiaries should get
fund in time. Other 15% of the respondents, opined that decisions of the
Gram Sabha should be made final. Of the respondents, 12% suggested that
people should be aware of the Panchayat activities and functioning of Gram
Sabhas. Eight and a half percent of the respondents suggested that all the
concerned officials should participate in Gram Sabha meetings and 7.5%
respondents were in favour of direct election of Panchayat Presidents and
also suggested that the Prerddent should know all the affairs of the whole
Panchayat area.
The opinions expressed by the respondents are presented in tabular
and graphic forms also. The following table shows the number of Grama
Sabha meetings attended by the respondents. According to the data, 32% of
the respondents participatecl in one meeting 27.5% participated in two
Grama Sabha meetings, 14% in three meetings, 17.5% in four meetings, 9%
in 5 meetings and nobody participated in all the six meetings.
An inference can be drawn from the data that those who attended
once or twice do not like to participate again. It is understood from the
focus group that people don't like to participate in Gram Sabha meeting if
they don't get any m a t e d benefits.
Table 436
Gram Sabha Meetings Attended By the Respondents
I TWO 1 55 1 2 7 . 5 1
Gram Sabha Meetings
I Three 1 28 I 14 (
Six ----
Respondents
64
I All I 200 I 100pI
Percentage
32
I As a requisite of Panchayati Raj Act of Kerala, and as a part of
peoples' planning, there were six Gram Sabha meeting during 1996-1998
year. With regard to the query as to which Gram Sabha meeting the
respondent attended first, 5% stated that they participated in the 1st Gram
Sabha meeting itself, 53.5% participated in the 11"~ Gram Sabha, 13%
attended in 111'~ meeting, 2.1% participated in the V~ Gram Sabha meeting.
The data shows high participation in the llnd meeting. The lPd meeting was
conducted for People's planning. There was much publicity and campaign
to make maximum number of people participate in it.
Table 437
Gram Sabha Meetings in which Respondents Participated First
With regard to the level of involvement and participation of the
Gram Sabha
1st
Jhd
IIIrd
Nth
Vth
VIth
All
respondents, 29.5% said that they were silent observers, 51% said they were
active participants and 19.5% expressed that they just gave answers to the
questions asked in a mechanical fashion. Among the observers, 10.17% 1
were males, while 89.93% were females. Among the active participants,
81.37% were males, whik: 19.63% were females. Similarly, among those
who gave only necessaql answers to specific questions 71.79% were
females, compared to 28.21% males. When males were the active
participants females kept silence. .
Respondents
10.0
107.0
26.0
48.0
9.0
200.0
P e m tage
5.0
53.5
13.0
24.0
4.5
-----
100.0
Table 4 3 8
Respondents Level of Involvement and Participation in Gram Sabha Meetings by Sex
Respondents Participation
Silent Observer 6 (10.17) 53 (89.93)
I Active Participants 1 83 (81.37) 1 19 (18.63) 1 102 1 51.0 1
As regards participation in social activities of the non-participants in
Gram Sabha mektings, 83% respondents expressed that they were not
participants in any social activities while 17% expressed they were active
social workers. Of the 83'% non-participants, 52.41% were females while
47.59% were males. Among the activists, 61.76% were males, while
38.24% were females. 1
The table 4.38 indicates some relation between participation in Gram
Sabha meetings and involvement in social activities. Those who did not
participate in social activities also fail to do so in Panchayat level activities.
A l l Answers only 1 1 2 1 )
Table 4.39 Level of Participation in Social Activities by Sex
Percentages are given in brcrckefs
28(71.79)
100
1 Active Participation 1 21 (61.76) 1 13 (38.24) 1 34 1 17 1
Respondents
39
200
Total
Percer~tages are given in brackts
162
19.5
100.0
Non Participation 79 (47.59)
Level of Participation Female I No
87 (52.41)
YO
166
100 (50)
83
200 100 (50) 100
Table 4.40 indicates the participants' views regarding the ideal day
on which Gram Sabha meetings should be held. Of the respondents,
83.51% opined that the meeting should be held on holidays, while 16.5%
wanted to conduct the Sabha on working days. The investigator could
observe the fact that the number of participants in Gram Sabha meetings
was high on holidays.
Table 4.40
Respondents' Views Regarding the Ideal Day
Working Day 17-1 Day
Holiday
With regard to ideal duration of Gram Sabha meetings, 30.5%
respondents suggested 1- 4 hrs, while 28.5% suggested 5 - 7 hrs. Among
200 participants in Gram Sabha meetings, 22% and 19% suggested 7-9
hours and 1 day respectively: It is understood from the data that majority of
the participants wanted more time to discuss about the local affairs and felt
needs. The table 4.40 shows that 70% participants demanded 5 hours to 1
day for discussion. But it was observed that most of the Gram Sabhas lasted
maximum of 4 hours.
Respondents YO
167 83.5
Table 4.41
Respondents' Opinion Regarding the Ideal Duration of Gram Sabha Meeting
Respondents gave divergent views about ideal time for conducting
Gram Sabha meetings, Among the respondents, 81.5% expressed that the
ideal time is evening, while 18.5%expressed that the ideal time is morning.
The following table shows the detailed account of the data . The data reveal
that of the 18.5% respondents, 15% constitute males and 3.5% constitute
females. But 92% women expressed in favour of evening. It may be
because they would be more fiee in the afternoon.
Duration
One day
Table 4.42
Respondents Views On the Ideal Time For Conducting Gram Sabha Meeting
Respondents
61
57
44
38
200
Respondents Ideal Time
Morning 30 (15) 7 (3.5)
YO
30.5
28.5
22.0
19.0
100.0
Evening
All I I I I
70 (35)
I 100 (50)
93 (46.5)
lo0 (50)
163 81.5
200 100.0
4.7 PARTICIPANT OBSERVATION
In the study, participant observation was used with a view to
triangulating the information collected from the Panchayats.
The investigator observed 20 Gram Sabhas in the sample Panchayats
besides the 25 observed in: an earlier study. These twenty Gram Sabhas
were conducted for different purposes such as idenecation of needs under
the People's Planning for the Ninth Plan, presentation of the draft of the
plan project and for the selection of beneficiaries.
There were seven Gram Sabhas which started the meetings half an
hour late and thirteen Gram Sabhas which started meetings one hour late.
There was the then stipulated quorum that is fiftv in all the meetings. The
reasons found for delay in starting Gram Sabha meetings are delay made by
the people's representatives in reaching the venue in time and delay made to
arrange the hall and set the mike and seating arrangements.
There was specific agenda in the Gram Sabha meetings as directed
by the Planning Board. Even though the State Planning Board had
recommended minimum five hours it has been found that in 10 Gram
Sabhas it did not exceed three hours. But 10 Gram Sabhas took it seriously
and there were qualitative discussions in the subject groups. The
participants in Gram Sabhas which are convened for the People's Planning
programme are found comparatively educated and influential than the other
subsequent Gram Sabhas.
In all the Gram Sabhas there were Panchayat members present as
conveners. It was observed that Presidents and Vice-Presidents of the
Panchayats participated in sixteen and nine Gram Sabhas respectively. The
Secretaries of the Panchayats were present in eleven Gram Sabhas and other
officials of the Panchayats participated in nine Gram Sabhas.
There were registration counters in nine Gram Sabhas and this was
done quite systematically and in eleven Gram Sabhas no counters for
registration. It was observed that there were participants in all the Gram
Sabhas who did not register their names as they reached the venue late.
Some people were found eager to write their names in the Register when
the Panchayat members announced that those who register their names
would be selected as beneficiaries. There are persons who could not fill all
the columns in the Register such as name, caste, sex, occupation, age,
Scheduled Castes and Scheduled Tribes etc.
The investigator could see incomplete Registers in 18 Gram Sabhas.
The old aged and uneducated people found it difficult to fill up all the above
details. Nine Gram Sabhas used prescribed forms for registration while
others used only a book. As twelve Gram Sabhas took much time for
inaugural session offering felicitations, participants did not get enough time
for discussion which is the most important part of these meetings. In eight
Gram Sabhas resource persons were present and they explained the
development strategy. But in twelve Gram Sabhas Panchayat members and
other officials managed it. The researcher could observe Veterinary doctor
and Assistant Engineer in one and two Gram Sabhas respectively.
Unmarried women were generally not present in Gram Sabha
meetings. It was observed that, women where keeping silence in the
general session in all the twenty Gram Sabhas. Women were the only
members in the group of women's welfare. The groups of Scheduled
Castes and Scheduled Tribes consisted of members from that group only. It
was seen that members of general castes did not like to sit in the groups of
Scheduled Castes and Scheduled Tribes. Scheduled Castes and Scheduled
Tribes were often not aware of the fund, projects and other stages of the
planning. In two Gram Sabhas the Panchayat did not read the report of the
previous six months. In one Gram Sabha people raised their voice for the
non inclusion of the needs demanded by them. In two Gram Sabhas people
demanded to write the minutes of the meetings. It was also seen that in I
every Panchayat the Gram Sabhas were conducted on the same day during
the same time. In one Gram Sabha People prevented the President from
going to another Gram Sabha and they said that the President must hear
their needs and grievances. In five Gram Sabhas, people questioned the
inadequate publicity about the purpose of Gram Sabha meetings. In three
Gram Sabhas there were no subject groups and discussions and they did this
in the general session itself. In twelve Gram Sabhas there were group
discussions about different subjects. In the subsequent Gram Sabhas the
number of subject groups were reduced to eight from twelve. It was
observed that people were interested to be groups in, which seemingly are
beneficial to them. In seven Gram Sabhas the Panchayat members diverted
the people to the groups in which there was less number of people,
especially to the groups of health and education. In all the Gram Sabhas the
number of participants was high in groups of drinking water, agriculture,
energy, housing and women welfare. Because of paucity of fund Panchayat
members were reluctant to face the people of their wards, especially in the
First Plan Year.
It was observed that the number of participants in the meetings of
Gram Sabhas were not alike even in the same Panchayat. It mainly depends
upon the interests and effort of the Panchayat member towards Gram
Sabhas. The measures taken for publicity are almost the same. They used
mike announcement, notice, newspapers etc. In eight Gram Sabhas they
used the help of neighborhood groups for publicity. It was observed that in
the First Plan Year, the beneficiaries were selected through Gram Sabhas
during the course of meetir~gs. There were occasions that the undeserving
also were selected in that Gram Sabha. In five Gram Sabhas beneficiaries
were selected by showing hands, in one by lot method and in the other 14
Gram Sabhas by consensus.
In eleven Gram Sat~has there were complaints about selection of
beneficiaries. In six Gram Sabhas the names of the beneficiaries were read.
It was seen that all the Panchayats published the names of the beneficiaries
on the Notice Board in the Panchayat office. From 1999 on wards the
names of the beneficiaries were published in the Notice Board established
in different parts of the Panchayats.
During the discussions with the participants in Gram Sabha
meetings, it is understood that 95 percent of them attended to get some
benefits from the Gram Sabha. Regarding the kinds of participants, 95
percent constitute low-income group. Majority of the women participants
was from backward communities and daily wage earners. In 8 Gram
Sabhas participants had the experience of neighborhood groups and self
help groups. Up to the third Gram Sabha meetings, the women Panchayat
members were not able to lead and control the meetings and in such cases
they were helped by their husband and male counterparts, and in subsequent
Gram Sabha meetings, they were able to convene them in an orderly
manner.
For effective functwoning of any democratic institution or peoples'
organisation, it is necessary that members of the organisation meet
regularly, as frequently as necessary, and at a place and at a time convenient
to the majority of the members concerned. The important aspect of Gram
Sabha meetings are venue, timings, agenda, participation of people
especially women and other disadvantaged groups, identification of needs,
identification of developnlental schemes, monitoring and supervision of
projects and follow up of the meetings. Emphasis should be not merely on
the quantitative aspects, but also on the qualitative aspects, on the quality of
the deliberation. This may also require the re - examination of the norms
of size and area of the Grarn Sabha as both large size and area have been
found to be detrimental to the successful conduct of meetings.
The eligible members of ten Panchayats varies fiom 11,751 to
29,152. It shows the wide variation regarding population and area of the
Panchayats. The average size of the Panchayat is 18014
Table 4.43
The Eligible Members of the Ten Panchayats under study
Panchayats
Kanakari 15502
1 Maravan thumth 7703 1 1 15451 1 49.85 F7 1 50.15 1 Njeezhoor 13234 6509 49.00 51.00
Pallikathodu 117'75 5666 48.07 6085 51.62
Kanjirappally 26105
Kumarakom 15711 t--+ 13072
7559
Thidanadu 14233
Vazhappally 225 26
Vazhoor 16348
50.07
48.05
7417
10998
8011
88845
13033
8172
51.89
48.82
49.93
51.95
49.00
49.31
6876
11528
48.11
51.18
8337
91298
5 1 .OO
50.67
The following figure gives the idea of eligible members (voters), i.e.,
males and females in each I'anchayat at a glance.
Figure 4.6
Eligible Members in Sample Panchayats
4.8.1 First G r a m Sabha (March -April 1996)
Study about the working of Gram Sabhas shows that the fust Gram
Sabha was convened under pressure from the higher levels of
administration, after the assumption of office by the Panchayat members in
late 95 - early 96. There was one Panchayat in the sample that did not
conduct the fust Gram ~ a b h a . ~ The meetings called were mostly without
prior or adequate notice. Very few Panchayts convened the meetings with
prescribed quorum. In majority of the Panchayats, the first Gram Sabha
meetings were unsuccessful because of poor attendance. Since it was the
first experience, the representatives of the people (Panchayat members)
were also not aware and familiar with the purpose of such meetings. The
participation of women was nominal in many wards. No procedure for first
Gram Sabha meetings was specified.
Meetings started without any plan as no agenda was prepared in
advance. In the iirst Gram Sabha, proceedings of the Gram Sabhas were
not recorded properly. There was no follow up actions. At that time no
fund was allocated to Panchayats for development works. During the first
Gram Sabha meetings, n~embers of Gram Sabhas or even the elected
Panchayat members were not aware of the Ayalkkoottams or
neighbowhood groups. hi the fust Gram Sabha meetings, in most of the
wards, the decisions of the Gram Sabhas were not recorded. 1
The absence of women folk in the meetings of the fust Gram Sabha
was a common feature. The participation of people belonging to the weaker
sections was also minimal. No particular care was given to bring the
scheduled castes, Scheduled Tribes or women in the Gram Sabhas. The
general procedure adopted for notifying people about the Gram Sabha was
by announcing through written notice and affixing notices in the Panchayat.
The percentage of participants in f ~ s t Gram Sabha varied from 3 to 9. The
table shows that a Panchayat that has less number of eligible members can
sometimes have more participants in percentage terms and vice versa.
Going further deep into this aspect, the average number of male participants
in the fust Gram Sabhas was 534 and the female participants was 238. The
average number of eligible male members is 9872 and the eligible female
members is 10144.
Table 4.44
Attendance - Fit Gram Sabha
Figure 4.9 Provides a clear picture of the number of male and female
participants in different Piuichayats. There is not much variation in all the
Panchayats except Thidanadu of Meenchil Taluk. On the whole, the rate of
participation is very low in the first Gram Sabha. The interesting factor is
that there is a notable difference regarding the participation in the Gram
Sabha meetings of both the Kanakari and Thidanadu Panchayats of the
Participants
YO
3.04
1.87
0.00
4.53
1.72
1.14
2.22
' 7.58
2.35
0.48
2.35
YO
4.13
4.72
0.00
5.98
4.61
4.85
4.52
9.81
3.12
3.68
4.15
Male
76 1
580
0
570
579
583
3 96
88 1
432
562
5344
YO
5.23
7.89
0.00
7.54
7.52
8.96
6.99
11.88
3.93
7.02
6.01
Female
443
152
0
370
133
77
135
52 1
27 1
40
2142
same Taluk. The field study and observation reveal that political
differences where not aired in the first Gram Sabha meetings so as to cause
a disruption in the proceedings. If we take the case of Vazhappally
Panchayat, which is headed by a woman, it shows the lowest participation.
So, an inference can be drawn that political differences did not have any
influence in the participation rate of the first Gram Sabha. At the same
time, it also reveds that male Panchayat members could convene Gram
Sabha meetings more effectively than female representatives in the initial
stages. The participation in the three Panchayat presided over by women,
namely, Kanakari, Vazhappally and Vazhoor in the first gram sabha showed
a markedly low rate of 3.84 compared to 5.68 for Panchayat headed by
males. The study also reveals that the highest participation in Thidanadu
Panchayat is because of the overall better participation of women. In
Kanakari Panchayat, rate of participation of women was only 1.87 per cent
whereas in Thidanadu the rate was 7.58. Male particifiation does not go
down beyond a certain level. Hence where the participation of women
tends to increase, there is ii corresponding increase in overall participation.
The increase in participation rate was accomplished through enhanced
female participation. Here, the assumption that the rate of participation of
women in women-headed wards and Panchayats would be high is not
clearly evidenced. It can also be seen in Vazhappally Panchayat, which is
headed by a woman. An inference also can be drawn from the table that
better participation of women may contribute to increase in overall
participation. The rate of participation of female members is only 2.35. In
Kumarakom Panchayat, where the people had experience of Ayalkkoottam,
had d e d only second. It also reveals that the members of Gram Sabhas
were not aware of the in~portance of Gram Sabha meetings during this
phase.
Figure 4.7
Participants in First Gram Sabha
It is observed that even in the first Gram Sabha, in one ward,
members of the Scheduled Castes community participated in good number.
The leaders of the village revealed that almost all the participants were
beneficiaries of various IRDlP schemes and some had the experience of
meetings of ~ ~ a l k k o o t t o m s . ~ They thought that by attending the Gram
Sabha they would derive some personal benefits. The table clearly shows
that the attendance was very poor especially in the first Gram Sabha and
hence participation of people, in quantitative terms, is almost negligible.
The rate of participation in the ten Panchayats taken together is only 4.14
percent. Participation of women in the First Gram Sabha meetings was also
negligible, a mere 2.35 percent. Lack of neighbourhood consciousness was
partly responsible for low attendance in first Gram Sabha meetings.
4.8.2 Special Gram Sabha - Second Gram Sabha (October - November 1996)
The decentralised plan campaign initiated in late 1996, had enabled
most Gram Sabhas to secure the then requisite quorum of fifty, which does
not exceed 4 percent of the total membership in most Panchayats. Notice,
posters, mike announcement etc, were used for propaganda for the special
Gram Sabha. Unlike the fust Gram Sabha some participants of the special
Gram Sabha felt that the meeting was politicised. When people came with
genuine needs, persons belonging to the ruling party in the Panchayat
sometimes interpreted it as an affront. The special Gram Sabhas were I
conducted mainly on working days in order to ensure participation of
officials in the Gram Sabhi~ meetings. In special Gram Sabhas, subjects like
drinking water and roads elicited the most favourable response from people
attending in majority of i&e Gram Sabhas of Kottayam, Meenachil and
Kanjirappally Taluks. There was some sort of consensus on these issues
cutting across class and caste differences. Electricity and housing were
popular subjects in Gram Sabhas where there was a sizeable presence of
Scheduled Castes and Scheduled Tribes and IRDP beneficiaries.
Agriculture also attracted some attention particularly in some Panchayats
falling under Meenachil and Kanjirapally Taluks.
After the special Gram Sabhas many people complained that they did
not know about the Gram Sabha meetings. In the nomination of group
leaders of various subjects in the special Gram Sabhas, some conscious
effort was made in some Panchayats to propose names in a partisan manner.
In the special Gram Sabhas, most of the women participants were keen to
involve in the groups which discussed the issue of women and their welfare.
Women participants weIe more active in groups where there was a
preponderance of women. In the special Gram Sabhas, it was pointed out
that some of those who were trained at the district level were not competent
to undertake the task of explaining the purpose of the Gram Sabha. It is
also seen that in many wards, Gram Sabhas were held at the same time. So
the Panchayat members and resource persons could not participate in the I
meetings of other wards. Because the agenda set by the State Planning
Board, had to be completed first there was no time for open discussion by
the participants.
It was observed that the Panchayat Presidents or Vice-presidents,
Panchayat members and secretary could not attend meetings held in all the
wards because Gram Sabhas were held on the same day at the same time in
more than one ward in the same Panchayat. The Planning Board had
recommended that a full day should be devoted to the Gram Sabha
meetings. However not more than a half day was devoted by all the
Panchayats included in this study. It has also been found that in almost all
the Panchayats, it did not exceed more than three hours. Being a special
Gram Sabha, there was no report presentation, statement of expenses etc.,
which are expected in normal circumstances. The lack of time really
affected the quality and content of discussion. Although the Gram Sabha
discussions were to serve as the most important input into the planning '
process, many persons entrusted with the task of integrating these
discussions with the development report found them inadequate. In many
of these Gram Sabhas, expectations were raised by giving an impression
that as much as Rs. 2.5 to 5 crores would be given to Panchayats during the
Ninth Plan.
Identification of the felt needs of the people became the first step in
the decentralised planning exercise. It was accomplished by convening the
Gram Sabhas and ensurine maximum participation of people, especially,
women and other disadvantaged sections of the society in order to discuss
local development problenls. As part of the effort to ensure maximum
participation, squads of volunteers visited households and explained the
programme, preparatory meetings of mass organisations were held, and an
active propaganda campaign using posters, advertisements and involving all
branches of the media were resorted to. It is estimated that in Kerala,
around 3 million persons, participated in these Gram Sabhas, and of the
participants, about 27 percent were women.'
It is understood from the discussion with those who did not
participate in Gram Sabhas that they were not even aware of the existence
of the Gram Sabha as a body different from the Gram Panchayat, not to
speak about its role and functions. The interviews with the participants in
Gram Sabhas revealed that those who were aware of the role and functions
of the Gram Sabhas were not able to distinguish between the
responsibilities of Gram Sabha and the Gram Panchayat. Experiences show
that wherever methods have been used to increase the involvement of the
people, there has been remarkable change in the meetings of Gram Sabhas
in terms of increase in attendance of women, increase in the participation of - elected women members and number of Gram Sabhas with quorum. It has
also resulted in improvement in the quality of selection of beneficiaries,
improvement in the transparency in respect of the activities undertaken by
the village Panchayats, increase in the awareness of the officers and
concerned staff about its role.
Table 4.45
Attendance - Special Gram Sabha
Participants Panchayat
Kanakari 1 2072 1 13.37 1 1425 1 19.38 1 647 1 7.94 1
Male I I I I I I
%
Ettumanoor
Kanjirappally 149:2
Kumarakom 125'2
382
Female
1674 2.62
5.72
8.00
%
5.741 1292
1127
833
8.88
8.62
11.02
365
426
2.80
5.21
The attendance of special Gram Sabha meetings have shown that
there is marked difference in participation. As the table 4.45 shows the
number of participants in the special Gram Sabhas increased in some
Panchayats compared to the first Gram Sabha meetings. In the special Gram
Sabha meetings Maravanthuruth Panchayat of Vaikom Block recorded the
highest participation (21.950//0), which is also the highest in the District. In
the same Panchayat, rate of' participation of women was 18.37, which is I
more than double of the next highest of 7.94 registered in Kanakari
Panchayat. The rate of participation of men in the Panchayat is 25.56
percent. The wide variation in attendance between the first and second
Gram Sabha meetings could be attributed to the fact that there was greater
publicity work undertaken in the latter. The second Gram Sabha was
convened specifically to incorporate peoples participation in planning. In
Panchayats where single party domination exists, Gram Sabhas were held
with the party's social mediation, which prevented the emergence of
opposition in the Gram Sabhas.
Figure 4.8
Participants in Second Gram Sabha
The figure shows an upward jump in the number of participants in
Maravanthuruth Panchayat. It is evident fiom the figure that, of the ten
Panchayats, Njeezhoor has the lowest rate of participation in the special
Gram Sabha meetings. This could be because of the low rate of
participation of women in that Panchayat. Although the Gram Sabhas were
held in a structured way with centralised guidelines, often they became
forums to gain political mileage rather than serving the purpose of creative
planning. In two Panchayats, the investigator observed that people were
demanding an explanation from the secretory of the Panchayat for the
activities of the preceding six months, and protested against the inadequate
publicity about the Grama Sabha meetings. Since the secretaries were not
able to give suitable answer:<, the protesting members started shouting and
this even resulted in a pandemonium.
4.8.3 Third Gram Sabha. (April - May 1997)
After the special Gram Sabha meetings, it was observed that Gram
Sabhas were not really consulted in planning for the wards or Panchayats
even though they submitted the projects or plan schemes before the Gram
Sabhas. Almost all the Panchayat Committees prepared the plan projects
with the help of the task force. In many wards, even though the Gram
Sabhas were given time for discussion, suggestions were not taken properly.
Since most people attending the Gram Sabha meetings were not aware of
their role in the formula ti or^ of village plans, they attended the meetings
generally as silent listeners.
In some Panchyats, there was lack of expertise in the formulation of
the plan schemes. But with encouraging response from voluntary service of
the people at large, the hurdles were overcome. Some projects having
seasonal barriers had to be postponed for the next season. In the general
session, people voiced regarding the needs that are not fulfilled through the
schemes. In two Panchayats people mentioned that some schemes were not
at all necessary. For instance, in one Panchayat a notable allocation of the
fund was made to buy tractcrs and tillers. But that was not useful in that
ward there was no sufficient supply of water for paddy cultivation in the
ward. The members of tlie Gram Sabha demanded the schemes for
irrigation than tractors and tillers. Absence of Panchayat secretary and
other resource persons was also found in many Gram Sabhas. It was also
observed that in some Panchayats women were totally neglected and could
not find due place in schemes. It was also found that people were interested
to be in groups which appeared to be of some benefit to them. In two
Panchayats the projects were not submitted before Gram Sabha. Instead
information regarding each scheme was provided. In such Panchyats,
people could not see the project reports and in other two Panchayats there
were no subject wise groups.
As many Gram Sabhas took time for inaugural session, offering
felicitations etc., participants did not get enough time for discussion about
development plans. Where resource persons were present, development
strategy was explained in an effective manner. It is understood that powers
of Gram Sabhas for planning development works at the village level, they
are not extended beyond Panchayat committees.
Table 4.46
Attendance- Third Gram Sabha
If we are comparing the attendance of third Gram Sabhas with the
attendance of second, we can note some differences. As the third Gram
Sabhas were convened to acquire consent of the Gram Sabhas to the
projects already prepared by the Voluntary Technical Corps, people did not
show much enthusiasm in these Gram Sabhas. Some people voiced protest
against the non-inclusion 'of projects they suggested in the previous Gram
Sabhas in the annual plan of the Panchayat. I
The data shows a peculiar feature that the participation of both men
and women increased in Njeezhor and Pallickathodu Panchayats.
Vazhappally Panchayat also shows slight change upward. All other
Panchayats show decline in the overall participation. In third Gram Sabha
meetings, Kurnarakorn shows the highest participation of males (12.53% )
and Maravanthuruthu Panchayat shows the highest participation of females
(14.51% ). There is wide variation in the participation of females in the
Maravanthuruthu. The reason is clear that some people, especially women
are not interested in discussion of project reports that are seen by them as
not affecting them personally. Some people found such discussion boring
as it took more time. In many Panchayats major portion of time was used
for reading of the development strategy over which ordinary people did not
have the requisite knowledge and familiarity to respond constructively.
The following figure shows information relating to third Gram Sabha
meetings at a glance.
Figure 4.9
Participants in Third Gram Sabha
The Panchayat members have collectively evolved a formula to
manage Gram Sabhas with minimum information and restrict discussion in
the Gram Sabhas on subjects other than the plan schemes and plan related
activities in order to avoid conflicts and questions Panchayat members seek
to satisfy their constituencies by demanding their share of the plan fund and
projects and thereby prepare ground for criticism in Gram Sabhas.
4.8.4 Fourth Gram Sabha (August-september 1997)
The fourth Gram Sabha meetings were conducted especially for the
selection of beneficiaries to the fist year plan of the Ninth Plan. Many
members of Gram Sabhas said that sufficient propaganda was not given for
Gram Sabha meetings in advance. The presence of a large number of
people in the Gram Sabhas may be interpreted as going against the wishes
and vested interests of the conveners. There are Panchayats in which the
Panchayat members have collectively evolved a formula to manage Gram
Sabhas. Adjustments mi disagreements between Panchayat members
regarding beneficiw selection were common in most of the Panchayat
committees as each member demanded for their constituencies.
It was found that in two Panchayats people were not given details
about the criterion of selection of beneficiaries and not even collected their
,applications. There were cases in which even the neighbours of the
Panchayats members were not informed of the time and venue of Gram
Sabha. Some political leaders see Gram Sabhas potential vote banks and
behave in Gram Sabhas in such manner especially in selection of
beneficiaries.
Table 4.47 Attendance - Fourth Gram Sabha
Participants Panchayat
Ettumanoor 1064 3.65 616 4.23
Maravan thuruth
Participants Panchayat v T % Male % Female %
If we compare the attendance of the fourth Gram Sabha with other 3
previous Gram Sabhas the rate of participation of women is high in the
Kanjirappally 5406
Kumarakom 1026
fourth Gram Sabha. In some Gram Sabhas women participated in large
27.30
7.26
numbers and were demanding benefits. Many members of Gram Sabhas
20.71
6.52
especially women who hall not attended in the earlier meetings also were
1837
477
3569
549
seen in the fourth Gram Sabha meetings. As the Panchayat members found
14.09
5.84
themselves handicapped to meet the aspirations of the people of the Gram
Sabha, they did not want more than the required number to fill the quorum.
At the same time, some Panchayat members found directions of local
Administration Department regarding beneficiary selection as a blessing as
they found this as an opportunity to absolve themselves from criticisms of
malpractices in the selection of beneficiaries.
Figure 4.10
Participants in Fourth Gram Sabha
The figure 4.10 gives a reasonably clear picture of the participation I
in the fourth Gram Sabha. The highest participation of women in the fourth
Gram Sabha is seen in Kanjirappally Panchayat (14.09'). It may be
attributed to the reason that some Panchayat members made special efforts
to bring more people in Gram Sabhas. The lowest participation of women
is seen in Pallickathodu Panchayat. The highest participation of men is also
seen in the Kanjirappally Panchayat (27.30%). The lowest participation of
men is seen in Vazhapp:illy Panchayat (3.57%). In Vazhappally Panchayat,
in two wards, Gram Sabhas were conducted in other wards as they don't
have suitable and convenient venue. It has desisted even men from
participating in Gram Sabha meetings. The participation of males (1 1%)
and females (13.13%) is also showed decline in Maravanthuruth. From the
discussion with the people, it was understood that ward members were
interested to inform only those who were likely to be selected as
beneficiaries. That might have reduced the over all participation in the
Panchayat.
4.8.5 Fifth Gram Sabha. (April-May 1998)
The fifth Gram Sabha meetings were meant for the preparation of
plan projects for the second year plan of the Ninth Plan. It was observed
that in majority of the Panchayats, Projects were prepared by the Panchayat
Committee and in some I'anchayats the Committee sought the help of
Voluntary Technical corps. The Gram Sabhas were divided into groups on
the basis of subjects to be cliscussed. It was understood that the Panchayat
Committees were not ready to accept suggestions made by the Gram
Sabhas. The reason may be that they find themselves handicapped in the
matter of funds for development works.
Table 4.48
Attendance -Vth Gram Sabha
Participants Panchayat
Members
Ettumanoor
Kanakari 1364
%
5.48
10.55
%
4.92
8.80
Female
63 7
588
Male
797
776
%
4.36
7.22
According to the table, the second highest participation of women is
seen in the fifth Gram Sal~ha. Kumarakyn Panchayat shows the highest
participation (21.06%). If we take the case of fifth Gram Sabha,
Kumarakom had the highest participation of both women and men. In
many Panchayats people were found impatient during the time of reading of
development strategy of the Panchayat for the year as it took much time,
that the people interpreted it as not directly concerned with the ward. As
the report was prepared for the whole Panchayat, the people were not
interested to hear.
Panchayat
Kanj irappall y
Kumarakom
Maravan thuruth
Njeezhoor
Pallikathodu
Thidanadu
Vazhappally
Vazhoor
Participants
Members
2913
2958
1639
1031
565
824
2009
1796
16533
Female
90 1
1721
1007
346
23 5
206
1069
929
7639
%
6.91
21.06
13.00
5.11
3.86
3.00
9.27
11.14
8.37
%
11.16
18.80
10.61
7.76
4.81
5.77
8.92
10.99
9.18
Male
2012
1237
63 2
685
330
618
940
867
8894
%
15.39
16.36
8.20
10.52
5.82
8.33
8.55
10 82
10.01
Figure 4.11
Participants in Fifth Gram Sabha
Z o o -
4.8.6 Sixth Gram Sabha (September - October 1998)
The sixth Gram Sabha was conducted for the selection of I
beneficiaries. The mode oi'selection was completely different from the first
plan year of the Ninth Plan. The Planning Board and the Local
Administration Department declared various criteria for selection of eligible
persons as beneficiaries. But, some Panchayat members stated that such
criteria were hindrances to select the real beneficiary. For instance, a
widow gets concessions even though she is living in better circumstances.
At the same time, a poor woman who is in indigent circumstances gets
nothing. So the structure'd criteria often prevented humanitarian context-
specific considerations.
Table 4.49
Attendance -Wth Gram Sabha
The table shows marked difference in attendance in the sixth Gram
Sabhas. It is understood that h e members of Gram Sabhas are interested
only in personal benefits. So the quality of participation was not good even
though the quantity is comparatively good. It has also been seen that
personal efforts of the Panchayat members did contribute to greater
participation. The people of many Panchayats hardly see the Panchayat as
an agency for their welfare a!; they are given nothing in the Gram Sabha.
The highest participation of women is seen in the sixth Gram Sabha
meetings. Interesting fact is that Vazhoor Panchayat which never showed
better participation had good participation in the sixth Gram Sabha
(15.57%). The highest participation of men is seen in Thidanadu Panchayat
(17.24%). The following figure shows the clear picture of the rate of
participation of people in the sample Panchayats.
Figure 4.12
Participants in S i th Gram Sabha
If we take all the six Gram Sabhas held until 1998, the rate of
participation in the sample Panchayats varies from 4.14 percent to 9.72
percent. If we take into consideration the individual Panchayats, the rate of
participation in Ettumanoc)r Panchayat varies from 2.88 percent to 8.14
percent, whereas, in Kanakari Panchayat it varies from 3.88 percent to
13.36 percent. So a wide variation is seen in the same Pancahayat. In
Kanjirappally Panchayat the rate of participation varies from 4.53 percent to
20.07 percent. The difference is 15.54 percent. In Kumarakom Panchayat,
the variation between first and the sixth Gram Sabahas is 12.89 percent.
The variation between the first and sixth Gramasabha in Maruvanthuruthu
Panchayat is 17.35 Percent. But, in Njeezhoor Panchayat the difference is
assessed as 4.99 percent only. The Panchayat of Pallickathodu and
Thidanadu show the differences as 8.68 percent and 7.49 percent
respectively. In Vazhapally Panchayat the variation between the first and
sixth Gram Sabha meetings is 8.78 percent whereas , in Vazhoor Panchayat
the difference is 9.72 percent. Where a Gram Sabha meets it devotes time
almost exclusively to considering lists of beneficiaries and discussing
matters relating to works and contracts.
4.9 PARTICIPATION IN GRAM SABHA - GENERAL TRENDS
The following data regarding six Gram Sabha Meetings gives us an r
idea that there is high degree.of uneven participation in the Gram Sabha in
spatial and temporal terms at inter-block and inter-Panchayat level and also
within a single Panchayat.
The average participation per ward in the ten sample Panchayat
varies kom 79.88 to 181.85. It is seen that if we take the average
participation in individual Panchayat or the Panchayats as a whole,
Maravanthuruthu comes first. There are many reasons behind it; the density
of population and the number of unemployed persons are high in
Maravanthuruth Panchayat. The density of population also leads to high
rate of participation of women. For example, Maravanthmth and
Vazhappally Panchayats have high rate of women participation. The
deviation and the coefficxent of variation in Gram Sabhas meetings in 10
Panchayat regarding is shown in the above table. If we search the
consistency in participation in Gram Sabha meetings, Njeezhoor (27.74%)
Thidanadu (33.90%) and Ettumanoor Panchayat (34.75%) came first,
second and third respectively. Kanjirappally shows the least consistency
(53.74%) in participation in Gram Sabha meetings. A detailed account of
wardwise disaggregated data is given in the next chapter. But the following
table reveals that the density of population does not increase the rate of
participation in urban Panchayats. For example, Ettumanoor Panchayat has
the highest density but the rate of average participation is 102.27. The
lowest density (430.26) is seen in Kumarakom panchayatl*. It may be
because of the special geographical feature of the Panchayat. In
Kumarakdm higher participation of women contributed to over all better
participation.
' The low densitv of Kumarakom is on account of inclusion of the mangrove filled uninhabitable area in the total &a of the Panchayats. But in the inhabitable area the density much higher entitling it to be described as a Panct~ayat with high density of population.
TABLE 4.50
PARTICIPATION IN SIX GRAM SABHA MEETINGS IN TEN PANCHAYATS
Thidanadu
Vazhappally
Vazhoor
Total
9
12
10
107
1402
703
602
7470
1633
2231
1057
15852
726
2602
715
11953
933
1104
1375
15015
824
2009
1796
16533
1697
1549
2191
17524
7314
10198
7736
84347
1219.00
1699.66
1289.33
--
412.04
653.59
567.60
--
33.80
38.45
44.02
--
8.53
7.55
7.89
--
Table 4.51
Density of Population in Sample Panchayats
4.10 PARTICIPATION IN GRAM SABHAS REPRESENTED BY LEFT DEMOCRATIC FRONT AND UNITED DEMOCRATIC FRONT
Panchayats
Ettumanoor
Kanakari
Kanj irappall y
Kumarakom
Maravanthuruthu
Njeezhoor
Pallickathodu
Thidanadu
Vazhappally
Vazhoor
All the sample Panchayats are controlled either by Left Democratic
Front or by United Democratic Front. In our sample, five Panchayats are
Population
41,216
20,585
37,017
22,232
20,532
17,65 1
15,388
12,526
29,527
22,584
controlled by the Left Democratic Front and the five are controlled by the
United Democratic Front 1 % ~ uniformity is not seen in wards. In order to
Area (Sq. Kms.)
ppp
27.81
23.22
64.00
5 1.67
15.69
28.91
22.46
37.19
46.01
39.49
find out if there is any difkence in participation in either Left Democratic
Density
1482.65
886.52
578.39
430.26
1308.60
610.54
685.12
498.00
1358.81
892.00
Front or United Dem0crati.c Front controlled Panchayats the investigator
took 40 wards fiom Urdted Democratic Front controlled and Left
Democratic Front controlled Panchayats each. The following table shows
the wards in each Panchayat controlled by Left Democratic Front and
United Democratic Front. The Left Democratic Front consists the
Communist Party of India and Communist Party of India(M) and the United
Democratic Front consists Kerala Congress(M) and Congress(1).
Table 4.52
Wards Controlled by Left Democratic Front and United Democratic Front
Panchayats
I,m, IV, v, DZ Y XL xm
Kumarakom I I , I K N , v , w
Njeezhoor HI, IV, V 12&flmIx 11, m. IV. IX v. W. wI
I Thidanadu 1 1, IV, V, w, I n , m , ~ I
1 TOTAL I 40 I 40 -1
Vazhappally 111, vn , VIII, X, XII
11. In. IV
The following data shows the real participation in the six Gram
Sabha meetings. The total number of eligible members in the Left
Democratic Front headed wards is 65,472 and the total number of eligible
members in United Democratic Front wards is 61,646. In four Gram Sabha
meetings Left Democratic Front headed wards have higher participation and
in two meetings United Democratic Front headed wards have higher
participation. We cannot see much variation in participation in Left
I, IV, V, M
VII. VIII. IX
Democratic Front and United Democratic Front headed wards. The highest
(9.56%) participation in the Left Democratic Front headed wards is seen in
the fifth Gram Sabha meetings and the lowest in the third Gram Sabha
meetings. Regarding United Democratic Front headed wards, the highest
(9.44%) participation is seen in the Special Gram Sabha @I) meetings and
the lowest (4.50%) participation in the first Gram Sabha meetings.
Regarding first Gram Sabha meetings both Left Democratic Front and
United Democratic Front headed wards show poor attendance.
Table 4.53
Participation in Si Gram Sabha Meetings in the Left Democratic Front and United Democratic Front represented Wards
United Democratic Front Sabha
Participants Average Percentage
Figure 4.15 shows the differences in the rate of participation at a
glance. An inference can be drawn from the study that there are other
factors, which influence participation in Gram Sabhas than political
afliliations. The average number of participants in the Left Democratic
Front wards is 122 and that of the United Democratic Front wards 104. In
percentage terms the corresponding figures are 7.46 and 6.74 respectively.
Hence a slight increase over United Democratic Front, that is 0.72 is seen in
Left Democratic Front wards. It is understood from the study that both Left
Democratic Front and United Democratic Front are almost equally involved
in People's Planning Programme and in the functioning of Gram Sabhas.
Figure 4.13
Participation in Six Gram Sabha Meetings in the LDF & UDF represented wards
Gram Sabha Meetings +uoF %
4.11 PARTICIPATION IN GRAM SABHAS REPRESENTED BY MALE AND FEMALE PANCHAYAT MEMBERS
The investigator selected 3 wards represented by males and 3 wards
by females in each Panchayat in order know the differences in participation
levels if any. The following table 4.54 shows the selected wards.
Table 4.54
Wards Represented by Male and Female Panchayat Members
To find out whether there is any difference between male represented
and female represented wards with regard to participation in Gram Sabha
meetings, the investigator selected 30 wards on the basis of stratified
random sampling procedure from each category. Total eligible members of
Gram Sabha in 30 male represented wards is 49323 and total eligible
members in 30 Gram Sabhas of wards represented by women is 48334. The
table 4.55 shows higher participation in the fourth (8.05%) and fifth
(9.35%) Gram Sabha meetings in women represented wards than men
represented wards. But in the fust, second third and sixth Gram Sabha
Panchayats
Ethmanoor
Kanjirappdy
Kumarakom
Maravanthuruth
Njeezhoor
Pallickathodu
Thidanadu
V ~ ~ P P ~ Y
Vazhoor
Total
Number of Male Represented Wards
I, IV, VI
III, IV, VI
I, 11, Iv
I, 11, IV
I, III, V
1, w, v I, 111, VI
II, 111, IV
I, 11, Iv
I, 11, VII
30
Number of Female Represented Wards
11,111, V
I, 11, v 114 Q x 114 V, VI
11, N, Vl
11, 111, VI
11, IV, V
1, v, DL 111, v, DL ID, W, V
30
meetings participation in the wards held by males exceeded that of females.
This study reveals that women's participation is gradually increasing in
Gram Sabha meetings especially when selection of beneficiaries in People's
Planning programmes is; undertaken. Regarding male represented wards,
the highest rate shown is 9.55% and in female represented wards the highest
rate shown is 9.35%. Ille difference between the two maximum is 0.2%
only. If we take into account the minimum participation in both male
(4.27%) and female (4.08%) represented wards, the differences is only
0.19%. It is understood &om the study that in certain circumstances,
women can exceed men in participation. It depends upon various factors
such as the purpose of Gram Sabha meetings, seasonal changes, time of
Gram Sabha meetings (morning /afternoon), publicity, awareness of people
regarding Gram Sabhas, interests of Panchayat members, density of
population, availability of services of voluntary organisations, presence of
neighbourhood gfoups, self help groups etc.
Table 4.55
Participation in Male and Female represented Wards in Six Gram Sabhas
Pnrtieipntion in Average num'er Of Percentage Female number Of percentage
rep~sented Pmehnynt wards per \Yard wards per Ward
Total wards 30 each
Total eligible Members ink Male represented wards : 49323
Total eligible Members in1 Female represented Wards : 48334
Thg average partncipation in 30 male represented wards in one
meeting is 124.18 and the average participation in female wards is 113.86.
The difference between the two is 10.32. The average percentage of six
Gram Sabha meetings in male represented wards is 7.56 and female
represented wards is 7.05. The difference between the two is 0.51 per cent.
So the data does not show any significant difference in male represented
and female represented wards.
Figure 4.16 gives us the clear picture of the rate of participation in
the Gram Sabha meetings in 30 male and 30 female headed wards in six
Gram Sabha meetings conducted.
Figure 4.14
Participation in Male and Female Represented Wards in Six Gram Sabhas
, M a l e H Female I I
I
4.12 CONCLUSION
The study reveals that there is wide variation in the participation of
the Gram Sabha meetings between wards within a Panchayat, between
Panchayats and between different Gram Sabha in different wards. In some
Panchayats, some wards have registered good participation levels.
However, this also does not show consistency. Women's participation has
increased generally in later Gram Sabhas, especially in those dealing
exclusively with beneficmy selection. The poor and backward classes as
well as some of the close supporters of the Panchayat member constitute the
majority of participants. The study reveals that there is no significant
difference between wards held by the Left Democratic Front and the United
Democratic Front. It has been found that the effective functioning of Gram
Sabhas mainly depends upon factors like leadership, transparency in
functioning, accountability, credibility, service- mindedness, responsiveness
to the aspirations of the people, co-operation among Panchayat members,
generosity, dedication to duty, and caliber of the Panchayat members.
NOTES AND REBTRENCES
During the time of the 1991 census there were six municipalities in Kottayam district, \'iz, Palai, Erattupetta, Vaikom, Changanasseny, Kanjirappally and Kottayam. The inclusion of Erattupetta and Kajirappally in the list of municipalities was later cancelled), eleven Development
Blocks and 73 Panchayats.
The memorial which was presented to the Maharaja Sri Moolam Thirunal, was drafted at a public meeting held in Kottayam Public Library. The event marked the beginning of modem political movements in Travancore.
In Travancore, untouchables were not only denied entry in to temples but also access to temple roads. The Vaikom Satyagraha sought to secure the public road in front of ancient Siva temple in Vaikom open to
untouchables. Later, in 1937, the Maharaja of Travancore issued a Royal Proclamation known as Temple Entry Proclamation by which the doors of state temples were opened to all Hindus irrespective of caste or creed. The Vaikom Satyagraha as a part of the movement for eradication of untouchability is remembered as an important event of the freedom movement
The Nivarthana agitation of early thirties demanded representation for non - caste Hindus, Christians and Muslims in the State Legislature of Travancore
District National 1nform;itics Centre
Kanjirappally Panchayat did not conduct the first Gram Sabha.
Researcher observed this during the earlier studies in Athirampuzha Panchayat, especially in Nalpathimala.
People's Campaign for ninth plan in Kerala: An introduction, State Planning Board 1997, Tnvandmm.