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.