(a) Whether the Government has conducted any evaluation about the
role of women representatives in the panchayats and also about the
utilization of the quota reserved for them;
(b) if so, the details thereof; and
(c) the measures proposed to make their participation effective?
MINISTER OF THE STATE IN THE MINISTRY OF PANCHAYATI RAJ (SHRI MANI SHANKAR AIYAR)
(a) to (c): A statement is laid on the Table of the House.
STATEMENT REFERRED TO IN PARTS (a), (b) & (c) OF LOK SABHA STARRED QUESTION No. 290
DUE FOR REPLY ON 19.03.2008 REGARDING WOMEN REPRESENTATIVES IN PANCHAYATS.
(a) & (b): In order to gain a scientific understanding of the progress made and the
challenges still to be overcome regarding the representation of women in Panchayati
Raj institutions in the country, the Ministry of Panchayati Raj has commissioned AC
Nielsen ORG-MARG to carry out a nationwide survey on this subject under the guidance
of Prof. Niraja Gopal Jayal of the Jawaharlal Nehru University and an Academic Advisory
Committee comprising intellectuals, Secretary, Panchayati Raj and a representative of
the National Institute of Rural Development, Hyderabad. The compilation of the survey
findings and preparation of the report is in progress. The report is expected to be
tabled in Parliament in April.
Since 1993, when the Constitution (73rd Amendment) Act, 1992 came into effect, 1/3rd
of the seats and leadership positions at all three tiers of Panchayats have been reserved
for women, in consonance with the provisions of clauses 2 and 3 of Article 243 D given below:
Article 243 D:
(2) Not less than one-third of the total number of seats reserved under clause (1)
shall be reserved for women belonging to the Scheduled Castes or, as the case may
be, the Scheduled Tribes.
(3) Not less than one-third (including the number of seats reserved for women
belonging to the Scheduled Castes and the Scheduled Tribes) of the total number
of seats to be filled by direct election in every Panchayat shall be reserved
for women and such seats may be allotted by rotation to different constituencies
in a Panchayat.
However, it is seen that the actual representation of women in Panchayats has
progressively increased over the three rounds of elections since the 73rd Amendment
came into force and often exceeds the mandatory 1/3rd proportion. According to the
latest available information received from the states, the total number of elected
representatives is 28,20,707 and of these 10,37,621 i.e. 36.79%, are women, as
detailed in Annexe-I. Women have contested and won a significant number of unreserved
seats. In Karnataka, it is seen that the percentage of women elected amongst SCs,
STs and even in the general category is higher than their mandated share. Of the SC
representatives elected to the Gram Panchayats, 46.2% are women and amongst the STs
they are 65%. Overall, women comprise 43% of the elected representatives in this State.
Some States have also mandated reservation for women in excess of the 1/3rd proportion
prescribed in Article 243 D of the Constitution. For instance, Bihar and Madhya Pradesh
have reserved 50% seats for women in all the three tiers of Panchayats, while Sikkim
has reserved 40% of the seats. The states of Himachal Pradesh, Chattisgarh, Uttrakhand
and Rajasthan have recently announced their decisions to enhance the reservation for
women in the Panchayati Raj Institutions to 50%.
Women representatives face both gender neutral problems faced by all Panchayat elected
representatives as also special problems on account of their gender. The special problems
faced by women elected representatives include: (a) lack of experience in political
administration and knowledge of Panchayati Raj Act and Rules. Illiteracy compounds the
problem; (b) gender prejudice from predominantly male officials and staff of PRIs as
also male elected representatives, who often obstruct women from effective participation;
(c) given lingering prejudices against women in society, the greater likelihood of being
treated as representatives who are proxy for male relatives; (d) limitations in mobility
and articulation, as compared to men;(e) work environment not being conducive for women
with non existent Panchayat Ghars,lack of toilets and other facilities.
The Ministry is working with State Governments to ensure that in the Panchayats and
Gram Sabha steps are taken to ensure the meaningful empowerment of women. These include:
(1) formation of Mahila Sabhas (or equivalent) to facilitate women`s concerns and priorities
being raised in meetings of Gram Sabhas and Ward Sabhas; (2) having separate quorum for
women`s participation in Gram Sabhas and sub-Gram Sabhas; (3) building linkages between
Panchayats and women’s Self Help Groups (SHGs); (4) provision of women’s component plans
in the budgets of the PRIs; (5) extending the reservation cycle for women to more than
one term; (6) removing the discriminatory condition of two child norm applicable in some
States.
Recognizing the need for training of EWRs in order to improve their capacity for
effective performance, the Ministry has extended financial support to the States
for holding training programmes. As per available data from states, 89,570 women
representatives of PRIs have been trained in 2004-05, 96,800 women in 2005-06 and
1,46,505 women representatives in 2006-07.
To further support the empowerment of elected women representatives, a Central Sector
Plan Scheme titled Panchayat Mahila Evam Yuva Shakti Abhiyan has been launched by the
Ministry of Panchayati Raj. Panchayat Mahila Shakti Abhiyan that is one of the components
of the Scheme and includes the following:
i) State level, divisional and district level sammelans of EWRs that provide a
platform for the EWRs to articulate their concerns and highlight their problems.
After deliberations during the Sammelan, the EWRs formulate a charter of issues
to be mainstreamed into policy and advocacy support in their State so that these
are addressed by the process of development in the State;
ii) training and sensitization programmes for EWRs to equip them with the knowledge
and skills required for effectively discharging their functions. These training
programmes would cover aspects like participatory and leadership skills, record-keeping
and accounts, information about government schemes and procedures, legal rights etc;
iii) Funding of State Support Centers, to support the elected associations of EWRs
which would serve as knowledge support and resource institutions.
The States of Rajasthan, Punjab, Karnataka, Uttranchal, Manipur, Goa, Sikkim,
Chattisgarh, West Bengal, Arunachal Pradesh, Madhya Pradesh, Andhra Pradesh,
Maharashtra (Vidarbha Region) and Bihar have already organized the State Sammelan
of Panchayat Mahila Shakti Abhiyan (PMSA). The other States are likely to hold
the same in the near future. Chattisgarh and Haryana have also held District level
Sammelans. States where the PMSA Sammelans have already been held will shortly
commence training programmes for EWRs.