Artha-Journal of Social Sciences

2017, Vol. 16, No. 2, 23-38

ISSN 0975-329X|https://doi: 10.12724/ajss.41.2

Participation of Women for the

Development of Civil Society: A Study
among Women Representatives in Local
Governance

Raheena P A* and Sara Neena T T†

Abstract

Political Participation and grass root democracy have

been strengthened considerably by the 73rd and 74th
Constitutional Amendments that have created new
democratic institutions for local governance by giving the
opportunity to women in the local administration. Indian
Government raised reservation for women in all tiers of
the panchayat raj system from 33 to 50 percent. An elected
women representative needs the requisite social space in
order to effect and experience the changes that she
desires. The involvement of women in the development
process is not merely a matter of equality but a necessity
too. This study attempted to assess the involvement of
women representatives to the development of weaker
sections of society, especially women and children. This
study was conducted in village panchayats under Cherpu
and Ollukkara blocks in Thrissur district. Simple random
sampling technique was adopted for selecting the sample
of fifty elected women representatives and data collected
through structured Questionnaire Method.
Keywords: Women Representatives, Local Governance, Civil
Society, Good governance, Political empowerment

* St.Teresa‟s College, Ernakulam, Kerala, India; rahi.tsr@gmail.com

† Vimala College, Thrissur, Kerala, India; sneej11@gmail.com

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Artha-Journal of Social Sciences, Vol.16, No. 2 ISSN 0975-329X

Introduction

The73rd amendment was introduced as a strategy to empower

women by giving them the opportunity to participate in the
decision making the process at the grassroots level. Political
empowerment of women and their active participation in local self-
governance bodies should not be based on “luck” factor. This
massive participation of women in local governance allowed them
not only to enter intopolitics but gave them a greater presence
within the public life. The political participation in local
governance helps the women to bring about change in the society.
Constitutional efforts are helpful to strengthen and consolidate
them for meaningful empowerment. The question is whether an
intervention like the constitutional amendment can ensure
women‟s empowerment or whether the patriarchal structures,
manifested in the household and the state, will continue to
dominate. Recent legislative measures have made possible the
greater participation of women in local government. However,
there are structural and other constraints which keep women from
actively participating in the administration (Manu Bhaskar, 1997).
Political participation is one of the major ways to ensure women‟s
empowerment, to increase decision-making power and greater
ability and to influence matters that affect their lives in the
community and the larger society. In the broader sense,
participation in politics goes far beyond electoral politics, such as
voting and election to public office. Women‟s empowerment begins
with their consciousness - perceptions about herself and her rights,
her capabilities and her potentials, awareness of her gender and
socio-cultural, economic and political forces that affect her (Reema
Mukherjee, 2008).
Gender empowerment is determined by the degree to which
women and men participate actively in economic, professional and
political activity and take part in decision-making. Women's
political participation was hindered by a system of social relations
in the male-dominated society, reflecting the orthodox male-centric
mentality and religious fundamentalism. Only men were
consistently educated and trained for leadership, while very few
rural women had the opportunity to pursue their education

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Saraand Raheena Women for the Development of Civil Society

because of tradition. Gender Empowerment is essential for the

sustainable development of a nation. Women force in a country
should transform into an active human resource. For the family,
society and country to have a bright future it imperative that the
women are empowered. Pandit Jawaharlal Nehru had said that “to
awaken the people, we should first awaken the women, because
once a woman has been awakened then the whole nation and
family gets awakened with her”.
Reserved seats or affirmative action to ensure women‟s political
representation is an important step in democratising and
engendering local governance. However, the mere presence of
women does not guarantee the quality or effectiveness of their
participation, that their voices will be heard in critical decisions, or
that concerns of women electorates will automatically be
championed. Many women elected to local government on
reserved quotas are new to the public sphere of politics,
inexperienced with governance institutions, and unfamiliar with
procedures and protocols of formal meetings. Anne Philip (1995)
analysed distinction between the politics of ideas and the politics of
presence. The politics of ideas considers accountability in relation
to declared policies and programs and sees the sex or race of the
representative as a matter of relative indifference. In the politics of
presence, by contrast, the gender or ethnic composition of elected
assemblies becomes a legitimate matter of democratic concern.
Mahatma Gandhi also believed that full and balanced development
of the nation and establishment of a just society is possible only
when women participate actively and fully in the political
deliberations of the nation. The Balwant Rai Mehta Committee on
Panchayati Raj System emphasised that rural women should not
become mere beneficiaries of development but should be made
equal partners in its affairs as contributors.
Discriminatory practices, social norms, and cultural perceptions
that women are not well suited for leadership and decision-making
positions, combined with family and child-care responsibilities,
discourage and limit women‟s involvement in politics. Women‟s
limited participation in political decision making acts as a barrier to
making policy and service delivery more responsive to women‟s
needs and more accountable to women. It is now widely
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Artha-Journal of Social Sciences, Vol.16, No. 2 ISSN 0975-329X

recognized that women‟s representation and voices in decision-

making bodies—as leaders and participants—can contribute to
changes in laws, policies, service delivery, cultural perceptions, and
social norms.
Elected women representatives emphasise priorities that are
different from men members, although these priorities largely
remain within the framework of development (i.e., access to basic
amenities and infrastructure). Such priorities at best serve women‟s
practical gender needs and not their strategic gender interests.
Practical gender needs are immediate perceived needs identified by
women such as water and healthcare, which fall within their
socially defined roles. Meeting these needs does not necessarily
involve challenging women‟s status in society or a focus on gender
equity. It approaches to transform gender relations and change
women‟s position in society rather than only improve their
condition.
Itis commonly believed that women representatives are more
approachable and that the problems of women, in particular, are
now being addressed. “Once women came into office, other women
would open up to them.” Women excel in dealing with grassroots
issues within the community compared to men who do not see it as
important to concentrate on domestic and women problems. Any
social evils directly affect women and children first.
Personal and work-related challenges can influence women‟s
capacity to carry out their public responsibilities as elected officials.
Personal challenges can include a low level of education, lack of
support from husband and family members, lack of confidence,
and role conflicts while managing both household and public life.
Critical work-related challenges include lack of knowledge and
understanding about their role as elected officials, navigating the
operational procedures, limited facilitation and advocacy skills,
lack of information about meeting procedures and protocols, and
lack of support from male colleagues.
Gender analysis includes information on women and men, girls
and boys in terms of division of labour, roles and responsibilities,
access to and control over resources, and their relative condition
and position in society. It also involves looking at other norms for

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Saraand Raheena Women for the Development of Civil Society

how gender may be expressed, including norms relating to

sexuality and identity (Swedish International Development
Cooperation Agency, March 2015) Gender budgeting is a tool
which can be used to aid women‟s empowerment. In order to do
this, the government is addressing gender issues through public
expenditure. It must ensure it allocates certain amount of the
government‟s budget to male, female and children to ensure
gender equality.
Women‟s participation feminises politics rather than be a part of
men‟s stream. Gandhi played an important role in motivating
women in participate in the freedom movement and political
process. He saw women as a potential force in the struggle to build
a new social and political order. Gandhi quoted that “If non-
violence is the law of our being, the future is with women”.
Female reservation quotas have led to increasing the numbers of
women representatives in local government bodies, these women
require capacity development, leadership skills, and strategic
support to fully exercise their power and truly represent the
constituency they serve.
„Family Consent” is a factor crucial for their Political participation.
Women are also allowed to participate when their men are
involved in a struggle. The 73rd Amendment was introduced as a
strategy to empower women by giving them the opportunity to
participate in the decision making process at the grassroots level.
There is a great need for the community to participate more
meaningfully in the governance process and also for the
institutions to have spaces for economic planning.

Political Participation of Women in India

The root to the participation of women in politics can be traced
back to 19th-century reform movement. The early 19th-century
social reforms and educational programmes initiated by various
social reformers dealt with the social evils prevalent in the society.
As early as 1917 Indian women raised the issue of representation in
politics, which at a time meant a demand for the universal adult
franchise. Post independence, women continued to play a
significant role in less conventional political activities such as

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environmental movements, peace movement, anti-alcohol

movement, which equally affect power relationships as they have
the capacity to influence the state. Politics proved to be an
inhospitable terrain for women and continues to be male dominant.
The Government of India has declared the year 2001 as the year of
empowerment of women.
The Indian government has raised reservations for women in all
tiers of Panchayati Raj system from 33 to 50%.The Union Cabinet
presided over by Prime Minister Manmohan Singh, cleared a
proposal to amend Article 243(D) of the constitution for this
purpose on August 27,2009.The median citizen in most
democracies is female, and that the interests of women traditionally
have beenunderrepresented, it is reasonable to expect that women‟s
interests should reflect government policy and procedures(Hanna
Pitkin,1967). With an aim to overcome issues of discrimination and
violence, women's organisations have focused on
the empowerment of Indian women. Empowerment is tied to the
support of family and improved status within the household.
However, it is undermined by the threat of so manySocio-economic
conditions.Inability to understand the rules of Panchayat Raj
undermines the self-confidence of women to participate in public
office (Prayaga Rai, 2014)

Women in Local Self-governance - Kerala

Kerala has a high percentage of highly qualified or educated
women and yet there is relatively space for women leadership and
empowered roles and fewer articulate voices in public and private
life. Fifty percent reservation for women in local bodies has enabled
women representatives to have an impact on bringing forth
positive and qualitative changes within Kerala Society. Efforts to
mainstream women in politics must be a continuous process.
Kerala experience shows that in-depth and continuous capacity
development programs targeting elected women representatives
should accompany their affirmative action. The rapidly changing
scenario seems to have important implications for gendering
governance in Kerala.
They are welcoming women into office. But still, they face several
hurdles and anti-woman customs, interference from party

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Saraand Raheena Women for the Development of Civil Society

politicians and other male counterparts, backseat driving,

inexperience and having no direct relation to society. Women can
only go for this role when they have family support. It not like
other jobs. More active social life increases general awareness and
confidence in them. (Radha. S and Bulu Roy Chowdhury, 2002)
The potentials of local government institutions can be realised more
effectively where there aredecentralisation and devolution of
powers. Accountability, transparency, participation,
empowerment, equity and all other attributes of good governance
can be in full play and become a part of the daily work of both the
government and local government bodies when decentralisation
and devolution take place. Women‟s enhanced participation in
governance structures is viewed as the key to redress gender
inequalities in societies. One of the important reasons why women
have not received adequate benefits from years of planning and
development was their inadequate representation, non-
participation and non-involvement in the preparation and
execution of plans for their economic development and social
justice through decentralised institution (Shamim Ishrat and
Kumari Ranjana, 2002)
Swetha (2008) in her work on “situating Indian Women” argues
that no political party wants the risk of fielding a „housewife‟ who
is neither seasoned nor mentally prepared for a hectic political life.
In comparison to men, the “win-ability” factor is very much low in
case of women candidates. It is commonly believed that women do
not succeed in winning a seat except when they carry the banner of
some popular male figure.
G. Palanithurai and Asokkumar Mittal (2004) in their work
„Dynamics of New Panchayathi Raj System in India empowering
Women” explains the positive indicators of women‟s participation
as the experiences of Kerala shows that attempts to bring about
effective and good governance. If good governance is about equity
and equality, gender and gender equity has to be major concerns in
development. The final control over resources and the decision-
making capacity is still with men. Kerala has taken a step in the
right direction, but it needs conscious intervention to progress
further.

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Public-Private Domain Theory

Vicky Randall (1987) observes ideologically to justify women‟s
exclusion from public politics while women‟s actual confinement to
narrow domestic areas has been major break upon effective
political participation. Public-private convention has masked the
crucial interdependence of these spheres. Not only women‟s
private roles but public policies have confirmed their private
obligations.

Significance of the Study

The 73rd and 74th Constitutional Amendment Acts provide an
opportunity for women‟s entry into political spheres. The 73rd
Constitutional Amendment Act is an important landmark in the
history of Indian women‟s participation in the formation of
democratic institutions at the grassroots level. The reservation in
Panchayats has provided for the erosion of the traditional gender,
caste, class roles and hierarchy but it is a long and difficult process.
Women not only have to fight for their right to be more than proxy
members but also to break the many other barriers. There can be no
real progress if women of a country are not made partners in this
process of development. Women‟s political empowerment and
equal representation in all decision-making institutions are critical
inputs in their struggle for freedom from patriarchal subjugation.

Objectives

1. To analyse the socio-economic and political profile of

women representatives in local governance.
2. To assess the involvement of women members in the
development process.
3. To evaluate the role of women representatives in addressing
the needs and issues related to women, children and weaker
sections
4. To find out the problems and challenges faced by these
women group.
This study descriptively focused on women representatives in
different Grama Panchayaths under Cherpu and Ollukkara blocks

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in Thrissur District. The study analyses the role of women members

in the local development and upliftment of weaker sections. The
study also focuses on challenges faced by them.
Fifty women elected representatives for the period 2010-2015
formed the sample population for the study. Samples were selected
through simple random sampling method.

Findings

Socio-Economic and Political Profile

The mean age of the respondents is 39.This finding was supported
by the study conducted by Manikyamaba (1996) in Andhra
Pradesh observed that the extent of participation of the young and
the middle age is more than that of old age. Seventy percent of
them completed S.S.L.C. Seven out of ten were Hindus. A great
majority (83%) were from the nuclear family set-up. Eighty percent
of them were from middle-class families. Nine out of ten expressed
that their husbands are the biggest support for their political
activities. More than three-fourths opined that children are also
giving moral support to them, while ten percent revealed that their
children were not cooperating to perform their role as a member.
More than sixty percent of them have no prior political experience.
The use of electoral gender quotas challenges our ideas and
theories about the relationship between women„s political
representation and their socio-economic position, since quotas may
lead to unprecedented historical leaps in women„s socio-economic
positions (Dahlerup, 2006). Shvedova (2005) opined that socio-
economic environments play a substantial role in women's political
Participation. The social and economic status of women in society
has a direct influence on their participation in political institutions
and elected bodies.

Participation in Local Development

In this study, seventy percent expressed that their wish to involve
in village development motivated them to contest in elections. Ten
percent contested the election due to non-availability of women
candidates. More than eighty percent are active in frequent local
visit and spend most of the time for panchayath activities. More

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than ninety percent are accurate in attending Panchayath

committee meetings.
Table 1 Involvement in different decision-making areas.

Sl.No Area High Medium Low Total

1. Employment 8(16) 12(24) 30(60) 50(100)
assistance
2. Basic needs(house, 39(78) 11(22) - 50(100)
water, toilet)
3. Infrastructure 21(42) 19(38) 10(20) 50(100)

The above table shows women members could contribute more to

the fulfilment of basic needs (house, house up gradation, drinking
water, sanitation facilities etc.) of local people. The great majority of
(78) the respondents have taken an active role in fulfilling the basic
needs of the local people. Nearly one fifth (16) play a significant
role in providing employment opportunities to the public.
In this study, less than half (43) opined that they got very fewer
chances to express their ideas and thoughts in major decision-
making process. Seventy percent (70) revealed that there was only
partial acceptance of their statements and demands. More than half
percent of them argued that the tag as “women” worked as a
barrier for the opinion to be accepted.
Table 2 Various Obstacles in the process of policy implementation

Sl.No Obstacles Agree Neutral Disagree Total

1. Lack of sufficient 25(50) 12(24) 13(26) 50(100)
fund
2. Non-cooperation 13(26) 12(24) 25(50) 50(100)
from officials and
opposition
3 Lack of awareness 18(36) 14(28) 18(36) 50(100)
and coordination
4 Corruption 11(22) 15(30) 24(48) 50(100)

Half of them opined that lack of sufficient fund makes problems in

implementing projects.

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Nearly forty percent of the sample population expressed that lack

of awareness about the system and coordination of activities are the
main hurdles while implementing developmental projects.
The concept of women empowerment refers to giving women
maximum participation in decision-making process and power-
sharing in the representative bodies, employment, access to
property, productive assets, common land and financial assets
etc.(Hatim,2001)

Upliftment of women, children and weaker sections

The presence and participation of women in local governance
structures also does not guarantee that the issues of women are
concerned about and those that underlie social injustices will be
taken up and addressed by PRIs
The study found out that seventy-six percent agreed that they
worked for the upliftment of the socially-economically weaker
sections of the society (SC, Minority, BPL families, Widows
etc.).Only six percent could contribute to the child development
activities. More than sixty percent expressed that most of the
women in their area suffer from economic problems. Many of the
women in their areas do not have proper housing and other related
facilities.
More than eighty percent agreed that PRI and Kudumbasree play a
vital role in building leadership qualities and self-confidence in the
women of rural areas. A good proportion of them agreed that
women in public life need to have special skills to analyse
budgetary provision in favour of empowerment of women. Most of
them said that economic backwardness is the main issue that hits
the lives of women in their locality. A great majority are not
satisfied with their own performance in child welfare schemes.

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Table 3 Problems faced by Women and children in their locality

Sl.No Problems of women High Medium Low Total

and children level level level
1 Nutrition for children 20(40%) 25(50%) 5(10) 50(100)
2. Ill-health of women 20(40%) 19(38%) 11(22%) 50(100)
3 Maternity related 7(14%) 15(30%) 28(56%) 50(100)
issues
4 Infantmortality - 9(18%) 41(82%) 50(100)
5 Sexual attack on 15(30%) 13(26%) 22(44%) 50(100)
women and children
6 Alchaholism of male 17(34%) 23(46%) 10(20%) 50(100)
bread winners
7 Dowry related issues 17(34%) 22(44%) 11(22%) 50(100)

Forty percent of them opined that women in their area face health
issues due to heavy workload, multitasking, poor economic
background and stress etc. But the majority of them said issues
related to pregnancy and childbirth are low in their area.
Including women, especially in local governments, is an essential
step towards creating gender-equal opportunities and gender-
sensitive policies. Since women have different needs and
perspectives on social and political issues, it is important to involve
women in governance to incorporate all of the societal viewpoints
in policy and decision-making processes. Women are actively
involved in household and community work. Hence they are well
aware of real issues faced by common people. This gives them
insight and perspective which can be instrumental in overall
sustainable development.
Table 4 Distribution of respondents by giving priority to the development oftheir locality

Sl.No Priority Area High Medium Low Total

1. Welfare of women 10(20) 35(70) 5(10) 50(100)
2. Welfare of children 12(24) 33(66) 5(10) 50(100)
3. Developmental action 18(36) 29(58) 3(6) 50(100)
4. Eradication of social 8(16) 26(52) 16(32) 50(100)
Problems

More than thirty-five percent of them concentrated more in

introducing developmental actions. Twenty percent (20) worked
for the improvements in the livelihood of women in their localities.

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A little more than twenty (24) worked for the welfare of children
and a small proportion involved themselves in the eradication of
various social problems.
Problems and challenges
Table5 Issues Faced by the Respondents

Sl.No Problems Always Sometimes Never Total

1. Opposition from 12(24) 30(60) 8(16) 50(100)
family and
community
2. Lack of awareness 16(32) 23(46) 11(22) 50(100)
3. Discrimination 14(28) 21(42) 15(30) 50(100)
4. Lack of support and 14(28) 13(26) 23(46) 50(100)
security
More than twenty-five percent always felt that gender
discrimination (may be called as positive) is the main challenge in
their political participation. More than thirty percent of them (32)
opined that lack of awareness is the major issue in their
performance. Six out of ten agreed that in the early stage of their
career as a public servant they had communication problems.
Nearly two-thirds of them expressed that honorarium is not
sufficient to carry out their duties and to meet their expenses
related to public affairs.
A great majority (86) of them agreed that training is very much
needed to representatives especially who entered local government
for the first time. Forty percent were of the opinion that there is a
tendency to assassinate the character of women members. Thirty
percent of the women representatives were not able to participate
properly owing to the heavy workload and lack of support from
family. Farzana Bari (2005) in her study reported that with their
primary roles as mothers and wives and competing for domestic
responsibilities and care work, women are left with little time to
participate in politics.

Major Findings
A great majority of women members were from middle-class
families. Most of them were living in the nuclear family set-up.
Family support is very essential for performing their political role.

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Most of the women representatives came to the position with a

vision of developing their respective areas. A great majority of
them actively participate in their respective political position. A
considerable proportion gives attention to the fulfilment of basic
needs of their wards. Nearly half of the population expresses their
anxiety in the partial acceptance of their views and lack of
opportunity in the discussions. They felt discrimination in
administrative and decision-making spheres. Half of the sample
group agreed that lack of awareness and poor coordination stand
as a barrier for the developmental activities. A good proportion
could contribute for the betterment of women in weaker sections.
But many of them were not satisfied with their performance in
child development activities. Most of them work to introduce new
developments in their respective wards.
Women members are facing challenges like lack of awareness, role
conflict due to multitasking, financial problems, lack of
encouragement (Discrimination on gender grounds, character
assassination, Lack of support, lack of security, etc.).Women
representatives are playing a vital role in addressing strategic
gender interests at the local level. The elected women
representatives carried a double and triple burden of
responsibilities and work covering professional and household
spheres. It causes stress and strain. They have to face slander and
criticism from families and outsiders. Many of them did not want
to contest a second time for this reason. Lack of gender
sensitiveness in the implementation machinery is also a challenge
to them.
This study reveals that women in local governance have a very
significant role, but some socio-cultural factors pull them back from
performing to the fullest. The mobility from traditional roles is still
a challenge for women. But many of them stand firmly among all
odds. The findings of this study are consistent with Benudhar Rout
and Sahu (2012) study which concludes that the active participation
of women in rural local governance system has remained restricted
to a small number of women. The nature and extent of
participation of women are limited to a few areas of rural local
governance system and not up to the expected extent. The factors
that have an impact on their performance are family bonding,

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submissiveness and lack of understanding of their role, and

responsibilities. The low level of awareness prevents from active
participation in the local rural system.

Conclusion

Women's entry and effective participation will change the texture

of the present day politics and bring women's preferences and
perspectives to the political arena. As more women entering to the
governing bodies, it is important for all institutions to respond to
women‟s specific needs related to education, gender roles, division
of labour etc. Efforts must be made to bring about this
transformation in society. Then only the process of women
empowerment through political representation becomes
meaningful.Women's equal political status and capabilities with
men encourage other women to believe this could be a realistic
aspiration for them.

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