Abstract: In this paper, an attempt has been made to analyse the implementation of WPC in the local government institutions of a Block Panchayat in Thrissur district during the Kerala Development Programme (KDP). The need for taking up an overall review regarding the implementation of WPC in the State has been highlighted. The study views that the pattern of expenditure on projects directly benefiting women is less when compared to all the categories. It is viewed that the possibility of various operational issues inimical to women in the society has been a major hurdle for incorporating gender needs into the planning process of the local government institutions. There is a strong need for initiating and sustaining the efforts made by women’s organisations and social activists for implementing WCP. The need for taking up a macro study in the State to review the implementation of WCP during the last decade is also highlighted here.
Keywords: Kerala Development Programme (KDP), Women Component Plan (WCP), local government institutions, strategic gender needs plans, field survey, state planning board, women’s organisation, women’s empowerment
The much publicised Kerala model of development in general and the physical quality of women in particular are not being reflected in the status of women in politics. However, incorporation of women in Panchayats following the statutory reservation of one-third of membership and positions for women provided and opportunity for more space in political institutions at the grassroots.
In the decentralised planning exercise undertaken in the State, an approach to sender and development was introduced at every stage of the planning process. Special instructions were laid down to ensure women’s participation, to discuss women’s issues, to sensitise people on gender issues and to assess gender impact of the projects. In addition to this, ten per cent of the grants-in-aid were set apart under Women Component Plan (WCP) on projects directly targeting women and gender.1 Now it is more than a decade since the process has started in Kerala. We feel that it is high time to undertake a review of the WCP and its implementation in the State. A number of micro level studies were conducted regarding WCP in the State.2 Despite various effects-, the ground realities have not changed much, though there were variations at different settings, depending upon factors like capacity of elected members, advocacy and pressure tactics by women activists and Community Based Organisations (CBOS), willingness of the officials in charge of scheme implementation, societal factors, etc.
In this paper, an attempt has been made to analyse the implementation of WCP in the local government institutions of Wadakkancherry Block (Thrissur District)3 during the Kerala Development Programme (KDP) of 2003-04. The data pertains to nine Grama Panchayats and one Block Panchayat as on 31 March 2004.
Objectives
The broad objective is to analyse the implementation of Women Component Plan by the local government institutions in a Block Panchayat during the Kerala Development Programme (2003-04).
The specific objectives are:
1. To ascertain the pattern of expenditure by the local government institutions in the Projects undertaken under WCP during the reference period.
2. To uncover the nature of projects implemented by the local government institutions under WCP.
3. To find out the status of projects implemented under TCP.
4. To examine the projects implemented towards ascertaining their gender needs.
5. To identify hurdles in incorporating tender needs into the planning process of the local government institutions.
A brief profile of the study area
Wadakkancherry Block is situated in the northern part of Thrissur District. It consists of nine Grama Panchayats namely Desamangalam, Erumapetty, Kadangode, Mulloorkkara, Mundathikode, Thekkumkara, Varavoor, Veloor and Wadakkancherry. The Block has a total population of 2.26 lakhs. Sex ratio in the Block is placed at 1096, which is higher than the District (1092) and State figures (1058). Population density of the area is 810 per sq.km, which is lower than the District figures (9.81) and the State figures (819). Percentage of Scheduled Caste population in the Block is 14.22, which is higher than the District (11.91%) and State (9.81%). Scheduled Tribe population has only a minor presence only in the Block area (0.04 %), which is lower than the averages of the District (0.16%) and State (1.14%). Hindus constitute majority of the population. A considerable Muslim population is also living in the area. Significant size of Christian population is present in certain pockets of the region, majority of them having migrated from the southern parts of the State.
The region is predominantly agrarian in nature, with paddy, coconut, pepper, plantain, vegetables and rubber constituted the major products. The region has an active presence of all major political parties and their affiliated class and mass organisations at the local levels. A thin line of political polarisation exists in the region between Left Democratic Front (LDF) and United Democratic Front (UDF), with a marginal presence of Bharatiya Janata Party (BJP) also.4 The region has a thick bondage of horizontal and vertical associations and considerable amount of social capital (both traditional and modern forms). It is observed that vertical association life is stronger in the area when compared to horizontal. However, it is noted that this association life and social capital has not resulted in the emergence of a vibrant civil society, public sphere and civic virtues in the region. It is noted that Wadakkancherry is turning into a fast moving urban growth centre, with a number of cottage and small-scale industries and a few markets functioning in the area. The region is well connected by road and rail with the District capital and other nearby villages/towns.
Methodology
Primary data has been collected through interviews and focus group discussions with the elected members (both men and women), officials, women members of Neighbourhood groups /Self Help Groups (SHGs), etc. Secondary data included publications of the State Planning Board, documents of the local government institutions and other published literature. All the projects meant exclusively for women have been brought tinder the study.
Certain details of the implementation of WCP from documents of 1997-98 were taken as a benchmark. They were compared with the data collected from the records of the local government institutions of the selected area as on 34 March 2004. This enabled to analyse the implementation of WCP on a longitudinal scale. The data collected from the records of the local government institutions was categorised and analysed, towards finding the share of WCP outlay and pattern of expenditure, profile and status of projects (Sector wise), profile and status of projects (Sub-sector wise). An effort was made to delineate the Projects from the angle of meeting specific gender needs, which enabled to find the real picture of the implementation of WCP in the selected area.
Some benchmark information
As a benchmark, the data available during the formative years of People’s Planning Campaign (PPC) was taken. Various details regarding WCP like allotment of money, share of WCP in the total outlay of the Panchayati Raj Institutions (PRIs), numbers of projects in sectors/ sub- sectors, etc. were taken as the benchmark data.
During the year 1997-95, maximum allotment of funds under WCP is noted in Thiruvananthapuram District, which is to the tune of 9.6 per cent and minimum allotment of funds is noted at Kasaragod District, which is just more than one percent (1.2 %).5 Regarding the share of WCP to the total outlay, it is noted that the average outlay of Grama Panchayats (GP) was at 4.83 percentage of the total outlay , followed by Block Panchayats (3.99 %). The outlay of the District Panchayats under WCP was the lowest at 1.78%.6
Analysis of sectoral provisions tender WCP during 1997-98 revealed that productive sector accounted for the majority of projects (59.15 %), followed by service sector (38.42 %) and infrastructure sector (2.42 %). Based on an analysis of projects regarding sub-sectors, it noted that projects on animal husbandry topped the list with 28.33 per cent of the total number of projects, followed by women and children (19.66 %), industry (10.61 %), other crops (9.55%), housing (3.5%), etc.7
Findings and discussions
A. WCP – Outlay and pattern of expenditure by the local government institutions
Share of WCP in the total outlay by the local Government institutions in the Wadakkancherry Block on all current works during the year 2003-04 has beer indicated in Table 1.
Table 1: WCP outlay: Works of current year during 2003-‘04
| Name of the Panchayat | Outlay (Rs. in Lakhs) | Share of WCP outlay as a % of all | |
| All Categories | Women | Categories | |
| Desamangalam GP | 50.03 | 6.87 | 13.73 |
| Erumapetty GP | 102.23 | 21.23 | 20.77 |
| Kadangode GP | 71.69 | 3.74 | 5.22 |
| Mullorkkara GP | 67.08 | 7.1 | 10.58 |
| Mundathikode GP | 154.57 | 9.15 | 5.92 |
| Thekkumara GP | 97.79 | 9.19 | 9.39 |
| Varavoor GP | 95.59 | 24.58 | 25.71 |
| Veloor GP | 72.89 | 5.35 | 7.34 |
| Wadakkancherry GP | 114.61 | 5.43 | 4.74 |
| Wadakkancherry BP | 187.78 | 43.36 | 23.09 |
Source: Field survey & verification of documents at the PRIS.
It is noted that the share of WCP outlay with respect to the total financial outlay indicates an upward trend in most of the local government institutions in the selected area (except one), when compared to the benchmark data, i.e., 4.83 percentage for GPs and 3.99 percentage for BP.
Table 2 illustrates the expenditure on projects under WCP by the local government institutions in the Wadakkancherry Block on all current works during the year 2003-04. This pertains to the category wise expenditure (women and all categories) and expenditure on projects under WCP as a percentage of all categories.
Table 2: Expenditure Projects under WCP during 2003-04
| Name of the Panchayat | Expenditure (Rs. in Lakhs) | Expenditure on projects under WCP as a % of all categories | |
| All categories | Women | ||
| Desamangalam GP | 25.19 | 0.0 | — |
| Erumapetty GP | 38.17 | 1.21 | 3.17 |
| Kadangode Gr | 36.32 | 3.36 | 9.25 |
| Mulloorkkara GP | 42.41 | 2.5 | 5.89 |
| Mundathikode GP | 46.52 | 4.44 | 9.54 |
| Thekkumkara GP | 58.33 | 3.55 | 6.09 |
| Varavoor GP | 53.63 | 8.83 | 16.46 |
| Veloor GP | 25.63 | 0.17 | 0.66 |
| Wadakkancherry GP | 36.81 | 1.03 | 2.79 |
| Wadakkancherry BP | 74.95 | 12.87 | 17.17 |
Source: Field survey & verification of documents at the PRIs.
On an average, about eight per cent of the total expenses incurred in the recurrent year works have directly benefited the women, which is below the minimum prescribed level. However, it is noted that the major part of expenditure referred here pertains to spill over works only and not can current works. To quote an example, Desamangalam GP has made 64 per cent expenditure on spill over working of all categories and only 36 per cent on current year works during the period of study.
Table 3 provides a comparison and summary of the pattern of expenditure for women with respect to all categories. The pattern of expenditure by the local government institutions indicates allocation of finance to the local government institutions and their expenditure various projects.
Table 3: Pattern of expenditure * Summary and comparison
| Category | Total allocation (In Lakhs) | Total expenditure (Rs. in Lakhs) | Expenditure as a % of allocation |
| Women | 136.00 | 37.97 | 27.92 |
| All | 1014.27 | 437.95 | 43.18 |
Source: Field survey & verification of documents at the PRIs.
When compared to the average expenditure as a percentage of allocation of all categories, the expenditure incurred in projects directly benefiting women was low. It is noted that as average expenditure of less than half of the allocation has been noted in all categories as well, which is unreasonable by any standards. It is noted that lack of awareness and capacity of the elected members, negative approach of the officials, absence of willingness to take up challenging rind unique projects, etc. resulted in initiation of various operational issues inimical to women in the society. For example, a WCP project for providing driving training to women in one of the GPs could not achieve the expected results due to the factors like non-availability of a female trainer, inhibition among the women to learn driving, unsuitable timings for the training and certain social aspects.
B. Profile and status of projects (Spill over + current year works)
Profile and status of all the projects undertaken by the local government institutions, which directly benefit women, have been tabulated in Table 4.
Table 4: Profile and status of projects – Women
| Sector | Status | Total No. Of projects | ||
| Completed | In progress | Not started | ||
| Productive | – | 03 | 06 (66.67) | 09 (13.85) |
| Service | 17 | 25 | 13 (23.64) | 55 (84.61) |
| Infrastructure | – | – | 01 (100.00) | 01 (1.54) |
| Total | 17 (26.15) | 28 (43.08) | 20 (30.77) | 65 (100.00) |
Source: Field survey & verification of documents at the PIIIS.
Note: Figures in parenthesis refer to Percentage.
It is noted that about 85 per cent of the projects were taken up in the service sector. Service sector, which allows investment in education, health, sanitation, housing, drinking water, women and child welfare, nutrition, etc., naturally provide maximum scope for investment. It is noted that investments in the productive sector refer to 13.65 per cent only. This could be due to lesser control of the women on landholdings and assets (movable and immovable), and provide lesser scope for investments, directly benefiting women. An investment in the infrastructure sector is only marginal, which is viewed as a healthy practice. It is suggested that the investments in the infrastructure sector can be met from the general pool as well, so that more thrust can be given to service and productive sectors in the WCP. Regarding the status of projects, just more than one-fourth of the projects taken up under WCP were completed and about 43 per cent of them were in progress as on 31 March 2004. But the point of concern is that nearly 31 per cent of the projects have not started till the end of the financial year.
Table 5 provides the profile and status of all the projects undertaken by the local government institutions, which includes spill over and current year words.
Table 5: Profile and status of projects All categories
| Sector | Completed | Status
In progress |
Not started | Total No. of projects |
| Productive | 17 | 37 | 40(42.35) | 94(16.21) |
| Service | 73 | 102 | 84(32.43) | 259(44.65) |
| Infrastructure | 87 | 71 | 69(30.39) | 227(39.14) |
| Total | 177(30.5) | 210(36.2) | 193(33.3) | 580(100.0) |
Source: Field survey & verification of documents at the PRIs.
Note: Figures in parenthesis refer to Percentage
It is noted that nearly 45 per cent of the projects were initiated in the service sector, followed by infrastructure sector (39 %) and productive sector (16%). Regarding the status of projects, it was more or less evenly distributed among the three types. But the point of concern is that one- third of the projects have not started till the end of the financial year, which could be due to procedural delays and other bureaucratic hurdles, lack of ownership and initiative by the elected members, non-realistic nature of certain projects, and societal factors.
Table 6 provides the comparison of profile of the three sectors regarding the projects taken up under WCP over a period of time.
Table 6: Comparison of profile of sectors
| Sector | Profile of sectors State average (1997-98) | Profile of sectors Wadakkancherry Block(2003-04) | |||
| No. of projects | % | No. of projects | % | ||
| Productive | 2523 | 59.15 | 09 | 13.S5 | |
| Service | 1773 | 38.42 | 55 | 84.61 | |
| Infrastructure | 116 | 2.42 | 01 | 1.54 | |
| Total | 4412 | 100.0 | 65 | 100.0 | |
Source: Published documents and survey.
As per the benchmark data, productive sector has been the major sector, allowing about 60 per cent of the investments under WCP. However, during the study period, it is noted that productive sector caters for about 14 percent only. The realisation that most of the investments in productive sector did not fetch any direct benefit to women may have resulted in a paradigm shift during the period. Investment in the productive sector has come down drastically during the period in the study area. At the same time, investment in the service sector increased by more than double. This may be due to the reason that service sector allows investment in traditional core areas like education, health, sanitation, housing, drinking water, women and child welfare, nutrition, etc. It is observed that investment in the infrastructure sector has declined further during the period.
C. Profile and status of projects Sub-sector wise
A glance through the sub-sector wise profile and status of various projects directly benefiting women has been illustrated in Table 7.
Table 7: Profile and status of sub-sectors as on 31 Mar 2004
| Sub-sector | Status | Total No. of projects | ||
| Completed | In progress | Not started | ||
| Animal husbandry | — | 01 | 01 | |
| Industry | — | 03 | 05 | 08 |
| (12.31) | ||||
| Education | 01 | — | 01 | |
| Health | 01 | 01 | ||
| Drinking water | — | 01 | 01 | 02 |
| Housing | — | 03 | 02 | 05
(7.69) |
| Women & child care | 15 | 13 | 09 | 37 |
| (56.92) | ||||
| Food & Nutrition | 01 | 08 | — | 09 |
| (13.85) | ||||
| Buildings | — | — | 01 | 01 |
| Total | 17 | 28 | 20 | 65 |
| (26.15) | (43.08) | (30.77) | (100.00) | |
Source: Field survey & verification of documents at due PRIs.
Note : Figures in parenthesis refer to Percentage.
Table 8 provides the comparison of profile of dominant sub-sectors among the projects taken up under WCP over a period of time.
Table 8: Comparison of profile of dominant sub-sectors
| Sub-sector | Profile of sub-sectors-
State average(1997-98) |
Profile of sub-sectors-
— Wadakkancherry Block(2003-04) |
||
| No. of projects | % | No. of projects | % | |
| Animal husbandry | 1147 | 28.33 | — | — |
| Women and child care | 1015 | 19.66 | 37 | 56.29 |
| Industry | 516 | 10.61 | 08 | 12.31 |
| Other crops | 445 | 9.55 | — | — |
| Housing | 51 | 3.5 | 05 | 7.69 |
| Nutrition | — | 09 | 13.85 | |
Source: Published documents and survey.
From the table, we can see that sub-sectors like women and childcare, nutrition, industry and housing were given priority over other sectors during the period. The reason for reduced investments in the productive sector mentioned before has resulted in lowering the outlay for animal husbandry and other related sectors.
D. Category and status of projects – Women
An effort has been made to categorize the projects taken up under WCP during the period into projects addressing practical gender needs8 and strategic gender needs.9 Table 9 highlights the categorisation and status of projects taken up under WCP.
Table 9: Category and status of projects as on 31 Mar 2004
| Category | Status of projects | Total No. of projects | ||
| Completed | In progress | Not Started | ||
| Practical gender needs | 15 | 23 | 11 (22.45) | 49 (75.38) |
| Strategic gender needs | 02 | 05 | 09 (56.25) | 16 (24.62) |
| Total | 17
(26.15) |
28
(43.08) |
20
(30.77) |
65
(100.00) |
Source: Field survey & verification of documents at the PRIs. N
Note: Figures in parenthesis refer to Percentage.
From the table, we can see that more than three-fourth of the projects were directed towards meeting the practical gender needs. Even though one-fourth of the projects could be counted as addressing the strategic gender needs, there is no uniqueness/creativity cited among them. And the point of utmost concern is that the majority of the projects under the strategic gender needs have not started. It is viewed that there is a resistance to implement the projects for addressing strategic gender needs, though they were included in the plan documents during the planning phase.
Reflections from the field
1. A rising trend in the share of WCP outlay with respect to the total financial outlay of the local government institutions was noted, when compared to the benchmark data.
2. About eight per cent of the total expenses incurred in the current year works have directly benefited the women, which was below the minimum prescribed level. But this assumes significance while considering that the expenditure referred here pertains to current year works only and not on spill over works. It was noted that most of the local government institutions have spent more on spill over works than current year works during the period.
3. It was noted that the expenditure as a percentage of allocation in projects directly benefiting women was less when compared to all the categories. Lack of awareness and capacity of the elected members, negative approach of the officials, and absence of willingness to take up challenging and unique projects resulted in initiation of various operational issues inimical to women in the society. The change in the mindset of the society has been started, but needs to be consolidated favourably with the sensitisation of all stakeholders.
4. Most of the projects (85 %) under WCP were taken up in the service sector, which was definitely more than double of the benchmark data.
5. It was noted that investments in the productive sector for WCP came down drastically during the period due to lesser control of the women on landholdings and assets.
6. Investments in the infrastructure sector for WCP were almost zero, which is a healthy sign. It is noted that most of the investments are in utilising the funds earmarked under WCP.
7. Just less than one-third of the projects under WCP have not started till the end of financial year.
8. Most of the projects under WCP were oriented towards meeting the practical gender needs and there was very less substance in projects addressing strategic gender needs.
9. Majority of the projects addressing strategic gender needs could not be started. It is netted that the projects addressing strategic gender needs may have to encounter typical operational issues.
Conclusion
The study indicates certain glimpses of rising trends in terms of increased share of WCP outlay, increase in expenditure incurred on WCP projects, and increased investment in the service sector, etc. The study also refers to certain attempts made by the local government institutions to formulate a number of projects addressing strategic gender needs, though most of them could not be implemented.
The study views that the pattern of expenditure on projects directly benefiting women is less when compared to all the categories. When this aspect was analysed along with the rising trend of WCP outlay, we could find that some initiatives were taken at the time of project formulation, but the same could not be translated favourably during the implementation. It is viewed that the possibility of various operational issues has been the major hindrance for incorporating gender needs into the planning process of local government institutions. The change in the mindset of the society has been started, but needs to be consolidated favourably with the sensitisation of all stakeholders. There is a strong need for initiating and sustaining the efforts made in this direction by women’s organisations and social activists, where multiple strategies like advocacy, lobbying and pressurising the stakeholders can be adopted in addition to organising orientation and sensitisation sessions focused at building a women-friendly Panchayati Raj system. The study points to the need for taking up a macro level review regarding the implementation of WCP in the State during the period. That will enable to analyse the different aspects of WCP and its effective implementation in the State as a whole, with lot of local-specific priorities, needs and variations.
(Acknowledgement: This paper is based on a study titled as ‘Concurrent Monitoring of Projects under Kerala Development Programme in Wadakkancherry Block (Thrissur District) during 2003-04’. The study was entrusted to the Centre for Rural Management, Kottayam by the Kerala Institute of Local Administration (KILA), Thrissur. We sincerely acknowledge KILA and the State Planning Board (SPB), Government of Kerala, Thiruvananthapuram for providing us an opportunity to carry out the study.
Notes:
1. Setting apart of 10 % of total funds earmarked for WCP had started during the People’s Plan Campaign (PPC) period from 1996-07 in Kerala.
2. Some of the significant studies on WCP are: Seema, T.N. et. al. (2000), People’s Planning and Women’s Empowerment, Institute of Management in Government and State Planning Board, Trivandrum; Issac, Thomas, T.M. and Richard Franke (2001), Local Democracy and Development, Left Word Books, New Delhi; Bava Khan et. al. (200l ), Report of study of Women Component Plan in Kerala, State Institute of Rural Development, Kerala; John, M.S. and Jos Chathukulam (2004 ), Gender Issues and Participatory Planning: A Case study of Gram Panchayat in Kerala, KRPLLD, CDS, Trivandrum; Lalithabhai K, N. (Ed.) (2005), Women’s Empowerent, Kerala Institute of Local Administration, Thrissur; and, Vijayan, Aleyamma and Sandhya, J. (2004), Gender and Decentralisation Planning in Kerala, Study Report by Sakhi Women’s Resource Centre, Trivandrum
3. A number of such studies were carried out in other parts of the State during the same period. Indian Institute of Management, Kozhikode, Institute of Management in Government, Thiruvananthapuram, State Institute of Rural Development, Kottatakkara and Centre for Management Development, Thiruvananthapuram were the other agencies entrusted to carry out the studies by the State Planning board (SPB). These studies are available at the SPB for reference.
4. State politics in Kerala revolves around two coalitions- UDF and LDF, Generally the left parties are with the LDF coalition and non-left are with the UDF. BJP is keeping a distance from both the fronts, though they have only marginal presence in the State.
5. Institute of Management in Government (IMG): Janakeeya Asoothranavum Sthree Saakthikaranavum, IMG, State Planning Board, Thiruvanthapuram, 1999, p.33.
6. Issac, Thomas, T.M. und Richard Franke, Local Democracy and Development, Left Word books, New Delhi, 2000, p.223.
7. Institute of Management in Government (IMG): Janakeeya Asoothranavum Sthree Saakthikaranavum , IMG, State Planning Board, Thiruvananthapuram, 1999, pp.39-41.
8. Practical Gender Needs are related to the conditions of women. They are easily identifiable (food, clean water, sanitation facilities, housing, medicine, etc.) and are related to the existing gender division of labour.
9. Strategic Gender Needs are related to women’s subordinate position in society. These are aimed at removing the existing hierarchical gender relations and making them equal. Activities aimed at promoting educational level, consciousness raising, mobility, organising ability, leadership quality, management skills, etc. come under this category.
