OUTCOME ASSESSMENT OF THE HUNGER PROJECTS

INTERVENTION IN MADHYA PRADESH 2015

ACKNOWLEDGMENTS

This report would not have been possible without the hard work and support of a number of
people. At the outset, we would like to thank Ribbink Van den Hoek Foundation, which funded
THPs intervention in the state of Madhya Pradesh throughout the five years. We extend our
gratitude to Dr. Rahul Banerjee, the external consultant for this assessment, whos support has
been an integral part in designing the study. The assessment would not have been possible
without our partners in the state, who not only implemented the program in the field level, but
helped us in collecting the data for this study. THP India also extends its gratitude to the entire
state team in Madhya Pradesh, who doggedly supported this study in its various stages.
Starting with providing key insights in the design of the study, to ensuring timely data collection
and managing various logistical intricacies. This report would not have been possible without
the elected women representatives (EWRs), who have been a part of the THPs training
intervention and were the respondents for this study. We thank all the respondents for their
patience, willingness and cooperation to be a part of this assessment. Finally, THP India would
like to thank the Global Office in New York, for their valuable comments that have helped
enormously towards enriching this report.

TABLE OF CONTENTS

ACRONYMS
EXECUTIVE SUMMARY
I.
INTRODUCTION
1.1 About The Hunger Project
1.2 Objectives of the Study
II.
BACKGROUND OF THE STUDY
2.1 Review of Literature
2.2 Situation Analysis
III.
METHODOLOGY
3.1 Sample Selection
3.2 Survey Instrument
3.3 Data Collection
3.4 Estimation of Capacities of Elected Women Representatives
3.5 Qualitative Assessment
3.6 Estimation of Return of Investment
IV.
SUMMARY OF FINDINGS
4.1 Relationship between Capacity Indices with Number of Households benefitted
4.2 Comparative results of Capacity Indices of THP trained EWRs with Control group
4.3 Comparative Results of Work done by THP trained EWRs with Control Group
4.4 Return of Investment
V.
CONCLUSION, KEY LEARNINGS AND RECOMMENDATION
5.1 Conclusion
5.2 Key learnings
5.3 Recommendation
VI.
BIBLIOGRAPHY
VII.
ANNEXURE
Annexure I : Outcome Assessment Questionnaire
Annexure II : District wise Comparative Performance of Capacity Indices of THP
trained EWRs and Control group
Annexure III : District wise Comparative Performance of Work done by THP trained
EWRs and Control group
Annexure IV : Case studies

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FIGURES & TABLES

LIST OF FIGURES
Fig 1: Index for Capacity Building of Panchayat Functionaries
Fig 2: Socio-economic Zones of Madhya Pradesh

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9

LIST OF TABLES
Table 1: Comparative Geographical & Demographic Characteristics of Madhya Pradesh, 2011
Table 2: Comparative Economic Characteristics of Madhya Pradesh, 2011
Table 3: Comparative Gender Characteristics of Madhya Pradesh, 2011
Table 4: Key Characteristics of THP working areas since 2009 in Madhya Pradesh
Table 5: Attendance list of control group in Panchayat meetings
Table 6: Result of Regression Analysis between Capacity Indices &Households benefitted
Table 7: Comparative Results of Capacity Indices
Table 8: Cumulative Households Benefitted and Amounts Disbursed by EWRs 2010-14
Table 9: Results of Regression Analysis between Total Amount disbursed & CCI of EWRs
Table 10: Return of Investment of THP Project in Madhya Pradesh 2010-14

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ACRONYMS

CBOs
CCI
EI
EWRs
ER
ETC
FAO
FSI
GEM
GDI
GI
GOI
Go MP
HDI
MGREGS
MoPR
MP
NBW
NRLM
NSSO
OBC
PII
PLI
PRI
PSI
ROI
SIRD
SC
ST
SWEEP
THP
WPI
WLW

Community Based Organizations

Composite Capacity Index
Economic Index
Elected Women Representatives ( in Panchayats)
Elected Representatives
Extension Training Centers
Food and Agricultural Organization
Family Support Index
Gender Empowerment Measure
Gender Development Index
Gender Index
Government of India
Government of Madhya Pradesh
Human Development Index
Mahatma Gandhi Rural Employment Guarantee Scheme
Ministry of Panchayati Raj
Madhya Pradesh
Need Based Workshop
National Rural Livelihood Mission
National Sample Survey Organization
Other Backward Caste
Panchayat Interaction Index
Personality and Leadership Index
Panchayati Raj Institution
Panchayat Skills Index
Return Of Investment
State Institute for Rural Development
Scheduled Caste
Scheduled Tribe
Strengthening Womens Leadership through Electoral
Processes
The Hunger Project
Womens Priority Index
Womens Leadership Workshop

EXECUTIVE SUMMARY

The 73rd Constitutional Amendment, 1992 in India mandated one-third reservation for women in
the three tiers of the Panchayati Raj Institution (PRI). While the legislation has been landmark in
providing an important space for women to exercise their political voice, however, adverse
societal structures such as, gender discrimination, caste dynamics, low literacy and patriarchy,
amongst other pose challenges to the political empowerment of Elected Women
Representatives (EWRs). It is THP Indias conviction that the active participation of women in
political and decision-making processes of rural local governance can help bring economic and
social development to the villages of India.
THP India aims to strengthen the role of elected women representatives in grassroots
governance so that they are able to exercise leadership within their constituencies and practice
gender responsive governance and transformative leadership based on the principles of human
rights and social justice.
The aim of this outcome assessment study, has been to measure key capacities like the
leadership of the EWRs, gained by the training and capacity building provided by THP, through
the five years of their tenure. The study, has been conducted in the state of Madhya Pradesh,
one of the seven working areas of THP that has been receiving consistent funding from 20092014.The logic underpinning this assessment is that the increased capacities of the EWRs as a
result from the trainings received from THP should help them in performing effectively within
their constituencies. In-depth interviews have been conducted with EWRs, who have been
active members of THPs intervention through the entire project cycle. One of the major
contributions of the study has been the designing of a multi-dimensional Composite Capacity
Index (CCI) that measures the capacities of EWRs, in the five domains of leadership abilities,
confidence, status in households, knowledge regarding their roles and responsibilities and
issues that they have taken up in the tenure. Along with that, the study also analyses the
performance of the EWRs in terms of the benefit secured in their respective constituencies. A
control group of EWRs have been selected for the purpose of the study to compare the
performance of THP trained EWRs, in these aspects. Finally, the study also calculates a Return
of Investment from the trainings conducted by THP in the state, through the entire election
cycle.
The comparative performance of the THP trained EWRs with the control group provides
evidence to the fact that training and capacity building form an important part of the functioning
of the PRI representatives. With the training methodology that is disseminated by THP through
the entire five year tenure, the THP trained EWRs not only report higher values of capacity
indices but also have benefitted a larger percentage of households within their constituencies.
Thus, not only do the women demonstrate enhanced leadership qualities, but also have been
able to channelize these abilities towards the empowerment of the community. On the basis of
the findings, the study concludes with laying down recommendations in three areas: THPs
overall strategy and program implementation, monitoring and evaluation framework, and finally
operational aspects that point towards ways to strengthen the current intervention and provide a
path for future course of action.

II

I.

INTRODUCTION

1.1

ABOUT THE HUNGER PROJECT

The Hunger Project (THP) is a global, non-profit, strategic organization committed to the
sustainable end of world hunger. With offices in twenty two countries, THP implements
programs in twelve countries across Africa, South Asia and Latin America, that empowers
women and men living in rural villages to become the agents of their own development, and
make sustainable progress in overcoming hunger and poverty.
Since 2001, THP in India, has been working towards empowering Elected Women
Representatives (EWRs) as key change agents in the local institutions of governance (Gram
Panchayats) by strengthening their political leadership and participation with a womens rights
and gender perspective. The context of the work is the 73rd Constitutional Amendment (1992)1
which provided legal recognition to rural local
self-governance units called Panchayati Raj
THP Indias Vision and Mission
Institutions (PRIs), and reserved thirty three
percent of seats for women in the three-tier
VISION: A world where every woman, man
system of the PRIs, with several states most
and child leads a healthy, fulfilling life of selfrecently, increasing the reservation to fifty
reliance and dignity.
percent in Panchayats. Currently, THP India
implements its program across these seven
states namely, Bihar, Madhya Pradesh,
MISSION: To strengthen womens political
Rajasthan, Odisha, Karnataka, Tamil Nadu and
leadership in local governance in India, so
Uttarakhand, in partnership with local
that they are effective Elected Women
grassroots organizations or CBOs.
Representatives in their constituencies, and
are able to practice good governance, and
The organizations intervention strengthens the
advocate for social and gender justice.
commitments made in various national as well
as international laws, policies and action plans,
that promotes, protects and upholds the rights
of women, such as the CEDAW (UN Convention on Elimination of all forms of Discrimination
against Women), the Mexico Plan of Action (1975); the Nairobi Forward Looking Strategies
(1985); the Beijing Declaration and Platform for Action (1995). Within these directives in the
background, THP India believes that the active participation of women in decision-making
processes of local governance will help bring economic and social development to the villages
of India.

The 73rd Constitutional Amendment Act in India paved the way for formalized local governance in the country. Institutions of
local
democracy now had a five year election cycle; three-tier system of governance; affirmative action for marginalized
sections including women; transference of 29 subjects to institutions of local democracy. The amendment required every state to
pass or amend its own Panchayat Raj Act (local governance act). The three-tier Panchayati Raj system comprises of the gram
Panchayat (village council), the Panchayat Samitis (councils representing a group of villages) and the Zilla Parishads (district level
council). Each of these institutions of local governance follows a democratic election procedure and is elected every five years. To
ensure the accountability and answerability of the Gram Panchayat to its citizens, they are required to organize village level
assemblies that are called Gram Sabha. Gram Sabhas are held several times each year depending on State Acts. People put forth
their concerns before the Gram Sabha, which are then either passed on to specific government departments or are addressed
directly by the Gram Panchayat. To enable participation of marginalized communities in decision making seats are reserved for the
most powerless members of society on a revolving basis. One-third of all seats including one-third of all presidencies are reserved
for women. In addition seats are reserved for members of the Scheduled Castes and Scheduled Tribes proportional to their
population. The 11th schedule of the amendment specifies 29 areas of responsibilities covering all aspects of development, which
have been transferred to the Panchayats along with resources and decision-making authority.

The core strategies of THP India are rooted in strengthening the leadership of women through
capacity building programmes, as also in building an enabling environment for their leadership
to be effective. The strategies have two broad thrusts one focusing on the capacities and
leadership of elected women, and the other on building and strengthening the support and
engagement of stakeholders and creating support structures for the elected woman.
Strategy A: Strengthen and build womens leadership towards understanding roles,
responsibilities and engaging with political processes and systems to claim and access rights
and demand accountability and good governance. This is done through designing and
implementing a pre-election campaign for women to participate in a violence free and fair
electoral process as voters, candidates, campaigners and polling agents, womens leadership
workshops, technical knowledge based workshops, in depth long term training programmes and
facilitating the federation building processes of elected women representatives.
Strategy B: Build an enabling environment so that elected women are able to exercise their
leadership effectively in their constituencies and engage with the State to promote their political
rights and enhance gender equality. This is done by influencing public opinion by engaging with
the media, government, local administration, state election commission, parliamentarians;
making Panchayats effective through engaging with the institution of Gram Sabha (local village
council), sensitizing citizens about good governance; building support structures by initiating
Jagrukh Manch (elected women & other womens forums) at Panchayat level; and advocacy
and alliance building by forging partnerships with civil society organizations and other advocacy
forums for a policy friendly environment for women to be effective public office holders and for
women to be equal participants in a democracy.

1.2

OBJECTIVES OF THE STUDY

THP started working on strengthening the leadership capacities of EWRs within Panchayats
since 2001. For the most period of the work, qualitative case studies of select EWRs have been
used as means to gauge their achievements. However, supplementary quantitative analysis of
the impact of work done by the EWRs, that would deepen the understanding of the program and
help envisage a future course of action, was not carried out. The study has been conducted in
the state of Madhya Pradesh which, has been receiving sustained funding over a period of five
years 2009-2014. THP has been working in Madhya Pradesh since 2001, in the eight districts2
of Rewa, Katni, Jhabua, Sidhi, Shahdol, Satna, Chattarpur and Harda.
The key objective of the outcome assessment is to prove the following hypothesis that
underpins the work carried out by THP:
If elected women representatives in Gram Panchayats are imparted the right skills, knowledge
and support, then they become empowered to advocate for, and drive development in their
constituencies and ensure social and gender justice for all citizens
Thus, the logic underlying this outcome assessment is that EWRs leadership qualities, voice,
and, effective participation in conducting their Panchayat related duties, should improve due to
the training, hand holding, and engagement with various other strategies implemented by THP.
Further, this should reflect in the benefits they have secured for their constituencies through, the
implementation of various government schemes.
2

Districts are administrative units of an Indian state that are further subdivided into units called sub-divisions, tehsils, taluks or
Blocks.

In view of this, the study aims to undertake and capture:

Quantitative assessment of the capacities accrued to the EWRs and the benefits
they have been able to secure for their constituents through the implementation of
various government schemes
A return of investment from the programme will be calculated
Qualitative analysis of the key achievements through case studies and the
effectiveness of the current approach adopted by THP
Finally, the study shall provide insights towards program improvement and future
course of action for THP in the state.

II. BACKGROUND OF THE STUDY

2.1 REVIEW OF LITERATURE
The debate on the form of democracy to be followed in India dates back to the Constituent
Assembly that drew up the Indian Constitution. It was Gandhi who had sowed the seeds of
autonomous village republics which would be federated into a national government having
authority and jurisdiction delegated upwards to it from below (Gandhi, 1959). The debate arose
because the large and diverse nature of the country posed significant challenges to ensuring the
effective and widespread participation of its citizens in public affairs. Historically, the level of
mass participation in governance has been low, with no provision for local governance at the
village level. Strong forces of social and economic exclusion prevented effective land reforms
from taking place and also falsified the expectations of the planners that macro-economic
growth would trickle down to the poor (Chakravarty, 1987). There was considerable
dissatisfaction among the people from the mid-nineteen sixties when the growth rate stagnated,
and the economic condition of the poor deteriorated, culminating into mass movements and
uprisings. This created a mass upsurge from below for better governance which resulted in the
introduction of Panchayati Raj by the state governments of West Bengal and Karnataka. This
process was later adopted by other states, including Madhya Pradesh and finally culminated in
the 73rd Constitutional Amendment Act of 1992 (CAA) which made local self-governance
mandatory in rural areas.
The Panchayati Raj is a system of village-level (Gram Panchayat), block-level (Panchayat
Samiti) and district-level (Zilla Parishad) councils, members of which are elected by the people,
and are responsible for the administration of local public goods. Each Gram Panchayat (GP)
encompasses 10,000 people in several villages (between 5 and 15). The GPs do not have
jurisdiction over urban areas, which are administered by separate municipalities. Johnson
(2001) identifies the following roles that governments typically play in poor and predominantly
rural areas: (1) the provision of public goods, such as universal education and healthcare. (2)
The provision of divisible goods, such as irrigation, agricultural extension and credit. (3) The
determination and enforcement of laws regulating key economic inputs, such as land, labour
and capital. (4) The recognition and protection of rights allowing for organisation, association
and entitlement in the eyes of the state. Studies have also shown that the establishment and
empowerment of local resource user groups can improve the ways in which local people
manage and use natural resources, thereby improving the resource base on which poor people
are dependent. Secondly, collaboration between public agencies and local resource users can
help provide goods that would be unobtainable were they to act alone (Johnson, 2003). With the
introduction of the Panchayati raj in India, rural masses have been galvanized evincing a
palpable increase in their participation in the local politics and development discourse.
However, one of the fears arising out of decentralization, especially in the context of countries
with heterogeneous population is that, it poses significant challenges to protect the interests of
the weaker sections of the society, by empowering only the local elites and thus, perpetuating
inequality (Dreze & Sen, 1996). To alleviate this concern the 73rd Amendment mandated the
reservation of the one-third seats in the political system for these segments. The most
significant aspect of this legislation is that, for the first time it reserved seats for women. The
pervasive problem of gender inequality in India, is conditioned not just by economic power play,
but also stems from a set of complex and interacting factors, perpetuated by entrenched cultural
practices. These often depend on the extent to which the political and institutional systems :
recognize the need for gender mainstreaming, supports the interests of women in the policy
decision-making process, and installs and operates (informal) support and enforcement
mechanisms for gender mainstreaming (Shekher, Raabe, & Birner, 2008). Affirmative action is
4

considered one of the most effective ways to counter gender inequality in politics and bring
women within the fold of politics and governance. More than half of the countries in the world
have implemented some type of political quota, mostly in the last twenty years. They have led to
a dramatic increase in female leaders across the globe. There are three main types of political
quotas that exist across the world. First, voluntary party quotas have been adopted by political
parties in a number of countries and involve a party committing itself to nominating a certain
percentage of female candidates for electoral lists. Second, candidate quotas are required by
the law of a country and stipulate that a certain number of candidate positions must be reserved
for women. They sometimes include conditions on the position of women on the electoral list, for
instance by requiring that every second entry on the list must be a woman. Finally, reserved
seats are positions for which only female candidates can compete and are used as a more
direct way of regulating the number of women in elected positions (Pande & Ford, 2011).
The evolution of womens participation in political process in India can be traced to the 19th
century reform, which led to debates on womens suffrage. It was during this period that led to
the strong belief that women had a strong role to play within politics as well. The belief behind
the political reservation is that through greater political participation women would be able to
redress the issues that afflict their social status in society and pave the way for empowerment.
Womens empowerment, is essentially a process of upliftment of economic, social and political
status of the traditionally underprivileged ones in society. It involves the building up of a society,
wherein women can live without the fear of oppression, exploitation, apprehension,
discrimination and the general feeling of persecution which goes with being a woman in a
traditionally male dominated structure. Several advocates of womens rights prescribe
empowering women through legislation for ensuring participation in political decision making.
Such an approach provides women with a constitutional platform to stand up to men, to raise
their voice on issues concerning women oppression, subjugation and related issues. Thus in
effect, this approach provides them with an identity in a male dominated socio-political set up, in
addition to providing a much needed forum to seek redressal of problems directly affecting
them: the true essence of empowerment. A study by Center for Womens Development Studies
in 1999 revealed that 95% of the women representatives believed that they would not have
been elected without reservations. Further, a nation-wide study on EWRs in Panchayati raj done
by AC Nielson ORG-MARG for the Union Ministry of Panchayati Raj in 2008, also revealed
some interesting trends making a strong case for reservation. Amongst the 1,039,058 EWRs,
who were part of the study, 4/5ths were elected from reserved seats. The report found
reservation to be an important motivator facilitating first-time entry into politics for nearly 83% of
EWRs. With 26% and 13% of the EWRs, belonging to Scheduled caste and Scheduled tribe
categories respectively, reservation was also found to be critical for these disadvantaged
groups, propelling their participation into political processes (CDHR, 2009).
When reservation for women was first introduced in PRIs in 1992 there was considerable
skepticism as to whether the EWRs would be able to perform their duties on their own or
whether the more experienced male members from their families would proxy for them.
However, a number of studies, based on quantitative and qualitative surveys, have conclusively
established that the women representatives have over a period of time come into their own and
have positively affected the work of the PRIs. A study conducted by, the Ministry of Panchayati
and Rural Affairs, under the stewardship of Prof Nirja Jayal, showed that after reservation of
posts in PRIs, the EWRs had performed almost at par with the elected male representatives and
experienced a significant improvement in their status within the household and society and also
women in general had improved their participation in public affairs. According, to the popular
Indian writer and activist, Devki Jain (1996), the positive discrimination of the Panchayati Raj
5

system, has initiated a momentum, where in their success not only shows that they are
interested in politics, but also shatters myths that they are not interested in politics.
A necessary condition for the efficacy of the reservation policy deems the need for
representatives to have autonomy and power not only over residents of the Panchayats, but
also the bureaucracies, local elites to effectively implement public services in rural areas.
Chattopadhyay and Duflo (2004), in a randomised study conducted in Birbhum district of West
Bengal and Udaipur district of Rajasthan in 2004 found that the EWRs not only performed
almost on par with the male representatives but they also actively ensured that greater public
investments took place in the provision of portable water which is a fundamental concern of
women. A later study by Duflo along with others on the same lines has once again conclusively
established that reservations for women have led to a significant change in PRI functioning
towards being more women friendly, especially in reducing corruption and providing for drinking
water and sanitation which in turn has led to a decline in the gender gap in several important
indicators of poverty (Beaman, Duflo, Pande, & Topalova, 2010). The results of a smaller study
conducted in the Sangli district of Maharashtra shows that as the term of the EWR presidents of
Panchayat progresses their performance in delivery of basic public services improves and
surpasses that of Panchayats with male presidents (Sathe, Klasen, Priebe, & Biniwale, 2013).
The above findings are also corroborated in a survey of 1200 EWRs spread over nine districts
of Uttar Pradesh, Rajasthan and Madhya Pradesh conducted in 2003 by the Mahila Chetna
Manch, Bhopal in association with the Centre for Women's Development Studies, Delhi. In
Chitradurga district of Karnataka, the effects of reservation has aided in increasing the
participation of tribal women in the political process and develop to contribute to society
(Nagaraja & Kusugal, 2013). Thereby, one can definitively establish that women's
representation in Panchayati Raj has been beneficial both, to women in particular and society in
general (Buch, 2010) .
More than two decades have elapsed, since the introduction of Panchayati Raj as a mandatory
third tier of local governance in rural areas, with legally assured participation of women.
Numerous gains have been made by the 73rd amendment that ensured that more than
estimated one million Indian women hold public office at grassroots level. Womens active
participation in the political processes has been a powerful way to articulate their rights as
citizens. The social impact of this participation process, not only has had tangible advantages in
terms of a direct transfer of capacities and initiatives but also has influenced on equal access to
education, superior utilization of resources and enforcement of a more accountable, transparent
and responsive administration. As Jean Dreze and Amartya Sen write in their book An
Uncertain Glory India and its contradictions (2014), mention, There are reserved seats for
women and disadvantaged communities in Panchayati Raj Institutions (PRIs)3, and there is
some evidence that this assists in adequate delivery of local public goods to disadvantaged
groups. Yet, till date there are numerous challenges to true political empowerment of women,
especially marginalized women. On November, 1948 Ambedkar noted in the constituent
Assembly, What is a village but a sink of localism and a den of ignorance, communalism, and
narrow mindedness. Ever since then the PRI has moved from the fringes to occupying the
centre piece in the development debates change is far from visible, as Mahi Pal (2004) points
out. Pal also s points out that casteism, social inequality, rampant illiteracy, lack of awareness
about their powers, function, poverty and resourcelessness make a mockery of the
decentralization process. These realities amplify the lack of confidence and self-doubt with
which a EWR steps into public office. Hence, they are largely ignored by both civil society and
government as partners in development. While, quotas and reservations do increase the

political participation of women, and thus their chances of influencing policy outcomes, for
EWRs to truly exercise effective leadership, there is a need to put in place support systems that
involves sustained capacity building and intensive training for the EWRs. PRIs need adequate
capacity building support to effectively discharge their assigned roles and responsibilities as
institutions of local self-governance.
The Ministry of Panchayati and Rural affairs in 2007 (IRMA, 2010) had recommended that a "big
bang" approach should be adopted for overcoming the sluggishness in devolution to the PRIs.
The logic was that if substantial functions, functionaries and funds were devolved at one go with
accompanying investment in capacity building and training of staff and elected representatives
to handle the greatly increased responsibilities then this big bang would blow away much of the
inertia and inexperience that were proving to be the major hurdles. The success of PRIs in
Kerala, where this approach was first followed was held up as an example. There are,
consequently, many training schemes being conducted by Government agencies to improve the
performance of the elected representatives with the National Institute of Rural Development and
the State Institutes of Rural Development (SIRD)4 being the major institutional players.
However, currently, for example, for 50 districts and 3.96 lakh representatives in Madhya
Pradesh, there is one SIRD, seven Panchayat training centres and six Extension Training
Centres (ETC)5. Similarly, in Bihar there is one SIRD and three ETCs for 1.3 lakh
representatives (The Economic Times, 2013) A study conducted by the Ministry of Panchayati
Raj to gauge the status of capacity building status of Panchayat representatives across the
country concluded that it remains unsatisfactory. Nevertheless, the situation with regard to
capacity building of elected representatives remains unsatisfactory. The study found the
national average to be standing at 49.33.
Fig 1: Index for Capacity Building of Panchayat Functionaries

Source: MoPR & IIPA, 2013

As can be seen from the Figure above that out of 27 states, more than half (27) of the states fall
below the national average of 49.33. 2 of the THP working areas, that is, Bihar and Odisha are
4

SIRDs are institutes established by the Ministry of Panchayati Raj that are aimed at improving the knowledge, skills and attitude of
functionaries and elected representatives at state and district level.
5
ETC function under the State government at the regional level to impart training to elected representatives at the block and village
level.

low performing states. A baseline study that was commissioned by the Ministry to Deutsche
Geselleschaft fur Technische Zusammenarbeit (GTZ), to understand the training needs of ERs
in PRIs, found serious gaps in the training methodology adopted by the government institutes.
The study conducted in Himachal Pradesh, concluded that the contemporary institutional
knowledge, experiences, and logistical support available to these agencies greatly influenced
the content and quality of the training programmes delivered by them. As a consequence, these
training programmes fell short of ensuring a minimum level of standardization (both in terms of
content and methods) across the state. Moreover, these training programmes, like other states
of India, focused more on Acts and specific rural development schemes; and lacked a holistic or
a demand-driven training perspective. Further, the training programmes ignore the importance
of social skills such as communication or confidence, a special problem of the marginalized
(Sharma & Dwivedi, 2010). With the process of decentralization, GPs have acquired a central
place in the development dialogue, with representatives having to deal with variegated issues:
civil works, implementation and inspection of schemes, preparing plans, ensuring basic facilities
like health, education etc., organizing meetings and finally solving disputes between people and
institutions, to name a few. While, in the aforementioned study, ERs, recognized the fact that in
trainings serve the only way for them to know about their powers and functions, the training
need to be tailored to practical needs. There is also special need for women representatives to
be exposed to holistic development that focuses on building their confidence and leadership
skills. EWRs require additional training apart from the general capacity building with regard to
the functioning of the PRIs as they have to overcome the serious obstacles arising from the lack
of gender equity in society which hamper their mobility and decision making.
Not surprisingly, there are many NGOs and mass organisations which have stepped into the
training and capacity building space, since the Government institutions cannot cater to the huge
demand for such services, given the millions of elected representatives and Panchayat
functionaries who are there. Some of the important mass organisations are the Mazdoor Kisan
Shakti Sangathan, National Alliance of People's Movements and National Campaign for the
Right to Information, which in the process of mobilisation carry out trainings and build capacity.
These organisations do not just carry out trainings as one off events but as a part of an
ongoing process of mobilisation and so there is a constant feedback and reworking of
methodology. Apart from this there are also many NGOs which carry out training and capacity
building of elected representatives. Some of the more important NGOs are Society for
Participatory Research in Asia, Samarthan, Indian Social Institute and the National Centre for
Advocacy Studies which not only carry out extensive training and research activities but also
implement programmes for mobilisation of elected representatives and gram sabha members.
However, what these training and capacity building programs lack is the need to involve other
stakeholders within their folds. Along, with disseminating training to the representatives, there is
a need to orient government functionaries and local bureaucrats, with representatives work
closely. Such training is required to break the patriarchal attitude and mind-set of such
stakeholders.
2.2 SITUATION ANALYSIS
Madhya Pradesh, has pioneered the implementation of local self-governance after the 73rd and
74th amendments were made to the Indian constitution in 1993. It was the first state to conduct
elections to Panchayats after the 73rd Amendment, and currently has 50% seats reserved for
women within it. Since 1994, the State government has introduced a series of legislative
reforms, which have expanded the formal authority of the Gram Sabha. In 1999 (Behar), an
important reform was the Right to Recall, which gave the Gram Sabha the power to dismiss the
GP chairman (the Sarpanch) in the event of wrongdoing. In 2001 (Behar), the State government
8

expanded the Gram Sabhas authority to include greater powers of planning, consultation and
accountability. However, a number of challenges stifle elected women to exercise effective
leadership such as persistent illiteracy, inhibiting social structures and the lack of any state
support in terms of both discharge of duties, as well as capacity building (Buch, 2000). Located
in the heart of India, MP remains a predominantly rural state with 65.1%6 of the population being
dependent on agriculture and related natural resources for livelihood. In terms of caste break
up, OBCs7 form 48% of the total population, followed by 21% of ST population and finally 10%
SC population8. As per the India Human Development Report, released in 2011 60% of the
countrys poor are concentrated in the states of MP, UP, Bihar and Odisha.
The Human Development Index (HDI) value in 20109, for the state is 0.375 which, is lower than
the national average of 0.467, and was ranked the lowest along with the states of Chhattisgarh,
Orissa, Rajasthan, Uttar Pradesh and Assam. Similarly, the Gender Related Development Index
(GDI)10 value, for the state was 0.516 compared to 0.590 for India. According to the India
Human Development Report 2011, Madhya Pradesh has the most chronically-wasted and
under- weight children, with its rating falling well below the national average. The state is
geographically divided into 10 key socio-economic zones of : South eastern tribal zone, Eastern
tribal zone, Baghelkhand, Upper Narmada, Vidhya zone, Central Narmada, Bundhelkhand,
Gird, Malwa, Western tribal. The figure below shows the socio-economic zones. The districts
where THP, currently works has been labelled as T in the Figure 2, below.
Figure 2: Socio Economic zones of Madhya Pradesh

Source: Adapted from the Government of Madhya Pradesh

Source: NSSO,2010
Other Backward Class (OBC) is a collective term used by the Government of India to classify Hindus and non-Hindus which are
educationally and socially disadvantaged. Scheduled Castes (SC) also known as Shudras the lowest rung in the caste hierarchy.
Scheduled Tribes (ST) are the indigenous tribes (adivasis) who reside in forest areas
8
Source: Caste Census 2011
9
Source: Madhya Pradesh Economic and Human Development Indicators, UNDP 2011
10
Gendering Human Development Indices: Gendering Human Development Indices: Recasting the Gender Development Index and
Gender Empowerment Measure for India, Ministry of Women and Child Development, GOI
http://undp.org.in/sites/default/files/GDI_and_GEM_Report.pdf
7

Overall Socio-economic Situation in Madhya Pradesh

This section provides an overall socio-economic situation of the state as well as the areas
where THP has been working. This has been done through a comparison of all the zones
mentioned above presented with the national averages for the different parameters, provides a
clear picture of the overall situation in the state. In the table below (Tables 1 and 2), the rows
that have been highlighted as green are the zones where THPs work area is located.
Table 1: Comparative Geographical & Demographic Characteristics 2011(Source: Census
2011)
Region
Southeastern Tribal Zone
Eastern Tribal Zone
Baghelkhand Zone
Upper Narmada Zone
Vindhya Zone
Central Narmada Zone
Bundhelkhand Zone
Gird Zone
Malwa Zone
Western Tribal Zone
Madhya Pradesh
India

Forest
(%)
47.1
30.7
29.5
29.3
25.4
34.9
13.9
24.1
9.0
10.9
25.2
24.0

Rainfall(mm)

Density

Rural (%)

SC (%)

1243
1047
880
947
1120
960
1003
799
1079
1003
1008
1083

154
176
251
271
237
178
240
244
307
237
236
382

88.2
78.2
83.4
63.6
62.7
76.8
79.2
70.1
61.6
82.9
72.4
68.8

5.7
8.5
16.4
11.5
20.4
12.5
25.5
19.9
21.2
7.2
15.7
18.5

ST
(%)
45.4
54.0
21.4
33.6
12.3
36.0
4.5
9.9
11.7
64.0
27.2
11.3

The state has the highest area of forests in the country and this is reflected in the fact that apart
from the Malwa, Western Tribal and Bundhelkhand zones all other areas of the state have
proportion of forests greater than the national average. The rainfall is more or less equal to the
national average. The density of population is much less than the national average and so the
renewable natural resource to population ratio is comparatively favorable. The proportion of
people living in rural areas is slightly more than the national average with the tribal zones having
a substantially larger proportion of people living in rural areas. The largest number of Scheduled
Tribes live in the state and this is borne out by the fact that it has more than double the
proportion of the national average whereas in the case of Scheduled Castes the proportion is
slightly less. Thus, the distinctive geographic and socio-economic characteristics of the state are
the higher of forests and Scheduled Tribes and lower population density.
The annual per capita income in the state is much lower than the national average and
especially so in the tribal zones and the Baghelkhand, Gird and Bundhelkhand zones which
have a higher proportion of Scheduled Castes and which are the under developed areas of the
state. The proportion of irrigated area is less than the national average but over the past decade
there has been substantial improvement in this resulting in greater agricultural production and
now Madhya Pradesh has become the largest wheat producing state in India surpassing Punjab
in quantity if not in productivity. However, the deprived zones enumerated above are still
substantial laggards in this also. The proportion of households having good houses is slightly
higher than the national average and except for the Western Tribal, Gird and Malwa zones the
other regions are above the national average. The state has outperformed the national average
with regard to access to electricity in rural areas and this has also been a major factor in the
increase in agricultural production. However, the proportion of households in rural areas with
10

access to banking is still very low and this is a major constraint for economic development. The
proportion of rural households owning computers is also very low.
Table 2: Comparative Economic Characteristics 2011
District

Annual Irrigation
Per Cap.

(%)

Inc. (Rs)

Living in

Access to Access to

Good Quality Electricity

Owning

Economi

Banking Computers c Index

Houses (%)

(%)

(%)

(%)

(E.I.)

Southeastern Tribal Zone

Eastern Tribal Zone

24496
29685

21.2
10.1

52.9
54.1

55.9
37.5

56.5
62.5

2.8
3.1

0.771
0.725

Baghelkhand Zone

27429

25.7

58.3

39.8

41.6

3.8

0.753

Upper Narmada Zone

40569

33.4

49.2

67.6

49.7

2.8

0.863

Vindhya Zone

35594

48.5

46.3

64.9

33.3

3.0

0.837

Central Narmada Zone

35062

49.7

45.8

70.5

47.9

2.9

0.897

Bundelkhand Zone

23242

57.1

51.9

41.7

35.6

2.9

0.784

Gird Zone

28263

47.3

43.8

36.4

29.9

3.9

0.734

Malwa Zone

42507

50.1

42.5

75.7

37.4

3.2

0.902

Western Tribal Zone

24413

37.6

37.1

72.6

38.4

2.7

0.762

Madhya Pradesh

32453

42.9

47.0

58.3

40.7

3.2

0.820

Source: Census 2011

A comparative Economic index E.I. has been constructed by first calculating the ratio of the
value of a parameter for a particular zone or for the state as a whole to that of the national value
and then an average of all the parameter ratios for that zone. Thus, for any zone
E.I.z = Ez1/En1+Ez2/En2+Ez3/En3+Ez4/En4+Ez5/En5+Ez6/En6, where
Ezi is the parameter value for the zone and Eni is the parameter value for India as a whole. It is
clear from the values of the E.I. that overall the state and especially the tribal areas, and the
Baghelkhand, Bundhelkhand and Gird zones which have a high proportion of Scheduled
Castes, are substantially behind the national average in economic development.
The preponderance of unfavorable values for many of the indicators of socio-economic
development summarized above, especially for the Scheduled Caste and Scheduled Tribe
areas, indicates that the various development schemes and programmes of the Union and State
Governments are possibly not being designed and implemented properly. As will become clear
in the next section, the operation of the Panchayati Raj Institutions (PRI) has not been in
accordance with the provisions of the statutes and so there is a lack of grassroots participation
in design and implementation of development schemes and this malfunctioning of PRIs also
results in lack of access to quality social services like education and health.
In Table 3 below in all the parameters of gender equity except that of female work participation
rate, Madhya Pradesh is substantially below the national averages which are themselves very
poor and reflect the serious lack of gender equity in this country.

11

Table 3: Comparative Gender Characteristics 2011

District

Southeastern Tribal Zone

Eastern Tribal Zone
Baghelkhand Zone
Upper Narmada Zone
Vindhya Zone
Central Narmada Zone
Bundelkhand Zone
Gird Zone
Malwa Zone
Western Tribal Zone
Madhya Pradesh
India

Sex
Ratio

1017
981
933
963
901
949
885
865
956
977
936
949

Fem. Female
Lit. (%) Workers
(%)
51.2
43.7
45.9
51.5
48.3
50.3
41.1
42.2
43.0
34.2
44.2
49.6

40.6
33.4
29.8
30.3
23.3
30.1
28.0
19.1
33.9
40.7
31.3
25.5

Distant
Water
Source
(%)
42.5
31.8
37.4
34.2
34.6
30.6
41.2
32.9
40.6
34.5
36.1
22.1

Open
Good
Def. (%) Cooking
Fuel (%)
91.3
93.3
86.1
82.9
86.0
78.6
93.7
91.5
82.9
86.1
86.4
69.3

2.3
1.9
2.2
4.0
3.1
5.7
1.8
2.6
6.6
6.0
4.0
11.4

Gender
Index (G.I.)

0.863
0.805
0.778
0.846
0.759
0.883
0.716
0.695
0.860
0.881
0.812
1.000

A comparative gender index G.I. has been calculated by first calculating the ratio of a parameter
for a particular zone or for the state as a whole to that of the national average and then an
average of all the parameter ratios has been estimated. Since in the case of Distant Water
Source and Open Defecation, a higher value indicates a worse situation, the ratio with the
national value has been inverted. Thus,
G.I.z = Gz1/Gn1+Gz2/Gn2+Gz3/Gn3+1/ (Gz4/Gn4) 1/ (Gz5/Gn5) +Gz6/Gn6, where
Gzi is the parameter value for the zone and Gni is the parameter value for India as a whole.
The gender situation in all the zones is considerably worse than the national average and
particularly so in the Gird, Bundhelkhand, Vindhya and Baghelkhand zones. The situation in the
tribal zones is comparatively better because of higher sex ratio and female work participation
rates. Women's participation in the design and implementation of development programmes and
especially those that have a direct bearing on their lives is minimal given the lack of gender
equity. The foregoing situation analysis clearly underlines the need for devising grassroots
strategies and programmes that are zone specific for effective design and implementation of
development programmes given the great diversity of local situations. Thus, the importance of
PRIs and the role of the elected women representatives in them assumes great importance.

12

III. METHODOLOGY

3.1 SAMPLE SELECTION

The key characteristics of the blocks from where the EWRs have been selected for training has
been summarized in the Table 4 below.
Table 4: Key characteristics of THP working areas since 2009
Rampur
Sirmour
Baghelan

Block
District

Rewa

Satna

Rampur Naikin
Jaisingh nagar
Badwara
Sidhi

Socio-economic
Baghelkhand
Zone
Partner
organizations

No. of EWRs
No. of
Panchayats
EWRs/Panchay
at
Economic Index
(EI)
Gender Index
(GI)

Anupam
Gram
a
Sudhar
Educatio
Samiti
n Society

Om
Shiksha
Samiti

Badamalhera Khirkiya

Petlawad

Shahdol

Katni

Chhatarpur

Harda

Jhabua

Eastern
Tribal

Upper
Narmada

Bundelkhand

Central
Narmada

Western
Tribal

Om
Shiksha
Samiti

Manav
Jeevan
Vikas
Samiti

Mahila Samiti Samavesh

Sampark

105

132

67

33

43

71

68

61

21

20

16

10

13

21

14

0.817

0.905

0.844

0.734

0.702

0.773

0.958

0.777

0.711

0.731

0.671

0.712

0.645

0.636

0.860

0.801

Clearly the socio-economic and gender situation is more or less similar across the state of
Madhya Pradesh. Therefore, the universe of the study is constituted by all the EWRs in the
Gram Panchayats in the State. This population can safely be assumed to be a normal
distribution. The Food and Agricultural Organization (FAO) has developed a tried and tested
sampling methodology for researching the socio-economic characteristics associated with any
development phenomenon11. According to this, the appropriate simple random sample size for a
survey in which the universe population is large enough for it to be possible to assume that it is
a normal distribution is determined by three factors The estimated prevalence of the variable of interest which are the EWRs in this case
as we are concerned with their performance and this is 0.5.
The desired level of confidence which is 95 percent.
The acceptable margin of error which is 5 percent.
Then, the simple random sample size can be calculated according to the following formula n= t x p (1-p)/m, where
n = required sample size
t = confidence level at 95% (standard value of 1.96 for a normal distribution)
p = prevalence of EWRs which is 0.5
m = margin of error which is 0.05
Thus, for the present study n= 1.96 x 0.5(1- 0.5)/0.05 or n = 384
11

Source: FAO Statistical Development Series, 1990

13

The intervention was designed with a stratified sample to adequately represent the Scheduled
Castes and Scheduled Tribes and diversity of locations in the selection of the EWRs to be
trained and so the sample is not a simple random sample for which the above formula has been
developed. To correct for this difference in design, the sample size is multiplied by the design
effect D which is generally assumed to be 1.5 for such interventions.
Thus, the corrected sample size is n x D = 576.
The final sample that was selected for the purpose of the outcome assessment from the 1004
EWRs upon whom baseline was administered was 580 from across 120 GPs. These were
women who had regularly been engaged with THP through its training programs, and other
strategies.
3.2 SURVEY INSTRUMENT
An outcome assessment was conducted in 2014, the fifth and final year of the election phase in
the state. The questionnaire designed consisted of two different sets of questions (See
Annexure I for the questionnaire).

The first set evaluates those aspects regarding which the EWRs have been imparted
training by THP to build up their capacity. These aspects are their own voice, agency
and leadership qualities, the support they receive from their family, their interaction with
Panchayat staff and members, their skills in conducting the various activities of the
Panchayat and their role in ensuring and enhancing women's access to social security
schemes and other entitlements in Panchayats. This go one to form the Capacity
indexes, described later in the chapter.

The second set records the various benefits that the EWRs have been able to secure in
their Panchayats from various government schemes.

The outcome assessment questionnaire was administered to a control group from the same
blocks where THP is implementing its program, but who had not received training and any other
support from THP. The control group was selected purposively on the basis of those who have
been active members in their Panchayat i.e. have attended 75% of the Panchayat executive
meetings. A preliminary list of EWRs was prepared from the executive meeting registers to
check the level of attendance. The results of the preliminary list are as follows:
Table 5: Attendance list of control group in Panchayat Meetings
Block

Sirmour Rampur
Baghelan

District
Rewa Satna
75 % and above
attendance
56.6
61.1
50 - 75 % attendance 32.3
35.2
25 - 50 % attendance 7.6
2.1
0 -25 % attendance
3.5
1.6
Average attendance
36.5
38.2
Control Sample Size
30
32

Rampur Jaisingh
Naikin
Nagar
Sidhi
60.4
36.3
2.9
0.4
38.3
32

Shahdol
58.3
30.6
0.7
0.4
35.2
27

Badwara Badamal Khirkiya

hera
Chattarpu
Katni
r
Harda
69.2
29.4
0.8
0.6
39.7
32

63.4
32.5
2.7
1.4
38.5
33

70.1
26.9
2.3
0.7
39.6
32

Petlaw
ad
Jhabua
57.7
33.2
5.2
3.9
36.8
32

14

As can be seen from Table 5, the proportion of active members, which is those EWRs who
attend more than 75 per cent of the monthly meetings of the Panchayat hovers between 56 and
70 per cent and the average attendance is slightly less than 40 per cent. Thus, assuming this
average attendance level as the prevalence value for the purposes of getting the size of the
simple random sample of control EWRs with sufficient statistical power by using the formula we
used earlier, the prevalence value p would be 40 percent of the total EWRs who are themselves
50 percent of the total elected representatives or p = 0.2. Moreover, since these control EWRs
are being selected from the sub-districts which have already been chosen as part of the earlier
stratified sampling for the THP trained EWRs, they can be chosen as a simple random sample
from these sub-districts and so the design factor will not apply.
Thus, applying the formula we get n= 1.96 x 0.2(1- 0.2)/0.05 = 246.
So a total of 250 control EWRs were selected randomly from among those EWRs who had
attended more than 75 percent of the meetings given in Table 5.
3.3 DATA COLLECTION
Data collection usually poses one of the most intractable problems in such surveys in rural
areas and so intensive training was given to the enumerators and extensive field testing was
done to ensure that they were conversant with the intricacies of the survey and were capable of
eliciting appropriate responses. The rationale of the survey, its structure and the relevance of
the questions was explained to the enumerators in the training so that they understood
thoroughly the whole research procedure. The filled in survey forms were checked in real time
to ensure consistency and correctness of the data. In case there were inconsistencies the
enumerators were asked to resurvey immediately.
3.4 ESTIMATION OF CAPACITIES OF ELECTED WOMEN REPRESENTATIVES
For the purpose of the estimation of the capacities a multi-dimensional index has been designed
from individual capacity indices in the five domains of:

Personality and Leadership Qualities Index (PLI) that measures the confidence that
EWRs evince in terms of mobility within the larger social and public sphere

Family Support Index (FLI) that measures the household status and the support
garnered by the EWRs from their household members

Interaction with Panchayat Staff and other Elected Panchayat Representatives

Index (PII) that measures the effective communication that the EWR forges with local
bureaucracy and officials to get work done

Skills and knowledge possessed in working efficiently according to the various rules of
the Panchayat and Government Schemes measured by the Panchayat Skills Index
(PSI)

Womens Priority Index (WPI) that measures how well the EWRs are able to prioritize
issues related to womens wellbeing in Panchayats through their voice and political
agency

15

For purposes of ease of data entry the options given as pre-framed answers to the questions
have been coded numerically with a provision for the respondent to give an answer from outside
these pre-framed one to be listed as an other answer. In most cases the best answer has the
code 1, the next best, the code 2 and so on. After this the average of the answer codes for the
set of questions asked for a parameter has been calculated. To make the index value range
from 0 to 1 with 0 being the lowest, as is the normal practice in the construction of such indices,
the average has been inverted to give the index for that parameter. Thus, the best value for the
index is 1 and for lesser performance it decreases with the least possible value being 0. Thus,
the indices are numerically like those used for calculating human development which too have
the range of 0 to 1.
The Composite Capacity Index (CCI) has been constructed from these separate parameter
indices by averaging their values. Since the different parameters have different influence on the
overall performance of the EWRs, there is a need to find the appropriate values of the weights
to be assigned to the different constituting parameter indices in the estimation of the CCI. The
total benefits ensured for their constituencies by the EWRs can be measured by the number of
households benefited and the total amount of funds disbursed under various schemes. The
funds disbursed are affected by many structural factors which are not really in the control of the
EWRs as has been detailed in the review of literature on the status of Panchayati Raj and
devolution done earlier. Since there is no Government data on these factors at the district level
for Madhya Pradesh it is not possible to control for these factors without undertaking a more
detailed, expensive and time consuming primary survey of these factors which is beyond the
scope of this assessment.
However, the number of households benefited is a better indicator of the benefits ensured by
the EWRs as it is influenced by a lesser number of factors which are more in the control of the
EWRs. Therefore, the number of households benefited was taken as the indicator of
implementation performance of the EWRs for estimating the weights to be applied to the indices
for the calculation of the CCI. A standard statistical procedure for establishing the relationship
between causative factors and their impact indicator is regression analysis. This tries to find out
whether the causative factors called independent variables have a statistically significant
relationship with the impact indicator which is called the dependent variable. The relationship
between the dependent and independent variables which is called the regression model can be
represented as follows Y = C + A1X1+A2X2+A3X3.........AnXn, where
Y is the impact indicator, X1, X2.....Xn are the causative factors, C is a constant and A1, A2......An
are the coefficients of the causative factors which determine the relationship and establish
whether it is statistically significant or not.
This analysis also estimates to what extent the regression model explains the data or how good
it is as an estimation of the relationship between the causative factors and the impact indicator
through the calculation of a coefficient of determination r. The coefficients A1, A2......An of the
regression analysis have been taken as the weights for calculating the CCI. In this way each
and every EWR's capacities have been evaluated in the form of an index value which has then
been compared to determine who the EWRs with better capacities are.
3.5 QUALITATIVE ASSESSMENT
A selective qualitative assessment of those EWRs who have performed exceptionally well in the
quantitative assessment has been done and individual case studies have been prepared and
are given in Annexure IV.

16

3.6 ESTIMATION OF RETURN ON INVESTMENT

Finally, an estimate has been made of how much incremental economic benefit the EWRs have
provided to their constituents as a result of their training. For this a regression analysis has first
been done to determine to what extent the incremental amount disbursed by the THP EWRs as
compared to the control EWRs can be attributed to the capacities of the EWRs. The Composite
Capacity Index is the independent variable and the total amount disbursed by the EWRs is the
dependent variable for this regression model. The coefficient of determination of this regression
model is an estimate of the extent to which the efforts of the EWRs have led to an increased
disbursement in their Panchayats and so it can be safely said that this is the proportion that they
must have at the least contributed if not more. The proportion of the incremental amount
disbursed due to the efforts of the THP trained EWRs as compared to the control EWRs who
haven't been trained can thus be estimated by the following formula
IA= [(mgATHP-mgACON)*Np+(nrATHP+ssATHP+hsATHP-nrACON-ssACON-hsATHP)*NEWR]*r where,
IA is the incremental amount disbursed that can be attributed to the training received by
the THP EWRs
mgATHP is the average MGNREGS12 amount disbursed by the THP trained EWRs
mgACON is the average MGNREGS amount disbursed by the Control EWRs
nrATHP is the average NRLM13 amount disbursed THP trained EWRs
nrACON is the average NRLM amount disbursed by the Control EWRs
ssATHP is the average Social Schemes14 amount disbursed THP trained EWRs
ssACON is the average Social Schemes amount disbursed by the Control EWRs
hsATHP is the average Housing Schemes amount disbursed THP trained EWRs
hsACON is the average Housing Schemes amount disbursed by the Control EWRs
NP is the number of THP Panchayats
NEWR is the number of THP trained EWRs
r is the coefficient of determination obtained from the regression analysis.x`
This incremental accrual of benefits has been compared to the total investment made by THP
over five years to arrive at an estimate of the minimum level of Return on Investment (RoI) for
the intervention. The EWRs have also spent considerable time in attending trainings, meetings
and events organised by THP and this has meant that they have had to forego unpaid but very
necessary domestic work and paid livelihood work. They have done this because they have felt,
as will become clear from the summary of case studies, that the THP training has helped them
immensely in performing their duties as EWRs and also improve their standing within the family
and society. This contribution of their time by the EWRs has also been monetised as this too is
an outcome of the quality of THP intervention. However, it is difficult to rigorously estimate this
time and how much of it is as a result of the training imparted by THP and so more than that
contributed by the control EWRs. Therefore this has been left out of the estimation of ROI.

12

MGNREGS is the Mahatma Gandhi Rural Employment Guarantee Scheme, a Centrally Sponsored poverty alleviation scheme
that is implemented by the National government, where every rural members who is Below the Poverty line and has a job card and
demand for work are guaranteed 100 days of labor.
13
NRLM is the National Rural Livelihood Mission a poverty alleviation scheme, that fosters self-employment through Self-help
groups
14
Social schemes are social security benefits such as old age pension, widow pension, disability pension etc.

17

IV. SUMMARY OF FINDINGS

This chapter lays down the key results and findings of the outcome assessment and has been
divided into the following 3 sections:
a. Relationship between the Capacity indices and the Number of households
benefited
b. Comparative results of capacity indices and the work done by the THP trained
EWRs with the control group
c. Return of Investment
The detailed analysis is provided below.

4.1 RELATIONSHIP BETWEEN THE CAPACITY INDICES AND THE NUMBER OF

HOUSEHOLDS BENEFITED
The relationship between the capacity indices and the number of households benefitted from
the work done by the EWRs has been calculated using regression analysis. The results are
given below:
Table 6: Result of Regression Analysis between Capacity Indices and Households
Benefited
(Intercept)
PLI
FSI
PII
PSI
WPI

Coefficient

Std. Error

t value

Pr(>|t|)

-1927.0
855.5
1091.3
1426.3
1005.1
756.0

444.9
247.9
303.0
552.8
300.0
340.1

-4.332
3.451
3.601
2.580
3.350
2.223

1.79e-05***
0.000607***
0.000348***
0.010164*
0.000869***
0.026670*

Significance codes: *** 0.001 **0.01, * 0.05, Coefficient of Determination: 0.2368

As can be seen above, all the capacity indices have a statistically significant influence on the
number of households benefited from the work done by the EWRs in the respective
constituencies. The regression model has an explanatory power of about 23.7 per cent as
evidenced by the value of the coefficient of determination.15 The regression coefficient for each
index has been further divided by 1000 and used as the weight of that index for calculating the
CCI for each EWR by equating it to the weighted average by dividing by the sum of the weights
as follows CCI = (P.L.I*0.856 + F.S.I*1.091 + P.I.I*1.426 + P.S.I*1.005+ W.P.I*0.756)/5.134
15

The combined contribution of the EWRs' capacity building to the securing of benefits by them being 23.7 per cent since there are
other important factors influencing the number of beneficiaries logged by the Panchayat. This is due to the fact that implementation
of schemes to provide benefits to the constituency involves many other stake holders apart from the EWRs, like the Gram Sabha,
male elected representatives, Panchayat officials, higher level officials and politicians and many other situational factors which have
not been measured in the survey and so are not part of the regression model

18

As can be seen above, the Panchayat Interaction Index (PII) has the highest influence on
number of households benefited, among the five indices developed. The PII which measures
how adept EWRs are with regard to their interaction, communication and relationship with
various other Panchayat staff and members, in their constituencies This, holds true, given that
for services to be implemented and provisioned, EWRs need to be able to communicate with
confidence and be supported by various authorities and line departments. Further, this is also
validated from the underlying training methodology, which emphasises on the need to work as a
collective, to improve service provisioning.
The Family Support Index (FSI), that measures the support garnered by the EWRs from their
own families, as can be gauged from Table 6, closely follows the PII in terms of influencing the
households benefited by the various services provided by the EWRs. Family support, forms the
bulwark in the creation of an enabling environment, which allows the EWRs to function
effectively. Support, implies both the sharing of household burdens, as well as, rendering
women the freedom to be mobile, thus unshackling them. Women, especially in rural areas,
have the responsibility of chores that are not only vital to running a household, but are also time
consuming, like fetching water, cooking, and most importantly, taking care of their children.
Without the support of the family, the EWRs pursuit of goals becomes inhibited. The Panchayat
Skills Index (PSI), as can be seen from Table 6, has the third highest significant relationship,
pointing to the fact that unless the EWRs have the right knowledge about services, processes
and their roles in the Panchayats, performance, in this case the people who benefit, remains
below par.
Finally, it is interesting to note that the Personality and Leadership Index (PLI) and Womens
Priority Index (WPI) have the lowest significant relationship to the performance of the EWRs.
One of the key strategies, as employed by THP, is to strengthen the capacities of the women to
work so that they can exercise effective leadership in their constituencies. However, this does
not work in isolation. Therefore, despite having achieved empowerment or the desire to
prioritise women related issues, or the knowledge, unless they have a strong support structure
like the cooperation of government officials or their own families and are able to place the issues
of the community at the forefront, the exercise of leadership remains incomplete. This also
stems from the fact that traditionally womens roles has been restricted to the domestic sphere,
therefore despite gaining personal agency, they are required to fight the patriarchal structures
that manifests through family pressure or unsupportive authority figures in the government.
THPs approach to empowering EWRs is built within the context of UNs (2001)16 definition of
empowerment which incorporates five key components of, womens sense of self- worth, their
right to have and determine choices, their right to access opportunities and resources, their right
to have the power to control their lives and their ability to influence change
This approach is rooted in the two key strategies of: Strengthening the leadership
capacities and creating enabling environment through facilitation of support structures
for the EWRs. As a matter of fact, one of the foremost and conclusive studies commissioned by
the Ministry of Panchayati Raj (MoPR) in 2008, under the guidance of Nirja Gopal Jayal,
concluded, training and capacity building, as one of the pertinent drivers of performance in the
PRIs, followed by the EWRs individual empowerment level, willingness to work for the
Panchayat and education level in that order. The task force further, pointed out that for the
decentralization process in governance to be successful, capacity building is extremely
16

Source: http://www.un.org/womenwatch/daw/csw/empower/documents/Strandberg-EP6.pdf

19

important given the lack of knowledge and expertise among elected representatives at the PRI
level. The study, also pointed out that training transcended the mere provisioning of technical
information and involved the holistic process of understanding the self and developing a voice to
advocate for an engendered development agenda.
The assessment aims to gauge the following capacities of the EWRs through a Composite
Capacity Index (mentioned in Chapter 3):
Personality and Leadership Qualities
Family Support Garnered
Panchayat Interaction
Panchayat Skills
Prioritising Womens Issues
4.2 COMPARATIVE RESULTS OF CAPACITY INDICES OF THP TRAINED EWRS WITH
CONTROL GROUP
The following table summarizes the comparative results of the capacities between the THP
trained EWRs in Madhya Pradesh with the control group is summarized below:
Table 7: Comparative results of Capacity Indices
State

Madhya
Pradesh

EWR Type

THP
Control
THP/Control
(%)

Capacity Indices
Composite
Capacity
Index
(CCI)
0.757
0.376
201

Personal
ity and
Leaders
hip Index
0.847
0.387
219

Women
s
Priority
Index
0.837
0.326
257

Panchay
at
Interacti
on Index
0.810
0.570
142

Family
Support
Index

Panchay
at Skill
Index

0.689
0.344
200

0.618
0.316
196

Analysis of results17

Composite Capacity Index (CCI)

The CCI a multi-dimensional index, has been developed to gauge the level of political
empowerment, and agency that the EWRs have gained, through the trainings disseminated by
THP. The CCI, is the key underpinning of the assessment. As can be seen from the table
above, the overall CCI for the THP trained EWRs is significantly higher (201%) than the control
group. This, essentially implies that the training provided by THP, has been a crucial input to the
EWRs, in increasing their capacities in the important domains of their life. What is important to
note herein, is the fact that CCI gauges not just the power from within, but how that power
translates to their increased capacity towards power over archaic social conventions, and
power to creating new possibilities and work together as a collective.

17

The detailed district wise comparison results have been attached in Annexure III.

20

Personality and Leadership Index (PLI)

Individually, the PLI has the highest ranking of 0.847 among all other indices. This is particularly
interesting, given that THPs strategy hinges on strengthening the leadership abilities and
capacities of the EWRs. The foundational training that is provided to the EWRs in the form of
Womens Leadership Workshop (WLW)18, which enable and equip EWRs when they assume
office to analyze situations from a gender and human rights perspective, and articulate their
aspirations into vision for themselves and their communities, addressing development, social
and gender justice issues. Empirical evidence shows that gender is not the only line along which
disempowerment occurs, but is enmeshed with various other social and cultural factors, which
inhibit a woman to exercise her agency as an individual. A high PLI reflects that the EWRs have
been able to expand their ability to negotiate these factors, exercise greater autonomy, and
become impactful leaders. Given that for most women, working as a Panchayat representative
is a new found area and not traditionally accessed by them, the training methodology that is
designed by THP is to ensure that they are able to develop a sense of self-esteem and dignity.
The PLI ranking evinces that the EWRs have developed the belief and confidence that is
required to demonstrate leadership. For example, Durji Bai EWR from Phutwari Panchayat in
Chattarpur district, despite being a Dalit laborer dependent often on opportunities provided by
the upper castes, developed the courage through engagement with THPs SWEEP campaign 19
to challenge them, and contest against them. Her increased confidence is also reflected through
the fact that she fought against the Thakurs (dominant caste) who would not let her unfurl the
national flag on the Republic and Independence days. She along with the Dalit Sarpanch took
up cudgels to fight for their rights.

Womens Priority Index (WPI)

The WPI Index closely follows the PLI, forming the second highest ranked capacity Index for the
THP trained EWRs, with a ranking of 0.837. WPI measures the degree to which EWRs prioritise
issues important for women in the community like reproductive health, malnourishment,
education, livelihood for women and violence against women. When the capacities of the THP
trained EWRs and the control group are compared, the highest difference is reported by WPI
(257%) followed by the PII (219%). As a matter of fact when compared to the baseline findings
the higher ranked WPI has particular relevance given that more than 50% of the respondents
had noted that they were keen on taking up women centric issues like education, child marriage
and violence. The areas where the study has been conducted reports a low Gender Index
(calculate by the study as evidenced in Table 2), where women are relegated to the fringes of
the society and their voices remain unheard. The gender inequity can also be seen from the
violence that is perpetrated against women in MP20. The state reports one of the highest rates of
domestic violence and dowry deaths. The GDI puts MP lower than some of the sub-Saharan
countries. Therefore, given this context, THPs training methodology is of key significance.
Through multiple engagements with THPs training program, the EWRs are oriented to this very
perpetuation of patriarchy. Concepts such as rights, social citizenship are unpacked and they
are trained to apply their lived experiences to work within the Panchayat. The high WPI, in here,
reflects that the EWRs who work within, oppressive structures, manage to rise above them and
initiate transformative change. If empowerment, is seen as the capacity of persons to make
18

These are three day residential workshops which are undertaken with the newly elected EWRs and are held in the first year of the
election cycle.
19
SWEEP campaign is one of THPs key strategies that is undertaken in the fifth and final year of the election cycle to increase
womens participation in the Panchayat electoral process.
20
http://www.ideasforindia.in/article.aspx?article_id=105

21

purposeful choices, then the high ranking of WPI is a manifestation of the power within, which
is translates into confident EWRs who, take up issues that are difficult, but intrinsic to the locale.
Further, it reflects that the trainings disseminated by THP have fostered among the EWRs, the
need to bring about gender responsive change in their constituency. As can be seen form Table
3, the WPI for the control group has one of the lower ranks of 0.326, which reflects that without
training, for women to prioritize such issues, which are difficult and challenging, remains stifled.
Through the fostering of Sajha Manches21 and Jagriti22, THP has created a common platform
where elected and non-elected women come together, to discuss freely, the issues afflicting
them. These forums have weaved in women and their problems at the center of the Panchayat
discourse. Kalavati, a EWR from Bokna Panchayat, in the Chattarpur, put the issue of rampant
alcoholism and sale of illicit liquor in the villages in her Panchayat, as central to her endeavour
as the leader. She got a resolution from the District collector to close down illegal liquor shops.
The Sarpanch of Mahudipada Panchayat in Jhabua district, Rajudibehan, has taken up the
onerous task of eliminating violence against women. This is a serious problem among the Bhil
tribal of Jhabua wherein earlier the women would quietly suffer the violence. However,
Rajudibehan learnt in a workshop conducted by THP that violence against women was a
criminal offence and the perpetrator could be booked as an offender under the provisions of the
Domestic Violence Act. THP through its training has armed the EWRs with resources so they
become change agents in the community, and provide voice to the voiceless, rather than being
mere inert recipients of the trainings.

Panchayat Interaction Index (PII)

As seen in the previous section, that PII has the highest influence on the ensuring key
entitlements for the community. One of the key indicators in calculating the PII is the relationship
formed with other EWRs. Studies have suggested that womens collective action can transform
the society and reach for better outcomes23. Collective action paves the way to effective
communication with various governing bodies as well as works as an important strategy to
gauge the progress. Thus, THPs core strategy of forming federations of EWRs is of particular
relevance to the result. As Behar and Aiyer, have pointed out in a study, that an important
aspect to womens participation in Panchayati raj has been the formation of numerous
associations of EWRs which act as strong lobbies to increase and strengthen the governing unit
24
. The EWR federations facilitated by THP in Madhya Pradesh, formed in the second year of
the election term has managed to bring the EWRs on a common platform and establish a
collective identity. They have helped EWRs provide each other, normally isolated in their homes
and communities, with a network and critical mass with which to ideate and elicit emotional
support. These collectives have developed linkages with the local parties and bureaucracy to
advocate for issues. Further, one of the key issues in womens agency that is gender based
violence has been taken up strongly by the federation. Crimes against women and domestic
violence are both rampant in the State and so the federation has continually raised this issue at
the level of the Government and consequently the EWRs have felt more secure in approaching
the police and also raising the issue in the Gram Sabha25.

21

Sajha Manches are forums of EWRs and non-elected women in the villages that are fostered by THP.
Jagriti is the federation of EWRs in the state of MP. It means awakening.
Agency and Empowerment: A review of concepts, indicators and empirical evidence, Emma Samman and Maria Emma Santos,
2009
24
Networks of Panchayat women, Amitabh Behar and Yamini Aiyer, Economic and Political Weekly, 2003
25
To ensure the accountability and answerability of the Gram Panchayat to its citizens, they are required to organize village level
assemblies that are called Gram Sabha. Gram Sabhas are held several times each year depending on State Acts. People put forth
their concerns before the Gram Sabha, which are then either passed on to specific government departments or are addressed
directly by the Gram Panchayat

22

23

22

The table above shows that the Panchayat Interaction Index has the third highest ranking
(0.810). This is particularly essential given that for the EWRs to work efficiently the relationship
that they develop with the stakeholders becomes a pivot to influencing change. As can be seen
from the case of an EWR, Munni Bai Saket, an illiterate Sarpanch from Maronha Panchayat in
Satna (one of the most backward districts in terms of both economic and gender index) initially
faced a lot of difficulty including a motion of no-confidence brought against her by the upper
caste members in collusion with the Panchayat Secretary who was very corrupt. However, with
the help of other EWRs and the federation of members she was able to counter these
adversaries and also learnt the rules and regulations of Panchayat functioning. As can be seen
from the table above that for the control group PII is the highest ranked index of 0.570. This can
be attributed to the fact that in MP there are numerous NGOs and grassroots organizations that
undertake various forms of capacity building trainings. However, it is ranked lower than the THP
trained EWRs given that they are not continuous efforts, rather limited to individual workshops.
THPs training methodology incorporates the constant field monitoring and hand holding through
partner organizations to help the EWRs deal with every day obstacles.

Family Support Index (FSI)

Empirical evidence suggests, that empowerment does not happen in vacuum, but needs to be
enmeshed within the micro- social and cultural units, like the family. While in the earlier section
family support index has had a significant impact on the accrual of benefits to the households
and its coefficient in the regression model had the second highest value but, in analysing the
capacities of the EWRs, it has the second lowest value (0.689). This can be attributed to the
entrenched patriarchal culture that rules the areas where the study was conducted. During the
survey while 90% of the EWRs reported that family members do take on other domestic
responsibilities, only 50 percent reported that the family members take care of the children when
they go to meetings. In terms of domestic responsibility this represents a change from the
baseline where more than 85% of the women were overburdened with various domestic chores
and 68.9% of the women had said that household responsibilities accounted for the biggest
obstacles in the development of effective leaders. However, interestingly, the THP trained
EWRs have scored 200% more than the control group, the third highest comparative score
among all the indices. This establishes a previously made argument that empowered women
can negotiate with their environment and bring about change.

Panchayat Skill Index (PSI)

Finally, while the PSI has the third highest statistically significant relationship, it has the lowest
ranking here (0.618). This can be attributed to the fact that the State government has not
devolved any powers substantially to the Panchayats and neither runs any skills based initiative
to run the PRIs. However, it is interesting to note that the Panchayat skills of the EWRs have
significantly improved since the baseline which was 0.32 and has become 0.618 at the end of
the five years26.Through various capacity building initiatives like the Need based workshops,
that seeks to impart technical information to the EWRs, on running Panchayats, the skills have
been sharpened, but it points to the need to have more such trainings. The need to have more
technical trainings is necessary given that even among the control group, PSI has the lowest
score of 0.316. Despite THP trained EWRs scoring 196% more than the control group in the
PSI, it points to the need for having more Need based Workshops, that impart technical training
that enhance knowledge of EWRs.

23

4.3 COMPARATIVE RESULTS OF WORK DONE BY THP TRAINED EWRS WITH CONTROL
GROUP
A key aspect of the transformative leadership, evinced by the EWRs can be seen in the manner
in which they use the newfound political space to prioritize the entitlements accrued to the
community.
Table 8: Cumulative Households Benefited and Amounts Disbursed by EWRs 2010-1427
District

Madhya
Pradesh

EWR
Type

Implementation Performance
Households
Benefit
ed

Total
Amount
Disburse
d
(Rs
Lakhs)

MGNR
EGS
Disbur
sement
(Rs
Lakhs)

NRLM
Disburs
ement
(Rs
Lakhs)

Social
Scheme
s
Disburs
ement
(Rs
Lakhs)

Housing,
Water
Supply
and
Sanitation
Schemes
Disbursement (Rs
Lakhs)

THP
Control
THP/C
ontrol
(%)

2107
998
211

111.772
47.975
233

96.917
41.860
232

0.844
0.367
230

5.018
2.781
180

8.995
2.968
303

Analysis of results28:
Through the table above one can conclude that the EWRs have performed better in all the
aspects especially: the amount disbursed and the households benefitted. This goes on to prove
Niraja Gopal Jayals claim in her analysis of the 2008 survey commissioned by the Ministry of
Panchayati Raj, while reservation provides the opportunity for entering the PRIs, it is no
determinant of performance.the core remains training and handholding. As can be seen from
the table above that there is a significantly large difference between the performance of the THP
trained and control EWRs, with the former having disbursed 233 percent more than the latter
and this difference is statistically significant as per the Paired T test. The biggest difference
between the THP trained and control EWRs can be seen in the implementation of the housing,
water supply and sanitation schemes which is a serious issue for women in the Panchayats.
This again flows from the results of the baseline survey where the 60%, 44% and 53% of EWRs
had prioritised water, housing and sanitation respectively as key issues that they would like to
take up.
27

In the case of the Mahatma Gandhi National Rural Employment Guarantee Scheme (MGNREGS), generally the value of all the
works that have been sanctioned over the past five years in a Panchayat have been entered for all the EWRs in the Panchayat
because sanctioning of these schemes and their implementation is a collaborative effort in which all the members of that Panchayat
have to take part. For the National Rural Livelihood Mission (NRLM) schemes, the EWRs have responded individually with the
number of beneficiaries and the amounts disbursed because this requires individual effort on the part of the EWRs. For calculating
the amounts disbursed under various social schemes for which the EWRs only gave the number of beneficiaries they had helped to
get the benefits of these schemes, the officially notified monetary benefits of these schemes have been used to estimate the total
funds disbursed over five years. For calculating the amounts disbursed under various social schemes for which the EWRs only gave
the number of beneficiaries they had helped to get the benefits of these schemes, the officially notified monetary benefits of these
schemes have been used to estimate the total funds disbursed over five years.
28
The detailed district wise comparative results has been attached in Annexure III.

24

The key to THPs trainings is the fact that empowered EWRs will be able to access more
development within their constituencies especially for the marginalized. For Munnibhai Saket for
example open defecation in the Panchayat was causing health problems and difficulty for
women in so far as they had to go very far from their homes into the nearby forest to be able to
defecate in privacy. She took up the construction of toilets on a war footing and lobbied with the
administration for funds for this. During her term she got as many as 350 toilets constructed and
eliminated the practice of open defecation. She also got 20 hand pumps installed to solve the
problem of potable drinking water supply. The enterprising Shashi Singh similarly used the
funds under MGNREGS to revive forest cover. She mobilised the women and men in her
Panchayat to apply for work under the MGNREGS and worked with the Panchayat Secretary to
draw up plantation proposals and later lobbied with the Block level officials to get the work
sanctioned. Through Jagriti29 EWRs were trained on the key aspects of MGREGS, health and
sanitation. Jagriti imbibed in the EWRs the need to regularly monitor key schemes and
programs and ensuring the delivery of the services to the rural poor. A key aspect for the
improved performance of the EWRs can be attributed to the Need based workshops that aim to
impart technical information to the EWRs on the various schemes and programs. The
overarching vision of The Hunger Project is to reduce poverty and hunger which has been the
focus of the work done by the EWRs. The federation has linked key issues of food security with
livelihood and social security thus rendering a broader definition of it. It is important to note that
securing such benefit would not be possible unless the EWRs had developed enhanced
capacity to interact with officials and worked as a collective to ensure proper implementation of
resources.

4.4. RETURN ON INVESTMENT (ROI)

Finally, an estimate has been made of how much incremental economic benefit the EWRs
have provided to their constituents as a result of their training. ROI has come to become a
powerful tool for performance measurement and program evaluation are key to ensure
accountability and transparency of public services For this a regression analysis has first been
done to determine to what extent the amount disbursed is dependent on the capacities of the
EWRs. The Composite Capacity Index is the independent variable and the total amount
disbursed by the EWRs is the dependent variable for this regression model. The regression
results are shown in the table 9.

Table 9: Regression between Total Amount Disbursed and CCI of EWRs

Coefficient

Std. Error

t value

Pr(>|t|)

(Intercept)

-85.16

20.01

-4.256

2.48 e-05 ***

Composite Capacity Index

242.18

26.13

9.266
<2.0 e-16 ***

Signif. Codes: *** 0.001, Coefficient of Determination: 0.1446

29

Jagriti is the EWR federation in Madhya Pradesh

25

The regression analysis reveals that the Composite Capacity Index has a significant influence
in the determination of the total amount disbursed but as is evident from the value of the
coefficient of determination with an explanatory value of 14.46 per cent. Their capacities have
been enhanced as compared to the control EWRs by the training they have undergone from
THP.
We can therefore estimate the proportion of the incremental amount disbursed due to the
efforts of the THP trained EWRs as compared to the control EWRs who have not been trained,
by the formula that was derived earlier in the methodology section IA= [(mgATHP-mgACON)*Np+ (nrATHP+ssATHP+hsATHP-nrACON-ssACON-hsATHP)*NEWR]*r
Therefore,
IA = [(96.917-41.860)*120+ (0.844+5.018+8.995-0.367-2.781-2.968)*580]*0.1446
= Rs. 1688.44 Lakhs
Thus, at least Rs 16.88 Crores out of a total incremental disbursement in THP Panchayats as
compared to control Panchayats of Rs 116.77 Crores over the five year period from 2010 to
2014 can be attributed to the training provided by THP to the EWRs30. The total budget
expended by THP over the five year period from 2010-14 is Rs 3.96 crores.
Consequently the minimum return on the investment (RoI) made by THP is shown below.
Table 10: Return on Investment of THP Project in Madhya Pradesh 2010-2014
Total
Incremental Contribution by EWRs Investment by THP in
Disbursement in THP due to enhanced capacity Madhya
Pradesh
for
Panchayats
(Rs from training by THP (Rs capacity building of EWRs
Crores)
Crores)
(Rs Crores)
116.77
16.88
3.96
RoI = 100*(Contribution by EWRs - Investment by THP)/Investment by THP
= 100*(16.88 - 3.96)/3.96 = 326 %.

Minimum
Return
on
Investment
(RoI) (%)
326

30

It must be remembered, however, that the economic value of the better implementation of many social schemes due to their
monitoring by the EWRs has not been counted in this analysis due to the complexities involved in its estimation which are beyond
the scope of this evaluation exercise and so the actual returns on investment are much higher

26

V. CONCLUSION, KEY LEARNINGS AND

RECOMMENDATIONS
5.1 CONCLUSION
One of the key contributions of the study is the development of the CCI, a multi-dimensional
index that measures the key capacities of the EWRs. This unique index brings together five key
domains, which affect gender power, and agency, of measuring political empowerment of
women leaders in Panchayatsleadership, family, prioritizing work on gender and social justice,
Panchayat interactions and skills. Using a gender analytic lens, the assessment captures the
large scale results of womens empowerment processes that build collective power and deeper
change, including accounts of success as well as challenges and backlash. Therefore, the study
serves a radical departure, from existing frameworks that, seek to only measure the formal
domains affecting womens empowerment, like the access to resources, laws and policies.
The assessment has defined the performance of the EWRs as the number of households
benefitted, from the various services, and schemes provisioned by the women leaders, in their
respective constituencies. The study further, proves that there is a significant relationship
between the performance of the EWRs, and the CCI. In this, the PII and FSI, were found to
have the most significant relationship to the performance of the EWRs. The PII, which measures
the capacity of the EWRs to work as a collective with other stakeholders within the Panchayats
like block or district level authorities as well as other representatives, was found to have the
most significant influence on the performance of the EWRs. EWRs most often, have to battle
household duties, along with entrenched patriarchy within their own families, therefore, without
garnering family support they would not be able to perform their roles. Therefore, the Family
Support Index was found to have the next highest influence on the performance of the EWRs.
On comparing the key capacities of the THP trained EWRs, with the control group, it was found
that, the CCI for the THP trained EWRs to be 201% more than the latter. Among the five
indices, the THP trained EWRs, exhibited greater confidence, leadership skills (PLI) and were
able to prioritize issues core to women (WPI) in their Panchayats. As a matter of fact, the results
of the study showed that the THP trained EWRs scored 257% over the control group in WPI and
219% in the PLI. Therefore, it shows that the THP trained EWRs have managed to translate
their increased leadership ability towards purposeful action, especially, endeavoring to advocate
for other women and focusing on gender related issues. It is further interesting to note that,
while the FSI was ranked one of the lowest among all the other indices among the sample
selected, however, in terms of the difference between the THP trained EWRs and the control
group, this index was the third highest (200% more), after the personality and WPI. Therefore, it
can be conclusively established that the five year long empowerment intervention of THP has
had a significant positive impact on the performance and self-esteem of the EWRs.
Further, from the results of the performance of the EWRs, the THP trained EWRs have
managed to get 211% more households benefitted through their work. While the control group
managed to benefit 998 households, under the THP trained EWRs have reached out to 2107
households through the various schemes. Despite the lowest ranked skills index, THP trained
EWRs, has not stifled the women from getting work done. It rather, points to the need for the
government to invest more in the training and capacity of such representatives so they can
ensure grassroots democracy. What is more interesting is that despite the scant devolution of
funds to the Panchayats to implement various schemes, by the state government , the EWRs
have managed to get significant amount of money disbursed under the various schemes than
the control group. Thus, the hypothesis that if elected women representatives in Gram
Panchayats are imparted the right skills, knowledge and support, then they become empowered
to advocate for, and drive development in their constituencies and ensure social justice for all
citizens, stands true.
27

The results of the outcome assessment clearly indicate that the design and inputs impacted by
THPs interventions and support have significantly contributed in empowering the EWRs
resulting in strengthening of their political leadership, exercising of voice and agency, prioritizing
entitlements for women and overall towards adequate implementation of various schemes of
government aimed at providing education, health and livelihoods, thus reducing poverty and
hunger in the Panchayats. Finally, the last part of the study, shows that the disbursement that is
achieved by the THP trained EWRs, under various government schemes, comes to 116 crores,
and when compared to the investment made by THP of 3.96 crores in the various trainings, the
minimum ROI for THP is 326%.
5.2. KEY LEARNINGS
Patriarchal control and feudal systems have a strong influence on a EWRs role as a
leader
The PII and WPI have, the highest ranking among indices for the THP trained EWRs and show
the greatest difference viz a viz the control group, indicating that multiple inputs given to EWRs
results in a change in attitudes and perceptions related to their own capabilities and
identification and prioritization on issues related to empowerment of women at large. However,
statistically these indices have been seen to have the least influence upon the benefits secured
by the EWRs in their constituencies. This points to the fact that given the patriarchal nature and
the feudal structures within which the EWRs have to function in their Panchayats, unless they
garner the support of other stakeholders, working for their community poses significant
challenge. Despite this duality between the rankings of the indicators when compared to the
control group and relative influence of the indices on the performance of the EWRs in their
constituencies, indicates that for the EWRs the primary aim remains to challenge the dominating
structures, and pushing the same within their households and Panchayats.
Collective voice and action is key to achieving results in Panchayats
While the PII has the highest influence on the entitlements and benefits guaranteed by the
EWRs in their constituencies, the PLI has the least influence. This is reflective of the power of
the collective or the progression from I Cannot to I Can to We Can. It indicates the sociocultural context within which EWRs have to work, where a lone voice gets stifled, but a
collective cannot. The design of the program activities is such that at all times EWRs are
encouraged to collaborate amongst themselves at the Panchayat and Block level, and individual
EWRs are encouraged to approach local bureaucrats and male colleagues as a member of a
federation or collectively as a federation. This particular aspect is an endorsement of the work
done by THP on organizing EWRs into federations and giving inputs on multiple aspects related
to federations identity, structure, operations, conflict resolution, collective planning,
identification and recognition of gender justice and social justice issues alongside development
issues, and finally prioritization of issues.
Thematic campaigns in Panchayats are able to highlight issues effectively
Campaigns on spreading awareness on malnutrition and violence against women successfully
bring issues of taboo in the public domain. They are both informational in nature and
empowering for EWRs and other women in the community. Recall value of such campaigns is
usually high among women, since they get an opportunity to freely move around the
village/Panchayat during the campaign, spreading messages that positively impact their lives.
28

Donor priorities and innovative program approaches can enhance quality of program
The THP-UN Women partnership gave scope to experimenting with new types of activities in
the program. The activities were part of UN Womens larger focus of strengthening womens
political leadership through engagement with multiple stakeholders. These included interface
meetings with block/district officials and interface with parliamentarians, and enriched the
programme at large, especially outputs, since EWRs found support to reach out to local
bureaucracy directly. This is indicated in the strong co-relation between Panchayat Interaction
Index (PII) and number of households benefitted. Since then, interface meetings with EWRs and
block/district officials have become a mainstay of THPs strategy of building an enabling
environment for EWRs. Another intervention that was introduced with UN Womens support was
the building of support structures for EWRs at the Panchayat level Sajha Manch.
In the long run this resulted in two key outcomes one, in leveraging the support of other
women in Panchayats to support work an EWR, especially those related to addressing gender
justice and social justice and second, in introducing other women to aspects of political
leadership and governance, thereby preparing them as potential EWRs for the future.
5.4 RECOMMENDATIONS
This section is based on the quantitative analysis of the outcome assessment, FGDs with
partner organizations and the report on federations. The recommendations have been
highlighted as per the organizations strategy.
Strengthening THPs capacity building portfolio
Need Based Workshops: The relatively low Panchayat Skills Index (PSI) as compared to other
indices points towards the fact that more knowledge and skills need to be imparted to EWRs on
the technical aspects of Panchayats. This includes knowledge about programs and schemes of
government, especially related to livelihood, training on management, conflict resolution and
budgets/functional financial literacy. THP needs to both re-look at the modules of Need Based
Workshops (NBW), process of training during such workshops and the need assessment steps
undertaken prior to such trainings that are key to designing curriculum. In conclusion, number of
Need Based Workshops (NBWs) need to be increased.
Vision and Planning: THP needs to intensify its efforts towards more planned ways to engage
EWRs with vision building and planning in their Panchayats.
Leverage all meetings of EWRs: THP needs to leverage every possible meeting of EWRs,
especially federation and Sanjha Manch meetings as a space for reinforcing technical aspects
related to Panchayats, so that the learning process is strengthened and recall value is higher
amongst EWRs.
Adult learning processes: Inter State and Intra State exposure visits or learning journeys have
been seen to build confidence amongst EWRs, which results in better programmatic outcomes.
Building dynamic federations
Federations are key to empowering EWRs. However, there is a need to reflect and re-look at
the process of federation building. EWRs join the federation at different times during their
tenure. This can range from Year I to Year IV, and due to budgetary constraints it is not practical
to train all EWRs. Hence, varying levels of information and knowledge have to be
29

accommodated in federations. This can affect the overall cohesiveness of the federation, and
can at times slow down the federation. Added to this is the discontinued attendance of EWRs in
federation meetings. Creative ways have to be introduced to bring all EWRs together and
ensure that the processes are strengthened to build dynamic federations.
Increased community engagement
The focus of THPs work in India is to enhance capacities of EWRs through multiple initiatives.
This will remain the core of the programme. However, increased community engagement,
especially with men is necessary to sustain support structures and build an enabling
environment. This aspect will be factored in during future program design.
Enhancing capacities of partner organizations
THP partners with a range of community based organizations - CBOs/NGOs to implement its
strategies in the field. This is recognized as one of the most sustainable ways to run long term
programs. However, the quality of the program is largely dependent on the capacity of the local
CBO/NGO. To ensure better delivery of programmes, capacities of CBOs/NGOs need to be
built upon on multiple aspects technical knowhow, monitoring and evaluation, key aspects of
grassroots mobilization of EWRs and clarity on action plans.
Monitoring and evaluation framework related recommendations
To develop an annual assessment that gauges the work done on some key indicators (services
and schemes) by the EWRs through the course of the five years. This will help to track the
progress of the services ensured by the EWRs in a sustained manner.
To include outcome assessment as an integral part of THPs work in all states that brings to the
fore important reflections with regard to the program being implemented.
Operational recommendations

Sustained funding for a five year tenure.

Flexibility in program design/open ended components of budgets.
Clarity and consistency in reporting guidelines.
Mutuality and collaboration between partner and programme countries.

As discussed before political reservations, have served to be powerful instruments for womens
empowerment. Quotas have managed to open up the political space for women increasing their
participation in local governance. However, orthodox and patriarchal structures still serve to act
as severe handicaps to attaining empowerment. THP Indias core strategies derive strength
from the belief that for women representatives to exercise political leadership, there is a need to
disseminate knowledge about the Panchayati Raj system, roles and responsibilities. Along with
that, capacity building also requires the need to imbibe in women, the confidence and
leadership skills, to overcome repressive societal structures as well as myths surrounding
women leaders. This capacity building process also includes the creation of an enabling
environment, through support structures and creating partnerships with the stakeholders, so that
women are able to embrace the political space. This assessment has reinforced the need for
such a capacity building processes, to be institutionalised within local governance.

30

VI. BIBLIOGRAPHY

Beaman, L., Duflo, E., Pande, R., & Topalova, P. (2010). Political Reservation and Substantive
Representation: Evidence from Indian Village Councils. New Delhi: Brookings and National
Council of Applied Economic Research.
Behar, A. (1999). Initiatives for Decentralisation of Governance in Madhya Pradesh. Economic
and Political Weekly.
Behar, A. (2001). Madhya Pradesh: Gram Swaraj: Experiment in Direct Democracy. Economic
and Political Weekly.
Buch, N. (2000). Women's Experience in New Panchayats: The Emerging Leadership of Rural
Women. New Delhi: CWDS.
Buch, N. (2010). From Oppression to Assertion: Women and Panchayats in India. New Delhi:
Routledge Publishers.
CDHR. (2009, June). Women's Empowerment through Panchayati Raj. Retrieved from CDHR:
http://www.cdhr.org.in/womens-empowerment/womens-empowerment-through-panchayatiraj/
Chakravarty, S. (1987). Development Planning: The Indian Experience. New Delhi: Oxford
University Press.
Chattopadhya, R., & Duflo, E. (2004). Impact of Reservation in Panchayati Raj: Evidence from a
Nationwide Randomised Experiment . Economic and Political Weekly.
Dreze, J., & Sen, A. (1996). India: Economic Development and Social Opportunity. New Delhi:
Oxford University Press.
Gandhi, M. (1959). Hind Swaraj (Indian Self Rule). Ahmedabad: Navjeevan Publishers.
IRMA. (2010). The State of Panchayats:2009-10 An Independent Assessment. Vol I-Thematic
Report. New Delhi: Ministry of Panchayati Raj.
Jain, D. (1996). Panchayati Raj: Women Changing Governance. New Delhi: UNDP.
Johnson, C. (2003). Decentralisation in India: Poverty, Politics and Panchayati Raj. London:
Overseas Development Institute.
Nagaraja, S., & Kusugal, P. (2013). Impact of Reservation on Tribal Women. International
Global Research Analysis.
Pal, M. (2004). Caste and Patriarchy in Panchayats. Economic and Political Weekly.
Pande, R., & Ford, D. (2011). Gender Quotas and Female Leadership: A Review. Washington,
DC: World Bank.
Sathe, D., Klasen, S., Priebe, J., & Biniwale, M. (2013). Can Female Sarpanch Deliver ?
Evidence from Maharastra. Economic and Political Weekly.
Sharma, A., & Dwivedi, S. (2010). A Baseline Study to Assess the Training Needs of Elected
Representatives of PRIs in Himachal Pradesh. Shimla: Government of Himachal Pradesh.
Shekher, M., Raabe, K., & Birner, R. (2008). The Effects of Political Reservations for Women in
Local Governance and Rural Service Provision. Washington D.C.: International Food Policy
Research Institute .
The Economic Times. (2013, August). Training for elected panchayat members inadequate:
Parliamentary
panel.
Retrieved
from
The
Economic
Times:
http://articles.economictimes.indiatimes.com/2013-08-18/news/41422679_1_expertcommittee-parliamentary-panel-training-infrastructure
31

VII. ANNEXURES
ANNEXURE I: OUTCOME ASSESSMENT QUESTIONNAIRE
STATE
DISTRICT
BLOCK
PANCHAYAT
NAME
POSITION IN
PANCHAYAT
PERSONAL AND LEADERSHIP ABILITIES
1. Are you able to actively participate in social and public sphere
Hesitantly

a)
b)
c)
d)
e)
f)

2. When asked to

3. Confidently 4. No

2. Are you able to visit places of work (Please put tick mark)
Accompanied Sometimes
Accompanied Whenever needed
Accompanied Always
Unaccompanied Always
Unaccompanied Sometimes
Unaccompanied Never

3. Are you able to take your own decision regarding work?

1. Confidently
2. Partially
3. Need Assistance 4. No
4. Do you feel confident of fulfilling your role as a Panchayat Leader?
1. Marginally

2. Partially

3. Fully

4. No

5. Are you consulted and included in discussions by other Panchayat Members

1. Infrequently

2. Frequently

3. Always 4. No

6. Should domestic violence be discussed in the Panchayats?

1. Yes 2. No
7. Do you feel confident about interacting with Panchayat Members, Panchayat
Secretary, Line Department Staff and Block Level Panchayat Staff?
1. Yes 2. No
7.1 Reasons for saying No a. Lack of Education
b. Lack of Knowledge about laws, rules and programmes
c. Lack of Economic Status
d. Lack of Social Status

STATUS AT HOUSEHOLD LEVEL

1. Do you play an active role in decision making in household matters
2. Family decisions (resolving disputes etc.)
1. Occasionally
2. Frequently 3. Always

4. No

3. Financial decisions (what to spend scarce money on (including agriculture)/ what to sell
in times of distress etc.)
1. Occasionally
2. Frequently
3. Always
4. No
4. Children decisions (whether education to continue esp. for girls/when to take to doctors
when ill etc.)
1. Occasionally 2. Frequently 3. Always
4. No
5. Decisions regarding solutions to her own health problems
1. Occasionally 2. Frequently 3. Always
4. No
6. Have you been able to get your familys support to undertake Panchayat activities
outside the house whenever needed ?
1. Occasionally 2. Frequently 3. Always
4. No

a.
b.
c.
d.
e.
f.

If yes, they support you by (Please put tick mark)Accompanying you

Male members doing the agricultural/livelihood work on your behalf
Male and female members doing your share of the household chores when needed
Male and female members taking care of the children when you have to go for meeting
Providing Financial Support
Others (Describe)

PROBLEMS OF INTERACTION FACED AT PANCHAYAT LEVEL

1. Are you able to interact effectively with the following officials?
1.1 Panchayat Secretary
1. Yes
2. No
1.1.1 Reasons for saying No (Please put tick mark) 1. PS does not listen
2. PS is Irregular in attending Panchayat and inefficient
3. PS is corrupt
1.2 Line department staff
1. Yes
2. No
1.2.1 Reasons for saying No (Please put tick mark) 1. Staff do not listen
2. Staff are irregular and inefficient
3. Staff are corrupt
ii

1.3 Block level Panchayat staff

1. Yes
2. No
1.3.1 Reasons for saying No (Please put tick mark) 1. Staff do not listen
2. Staff are irregular and inefficient
3. Staff are corrupt
2. Are you able to work with other female Panches/ female Sarpanch easily?
1. Yes
2. No
2.1 Reasons for saying No (Please put tick mark) a. Members are not interested in doing any work
b. Members do not have knowledge
c. Members are corrupt
d. Members
e. Members belong to different political party.
3. Are you able to work with other male Panches/ male Sarpanch easily?
1. Yes
2. No
3.1 Reasons for saying No (Please put tick mark) a. Members are not interested in doing any work
b. Members do not have knowledge
c. Members are corrupt
d. Male members treat women members as inferior
e. Members belong to a different political party
4. Has action been initiated against you under Section 40 M.P Panchayat Raj Act?
1. Yes
2. No
PERFORMANCE AT PANCHAYAT LEVEL
1. In the past year, ______ Gram Sabhas were held in your Panchayat.
2. You have attended ____ of them (Please specify numbers)
3. What preparation do you make for Gram Sabha Meeting (Please put tick mark)
a. None
b. Inform Community members
c. Encourage members before hand to raise issues
d. Consult community members on matters to be discussed in the meetings
e. Encourage the women to come to the meeting
f. Hold meetings with other elected representatives to prepare for Gram Sabha
g. Others - Specify
4. When do you sign the minutes of the Gram Sabha? (Please put tick mark)
a. Without reading and when I am asked to in GS
b. After I have read/heard all the minutes
c. After I assure that all points raised/discussed have been included in the minutes
d. I sign it when it is brought to me at home
iii

e. Any other, specify

5. Are issues raised by all people included in the minutes of the Gram Sabha?
1. Yes 2. No
6. Do you attend Panchayat Meetings?
1. Regularly
2.Occasionally

3.Not at all

7. When do you sign the minutes of the Panchayat Meetings? (Please put tick Mark)
a. without reading and when I am asked to in the meeting
b. After I have read/heard all the minutes
c. After I assure that all points raised/discussed have been included in the minutes
d. I sign it when it is brought to me at home
e. Any other, specify
8. Do Standing Committee meetings take place in the Panchayat? 1. Yes 2. No
9. Do you monitor the following aspects of the functioning of the Panchayat (Please put tick
marks)
a) Fund Utilisation
b) Quality of food, provisions and construction work
c) Implementation of Schemes
d) Proper maintenance of records
e) Attendance of service providers
f) Selection of beneficiaries for schemes
g) Religious or Caste based discrimination
h) Others (Specify)
ABILITY TO PRIORITIZE WOMENS ISSUE AT THE PANCHAYAT LEVEL.

1. Have you taken any specific initiatives for women and children?
1. Yes
2. No
2. If yes, then specify under the following heads by putting tick marks
Health
a)
b)
c)
d)
e)
f)
g)
h)
i)
j)

Pre and post natal care and institution based-deliveries

Other reproductive health issues
Malnutrition
Anemia
Availability of doctors in the health facility
Ensured immunisation
Facilities of Anganwadi
Ensured the proper working of ANM/ ASHA
Nothing
Others (Specify)

iv

Education
a) Increased enrolment /ensured that girl children go to school
b) Initiated the process of building schools in the vicinity
c) Facilitated that girl children attend school safely
d) Toilets built for school girls
e) Hand pumps or Piped Water facility in Schools
f) Nothing
g) Others (Specify)
Livelihood
a) Enabled women groups to take up micro-credit
b) Enabled women groups to undertake economic activity
c) Enabled women to individually undertake economic activity
d) Others (Specify) e) Nothing
Action taken to mitigate Violence against Women
a) Violence (domestic)
b) Sex-selective abortions
c) Dowry Violence
d) Rape
e) Molestation
f) Physical Public Beating
g) Child Marriage
h) Nothing
IMPLEMENTATION OF SCHEMES AT PANCHAYAT LEVEL.
Work done as Panchayat Member/Sarpanch
1.1 MGNREGS
Sl.
No

Type
of
Work

Amount
(Rs)

No. of
Households
Benefited

Code for type of work - 1. Roads 2. Tanks 3. Buildings 4. Landbunding under Bhoomishilp 5. Others specify

1.2 How many IAY and Mukhya Mantri Awaas Yojana sanctioned _______?
Total Amt. _________
1.3 NRLM schemes sanctioned:
Sl.
Type of Scheme
No.

Code for Type: 1. Formation of SHG 2. Others (Specify) -

No. of
Beneficiaries

Amount
(Rs)

1.4 How many names added in BPL _____________?

1.5 How many children got admitted in NRC __________________?
1.6 Number of beneficiaries enrolled in social security schemes a. Old Age pension______
b. Disability pension_____
c. Single women pension__________
d. Ladli Lakshmi Scheme_______
e. National Family Assistance Scheme
f. Indira National Pension Scheme
Others specify_______________
1.7 Number of toilets built__________ Amount sanctioned _____________
1.8 Hand pumps built ____________repaired________ Amt. Sanctioned ___________
1.9 How many Overhead Tank cum piped water systems built ________________
1.10 How many land pattas distributed (specific in case of tribal)
a. Number ______________ b. Area_____________
1.11 Households electrified________________
1.12 How many Anganwadis have you monitored? ____________
1.13 How many children are enrolled in it? ____________
1.14 How many PDS shops do you monitor? ____________
1.15 How many folks access these? ____________

vi

ANNEXURE II: DISTRICT WISE COMPARITIVE PERFORMANCE OF CAPACITY INDICES

OF THP TRAINED EWRS WITH CONTROL GROUP
CAPACITY INDICES
District

Rewa

Satna

EWR Type

THP
Control
THP/Control
(%)
THP
Control
THP/Control
(%)

THP
Control
Katni
THP/Control
(%)
THP
Control
Chhatarpur
THP/Control
(%)
THP
Control
Sidhi
THP/Control
(%)
THP
Control
Shahdol
THP/Control
(%)
THP
Control
Harda
THP/Control
(%)
THP
Control
Jhabua
THP/Control
(%)
THP
Madhya
Control
Pradesh
THP/Control (%)

Personality & Family

Leadership
Support

Panchayat
Interaction

Compo
Panchayat Women's site
Skills
Agency Index

0.772
0.354

0.640
0.347

0.772
0.552

0.581
0.300

0.820
0.393

0.713
0.454

218
0.868
0.509

184
0.619
0.339

140
0.780
0.625

194
0.590
0.376

209
0.733
0.338

157
0.716
0.403

170

183

125

157

217

178

0.829
0.371

0.622
0.308

0.798
0.532

0.623
0.315

0.966
0.333

0.756
0.386

223
0.966
0.335

202
0.879
0.321

150
0.854
0.534

198
0.787
0.268

290
0.931
0.279

196
0.876
0.366

288
0.735
0.412

274
0.658
0.323

160
0.857
0.589

294
0.669
0.32

334
0.858
0.319

239
0.757
0.411

178
0.836
0.427

204
0.780
0.337

145
0.796
0.568

209
0.748
0.343

269
0.984
0.328

184
0.818
0.416

196
0.831
0.264

232
0.616
0.258

140
0.822
0.541

218
0.516
0.300

300
0.819
0.348

197
0.719
0.359

315
0.953
0.427

239
0.820
0.516

152
0.838
0.619

172
0.528
0.303

235
0.808
0.268

200
0.788
0.452

223
0.847
0.387
219

159
0.689
0.344
200

135
0.810
0.570
142

174
0.618
0.316
196

302
0.837
0.326
257

174
0.757
0.376
201

vii

ANNEXURE III: DISTRICT WISE COMPARTIVE PERFORMANCE OF WORK DONE BY THP

TRAINED EWRS WITH CONTROL GROUP
IMPLEMENTATION PERFORMANCE

District

Rewa

Satna

Katni

Chhatar
pur

Sidhi

Shahdol

Harda

Jhabua
Madhya
Pradesh

EWR Type

Households
Benefited

Total
Amount
Disburse
d
(Rs
Lakhs)

MGNREG
S
Disbursement
(Rs Lakhs)

NRLM
Disburse
ment
(Rs
Lakhs)

Social
Schemes
Disburse
ment (Rs
Lakhs)

Housing,
Water Supply
and
Sanitation
Schemes
Disbursement
(Rs Lakhs)

THP
Control
THP/Control (%)
THP
Control
THP/Control (%)

1897
1063
178
1762
825
214

74.298
45.333
164
51.711
24.579
210

57.873
39.471
147
39.846
19.867
201

0.993
0.410
242
2.119
0.633
335

10.621
4.019
264
5.024
3.121
161

4.810
1.433
336
4.722
0.958
493

THP
Control
THP/Control (%)
THP
Control
THP/Control (%)
THP
Control
THP/Control (%)
THP
Control
THP/Control (%)
THP
Control
THP/Control (%)
THP
Control
THP/Control (%)
THP
Control
THP/Control (%)

2277
894
255
2329
1066
218
1306
754
173
2084
1011
206
2300
1047
220
2898
1325
219
2107
998
211

133.603
47.142
283
119.448
62.198
192
76.116
32.617
233
101.321
50.648
200
186.003
69.070
269
151.675
52.213
290
111.772
47.975
233

123.643
43.116
287
96.510
51.391
188
67.129
26.747
251
92.900
47.630
195
161.775
58.478
277
135.656
48.177
282
96.917
41.860
232

0.513
0.363
141
1.299
0.632
206
0.000
0.000
N.A.
0.540
0.000
N.A
0.960
0.710
135
0.330
0.189
174
0.844
0.367
230

3.803
1.679
226
4.653
3.889
120
4.686
4.365
107
3.620
1.374
263
4.711
2.420
195
3.025
1.378
220
5.018
2.781
180

5.644
1.984
284
16.986
6.286
270
4.300
1.505
286
4.280
1.644
260
18.557
7.463
249
12.664
2.469
513
8.995
2.968
303

viii

ANNEXURE IV: CASE STUDIES

32 case studies have been presented of the best performing EWRs, who have high Composite
Capacity Index values. Out of these 10 are from SC, 16 from ST and 6 from OBC Categories. A
bit of selection was done across the EWRs to bring balance to post held, regional and issue
based contexts. There are 17 Sarpanch, 13 Panch and 2 Up-Sarpanch.
Case study 1: When women work together, success is inevitable
...
Durji Bai Ahirwar
Post: Panch
Year of election: 2010
GP: Phutwari
Block: Bara Malhera
District: Chattarpur
.
Durji Bai comes from an economically impoverished family traditionally involved in labour work.
For subsistence she herself along with her husband is dependent on availability of farm and
construction based labour work. The availability of work is often seasonal and there would be
days without any work at all. Those days Durji Bai would take loan from local shopkeepers for
buying ration and other food essentials. The reason why she contested Panchayat elections is
also interesting. Phutwari was a Panchayat where one could see manifestations of all forms of
caste based discriminations with Thakur community, socially designated as the upper most
echelons of the population. Durji Bai was also discriminated against by the Thakur community
who were economically well off and were the employment providers for the socially and
economically backward communities of Phutwari. Exposure to better paying labour work outside
Madhya Pradesh had led many young men from Phutwari and neighboring area to go to big
cities such as New Delhi in search of greener pastures. Durji Bais sons were also working
outside, and it was the eldest son who called her in 2010 when the post of Panch for her ward
was announced to be unreserved for Scheduled Tribe category. So she contested against 2
male and one female candidate and won by a slender margin of 8 votes.
Durji Bai says- Mujhe pehlo kuch bhi nahin pato tha ki pancha ane ka kerna hai (I had no clue
what to do as a Panch initially). She was quite unaware of her rights and responsibilities as an
elected member. Some papers use to be sent to her by the Panchayat Secretary for signature
and she would put her thumb sign as asked by him. But soon enough Durji Bai was contacted
by a local non-government organization (THP Partner) which was conducting workshops for
newly elected leaders. She went to the 3 days Womens Leadership Workshop where she
learnt about role and responsibilities of elected representative and also how important the entire
Panchayati Raj System is for development of villages. Most importantly, Durji Bai says-jada
nahi to itna to samajh me aa gayo ki kagaz pe sign aise hi nahi kerna hai (If not a lot at least I
got this that one shouldnt sign on papers indiscriminately). She says that she discovered a new
found confidence and a way to do what she learnt in the workshops. She understood the need
of having good functional Anganwadi centers which are important for child and mothers wellbeing. This understanding came from her personal experiences. Durji Bai, having been wed at
the age of 10 Years and became mother at the age of 14 went through many hardships herself.
ix

Having no access to health care and absence of knowledge regarding vaccinations coupled with
social taboo to seek help for maternal health, Durji Bai had painful times during her pregnancy
and had to deal with weak babies. Later on she also saw other women face the same situation.
The plan that Durji Bai developed along with other women from her Panchayat was to go to
Gram Sabha in large numbers and there table the issue of having an Anganwadi in her ward.
She went around and mobilized women citizens and told them about benefits of having
Anganwadi in the ward itself in absence of which most children chose not to go to the far away
Anganwadi. The issue was shared by her in Gram Sabha and all men and women citizens
joined her in passing a resolution to that effect. In recognition of her continuous efforts, Durji Bai
was made President of standing Committee of Health & Sanitation. She got a resolution passed
by the Committee and along with that of Gram Sabha presented the same to Chief Executive
Officer of Janpad Panchayat during a block level interface between Jagriti Federation members
and administration. When the order came for construction of Anganwadi and it got finally built
with children, pregnant and lactating women started availing benefits and the community
appreciated Durji Bais efforts. Durji Bai then on became a motivator who supported the
Anganwadi worker in counseling parents of malnourished children, convincing them to send
them to Anganwadi. She actively participated in two successive campaigns on malnutrition led
by Jagriti Federation and was responsible for linking 7 children from her village to the
Nutritional Rehabilitation Center. She also participated in campaigns on violence against women
and food security in which she used all the information that she learnt through trainings on laws
protecting women, standing committee and communication skills.
Durji Bai has proved to be an effective leader, ensuring smooth progress of MGNREGS work,
benefitting around 200 households. One of the strongest constituencies of her work has also
been helping 12 eligible citizens get enrolled for various social security schemes. Due to her
efforts more than 200 toilets were built including 14 from her ward and are now also being used
by the citizens.
Durji Bai shares that not only her but other women representatives of Phutwari faced challenges
while trying to work. She says most could not gather courage to continuously work for welfare of
community owing to social and family pressure. Even
the Sarpanch of Phutwari Mamta Bais who comes
Durji Bai is contesting upcoming
from Scheduled Caste Community had to face the
elections for the post of Panch
humiliating stand off by Thakur community who in
from her ward which again has
initial years did not let her unfurl national flag on
been declared as an unreserved
Independence Day. But it was the unity of the
seat. She played an active role in
marginalized people of Phutwari, specifically the unity
SWEEP Campaign and she has
showed by some women both elected and non-elected
resolved to become proposer for
which gave the edge to Durji Bai and like her to Mamta
another EWR in the elections.
Bais also who went on to perform her role with dignity.
Durji Bai concludes her journey of 5 Years Auroto ko
samuhikta me kaam kerna chhahiye, agar piche nahi hate to sare nahi to kuch kaam zarur ho
jate hain, yehi maine sikha (Women should work together and if they dont back off when
faced with challenges, then if not all atleast some success can be achieved. This is what my
learning has been).

Case study 2: Veils stop women from being independent

Parveen Begum
Post: Panch
Year of election: 2010
GP: Bhagwa
Block: Bara Malhera
District: Chattarpur
.
Parveen Begum was elected from Ward No.14 of Bhagwa Panchayat in Bara Malhera Block.
Her husband was panch from the same ward in previous term and it was his political ambition
that made Parveen Begum file her nomination papers for the post now reserved for women. She
came from a financially well-off family and the ward contested from was inhabited largely by
people belonging to her community, Parveen got elected with full consensus. Soon after
becoming Panch, her husband directed her to stay at home and let him handle all decisions
related to her work. He decided which papers to sign and which to not, and even for Gram
Sabha meetings he didnt allow her to go, instead the register would get signed by her sitting at
home.
Parveen who came from a relatively liberal background had never been much in favour of veil
right from the beginning. Infact within her marital family she had negotiated for not wearing a
burkha (full veil). When she became Panch and secured the acceptance from her family to step
out of home Parveen, though apprehensive was also excited. It was a first for her to attend 3
day Women Leadership Workshop 30 Km from her village along with 6 more EWRs of Bhagwa.
During her night stay at the workshop venue she had the opportunity to talk with EWRs from
other Panchayats something which she had never managed to do earlier due to restrictions on
her mobility. She also got to understand that other women think positively about women from
minority community. Parveen says- Maine dekha ki varg vishesh ke bare me logo me ab badlav
hai (I saw that there is a change in peoples perception towards a particular community.) On her
return from the training Parveen resolved to do some good work in the Panchayat. She felt that
the situation wherein for every meeting only men of her family went to represent her had to
change.
Hope also came to her in form of an old friend Rajkumari who had become Sarpanch of
Bhagwa. She along with her husband requested and counseled Parveens husband to let her
come out of house and do her bit as an elected representative. The fact that both the husbands
of these EWRs were sort of partners in the business that they were in also helped. Also both
families being economically comfortable had no compulsions of their wives requiring working for
subsistence. However this didnt dilute the challenges of social mobility that both faced.
Especially for Parveen who belonged to a particular minority community where women are
traditionally expected to be veiled and removed from public life, let alone participating in it, it
proved to be very challenging. When her husband relented it was the elders and also other
community members who targeted her new found mobility.
Parveen says Rajkumari played a pivotal role in helping her step out of house. Unki madad se
to main pehli baar bahar nikli.(She helped me to come out)And it took her almost one and
half years to actually be able to step out and actively participate in public life.
Along with Sarpanch Rajukumari Parveen regularly monitored school and Anganwadi centres.
Together they noted down the gaps in both the institutions and nudged the administrators to
make appropriate changes. Anganwadi centres started functioning properly and schools would
see full attendance of teachers. Parveen liked the dignity that came with the post. People now
xi

respected her as an individual and also listened to what she had to say about state of affairs in
the Panchayat. She also started visiting different wards along with the Sarpanch and interacted
with citizens to understand the kind of problems and issues they faced. Different levels of
poverty that many families faced shook her from within and she wondered how in spite of
staying in the same Panchayat for more than a decade she didnt know this earlier. She got
even more determined to help the poor and marginalized secure their rights. She made a list of
eligible persons for different social security schemes and also job cards, got their forms filled.
Parveens education until 8th Standard helped her get these paper work done smoothly. She got
8 widows and 14 poor families from her ward get widow pension and secure Below Poverty Line
cards respectively. This was the start of her journey and certainly not the end.
In trainings on malnutrition and laws protecting women that Parveen attended she told women
who were veiled to remove it and embrace freedom to see and think. Coming from her it was a
bold statement and it did work for other women who listened to her. Infact Parveen had
motivated many women from her community not to wear the full veil and instead only don the
head scarf. She sends her daughter to school and is determined to help her work when she gets
qualified and also to support her marriage into a liberal family.
Parveen also made inroads into participating in Gram Sabha. In her 2nd year into the tenure,
Parveen shared her views on women issues on which people, both men and women applauded
loudly. She brought to the notice of citizens to the fact that even among allocation of schemes to
eligible citizens, its the women and the destitute whose
Parveen Begum is not contesting
voices are lest heard or not heard at all. She implored all
elections in 2015 because of family
citizens to be sensitive to these issues and help the
engagements. Seat for Sarpanch
marginalized families and individuals secure their
has been declared to be reserved
entitlements. It was this conviction of working for people
for ST category in Bhagwa.
who needed her most helped her sail through rest of the
However she has supported
tenure. Parveen credits everyone for her success-Shuru
another women form her ward to
se leker ab tak agar sabne thoda sahyog nahin kiyo
become the Panch besides being
hota, maare se ye sab na hoto. (Right from start until
actively involved in SWEEP
now if people didnt help in their own small ways, I
Campaign
wouldnt been able to come even this far)
Case study 3: Addressing illicit liquor trade & much more

Kalavati Ray
Post: Sarpanch
Year of election: 2010
GP: Bhagwa
Block: Bara Malhera
District: Chattarpur
.
Kalavati belongs to a marginalized community of Other Back ward Caste Category and has had
to face various hardships her entire life. Her family has small agricultural holding which provides
for her familys subsistence. When elections were announced for her Panchayat in 2010 and the
seat of Sarpanch was declared to be reserved for women many people from community asked
her to contest elections since she was an active member in self-help group of Bhokna. Kalvati
attended SWEEP Campaign meetings in the Panchayat and got further motivated to contest
elections. She felt that becoming a Sarpanch will help her to bring women issues to the center

xii

and that way she would be able to help many women in need. Kalavati won by a handsome
margin and became the first woman Sarpanch from her community.
On assuming the charge of Sarpanch, first of all, Kalavati tried to learn and understand how a
Panchayat functions. She underwent several trainings over the years on leadership, federation
building, communication skills, laws on protection of women and malnutrition and could
understand the fact that it is not easy to succeed without cooperation of others, especially
womens. She worked tirelessly to ensure regular attendance and participation of women
Panchs in the Panchayat meetings and also started drawing the support of other women in her
village into her future plans. She started working on an issue which was not so simple. It was
the single most important issue of illicit liquor holdings in Bhokna which bothered her. As a
matter of fact, due to the free flow of liquor was a huge concern for her since it was affecting
free mobility of women and also causing law and order situation. Under the patronage of
powerful people with vested interests the business flourished. They used to sell illicit liquor
without holding any license for the same. The sellers also used to incite the villagers to drink so
that their business may prosper. It was destroying the peaceful situation in the village. The
villagers were wasting their hard earned money on drinking and used to subject their women
with violence. Not only adults but minors were also attracted to liquor and many skipped school
to drink and get engaged in unlawful activities.
Kalavati knew very well that liquor is the one of the biggest reasons of immediate violence on
woman and their unity could prevent this. Its to her credit that she got the village women come
together against it and launched a protest campaign. The issue was discussed in Sajha Manch
and other women citizens supported Kalavati in taking the issue of stopping sale of illicit liquor.
To ensure prohibition, Sarpanch Kalavati formulated the first proposal that no intoxicated person
would be engaged in the Panchayat work. This proposal was enforced as a rule after tabling the
same in Gram Sabha and getting a resolution passed to this effect. Later, she wrote a letter to
the collector to get the illicit liquor shops in the Panchayat to be closed down and got signatures
of women citizens to support the demand. The result was that police conducted raid at the
shops and forced them to be closed down. The power of illicit wine mafia reacted back and
within a week these shops started functioning again. Then Kalavati along with other village
women went to the shops and broke the bottles as a mark of protest and informed the law
enforcement authorities. After it, these shops started playing hide and seek; still their market
went down considerably. Today sale of illicit liquor has almost stopped. Though sometimes it
still exchanges hands secretly but overtly the practice has been contained to a large extent and
its the nexus of smugglers with the police that has kept it alive still. This has helped improve
conditions in Bhokna and women and girls are able to have safer environment to live and move
around in. Many children earlier engaged in consuming booze have also turned back into
schools.
Kalavati went on work on other aspects of development as well. Bhokna Panchayat did not have
its own building. This was due to the fact that the Panchayat didnt have its own land and
whatever it possesses were disputed with cases being on for its ownership. This situation
resulted in Panchayat Secretary and Elected representatives working from their homes and
often being unapproachable to citizens. Then, Kalavati got a resolution passed by the Gram
Sabha, purchased a plot of land at Rs. 30,000/- from her savings and donated it to the
Panchayat. Now, the Panchayat building exists on this plot of land. This has helped the
Panchayat office to be functional and accessible to all.

xiii

Kalavati got recognized as an able leader and many community people turned into her
supporters. She was helped by many in her work to
Kalavati is not contesting elections
make Bhokna Panchayat malnutrition free. Its to her
in 2015 since the post of Sarpanch
credit that 14 extremely malnourished children were
has been reserved for SC
admitted to Nutritional rehabilitation Centers. Also
category.
However
she
is
Kalavati helped operationalize Nal-Jal Scheme
supporting candidature of a
(providing running water in households through tap) in
member of the Sajha Manch and is
Bhokna, something which had been left in the lurch
campaigning for her. Previously in
by previous Sarpanch. In Kalavatis tenure more than
2014 Kalavati went as SWEEP
55 toilets were also constructed and were being used
Campaigner to other Panchayats
by owners which helped Bhokna became cleaner
as well.
than ever.
Kalavati says, Maine bahar nikal ker bahut kuch sikho aur man se kaam ker payo.abhi
swasthya Kendra nahi hato.agli baa rise bhi lano hai (I have learnt a lot after stepping out and
been able to get work done too. Right now there is no health center, in next term have to get it
made too.)
Case study 4: Working with collaboration and strength
..
Dhaniya Bai
Post: Panch
GP: Kanadikala
Jaisinghnagar

Year of election: 2010

Block:

District:
Shahdol
.
Dhaniya Bai was a daily wage labourer who decided to contest elections for the post of Panch
after getting inspired by SWEEP Campaign in 2009. She attended Women Leadership
Workshop which helped her understand roles and responsibilities of an elected representative
and more importantly made her vocal and confident. Earlier far removed from public life now
here she was attending Panchayat meeting and raising issues of her ward. For her the
participation was by no means easy since every meeting meant losing a day of wages. Also her
in-laws would taunt her by asking if she is able to bring any money to the household by
participating in the meetings. Amidst all these pressure, Dhaniya was one day approached by
some citizens of her ward who informed her that a new Anganwadi center is being set up but its
location is more than a kilometer away. Dhaniya went to the Panchayat office and met the
Sarpanch, also an EWR and asked her to get the center made in the ward itself. But Sarpanch
expressed her helplessness citing an earlier order to which she was not privy to. Dhaniya
requested her to find a way out and then a Panchayat meeting was held in which majority of
Panchs opposed her proposal. They argued that she is only a Panch and it was not her
prerogative to take decisions. Dhaniya retorted that a wrongful decision had been taken and it
has to be changed and protesting is well within her rights. Dhaniya stood her ground and argued
for the women and children of her ward who have been affected severely due to lack of
Anganwadi services. Eventually a consensus was reached after intervention by the Sarpanch
and decision was taken to get the Anganwadi center made in her ward. This decision was by no
means a small feat for her. Over the years 10 extremely malnourished children were identified
through the center and with her active role for treatment in Nutritional Rehabilitation Center.
xiv

In her 5 years of work she has helped 11 poor families of her ward het listed in Below Poverty
Line, and helped 3 eligible persons to get benefits of
Dhaniya Bai initially planned to
social security scheme. Her most important
contest elections for post of
contribution however has been development of
Sarpanch.
However
with
infrastructure in her ward with construction of roads
unreserved seat having been
linking to main Panchayat, construction of hand
declared in Kanadi Kala and due to
pumps and wells. She has actively participated in
caste equations she changed her
campaigns on malnutrition and violence against
plans. Instead she has extended
women besides making citizens of around 11
her support to contention of
Panchayats aware on various rights and entitlements
Sarpanch seeking reelection.
under Food Security Act. She monitored regularly
with help of Sajha Manch members lone Anganwadi
and PDS shop in her ward. In special Gram Sabha on Violence against women in Kanadi Kala
Panchayat in 2012 Dhaniya Bai brought to everyones attention the ill effects of getting girls
married off early, and she mobilized around 34 signatures to support the resolution for not
letting child marriage take place in the Panchayat.
Dhaniya Bai with her consistent work inspired many other Panchs of Jaisinghnagar who initially
felt that their post was not important enough to bring in tangible work for citizens whom they
represented. She also supported the Sarpanch of Kanadi Kala in her efforts by going with her to
meet officials and mobilizing women citizens for Gram Sabha. For her the most important work
that she did in her term was the collaborative efforts with other citizens and EWRs. She says
that none of this would have been possible without them, and she played an important role in
bringing them together and bridging the gaps between the elected and non-elected. Kanadi Kala
remains one of the best governed Panchayats in the block widely acknowledged by citizens of
nearby Panchayats as well officials.
Case study 5: Overcoming the hurdles to bring all round development to community

Beti Saket
Post: Sarpanch
Year of election: 2010
GP: Devgaon
Block:
Sirmore
District:
Rewa
..
Beti Saket, a first time Elected Representative belongs to one of the most socially and
economically marginalized groups of Devgaon Panchayat. She started her journey with people
of her Panchayat not really believing that she would be able to do much in view of the powerful
lobby of upper caste communities. In course of her work in the Panchayat, this lobby
pressurized her to pay them commission every time she initiated some or the other
development work, like initiating road construction. It also threatened to complain to the Sub
Divisional Magistrate and invoke section (40) against her if she didnt comply. Beti being
apprehensive of the lobby didnt say anything initially or even protest. With time she gained
confidence and information from the multiple trainings that she attended. Women leadership
workshop helped her break her initial inhibition and come out as an EWR not shy of moving or
communicating in the public space of Devgaon. Federation building workshops gave all the
more reason to Beti to believe in the power of her leadership and the collective strength that
support of other EWRs brings. In of the cluster level federation meetings she raised the issue
xv

and sought advice of other federation members on how to tackle it. All federation members
discussed the issue amongst themselves and recalled a case from previous term where even
when section (40) was invoked against a female Sarpanch based on frivolous charges and with
the current Sub Divisional Magistrate (SDM) in question, the federation members had
strategized to counter it by opening up the cash book and other papers of Panchayat for his
inspection and later on was cleared of all charges.
After this Beti decided not to bow down and said a firm NO to the powerful asking for
commission. As she feared the powerful lobby filed a complaint against her with the SDM office
following which she went with other federation members to present her case. The SDM was not
sympathetic at all; he said Its only your people from your Panchayat who have made this
complaint. There must be some truth in it! Beti dared him to come to her Panchayat, check
records and take statements of others in Panchayat who will be able to tell him whether she is
working for public good or not. The SDM was taken aback by the boldness showed by Beti and
also by the support group that rallied around her. This standoff and Beti getting the upper hand
helped her consolidate her position as a determined Sarpanch which paved the way to getting
support for the development work that she undertook in rest of the term.
Malnutrition is one of the other issues that Beti took much with passion along with Sajha Manch
and federation members. She participated initially in a campaign against malnutrition in which
her own understanding on the issue was built up and she saw that beyond the officially recorded
figures of malnutrition as available with the Anganwadi worker, there remained many
unrecorded cases both of children and mothers. Even some adolescent girls were mildly
malnourished which held greater chances of their children being born malnourished as well in
the future. As such the Sajha Manch in leadership of Beti Saket kept track of all cases of
malnutrition and counseled the affected individuals and families to take care of nutritional needs,
avail services of Anganwadi and nutritional rehabilitation centers. In all 32 children were sent to
Nutritional Rehabilitation Centers due to her efforts, and another 43 children mildly
malnourished were brought to access Anganwadi services through counseling of their parents.
One of the mothers Sunder whose child extremely malnourished and he lived due to
intervention of the group thanks Sajha Manch members and Beti for the much needed
motivation and support given by them for admitting her child for treatment of malnutrition
Aapne batao nahin hoto to aise hi samay nikal jaato, aur hamar (had you not convinced me
crucial time for my child would have been lost).
Constructing canal from a specifically allocated fund saw more than 200 households benefitted
through availability of water for tilling their agricultural lands in the tough semi-hilly terrain and
also for making drinking water available for the cattle, another means of subsistence for majority
of Devgan citizens.
However the most striking work that Beti did and which has changed the way 110 families would
live for generations is getting them pattas which was
Post of Sarpanch in Devgaon has
being denied to them over years. The land that they
been reserved for ST category and
tilled on from past two decades belonged to forest
as such Beti is not contesting 2015
department and suddenly one day they were asked to
elections.
Instead
she
has
vacate and give up any claims on the land. Beti
supported candidature of
a
decided to intervene in this and got to know of Forest
member from Sajha Manch and in
Rights Act from one from one orientation meetings she
2014 actively campaigned making
attended. After understanding the legalities she got a
Panchayat citizens aware on
resolution passed in the Gram Sabha, got land claim
messages of SWEEP.
forms filled for all the families and presented it to the
xvi

department and after 8 months of back and forth paper work, and multiple representations Beti
got the families their right full land entitlement in form of pattas.
Case study 6: Working to make development inclusive for all
.
Munni Saket
Post: Sarpanch
Year of election: 2010
GP: Maronha
Block: Rampur Baghelan
District:
Satna
.
Munni Saket was a daily wage labourer before becoming Sarpanch. She contested against 2
candidates and won with 61 votes. Her predecessor was involved in large scale corruption and
much development work initiated in his tenure remained incomplete. There was pressure from
the citizens on Munni to first get all those completed. First one and half years was thus spent in
getting the back log cleared. It did not help that the Panchayat secretary belonging to high caste
was very hostile to her and refused to cooperate. She also faced no- confidence motion in
which resolution was passed against her fraudulently. It was the support of Jagriti federation,
and Panchs from Maronha which helped her sail through the motion by getting it dismissed due
to wrongful measures having been adopted. She soon earned confidence of many citizens who
saw merit in her work and it helped her to counter pressure from the secretary and those from
higher caste who constantly nagged her for giving them monetary gains.
Munni learnt a lot about rules, regulations and different schemes from the trainings that she
attended. It helped her become more confident when she was able to answer to queries of
citizens who came to her for any work. The trainings also equipped her with setting priorities
and vision building for Maronha. She focused most on the most neglected hamlets in Maronha
were those belonging to the tribal which lacked even basic facilities like road, electricity and
Anganwadi centers. As such she got a lot of work related to infrastructure done there. The only
middle school and the Anganwadi center were in shambles since years. It was difficult for the
teachers to teach and also to get mid-day meal cooked in hygienic conditions in absence of
kitchen shed. Munni got additional rooms sanctioned in 2nd year of her tenure which was ready
within 6 months and also got kitchen shed constructed. Besides she also petitioned women and
child Development Department for release of food and play materials for Anganwadi center and
got a new building for it constructed. She also got around 7 extremely malnourished children
admitted to Nutritional Rehabilitation Centers. On front of social security Munni got more than
134 names added to its list for various schemes, and 14 extremely poor families were added in
list of Below Poverty Line.
Most population in Maronha went for open defecation. This led to not only unhygienic conditions
but also to prevalence of disease which perpetrated malnourishment among young children and
poor health of women. One of the other priorities of Munni thus was to get toilets constructed
and in her term more than 350 toilets were made. She also addressed the problem of water
scarcity, especially in tribal hamlets and got 20 existing hand pumps repaired and another 8
new ones installed. The most important work however that Munni did was to secure land pattas
for 100 tribal families bereft from land ownership from more than 2 decades. Munni considers
the work that she did for social security of 134 families as her best deed. She had to face
opposition of administration who initially refused to include these names citing reasons of quota
of numbered people from Maronha. Munni countered this by tabling the issue in Gram Sabha
and passing resolution to strike out wrongful entitlement holders in existing list to make way for
new names. In this process she also undertook a survey with help of federation and Sajha
xvii

Manch members and submitted a fresh list to the block administration which was finally
accepted after a lot of representations and discussions spanning 8 months. Munni says that she
had helped these individuals take a leap of a decade by giving them the support that they need
to improve their situation.
Munni has actively participated in campaigns on malnutrition, violence against women and food
security not only in her own Panchayat but also in 15 more. She is a role model for those EWRs
who find non literacy an impediment in their work. Munni who is non-literate not only governed
Maronha well but also earned accolades for her style of functioning. Indeed she was invited as a
key speaker in annual function of Government Degree College in Satna district to speak on Use
of Technology (Mobile Phone) for Development.
Case study 7: Vying to make food security a fact for all
.
Shashi Singh Bais.
Post: Sarpanch
Year of election: 2010
GP: Dhavaiya
Block:
Rampur
Naikin
District:
Sidhi
.
Shashi Singh Bais never thought that she will ever enter the field of politics. Her life was limited
to tending to household chores and taking care of animal stock in her Panchayat. It was
reservation which changed her life forever. Post for Sarpanch was declared to be reserved for
woman from OBC category and many in her family and community encouraged her to contest.
While campaigning she connected with women citizens and men alike and won by comfortable
margin. Initially her family members tried to intervene in Panchayat affairs on her behalf, but
soon she negotiated space for her own independent functioning after attending trainings and
drawing strength from other EWRs in Dhavaiya. With a year and half, Shashi Singh knew all
about various social security schemes and entitlements. Later on she sharpened her skills in
speaking while undergoing training on communication skills and attended more trainings on
MGNREGS, laws on protection of women and Standing Committee.
To her credit she reached out to most marginalized sections in Dhavaiya and got 248 families
added to list of below Poverty Line. Malnourishment was rampant in the Panchayat and in her
life time she had seen many children dying due to it. Superstitious beliefs and practices came in
the way of families not allowing their malnourished children consume nutritional food in
Anganwadi centers. Together with EWRs and some active Sajha Manch members Shashi Singh
went from household to household educating both men and women about reasons of
malnutrition, and how to treat it. She got Anganwadi centers cleaned and organized for children
to sit there and monitored functioning of all 3 centers where 85 children were initially enrolled. In
all 71 malnourished children received treatment in the centers in Dhavaiya and Nutritional
Rehabilitation Centers. Many of the children belonged to economically weak families and hence
Shashi also worked for getting them linked to various social security schemes. In her term she
got more than 200 individuals listed thus.
Shashi feels food security is the biggest problem that any society can have. how can someone
study, take care of health if she is not able to eat two square meals a day, she would ask
Panchs in the Panchayat meetings. Thats why she worked extensively on helping rightful
entitlement holders get food grains from PDS shop in Dhavaiya. Until her intervention there was
xviii

huge scale pilferage by the shop dealer and it led to distress migration in the Panchayat.
However with her efforts Shashi helped many families to stay back in Dhavaiya and get food
grains on subsidized rates.
For Shashi the work dearer to her and what she considers as her most significant contribution is
the plantation drive done by her which improved environment conditions. With rapidly depleting
forest areas, Shashi feels that this work is important as legacy and basis of living for future
generations, and also this is something which has to be constantly followed up.
Shashi Singh had planned to contest elections for the post of Janpad member for 2015
elections. However she could not contest since there was delay in issuance of no objection
certificate. She has been actively spreading messages of SWEEP Campaign not only in her
own but also in 13 more Panchayats. Shashi Singh has reached out to more than 10,000 men
and women in past 5 months of campaigning.
Case study 8: Making Richchari Clean is the Dream I Realized
.
Renu Dahiya
Post: Sarpanch
Year of election: 2010
GP: Richchari
Block: Rampur
Baghelan
District:
Satna
.
Renu Dahiya started off her journey with attending Women Leadership Workshop which helped
her feel confident and believe in power of self. Before this full of self- doubt and sometimes
irrational fear she would not seek clarifications from the Panchayat Secretary and government
officials working in Richchari. With more trainings and knowledge building on issues such as
implementation of MGNREGS, Laws protecting women, standing committees and skill
development for effective communication she started off with agenda of working for
development of the Panchayat and to make an example of good governance.
Her journey was marred by the taunts and resistance of men in Richchari, typical of patriarchal
mindset and practices in the area. She countered this with help of other EWRs and Sajha
Manch members who accompanied her for her work on monitoring Anganwadi centers, schools
and MGNREGS work. She also ensured that Gram Sabha was attended in good numbers by
women citizens so that they not only take part in decision making processes but also an
environment is built where women are seen in numbers in public place thus setting a new
example of role of women. In the first two years there would be many men who would come
drunk in Gram Sabha meetings. Renu sought help of sympathetic men include male Panchs to
remove the anti-social elements from the meetings and make the place safe for women.
One of the big problems that really bothered Renu was open defecation practiced by majority of
population in spite of having toilets at home. She discussed the issue in Gram Sabha and also
in Panchayat meetings and found a novel way to address the situation. The Panchayat fixed
Rs.50 as fine towards anyone found to be openly defecating. After 6 persons were fined there
was a change in behavior of the citizens and till date barring few exceptions the Panchayat
largely abhors from the practice. The Panchayat was also declared as a Nirmal Panchayat by
the State Government. Renu took it as a high priority work since she learnt through trainings
and books that absence of sanitation gave rise to many diseases and is especially responsible

xix

for stunted growth and poor health of children. She realized her old dream of making Richchari
clean through this exercise.
During her term Renu got 15 marginalized families listed in Below Poverty Line, more than 25
individuals get listed in various social security schemes, got 1 Anganwadi center sanctioned and
constructed besides getting roads and wells for Richchari. She also got 15 households
electrified and meters installed.
Renu also actively participated in campaigns on malnutrition and Violence against Women. She
has made scores of citizens from 8 Panchayats aware on the issue and frame resolutions in
their own Gram Sabha adopting best practices that work as deterrents or Violence against
Women. Renu also has been an active member of the Block Federation in which she
contributed to drafting of resolutions for following up at Panchayat levels. She has been actively
campaigning for judicious use of the right to vote and making women aware of their
constitutional rights in context of upcoming Panchayat elections.
Renu is not contesting for post of Sarpanch in 2015 since its now reserved for category of SC.
However she is actively involved in SWEEP Campaign.
Case study 9: It has not been easy for her

Manju Rawat
Post: Sarpanch
Year of election: 2010
GP: Mau
Block:
Rampur Naikin
District:
Sidhi
.

Manju Rawat comes from a family which frowned upon mobility of women. It was the
reservation of seat for the post of Sarpanch in Mau for women (ST) seat that set her going. Her
family initially thought that she would be signing on papers and rest of the work would be done
by them in connivance with the Panchayat Secretary. Little they knew that it wont be the case
since Manju had other plans after attending Women Leadership Workshop of The Hunger
Project. It was the strength in numbers of other EWRs in Rampur Naikin block and then
subsequent quarterly and often monthly meetings of EWRs which helped Manju shed many of
her inhibitions and decide to work on her own. Negotiating with her family was easier when
other EWRs of Mau and also community women supported her. These women were motivated
to improve quality of living in the Panchayat since there was a woman Sarpanch for the first
time.
Together with other EWRS Manju set about identifying families and individuals who though
eligible were left outside the safety net of social security schemes and other entitlements. With
her continuous efforts Manju got 229 families registered in the Below Poverty Line List. Most of
these families were landless and daily wage labourers. 95 individuals were linked to various
social security schemes and they started getting their entitlements. There were 5 families in dire
straits due to death of their only earning member and poor health of others during Manjus term
who availed support under a scheme for emergency relief. Mau had old standing problem of
available of potable water and its villages were scattered enough for accessing the working
hand pumps. Manju got 12 defunct hand pumps repaired and 4 new ones made. Electrification
xx

was another front where Manju made her mark well by helping 300 households secure
connection. Manju also held special Gram Sabha on violence against women in 2012 and
resolutions deploring child marriage and feticide were adopted.
By far Manju considers the work that she did for improving condition of the 3 Anganwadi centers
in Mau and getting children and women to access
its services. Malnourishment was a big issue in her
Manju is not contesting election in
Panchayat. While 58 children were identified for
2015 since the post of Sarpanch
being malnourished, 4 were extremely critical and
this time has been reserved for
they got treated in Nutritional Rehabilitation
Other Backward Caste Category.
Centers. It was not easy for Manju to convince
But she played an important role in
families of malnourished children to send them to
motivating other women of Mau
the centers because of many superstitious beliefs
and 6 more Panchayats to be
that they had. But she was determined to motivate
aware voters. She is also
them for doing so. So together with Sajha Manch
canvassing for a Sajha Manch
members and other EWRs as well as the
member
who
is
contesting
Anganwadi members she visited their homes
elections for post of Janpad
regularly till they agreed. Afterwards she along with
member.
other EWRs regularly monitored the 3 Anganwadi
centers in Mau where 135 children were
registered. Earlier even pregnant women, lactating mothers and adolescent girls would not go to
Anganwadi but once its services improved and nutrition supplements started being given on
time along with counseling sessions they also became regulars. Manju says, if life is there only
then our society can make progress. I helped save lives of children and women through my
work with Anganwadi and it gives me most satisfaction.
Case study 10: Ensuring total Sanitation for Matha Panchayat
.
Prabha Adivasi
Post: Sarpanch
Year of election: 2010
GP: Matha
Block: Rampur
Baghelan
District:
Satna

Women in many Panchayats did not have proper sanitation facilities within their homes. While
going out for open defecation they were not only subjected to indignity but they often had to face
attempts of rape and molestation. Practices of poor sanitation and having low levels of
awareness regarding merits of regular hand wash in the community also acted as a major
determinant of high rates of malnutrition, especially among young children. Under these
circumstances Prabha took on the daunting task of making her Panchayat, Matha a totally
sanitized Panchayat. 78 % of Panchayat citizens in Matha did not have toilets constructed within
their homes. Further they were habituated to thrown dirt, cow dung, waste anywhere on the
streets and the roads besides openly defecating near settlements. When due to Prabhas efforts
Janpad31 Panchayat provided the fund for construction of toilets people however did not stop
going out for open defecation. During a follow up with households where the toilets were

31

Districts are referred to as Janpad in Madhya Pradesh.

xxi

constructed Prabha discovered that the toilets were being used for storing food grains and even
wood and other items of daily use.
Prabha promptly convened a special Gram Sabha meeting and urged all citizens to start using
the toilets. Many of those present told her that unless some strict action is not taken by the
Panchayat on those who are still going out for defecation, usage of toilets cannot be ensured.
With support of Gram Sabha members Prabha proposed a fine of Rs.50/- on anyone caught
defecating in the open or throwing dirt of waste outside. To ensure that compliance is followed
Parbha also made a team of 12 community women including her who would in the group of 3
each keep a look out in the morning and evening times to see if anyone violated the agreed
conditions. Soon, 8 citizens were caught and fined on the spot with the money getting deposited
with Panchayats account. This became a deterrent for the Panchayat citizens and soon they
adopted the practice of using sanitation facilities at home and also keeping Panchayat clean.
Prabha Kol received a cash prize of Rs.50, 000 from the Chief Minister of Madhya Pradesh on
behalf of her Panchayat Matha for bringing in total sanitation to her Panchayat.
It was the trainings that Prabha attended on leadership development, federation building,
malnutrition, sanitation, violence against women, standing committee which helped her increase
her knowledge and build understanding. They became important tools for her to govern,
negotiate with officials, engage in conflict resolution
Since Post of Sarpanch has been
and also convince citizens to support her initiatives.
reserved for a category other than
Prabha in her tenure reached out to more than 200
hers Prabha is not contesting 2010
households though eligible but kept outside list of
elections, however she is actively
below poverty line and social security schemes. She
canvassing for a candidate from
also helped 320 job holders get regular employment
Sajha Manch. In 2014 she reached
under MGNREGS, got Panchayat office, school
out to more than 7000 citizens of
building and 2 Anganwadi centers constructed. She
nearby Panchayats as an active
also managed the taxing system of Matha Panchayat
SWEEP Campaigner.
by levying tax on religious fairground belonging to the
Panchayat during its annual programs.
Prabha considers her work in improving infrastructure
for children and women and helping them avail services meant for them most important
because these were the two sections which easily got missed out by implementing agencies.
Case study 11: Many battles that Tulsa won
..
Tulsa Bai
Post: Sarpanch
Year of election: 2010
GP: Lakhakhera
Block:
Badwara
District:
Katni
..
Tulsa Bais story is one of drama, muscle power, caste rivalry and most importantly the one
affected by SWEEP campaign in her Panchayat. Though her husband was Sarpanch for two
terms earlier, Tulsa Bai never thought of becoming one. It all started when a womens
conference was held in a nearby Panchayat where voters and prospective women candidates
were invited in 2009. In the conference, modalities of election procedure, importance of
reservation form women in Panchayati Raj, value of each votes cast, and breaking myth related
xxii

to womens candidature were discussed. Most importantly the message given in the campaign
If men can run Panchayats, why cant women since they are already able administrators in
family and livelihood.
In the conference, Tulsa Bai declared openly in from of hundreds of women from 5 Panchayats
I will contest definitely, regardless of the status of the seat (unreserved or reserved for
women) Tulsa Bai was till this moment was known more as a Sarpanchs wife, and as mother
of her children. The seat of Lakhakhera was finally announced as being reserved for Scheduled
Caste women. Tulsa filed nomination along with 9 other women for the post of Sarpanch. Her
troubles started in the campaigning period when rival candidates family members used party
politics, alcohol and money to lure voters. She protested against the same and led a 4 day
strong campaign in which she shared achievements in developments in prior terms and shared
her own plans for addressing basic needs of her community. To bring men on her side Tulsa
said that she cannot give money or anything in kind to voters for one times vote, instead she
said that each vote will ensure next five years development in her Panchayat. Her intensive
campaigning in different hamlets of the Lakhakhera Panchayat and bonding with men and
women alike, led her to win over her nearest candidate by a margin of 93 votes.
The challenges that she faced to first contest and then win against all odds taught her to be a
cautious leader. Tulsa devoted her tenure to make Gram Sabha function properly and prioritize
peoples issues first over and above anything else. She faced numerous road blocks starting
from cook belonging to Thakur community refusing to cook food for mid-day meal meant for
Dalit community children and teachers coming late in school mocking her efforts to make them
come on time. But its to Tulsa Bais credit that she continued work on these issues and also
made inroads into working on Violence against Women, increasing productivity of agricultural
land, promote formation of self-help groups and educate citizens on health issues of women.
Tulsa Bai got 35 toilets constructed, helped 15 families get land patta, was responsible for
getting more than 30 citizens in safety net of social security schemes and got 21 households
electrified. Her Most important contribution as she feels has been to get self-help groups formed
and link them to livelihood schemes of the government. This helped more than 20 households
become self- dependent. Also to her credit she made different infrastructure in Lakhakhera
accessible to common citizens irrespective to caste and class. Tulsa has attended trainings on
leadership, federation building, communication skills, MGNREGS and actively been a part of
campaigns on malnutrition and violence against women.
Tulsa Bai is not contesting in Panchayat Elections 2015 however she is actively supporting
another candidate from Lakhakhera and has played a key role in motivating many women to join
electoral processes during SWEEP Campaign 2014.

xxiii

Case study 12: Working to make development inclusive for all

Besaniya Saket
Post: Up-Sarpanch
Year of election: 2010
GP: Atahara
Block:
Rampur
Baghelan
District:
Satna
.
Third time as an EWR but this term is when I learnt what it is to be an elected representative,
declared Besaniya Saket in one of the Federation meetings held in Rampur Baghelan Block of
Satna district. When one delved into the reasons for this Besaniya shared that she had not
received any kind of training from the government on roles, duties of EWR and functioning of
Panchayat. But it was the first training and then subsequent many held by The Hunger Project
on issues such as malnutrition, implementation of MGNREGS and various government
schemes and violence against women which not only made her confident but also equipped her
with information necessary for running Panchayat. Indeed she says that it was also the team
that she got in present term in form of EWRs together in federation which broadened her work
from Panchayat to the block. Being an old time EWR she commanded awe and respect from
peers and officials alike and she used this fully to get work done at all levels.
Most importantly she supported Sarpanch of Atahara to get work done quickly and efficiently. In
her own ward she got 4 extremely malnourished children treated at Nutritional Rehabilitation
Centers and got more than 25 individuals get listed to avail benefits under social security
schemes. Rooting for malnutrition free Panchayats she encouraged many to use toilets built in
their homes and got 50 sanctioned for those who didnt have any. For 4 families who had been
running from pillar to post to get legitimate connection for electricity she got those secured too.
However the work for which she is most known in Atahara and also which is closest to her heart
has been making Anganwadi functional. This she did on all levels first to monitor 2 Anganwadi
centers to ensure regular opening time and presence of Anganwadi worker , second to counsel
families to send their children to the centers and also women to avail its services, and lastly to
liaison with Women and Child Development Department to get payments and materials for
Anganwadi released in time. Besaniya believes that helping the children spend healthy
childhood would nip in the bud many a problems like illiteracy, food insecurity and social evils.
Besaniya has played an important role in strengthening federation in Rampur Baghelan Block.
Present in every meeting since its inception Besaniya encouraged and motivated many EWRs
to join ranks and work together as a group. She also mobilized women to come together for
Sajha Manch in Atahara. Besaniya also went on call to nearby Panchayats where Sarpanchs,
also federation members sought her support or advice on matters of development and technical
processes. Besaniya served as a role model to many EWRs, mostly young who would come in
veils during meetings and later on became empowered and mobile.
Besaniya is keeping ill health and also with post of Sarpanch being declared for OBC category
she has decided not to contest elections. However she continues to motivate other women and
spread messages of SWEEP campaign even beyond Atahara.

xxiv

Case study 13: Rajudi takes on domestic violence

.
Rajudi Behan
Post: Sarpanch
Year of election: 2010
GP: Mahudipada
Block:
Petlawad
District:
Jhabua
.....
Rajudi is working as an active Sarpanch of her Panchayat. At Mahudipada Panchayat cases of
domestic violence were taking place on a large scale. Rajudi has been trained in Women
Leadership and Federation Building Workshops. She has ever been vocal about issues of
violence against women and raised this in special Gram Sabha on Violence against Women
during one of the Campaigns. Rajudi also went with other EWRs to 7 Panchayats where they
raised awareness of citizens on what constitutes violence against women and also laws that
protect women from these heinous acts. The exposure to other Panchayats and support and
good will garnered during campaign gave Rajudi the push to take up issues in her own.
In one of the need based training, Rajudi also came to know particularly about the Domestic
Violence Act which protects women against all kinds of violence. One day she came to
know that one of the federation members Bhuri was facing the domestic violence from her
husband. Rajudi decided to use her new gained knowledge to address this problem. Bhuris
husband thrashed her up severely under the influence of alcohol. Since physical assault was
involved Rajudi decided to file a criminal complaint in the police station rather than filing a civil
one. She discussed this possible action first with Bhuri and then with other federation members
who gave her the go ahead. In the complaint Rajudi reported the case of violence and on her
insistence, police officer summoned Bhuris husband. He was made to sign a note saying that
he is repentant of his acts and will not assault his wife Bhuri again. Bhuri consented to giving
her husband one last chance in view of interests of her children. Rajudi retained one copy of the
consent paper.
However after some days Bhuris husband started the beating spree and almost drove Bhuri to
the verge of suicide. Rajudi was alarmed and convened a meeting of federation members In
Mahudipada where she discussed this issue again and asked Bhuri what she wants. Bhuri said
that she wanted to live with her husband but the beatings had to stop. Following this the case
was taken up in Gram Sabha meeting where Bhuris husband sought forgiveness on front of
all Panchayat citizens. An agreement was also reached that if he breaches the terms of
agreement then he would have to pay fine and give allowance to Bhuri for her and her
childrens maintenance. Following this Bhuris husband repented finally and didnt repeat any
of his wrong doings.
Recounting her ordeal and federations support, Bhuri says with eyes swelled with tears Had
it not been for Rajudi and other sisters, I might not have lived any more. They helped change
my husbands behavior and now our family is living without fear.
Rajudi has decided to contest elections for the post of Sarpanch in 2015.

xxv

Case Study 14: Taking the chance that Bijli Bai had
..
Bijli Bai Singhad
Post: Panch
Year of election: 2010
GP: Dabri
Block:
Petlawad
District:
Jhabua
.
Bijli Bai was an active citizen of Dabri even before become an elected representative. She had
never been out of her village but always had a fire inside her to help others and see places.
Attending Women Leadership Workshop at block level gave her the first ticket to outside after
which she didnt look back. She found herself to be given importance like she had received
never before and she realized the power and significance of her elected position. In Dabri Gram
Sabha was not held regularly and when it was done, it was more on paper than actual
discussions taking place in consultation with citizens. Bijli Bai worked extensively in her
Panchayat and also nearby ones to make people aware about the significance and importance
of Gram Sabha. She motivated many women citizens of Dabri who started coming to the Gram
Sabha along with men, and participated in decision making processes. Bijli prepared
beforehand on the issues needing addressing in her ward and presented them for discussion in
the Gram Sabha. After building consensus much development work got initiated and executed
in her ward. She also motivated other women to speak out their views in the Gram Sabha.
In her tenure Bijli Bai got 5 ponds, 4 hand pumps and 4 wells dug, 36 individuals get listed in
social security schemes, houses for 3 landless families, 80 toilets and 1 each Anganwadi
center, school and sub health center. She was able to do all this with support of other EWRs in
Dabri and by getting aware on various rights and entitlements through posters, books and
attending meetings and trainings. Bijli Bai has motivated many other EWRs to come out of their
houses and work towards being empowered representatives. She actively participated and also
led in some Panchayats campaigns on violence against women, food security and malnutrition.
Bijli Bai has represented the federation in Petlawad block numerously in representations to
block and district officials and interfaced with media both at district and state levels. Besides she
presented work of EWRs from Petlawad twice in Federation Convention held in Bhopal inking
success stories and challenges faced by EWRs in her area. Though initially she could speak
only in local Bhili dialect she polished up her Hindi after listening to others speak and used it to
talk to media and officials. Bijli Bai is the only differently abled EWR in the fold of Jagriti
federation and she inspired EWRs across district with her ever willingness to take up newer
roles and volunteer for work during meetings and conventions. She has also been one of the
most prominent faces of SWEEP Campaign processes led by federation members in Petlawad
block.
Bijli Bai has planned to contest for the post of Sarpanch and is at present campaigning along
with her women supporters. She knows the fight would be tough with her close friends
contesting against her but she is determined to give it all she has.

xxvi

Case Study 15: Working towards inclusive growth for all

Shanti Sukhram Gama

Post: Sarpanch
Year of election: 2010
GP: Devali
Block:
Petlawad
District:
Jhabua

Shanti Sukhram is the Sarpanch of Devali Panchayat in Jhabua district which represents one of
the most underdeveloped areas of Madhya Pradesh. This was the first time that a woman
became a Sarpanch and for Shanti it was not easy. For one she was unaware of the roles and
responsibilities that came with her post and also lacked confidence to communicate. She says it
was the workshop of 3 days on leadership which helped her shed her initial inhibitions and also
told her how important the post of Sarpanch was. One particular training on communication
skills helped Shanti develop her ability to communicate with officials at block level and media
persons in a more meaningful way.
One of the issues that especially came up as a challenge for Shanti was that of 6 girls who got
enrolled in the nearest middle school 7 km from the Panchayat where they had to negotiate
desolate patches of land and inhospitable terrain in order leaving them exposed to security
risks. Further for the girls it was a huge exercise to walk the long distance often leaving them
too tired to study or undertake any other activity. When brought to Shantis notice she found out
about a scheme of education department where in girl students are provided cycles free of cost,
she discussed this with members of Sajha Manch. A decision was taken to send a delegation of
Shanti and two Sajha Manch members will meet the headmaster of the school and request him
for getting the cycles issued.
However the headmaster refused their request out rightly saying that the list of eligible girls had
already been sent and it was not possible to do anything in the present term. Shanti reminded
him of the scheme s provisions pointing out that the girls lived more than 3 kms away from the
schools location but he refused to budge. Knowing the power of paperwork imparted to her
through countless trainings, and her own experiences of presenting petitions in campaigns on
malnutrition and food security Shanti told him, You write on a paper that these girls are
students of this school and they have not been given cycle. We will get it done from the higherups. This startled the headmaster as he did not expect such response from the Sarpanch
whom he had considered as a non-literate ignorant village woman till now. It set him in action
and another list of these girls were sent to the education department post which they got their
cycles. This seemingly small initiative actually set the sea of change in Devli rolling for the door
to girls getting higher education had just been opened. In next 2 years 7 more girls got enrolled
to the same school.
Since then Shanti did not look back. As the Sarpanch she got Devali its first Panchayat Bhawan
(office). She also got an important road connecting the villages to the main road constructed
besides working for afforestation. On front of social security Shanti got 62 citizens get linked to
various social security schemes, and 19 girl children registered under Laadli Laxmi Scheme 32
(special scheme for girl child). 9 families in urgent need of immediate relief due to distress were
also provided monetary support through efforts of Shanti. One of the problems of Devali was
32

The Laadli Lakshmi scheme is a scheme introduced by the government of Madhya Pradesh, with the objective to
lay a firm foundation of girls future through improvement in their educational and economic status.

xxvii

unavailability of drinking water for which she got 11 hand pumps constructed. Sanitation was
another of her priority areas which saw 30 households being benefitted through construction of
toilets. When it came to malnutrition Devali figured among one of the most high risk Panchayats
of Petlawad block where Shanti along with other EWRs helped 24 children get linked to
Nutritional Rehabilitation Centers and later on followed up their progress on return.
Shanti Sukhram considers the work that did for education and empowerment of girl children as
to be her most significant contribution. She says- Girls are no ones priority. Becoming a
Sarpanch gave me an opportunity to work for them and I did small things which will remain
lifelong with them in form of education and financial security under special scheme.
Shanti had plans for contesting for post of Janpad member however she withdrew her name in
favour of another contestant form her extended family, and currently is supporting other women
candidates in campaigning. She played an important role in SWEEP campaign especially by
mobilizing citizens for listening to radio programs on the campaign messages.
Case Study 16: Documenting the journey that traversed by Radha Bhilawa
.
Radha Bhilawa
Post: Up-Sarpanch
Year of election: 2010
GP: Bawadi
Block:
Petlawad
District:
Jhabua

Radha Bhilawas journey has been extraordinary right from the beginning. She contested for the
post of Panch on an unreserved seat and won by a slender margin of 3 votes. She was
immediately voted to become the Up-Sarpanch due to her image of being a hard working
woman. Radha seized on this opportunity to serve the people whom she represented. However
in the beginning she was not very sure of the steps that she should take. Also she found her
non literacy to be a big handicap. But she didnt let these challenges deter herself. Instead she
took every step possible to increase her knowledge about Panchayat affairs and didnt shy away
from asking ex-EWRs about various schemes and provisions. Her attending Women Leadership
Workshop was the first step of capacity building and she went on to attend most of the trainings
on malnutrition, federation building, government schemes and MGNREGS.
Even being an Up-Sarpanch her accomplishments in 5 years are remarkable. She got 8 ponds
and 37 wells dug, 3 roads made, linked 9 out of school girl children back to education, 42
families got their own houses, 48 individuals got listed in social security schemes, identified 5
extremely malnourished children for treatment in Nutritional Rehabilitation Centers and 14
households electrified. By far she considers her most significant work to be construction of 250
toilets. This has helped the Panchayat and especially her ward become a clean place and acted
as preventive measure against diseases getting generated due to this. Also sanitation was one
of the priorities that Radha had set for herself in one of the federation meeting at the block level.
Radha has participated in various campaigns, most notably on malnutrition and food security.
Together with other EWRs she helped make people aware of various rights and entitlements
under Food Security Act and preventive measures for malnutrition not only in her own but
scores of other Panchayats. She also has contributed significantly contributed to SWEEP
Campaign by being a peer educator and mobilizing women for participating in Panchayat
xxviii

electoral processes. She also put in an application with returning officer for Bawadi to get
women police officials appointed during elections to prevent violence against women and to
make the place friendly to women.
In mid SWEEP Campaign in 2014 Radha launched IEC materials for the campaign on behalf
of all Jagriti Federation in Bhopal along with Deputy Secretary of State Election Commission,
senior journalists and The Hunger Project. What she said in the launch address sums up her
journey over the years-I was nave, but I never lost hope. I knew information is power and so
found more and more. This helped me reach my goal of making my own identity. I am happy to
have been brave enough to contest and to ask for help from others.
Radha plans to contest elections for the post of Sarpanch in Panchayat Elections 2015. She has
planned not to use any unfair means while canvassing rather she would highlight the
accomplishments and promise new developments for the Panchayat.
Case Study 17: I will neither engage in felling of trees nor let anyone else do so
.
Savitri Saket
Post: Panch
Year of election: 2010
GP: Dhavaiya
Block:
Rampur
Naikin
District:
Sidhi

Trees are important for living and I will keep protecting them says Savitri Saket who has led
campaign to plant trees in fast depleting forest area surrounding her Panchayat Dhavaiya. Until
3 years back Dhavaiya witnessed indiscriminate felling of trees for firewood and construction of
houses. Savitri raised the concern on this regularly in Panchayat meetings. Under a scheme of
the central government which provides for afforestation, Dhavaiya got its first project of making
Panchayat green approved from Panchayat. One of the impediments which came in its
implementation was that no one was willing to take responsibility of protecting and regularly
monitoring growth of planted saplings with support of Panchayat staff. Savitri then volunteered
to take upon herself to take care of the same. All for the environment, said Savitri when she
oversaw first watering of 100 saplings planted near to the pond where she resided in her
humble one room dwelling.
Then on Savitri would first check the condition of the saplings before going off to her daily wage
labour work at a construction site 10 kms away for 3 months on a regular basis. One day on
return when the saplings had grown reasonably into small trees she saw one of them broken
from its branches. On investigation she found it to be neatly done leading her to suspect that
some village dweller has intentionally broken it off for household use. On enquiring around and
checking fences of nearby houses she found two slender branches of the plant dug into kitchen
garden of one power lord notorious for picking fights with others, especially those from socially
disadvantaged communities that Savitri represented. Savitri first being apprehensive of
approaching the offender directly decided to do it with help of Gram Sabha members. She
mobilized men and women of the Panchayat on the issue and discussed how this one deviant
act can lead to many more and eventually the plantation drive of the Panchayat would be in
vain. Everyone agreed to her suggestion of setting an example and decided on a small fine for
any offense like this in future and also for any offender having to plant 5 more trees, and take
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responsibility to its nurturing and protection. The offender in this case was also summoned in a
separate meeting, who initially remained stuck to saying that he had committed no offense.
When Savitri supported by other elected men and women representatives held their forte, he
relented and apologized.
Savitri says that the main issue was not just challenging the power structure in the Panchayat or
question of simple breaking off of a plant. It was the concern that everyone should have on
environment and need to find ways of together protecting and sustaining balance of the very
nature which gives human beings everything required to live. By mobilizing not only community
but elected representative of Dhavaiya, Savitri has already set an example and her fame as a
tree ambassador, as some women lovingly call her is only growing by the day. For Savitri she
has her mission to achieve which is in her own words make other EWRs and community aware
on importance of forest for a happy life.
Savitri has been a huge support to the Sarpanch of Dhaviya together with whom she undertook
many a campaigns on issues such as malnutrition, food security and violence against women.
One of the most active members of block federation of Rampur Neikin Savitri also played an
important role in strengthening Sajha Manch in her Panchayat. She attended most of the issue
based trainings on malnutrition, health, education, federation building, women leadership,
violence against women and food security. Savitri has actively campaigned as a peer educator
in SWEEP Campaign.
Savitri has planned to contest elections in 2015 and has mobilized a team of ex-EWRs and
Sajha Manch members for the same.
Case Study 18: Confidence lies in her action
.
Krishna Singh
Post: Sarpanch
Year of election: 2010
GP: Bilayat Kala
Block:
Badwara
District:
Katni
.
Krishna Singh sits confidently across the table in a press conference in Bhopal. She responds to
cynical questions of journalists who want to know whether women representatives themselves
work or their husbands are doing work in Panchayats Mujhe dekhiye, mera pati nahin hai.
Main aapse baat bhi ker rahi hu aur panchayat main kaam bhi.(Look at me, I do not have
husband. I am talking to you and also working in Panchayats! ) This describes the persona that
Krishna Singh is. Her husband passed away while she was very young. She had two sons who
were studying in local government school. Krishna belonged to an affluent family and hence
didnt have any pressing concerns for meeting economic needs. Krishna decided to singlemindedly work towards strengthening her role in politics. Her in laws were already involved in
politics and after initial reluctance let her participate in political discussions and meetings. She
made the socially imposed and defined disadvantage of widowhood as her armor which warded
off unwelcome approaches from lewd men.
In previous term Krishna Bai had served as Janpad member however her role was limited since
the position of Janpad members didnt have enough discretionary powers and allocation of
funds for development of her constituency. Hence Krishna Singh decided in 2010 to contest for
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the position of Sarpanch which again she won by convincing margin. She has not looked back
since then.
Krishna has done immense volume of development work in Bilayat Kala. She started off with
getting an Anganwadi sanctioned for children in one of the wards where threat of malnutrition
loomed high. Then she worked on getting ration cards for eligible families who could then
benefit from public distribution system. Domestic violence is another issue close to her heart.
She raised it in Gram Sabha to create awareness and declaring that victims of domestic
violence can approach her directly. She also was instrumental in getting special Gram sabha
organized on Violence against Women during campaign in 2012 in which resolution deploring
child marriage and feticide was passed. Krishna also led federation members to put up issues
requiring greater attentions such as irregularity of government teachers, water scarcity etc. at
block and district levels. Krishna Bai won elections for post of President of Block Level
Federation and represented it in different forums, media dialogues and meetings facilitated by
The Hunger Project and partners. With participating in training on communication skills Krishna
Singh aced her powerful oration skills and now can give impromptu speeches.
Krishna helped in formation of Self Help Groups and getting them linked to banks for loan
processes. She also worked extensively on helping at least 28 citizens avail benefits under
various social security schemes. It to her credit that Krishna worked on issue of sanitation and
being an active member of the standing committee on health and sanitation she worked towards
getting 30 toilets constructed and motivating household members to use the same. She also
worked on securing rights for the landless and got 20 pattas sanctioned for rights of tribal
families.
The challenges that Krishna Singh faced as a young widow stepping into public life were
immense. She could never go out alone. She had to persuade someone from her house, her
son or in laws for safety concerns and social norms. She also received taunts from villagers, her
in laws and community members that she is a spoilt woman since she flaunts herself in public!
Being a leader she had to continuously interact with citizens, officers and politicians. Knowing
that gossips can start any time about her often led to live a public yet secluded life where she
had few friends and confidants. Hence even more federation of elected women representatives
helped get that support structure which she look rely on.
Trainings of The Hunger Project played an important role in polishing Krishna Bais leadership.
She says Pehle bhi main neta thi per piche koi nahin tha. Ab mere sath sangathan ki bahut
behne hain (Earlier also I was a leader but had no follower. Now I have support of many sisters
from federation).
Krishna Singh considers the work that she finally did towards end of her term in 2010 for
preserving centuries old water source(Bawadi) in Vilayat Kala to be the one closest to her heart.
Krishna Singh says-Its important also to preserve history for future generations. Also the
preserved Bawadi will eventually earn revenue for the Panchayat in long run since people from
far may come to visit it and indirectly benefit small enterprisers in the Panchayats.
Considered to be a strong contender for getting ticket for State Assembly Elections 2014 from a
major political party, Krishna Singh is not contesting Panchayat elections this time. She has her
eyes set for next round of parliamentary elections for which she has plans to build her base
among the masses from now on. With high hopes and clear vision Krishna Singh is a leader to
watch out for.

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Case Study 19: Taking the leap of faith

..
Rajwanti Singh
Post: Panch
Year of election: 2010
GP: Posta
Block: Rampur Naikin
District:
Sidhi
..
Rajwanti Singh was a first time entrant to politics when she came elected as a Panch in 2010.
It was the result of tough decisions to be taken at community and family levels which led to
her not contesting the post of Sarpanch then. She came from a family of landed laborers also
dependent on collection of a forest product tendu leaves. Although she had the vision to work
and do something meaningful for Posta Panchayat she was not sure in the beginning how she
could achieve that being a Panch. For one she did not know about her responsibilities and
also what rights she enjoyed as an elected representative. Her Panchayat though did not lack
so much in infrastructure has a problem of government services being dysfunctional, for e.g.
there will be school but teachers wont come, or a health center will stand without any
medicines and support medical staff. All these bothered her and posed challenges she was
not quite sure on how to address. It was around this time of indecisiveness and being lost that
she got introduced to the mobilization by NGO team members whom she had earlier seen
during SWEEP Campaign of 2009. The team members asked her along with other EWRs to
participate in training on leadership for 3 days. She did attend the first workshop and this
helped her truly appreciate the unique situation that she and other EWRs were in due to the
elected positions that they held. Rajwanti saw in this an opportunity which may have come
once in her lifetime to make positive impact in her community and realize many a things for
the women and marginalized which she could not fulfill earlier.
Rajwantis hard work along with her husbands earnings helped Rajwanti educate her children.
Education was always a high priority for her since she had to leave her own in the middle. In
fact one of Rajwantis most significant contributions during her term was in strengthening
education delivery in schools by monitoring, getting new teachers appointed and improving
infrastructure through getting 4 additional rooms constructed for seating of children. She
regularly monitored Anganwadi and ensured that children, pregnant and lactating mothers from
Posta access its services. Rajwanti was also responsible for identification of 9 extremely
malnourished children who would have perhaps died in absence of medical help, and got them
admitted to Nutritional Rehabilitation Center. Post their return she ensured follow up with their
families with help of Sajha Manch members residing in their wards to avoid their remission. She
also played a significant role in identification of at least 11 beneficiaries for social security
schemes in her ward especially 4 single women living on the fringes and ensuring that they
get their rightful entitlements. 16 families from Rajwantis village though eligible, were left
outside for a long time from the Below Poverty Line lists ,were included in the same through her
efforts.
The skills that she learnt from the trainings especially the negotiating ones helped her break
many an impasse in her Panchayat with government officials and citizens unwilling to support
her in mobilization drives against malnutrition and violence against women. It also equipped
her to deftly handle communication gaps and coordination problems with the Sarpanch of
Posta, also a trained EWR herself who sometimes felt shadowed under Rajwantis acumen
ship. Later on training on federation building helped her mobilize other EWRs to come together
as a support group for each other, training on standing committee helped get the one in Posta
xxxii

going. She has not only been a performer when it came to her work, but also played a pivotal
role in formation of Sajha Manch. She also challenged the dominance of Panchayat secretary
who belonged to upper caste and ensured that the group of elected women
representatives remains united against all adversities in Posta.
Rajwanti created a niche for herself with her determination and sincerity beyond her calls
of Panch in Posta. Her education till eighth standard aided her t o become a resourceful
federation member both in her own Panchayat and in the block level federation. Rajwanti
also got elected as the President of Block level Federation of Rampur Naikin and later on
Coordinator of all block level federations and represented them at various state level platforms.
Also known as a powerful orator in federation meetings and she often intervened successfully
to address issues of conflict from amongst the members. Rajwanti led 4 campaigns in her 5
year term- two on malnutrition and one each on Food security and Violence against Women
reaching out to 31 Panchayats, 23234 women and 17546 men. In these campaigns in all 53
extremely malnourished children were identified for treatment in NRCs, 801 names listed in
below Poverty Line lists, 94 Anganwadi centers visited and plans made for their improvements,
22 cases of violence against women resolved and 11 special Gram Sabha on Violence against
women held in which resolutions passed deploring infanticide and child marriage. For her
Rajwanti considers getting the Gram sabha meetings going with participation of huge number of
women her biggest achievement. She says its the numbers and the sheer power of it what kept
her going amidst all odds. For her to believe in strength of women seen to be the weakest and
poorest in all aspects was a big leap of faith that she took and which turned it out for her.
Though afflicted with an eye problem rendering her often immobile to read or move around
much and for which she got operated only recently, Rajwanti was accepted as a natural leader
across different Panchayats and blocks. At present she is busy holding meetings with
community members of 7 Panchayats to prepare to contest for the post of Janpad member in
Panchayat elections 2015. The contest wont be easy but she has refused to let it go without
putting in her best. Rajwanti continues to inspire her peers and others alike.

Case Study 20: Journey of a true leader

..
Kanya Singh
Post: Sarpanch
Year of election: 2010
GP: Khama
Block: Rampur Baghelan
District:
Satna

When Kanya Singh won by a narrow margin against 15 candidates in 2010 many people from
scoffed at her Ye kya Panchayat chalayegi, chulho chauko chorker aur kuch nahi aato (She
cannot run a Panchayat, after all she knows nothing but household work!). Kanya didnt feel
good when she heard this but secretly she agreed with most of it. Goaded by her husband and
community elders she had filed nomination papers and she won, and that was it. She knew
nothing about functioning of Panchayat and even with her education until 8th standard initially
she felt at sea.
xxxiii

It were the trainings on women leadership and government schemes and laws on protection of
women which opened to her the windows to the world of elected women leaders who found
strength in each other and also got equipped with knowledge necessary to run Panchayats.
Later on her active participation in campaigns on malnutrition, violence against women and food
security awareness camps brought her detractors also to acknowledge the respect and position
that she earned for herself.
One of the first works that Kanya did was to plan towards construction of Panchayat Bhawan
and community building. Most of the government owned land in Khama Panchayat was being
encroached upon by a socially and politically influential family. They used the land for
agricultural purposes. The family even perpetrated acts of violence against even children who
use to play in the land. This issue was brought to the notice of Kanya Singh when she became
the Sarpanch of Khama. The issue was serious and Kanya Singh was a bit afraid in the
beginning to make enmities with the family concerned. However, with the support of other
elected women representatives and community women she decided to take action. First of all
she tabled the issue in gram sabha and initiated discussion to remove encroachment from the
land, and get the land declared as land for public use. Gram Sabha members agreed and
signed a proposal to the effect. When the proposal was brought to the notice of the SDM of
her block, he was impressed by the bold stand taken. He immediately sent an engineer and
patwari (Land revenue official) to assist her in this matter and thus the encroachment was
removed. Kanya faced immense opposition from the influential family and received threats. On
one instance, her husband was beaten by the family in retaliation. But she stood her firm
ground. She complained to the police and got support from it for safety. Due to the brutal nature
of the violence faced Kanya knew that even if encroachment stood removed it will take only
some small time for the family to move back and encroach again. So she strategically decided
in consultation with other Panchayat members to construct Panchayat Bhawan and
Samudayik Bhawan (community Hall), on the freed land which can be used by all villagers and
elected representatives. This achievement was by no means small and its what got Kanya Devi
her first acknowledgement as the fearless leader of Khama.
Kanya continued to do the good work in other areas such as education of children, Anganwadi,
sanitation, social security schemes and monitoring of essential services such as Public
Distribution System (PDS). To her credit Kanya got 3 kitchen sheds constructed for cooking of
mid-day meal for children, got 8 housing schemes sanctioned for the landless, facilitated
formation of a self-help group for cooking of mid-day meal, got more than 35 individuals get
listed to avail benefits under various social security schemes and got 36 eligible households into
the list of Below Poverty Line. Kanya also got 55 defunct hand pumps repaired which served the
needs of more than 80 % population of Khama and helped 4 extremely malnourished children
get treated in Nutritional Rehabilitation Center. Kanya considers the creation of community
resources in form of community building and Panchayat Bhawan for citizens to come to and get
their work done as her most significant achievement. She says Panchayat is made of people,
and for them to come to one place is important for any work to move forward, and the buildings
made it possible. This is something none was able to get done before and I did it!
Kanya Singh has taken the decision to not contest the post of Sarpanch in 2015. Instead she is
supporting candidature of a member of Sajha Manch. She has been an active SWEEP
Campaigner spreading messages in 10 Panchayats.

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Case Study 21: Its all about having access to the right information
..
Munni Bai
Post: Panch
Year of election: 2010
GP: Bilayat Khurd
Block:
Badwara
District:
Katni
..
Munni Bai started off her political journey as a Panch in 2010 and she soon discovered her
passion in working for children and women. It bothered her immensely that in spite of so many
Anganwadi centers in Bilayat Khurd and with health workers and teachers appointed why there
was so much malnourishment and drop out of children from school. When she raised this issue
initially in one of the Panchayat meetings the Secretary silenced her by quoting some
government rules that didnt quite make sense to her. Munni made it a point from then onwards
to find more about different government rules and regulations. This she got through numerous
trainings that she attended and she also used various reading materials available in form of
posters and booklets.
She used her knowledge in campaigns against malnutrition and violence against women.
Munni made citizens not only of her own but 11 more Panchayats aware on various rights and
entitlements of children and women, and also motivated health workers to work for
malnourished children. From her ward Munni Bai identified 2 extremely malnourished children
and got them admitted to Nutritional Rehabilitation Centers. She got 6 citizens enrolled under
various social security schemes and 8 households enlist in Below Poverty Line. She also got 10
toilets constructed and got 50 households electrified. Munni Bai was the person to go to for 350
families in her ward when any one faced problems in accessing Public Distribution Shop.
However the most significant contribution as she sees of her is the monitoring system that she
had developed with Sajha Manch and other federation members to monitor Anganwadi centers
and mid-meal preparation to ensure that services are properly delivered.
One of the key strategies of the SWEEP Campaign as planned by federation members was to
regularly hold interfaces with media on success stories and challenges of women leadership in
Panchayats. Block level federation of Badwara in district Katni had also planned a small
interaction of select members with district media. Unfortunately on the day when the interface
was planned, federation secretary could not attend owing to sudden health complications.
Munni Bai was required to step in along with two other federation members at the last moment.
Having never interfaced with media before Munni was apprehensive. She shared her own
challenges as elected representatives in last 4 years, various problems that Gram Sabha
members still face in Panchayats and the collective strength and impetus that federation has
brought for the members. When a media person interrupted her by asking her to speak in Hindi
instead of local dialect that she was using, Munni was quick to retort, This is the language I
speak in, and I work using it as well. If you cannot understand, someone will explain for you
after I finish. This was hardly the response that the media person was expecting, but everyone
present were quick to acknowledge Munnis stand and as it was revealed the person who made
the request in the first place was only trying to unsettle Munni . This was a reminder to everyone
how difficult these spaces could be for EWRs and how those like Munni exercise their grit and
determination to handle such annoying situations. Munni Bai was cheered by other federation
members after successful completion of the interface and later on in block federation meeting
she was felicitated by others. For Munni, she has crossed another mental block in life. She
says, I didnt know I could do it until I was in that situation where everything seemed to depend
xxxv

on me. I am happy I took the first step that day. Now you can make me speak with all press
people anytime.
It was her learning curve that pushed Munni to continue her tryst with more knowledge and
information. In her own words due to lack of political awareness and lack of information we
(EWRs) lag behind and cant proceed with many of our decisions regarding governance.
However Munni Bai has also proved what elected women leaders are capable of doing when
they have access to information.
Munni Bai currently is fighting a personal battle. Her young daughter recently was killed for want
of dowry by her in-laws. Munni is fighting for securing justice and get the culprits punished. She
has taken a pause and decided against contesting elections in 2015.
Case Study 22: Bringing much needed water to Kukrapaani
..
Magray Bai
Post: Panch
Year of election: 2010
GP: Kukrapaani
Block:
Khirkiya
District:
Harda
..
Magray Bai belongs to the primitive Korku tribe and is among the few elected women
representatives from her community. She was elected unopposed in 2010 winning against 2
candidates. She got inspiration for contesting elections from self-help group members and other
women from her ward as well as her husband, himself an ex-elected representative from
previous term. Though Magray herself is non- literate but got the opportunity to deal with
financial affairs, dealing with business related matters due to her familys agricultural
background having 18 acres of land. The skills that she learnt while executing her role as a
farmer helped her in managing Panchayat affairs also. But the confidence to talk before officials,
she concedes, comes from the trainings that I attended. But her initial period had been fraught
with challenges. Starting from men who declared that she wont be able to get any works done,
to Panchayat Secretary refusing to entertain her requests, to her very much observance of the
practice of veil became big challenges which she had to deal with. Armed with confidence
gained from trainings and support from women each day it got easier for her to work. Magray
Bai has attended most of the trainings which included various subjects such as communication
skills, government schemes & policies, malnutrition, implementation of MGNREGS, federation
building and leadership development among others.
Magray Bai helped 70 job card holders demand jobs under MGNREGS besides getting 6
families included in the list for Below Poverty Line. She also helped more than 10 individuals
from her ward get listed for social security schemes and got 40 toilets constructed. 30
households got electrified as a result of her efforts. Magray Bai also got 2 extremely
malnourished children from her ward get treated in the Nutritional Rehabilitation Centers.
By her own admittance her work delivery earned her new respect among the citizens who
applauded her efforts in monitoring Anganwadi centers, preparation and distribution of mid-day
meal and school. Being the president of self- help group in Kukrapaani also helped her mobilize
women to join her in the monitoring efforts and for participating in Gram Sabha.

xxxvi

The work that she considers to be the best that she had done is resolving the problem of water
scarcity. Located in hilly terrain Kukrapaani perpetually faced crisis over water with water levels
record time low everywhere. Summer months were the worst when the few wells those were
there would also get dried up. Only the wealthy farmers had these wells and then also they had
to use bullock carts to fetch water with the fields where they were located miles away from the
main village. In the nearby river in summer villagers would dig pit in the sand to bring out water
receded at low levels. Magray Bai along with others tried to solve this problem for around two
years through the Panchayat but with low water levels traditional water sources didnt work.
Even the well which got cleaned due to her efforts and a motor fitted by a citizen to help other
draw water dried up eventually. In one of the federation meetings she came to know of a
scheme of Government department- Nal Jal Yojana. Taking help from federation members of
other Panchayats and her own she got letter drafted for the department for its access in
Kukrapaani. The department accepted the proposal and soon deep tube wells were dug with
enough water for all and within 2 months 80 households got connections for water.
Magray Bai has decided not to contest elections for 2015. Instead she has lent her active
support to one of Sajha Manch members contesting for the post of Sarpanch. Moreover she
continues to play supportive role to many other women planning to contest or exercise their right
to vote for the right candidate.
Case Study 23: Prioritising the right to education
..
Rekha Devi
Post: Sarpanch
Year of election: 2010
GP: Junapani
Block:
Khirkiya
District:
Harda

Rekha Devi is first time entrant into politics and she has been working as a daily wage labourer
before. She took around a year after getting elected to get herself acquainted with functioning of
Panchayat. Her participation in trainings on leadership building, MGNREGS, right to education,
Anganwadi functioning, standing committee and communication skills also helped her get
equipped with technical information and necessary skills. Subsequently she also participated in
campaigns on malnutrition and food security. Rekha is credited to have developed a strong
team of EWRs and Sajha Manch members for monitoring of delivery of essential services in the
Panchayat.
Rekha considers the work that she did for addressing the issue of understaffing in a school in
Kukrapaani as her most significant contribution to the Panchayat during her tenure. The lone
teacher in a primary school was entrusted with the Herculean task of imparting education to 160
children. This was not done thought Rekha Devi, Sarpanch of the Panchayat. Coming from
an extremely socially marginalized group, Rekha knew her odds of getting the educational
institution were not good. Majority of population in her Panchayat belonged to the affluent Gujjar
caste who would not have to think twice for sending their wards in the district to study. The
sufferers were more like her who dependent on daily wage labour and with limited resources
had to look up to the only school in her Panchayat for any hope of education for their children.
Rekha decided to do something about this.
Rekha started off her mission with discussing the issue first in the block level federation meeting
with other federation members. Then as per their advice she mobilized other elected women
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leaders and community women together and held discussions at regular intervals encouraging
them to voice their opinions on the issue and asking them to join her in her efforts to increase
number of teachers in the school to start with and later on getting it upgraded to higher
standards. Soon many community members also started joining her in these meetings, most of
which were parents of the children already studying in the school. Rekha explained to the
parents about the handicap of inadequate and low quality education with which their children
might have to live for rest of their lives if some measures were not taken immediately. Together
they decided to discuss the issue with the only teacher in the school who later on advised them
to go and meet the education line department head directly at the district level.
Rekha long with other federation members from Junapani and some aware citizens went to the
district with a memorandum asking the education department to issue orders for appointment
teachers in proportion with the number of students enrolled there. Much to her surprise the
officer in charge was not even aware that such a grossly misbalanced example even existed.
This was also because of the new Right to Education law which is very strict on absence of
basic deliverables by the education department. Furthermore, with Rekha mentioning JAGRITI
federation that she and others represent, the officer was more than willing to make amends. He
only asked for some time which lasted for another 50 days and another visit by Rekha, this time
with some of the office bearers of block level federation. It was then that the education
department finally managed to get 4 teachers together and appoint them in the primary school
in Junapani.
Today the school is functioning well with smiles back on the faces of the students and parents
alike. Even the lone teacher, who was there before, did not forget to thank Rekha for the much
welcome relief in form of his new colleagues who now share the teaching responsibilities.
Rekha continued to monitor regular attendance of teachers, functioning of the school, regular
and timely opening of the school and keeping an eye on quality of education being imparted.
This has been Rekhas most significant achievement.
Case Study 24: Story of Shama- A journey from struggle to leadership
..
Shama Vishwakarma
Post: Panch
Year of election: 2010
GP: Bavadia
Block:
Khirkiya
District:
Harda
..
Shama was only 28 years old when her husband died. Left with 4 children to fend as a young
widow Shama has to undergo turmoil of various nature right after that. First and foremost her in
laws restricted her mobility and then took control over the land in her husbands name. Shamas
husband who was a good carpenter had taught her many skills while alive. However her brother
in law also didnt allow her to practice their traditional work of carpentry saying that it would
bring bad luck to the family. Shama turned to her brothers for economic support but with their
own limited means that also didnt last long. It was then Shama decided to take control of her
life by choosing to work to support her family.
Shama started off with doing odd jobs which included weeding agricultural field, working at
construction site, plucking fruits and taking care of cattle. Her focus then was on earning enough
to get two square meals a day to feed herself and her children. She also had to carry her
youngest child who was 10 months old at work and take care of her while her eldest daughter,
xxxviii

merely 10 years old took care of her two other siblings. Once she attained financial balance,
Shama decided to send her children to school. It was not easy to motivate her children who had
been out of school for 7 months now. She monitored their going to school and took job at a
construction site next to the school to give moral support to the children as well keep a vigilant
eye. Her hard labour paid off and all of her four children got basic education. She feels proud
when she recalls her determination Pehle to socha bacche bhuke nahin soye aur phir socha
anpar na rahe. (First I worked so that children do not sleep empty stomached and then I
worked to see to it that they do not remain illiterate).
In her Panchayat Bavaria, Shama witnessed a federation of elected women representatives
taking shape under the aegis of Sarpanch, Dhapu Bai from the last Panchayat term (20052010). The federation had done some commendable jobs like removing encroachment from
government land and build school building and monitoring regular distribution of essential items
through Public Distribution System (PDS). This motivated her to contest elections for post of
Panch in year 2010.Since Shama had studied till 7th standard and her story of hard work, pain
and determination elicited enough respect from fellow villagers, winning the election was a
cakewalk for her. However for one entire year Shama lived under vigilance of her brother in law
who refused let her go for Panchayat meetings. Federation members and partner staff members
went regularly to her home and tried to talk her into coming at least for the federation meetings.
Slowly Shama negotiated with her family and started first attending the meetings. After 5
months Shama also started participating in Gram Sabha and being active in Panchayat
meetings.
Today after 2 and half years of being elected Shama plays an important role in decision making
and ensuring women citizens participation in Gram Sabha. To her credit she mobilized a group
of 15 women to stop illegal sale of water from government owned water source by a powerful
person in Bavadia.
Shama still has places to go. She has decided to fight for her property rights and take control
over agricultural land of her late husband which is now used by her brother in law. She has also
decided to break out of the joint family where she has to live a veiled life and constantly under
scrutiny. Shama wants to build her own home now. She says, bahut sahliya, aba age aa
gayehain to piche nahin dekhna. (I have faced enough. Now that I am empowered I want to go
further and not look back).
Shama is not contesting for elections in 2015. She has played an active part in motivating other
women from her community to take part in electoral processes during SWEEP Campaign

xxxix

Case Study 25: Voicing against violence

..
Geeta Adivasi
Post: Panch
Year of election: 2010
GP: Maronha
Block: Rampur Baghelan
District:
Satna
..
Geeta hails from a landless farmers family. She was married off while was still a minor. Her
husband abandoned her and Geeta faced several life challenging situations before finally
having to remarry against her wishes at the young age of 16 years. After marriage Geeta
started doing daily wage labour in agricultural fields of landed families of Maronha. She
was asked by her husband to contest elections for position of Panch in Panchayat. However,
after becoming elected, she underwent women leadership workshop and several other
trainings, and orientations later on. This instilled confidence in her and she turned the feelings
of injustice faced by herself at a young age to ones of changing lives and improving quality of
life in her Panchayat through her leadership. She took a while to come out of the shadow of
her husband in which federation played a very decisive factor.
It was the whole environment of domestic violence and wife battering by men in
Maronha Panchayat which bothered Geeta. Besides abusing women physically, the men also
were involved in gambling and snatching hard earned money of women to use for their own
pleasure needs. Geeta raised the issue of insecure environment for women and girls and also
domestic violence in the Gram Sabha and Panchayat meetings. However, no action was
taken, nor was there any repentance by the men at large. Geeta discussed the issue in block
federation meeting where the members suggested that she should mobilize affected women
together, take a strong stand and plan some visible strong action against violence against
women in Maronha. Geeta went back and held a meeting of elected women representatives
and community women where she shared the discussion held earlier with federation
members. The group members agreed that this is the ripe time to do something. Then Geeta
suggested the plan of forming vigilant group of women who will stand guard in the evening till
night time armed with sticks to keep an eye on incidents of violence. The course of action was
agreed to by all. Finally after four days the vigilant group started its monitoring. In case of
any incident of domestic violence, abuse, sexual harassment, rioting by drunken men,
wife battering etc. the group went together to first hold dialogue with the offender and
settle the matter amicably and when the perpetrator didnt relent , threaten to lodge police
complaint and report to District Magistrate. Soon two gambling dens were also raided by
this very group. This act of maintaining vigilance in group by the women together sent a strong
message to the Panchayat citizens who acknowledged their good work and supported them,
and also to the offenders who stopped committing such acts. The mobilization also had an
impact on sale of illegal liquor who, though even now operate, do so behind closed doors
and without creating ruckus.
This is not the end of the story. Geeta has pledged to keep working and make drives like this
regular part of happenings in Maronha Panchayat. For her, violence against women is the most
heinous of all crimes and it leaves scars that never heal not just among the victims but their off
springs and the whole society as such. Its her dream to see Maronha as a gender just, violence
free and sensitive place for women, girls and growing youth to be in.
Geeta is not contesting elections since the post of Sarpanch is reserved for a different category.
But she continues to play her part in supporting potential women candidates, many from the
Sajha Manch
xl

Case Study 26: Overcoming challenges that came her way

..
Sunita Bai
Post: Sarpanch
GP: Morgudi

Year of election: 2010

Block:
Khirkiya
District:
Harda
.
22 kilometers from block headquarters of Khirkiya in Harda district, Morgudi Panchayat is
located. This is a 100% scheduled tribes inhabited Panchayat. She had the opportunity to study
till 4th standard. Sunita was an active member of a community based group called Sakhi Manch
in her village which took up social issues besides doing savings. Sunita actively participated in
the processes of linking more women of her Panchayat to the group she belonged to. When in
2010 January the seat of Sarpanch was declared as reserved for tribal woman, Sakhi Manch
started discussion the potential candidate from the group for contesting. After initial discussion
Samota Bai, who was an ex-EWR,s name was finalized and she filed her nominations. Sunita
filed her nomination also and entered into tactful understanding with Samota Bai and her
supporters for casting votes in her favour. The most powerful opposition was in its comfort
zones thinking that with both members of the same group as candidates votes will be divided.
All women of the group rooted for Sunita and for the first time in the history of the Panchayat allwomen campaigning was seen. As two village elders commented-aisa to jivan me kabhi na
dekho(We have never seen anything like this before).Major issues of the campaign were
providing clean and sufficient water to all, getting the right & just selection made for intended
people under various social security schemes. Sunita won by a margin of 66 votes. She said
after winning- This victory is that of the women of Morgudi. I will strive for development in the
Panchayat for all five years of my tenure.
Sunitas journey over 5 years has been both challenging and rewarding. To start with there was
huge expectations from the citizens who voted for her for deliverance. Due to problems with
Panchayat secretary and previous unfinished work and incomplete paper many of the promises
that Sunita did could not be fulfilled in time. This led to unrest and people started voicing against
her in Gram Sabha meeting. However two years into her tenure Sajha Manch was formed in
Morgudi which organized all EWRs together with active women citizens including those from
Sakhi Manch as well. This helped her counter some of these challenges and with time she
started delivering many of the promises that she made during elections. Sunita got 65 toilets, 4
buildings, 3 roads, 2 community water resources constructed and helped more than 45 families
come under the social security net. She also was responsible for convincing parents of 5
extremely malnourished children to seek treatment in Nutritional Rehabilitation Center. Sunita
made sure that all essential services in Morgudi are properly monitored by the team of Sajha
Manch members.
Sunita Bai is seeking re-election for the post of Sarpanch in 2010

xli

Case Study 27: My Panchayat has to be clean for all

.
Kala Dahiya
Post: Panch
Year of election: 2010
GP: Kund
Block: Rampur Baghelan
District:
Satna
.
Sanitation is not the birth right of the higher caste people- Even Dalits are entitled to a clean
environment says Kala Dahiya who incidentally also represents one of the most socially
marginalized communities in Kund. Until a year back Kund was any other Panchayat in the
State with almost no toilets in houses, open defecation being the rule rather an exception and
huge piles of garbage lying just anywhere and everywhere. Kala came to know from federation
members in another Panchayat in one of the block federation meetings that they had launched
Total Sanitation Program in their Panchayats and open defecation had totally stopped there.
Impressed by their story, she resolved to do something similar in her Panchayat.
For Kala this was a difficult affair. Her woes started with the fact that she could not convince the
President to take this as a priority issue in her Panchayat. Then the community of the higher
caste people rebuked her efforts saying that they do not need lessons in sanitation from her and
that she should be content with all the grim, dirt and stench of the waste in her locality since she
was from the socially lesser category and she deserved it. Kala listened to all the taunts, ranting
of others but as she says-I filtered all discouraging stuff in my head and remained left with only
my resolution to bring sanitation for all in Kund, That helped me stay focused.
Kala got other elected women leaders from her Panchayat as well as from the nearby
Panchayat together and went door to door in Kund explaining to each family the need of
maintaining cleanliness, ill effects of open defecation, its linkages with malnutrition and general
bad health and issue of security of women folk who were targeted by men when they went for
open defecation. Consistent efforts by Kalas assorted team brought dividends. Some of the
citizens started taking interest in her campaign. Herein she finally managed to get the attention
of the Sarpanch. A Village Council meeting was then convened and a resolution asking all
citizens to get toilets constructed was passed with huge numbers in its favour. The resolution
also said that the Panchayat will contribute some of the money needed to construct toilets from
the dedicated government scheme and implored the citizens to contribute in form of labour work
in order to make the drive a total success. Soon construction work started in homes where
toilets were not constructed, even in the locality that Kala stayed in, garbage was cleared from
the dumps around the Panchayat, and everyone pledged to keep their Panchayat that wayclean and healthy. Today all houses in Kund have toilets.
Kala went through trainings on federation building sanitation, malnutrition, violence against
women, forest act and communication skills. The trainings helped her gain confidence to
interact with citizens and officials and also were useful in the multiple campaigns on malnutrition
and violence against women that she participated in. In her term she has helped more than 14
individuals get listed in social security schemes, and got 5 extremely malnourished children
treated.
Kala is seeking re-election in 2015 and also looking forward to supporting Sajha Manch
members for their candidature.
xlii

Case Study 28: Fighting to uphold the dignity of women

..
Sangeeta Adivasi
Post: Sarpanch
Year of election: 2010
GP: Gaada
Block: Rampur Baghelan
District:
Satna

Sangeeta has made a long journey from working under the influence of male family members to
being confident and visionary leader. She underwent leadership training and then need
based workshops which helped her get a sound perspective on her role, responsibility and
mandate in Panchayat and built upon her understanding of laws, government schemes,
processes and other perspectives. A quick learner, Sangeeta started working in her
Panchayat for the marginalized and poor families. She was instrumental in ensuring that social
security schemes reach the poor and eligible ones and in process helped 145 citizens access
various social security schemes and also 22 families get enrolled in Below Poverty Line lists.
Her tenure saw construction of 89 toilets and drive to promote total sanitation. Also she did
away with the corrupt system in which elected members would have to be paid bribe by the
citizen to get any job done. However, what made her the most visionary leader was that
Sangeeta took many measures to ensure womens dignity and security concerns were
addressed.
For this she started with making seating arrangements in Panchayat meetings similar for
all. Whereas earlier, men would sit on chairs, and women on the ground, now she did away
with chairs altogether, since there werent enough chairs to accommodate all. Instead all
women and men sat together on a carpet on the ground and conducted their meeting from
there.
In Gaada Panchayat, there were liquor vends which encouraged people to drink. Often drunk
men would create ruckus in the Panchayat in the evening time and would target women to hurl
abuses and eve tease. The men would go home and beat up their wives regularly in drunken
stupor as well. This went on for quite some time. Even in Panchayat meetings men would
turn up drunk and create disruptions.
Sangeeta convened a meeting of all elected women in Gaada Panchayat and some women
citizens. Together they discussed the problem and decided to take a firm stand against alcohol
induced hooliganism. They undertook a resolution which spelt out the issue well, and
condemning it, asked for police intervention. Then they got signatures of 200 women on it and
gave it to the sub divisional magistrate for necessary action. Since then a warning has been
issued to the liquor vends and the men involved to stop the disruption of law and order and
abuse of women. Gaada Panchayat has a makeover now where men know now that the
women wouldnt take their behavior lying down and would not hesitate to report to police.
Sangeeta says Now its very peaceful. Men have got the message loud and clear. I am also
not afraid to approach authorities if there is even slight disturbance.
Due to change in status of reservation for post of Sarpanch Sangeeta is not contesting elections
in 2015. However she has played an important role in helping potential women candidates to
access information for contesting and has motivated them.

xliii

Case Study 29: Getting food grains regularly is our right

..
Dhokiya Saket
Post: Panch
Year of election: 2010
GP: Kuriya Pavai
Block:
Rampur Naikin
District:
Sidhi
.
Gram Panchayat Kuriya Pavai is located 12 km away from block headquarters of Rampur
Naikin of Sidhi district. When one enters the Panchayat one can easily mistake it for being a
well-developed Panchayat with all basic infrastructure visibly in place. No one perhaps knows it
better than Dhokiya Saket that how different can be the reality. For one Dhokiya represents one
of the most socially and economically disadvantaged communities of her Panchayat who have
been always been dependent on free and subsidized essential food items and fuel being
distributed from local public distribution shop(PDS). She had never seen the PDS shop in place
physically but never fulfilling its mandate of fair distribution of items to the poor. Also she
witnessed that the ones non-eligible and those who curried favour with the powerful sections of
Kuriya Pavai would get all items on time.
It took Dhokiya close to 1 year to understand her powers as an elected representative in order
to be able to impact delivery of services such as that of PDS. She gained from attending
meetings of federation and trainings on issues such as malnutrition, sanitation and violence
against women. Determined as she was Dhokiya raised the irregularities in PDS regularly in
Panchayat and community meetings. Those with strong political connections tried to thwart her
efforts at streamlining the distribution system. But Dhokiya firmly stood her ground amid all
these challenges and supported Sarpanch to address the problem areas.
One time she found that in the extremely harsh summer months of March, no PDS card holder
had received any coupon required to be able to get food grains for close to 2 months. On trying
to find the reasons she was bluntly told by the Panchayat Secretary that the block office of the
concerned department was the one erring since process of computerizing record keeping of
entitlement holders was ongoing and until that gets completed, no coupons for food grains can
be issued. Dhokiya along with other EWRs waited for some more time for the situation to get
better. However that was not to be and the poor and marginalised communities, many out of
work were facing the heat and facing extremely impoverished conditions. Tired of being assured
but seeing no action from the Panchayat Secretary she decided to confront the Chief Executive
Officer of Block Panchayat on the issue. She was asked to return to Kuriya Pavai with the
assurance that situation will get better soon. After weeks of inaction Dhokiya went with other
EWRs to meet the officer again and apprised him of the deteriorating conditions of marginalised
families. The officer this time tried to shift blame for the problem to the Panchayat Secretary
who did not submit required records of the entitlement holders in time. But Dhokiya knew better
to leave at this. She adamantly told the officer that the Secretary is in fact an employee of the
department and hence he should take responsibility for his actions and immediately solve the
problem. She also threatened to sit on hunger strike with others if no concrete action was taken.
Seeing her determination and support exhibited by other EWRs the officers phoned the
Secretary and directed him to come to the office. When he arrived after half an hour, with
Dhokiya and her group still patiently waiting, the Secretary was given 8 days time to get listing
xliv

of eligible persons complete and ensure there is no administrative hitch in issuance of food
coupons. In the end the process was indeed completed in stipulated time, and people of Kuriya
Pavai started getting food grains again.

Radha Bai, one such coupon holder who got immensely benefitted by efforts of Dhokiya has
only praises for her Dhokiya knows a poor persons belly. She and all others have saved my
family from starvation. On her part Dhokiya has only this to say, I have only done my duty. I
anyways could not have achieved this alone without support of other EWRs.
Subsequently Dhokiya also participated in food security camps making citizens aware about
their rights and entitlements and also in SWEEP campaign motivating women to come forward
to join electoral processes. In her term Dhokiya helped 23 families avail the benefit of social
security schemes and recharging of community water resource. The most significant
achievement however for Dhokiya has been to cross the gender and caste barriers in Kuriya
Pavai.

Dhokiya is not contesting elections in 2015 due to change in reserved category status in Kuriya
Pavai. However she is actively supporting a Sajha Manch member in her candidature.
Case Study 30: From the shadow to light
.
Kalavati Vishvakarma
Post: Sarpanch
Year of election: 2010
GP: Bilayat Khurd
Block:
Badwara
District:
Katni
.
Kalavati is the Sarpanch of a small Panchayat Bilayat Khurd, block Badwara of district Katni. In
year 2010, she was elected as the Sarpanch for the 2nd time in continuity. This was quite a feat
for her in the patriarchal set up of her Panchayat, also considering the fact that this time the seat
was reserved for OBC, which meant both men and women could contest from it. Her journey
towards becoming Sarpanch this time was more dramatic. In the previous term, her candidature
was looking in the shadow of her husband who was himself a former Sarpanch. As a result,
voters rooted for her more with the conviction that her husband will do the actual work, and not
for having faith in her. That 5 year term was a life changing cycle for Kalavati. She not only
managed to start doing small amounts of work in terms of monitoring construction and mid-day
meal work, Kalavati also developed understanding of accounting with the help of her son.
Kalavati also participated in meetings of community based groups facilitated by a partner ngo in
her Panchayat and started the process of developing a group of women supporters from
amongst the groups. She also gained from leadership training given by the NGO. At a time
when men in her Panchayat were mocking her efforts of her becoming what they called- Netaji
(Leader), Kalavati was slowly gaining ground on good governance. However the first words of
dissent did come from her own family with her husband urging her to stay at home and take
care of kids, as she always did. Kalavati did not enter into confrontation with her husband on
this issue, instead, worked out a balance between her public and private life, and continued
increasing her understanding of the political system that she was in. In all meetings of the
xlv

Panchayat, she made it a point to attend and also get a group of women to sit in them. In the
initial meetings she and other women, were mute spectators while the Moochvalas
(Moustached guys) conducted proceedings. In one of the meetings the issue of ANM nurse not
coming regularly to the Panchayat for vaccinations was raised by a group of marginalized men
and women who could not afford expensive health care located in blocks and most often run by
quacks. This issue was sidelined buy another group of wealthy men who wanted construction of
Panchayat building instead. Kalavati broke her long observed silence during this meeting and
asked the Panchs and secretary to take stock of the irregularities in work of ANM first more than
anything else. Taken aback, her own family realized that she knows the job well. The deadlock
broke and Kalavati started addressing issues of social justice on a regular basis among the less
privileged in subsequent meetings including Gram Sabha. She also became popular among the
women across class and caste due to her now evolving dynamic leadership.
In her 5 year tenure Kalavati helped create community assets under MGNREGS in form of 2
pond, 3 buildings, cremation ground, and play ground, also helped formation of 1 self-help
group to link up with livelihood scheme of government later on. She also got more than 15
toilets constructed, 8 tribal got their land pattas, got 7 children treated in Nutritional
Rehabilitation Centers and helped many to come under social security schemes and Below
Poverty Line lists.
The most important achievement according to Kalavati is successful monitoring of ration shops
through which she ensured that pilferage stops and all marginalized sections get essential items
on subsidized rates. Kalavati has worked towards ensuring violence against women doesnt
take place in her Panchayat and got a special Gram Sabha also convened on the issue. She
has actively participated in campaigns on malnutrition and food security.
Kalavati has decided not to contest again owing to her poor health in 2015 and plans to remain
a vigilant citizen to support other EWRs and Sajha Manch members in the new term
Case Study 31: Taking steps to make her Panchayat malnutrition free
.
Asha Singh
Post: Sarpanch
Year of election: 2010
GP: Sarsud
Block:
Khirkiya
District:
Harda
.
Asha Singh is the Sarpanch of Sarsud Panchayat located 14 kms from Block headquarters of
Khirkiya in Harda District. A previous Janpad member she was already aware about Panchayat
affairs when she became Sarpanch. The decision to contest though was less hers and more of
the political party that she was a member of and also the community of Sarsud. She is one of
the EWRs who attended all trainings organized or supported by The Hunger Project including
those on communication skills, MGNREGS, Malnutrition, functioning of Anganwadi and
Standing Committee. She faced initial resistance from the Panchayat secretary who refused to
cooperate with her on decisions taken under her leadership. Faced with a dysfunctional
administrative set up in the Panchayat Asha complained against the secretary in the Block
Panchayat office and got him transferred from Sarsud.
Asha started off holding Gram Sabha in a transparent way and because of her efforts even the
Ward Panchs would come prepared with problems of their own wards and share in the meeting.
xlvi

This gave equal representation opportunity to the Panchayat citizens who got their issues
addressed. She got more than 60 persons linked to various social security schemes and around
70 households get enlisted in Below Poverty Line List. For those without their own house, she
got 20 housing schemes sanctioned and also got around 35 toilets constructed. Asha in her
work time also worked towards improving agricultural practices in Sarsud by getting farmers
trained and getting better yield crop seeds distributed for free from State Horticulture
Department.
The challenges that she faced were immense. For one all land for housing scheme was
encroached upon and it was an uphill task for her to get them vacated. Then the issue of
violence against women found resonance in few in Sarsud. She also faced tough opposition
from health workers and teachers whose work delivery she tried to monitor along with other
federation and Sajha Manch members.
One of the key works that Asha undertook was that on addressing malnutrition which was a
serious problem in Sarsud and other Panchayats of the block. Orientation training on nuances
of strategies to counter malnutrition helped Asha learn what all makes an Anganwadi truly
functional. When she went to the local Anganwadi center she learnt that the Anganwadi worker
was on leave. Ongoing through the leave register she found no record of the workers leave.
When she asked the assistant worker present sternly she was informed that the worker lived at
a great distance from the Panchayat and actually reported to duty only between 10-15 days in a
month. Asha came to inspect the Anganwadi center again on the next day. She again found the
worker to be absent, children were not being served prescribed supplementary nutritious food,
nutritious food routine health check-up of children was not taking place, and pre schooling
component of Anganwadi was simply not being implemented. Worried at the state of affairs at
the Anganwadi, Asha met her the next day and apprised her of her findings during the
monitoring visits. The Anganwadi worker was defiant and saw Ashas initiative as infringement
on her own territory. She even threw names of her connections with powerful local politicians to
scare Asha off. Undeterred Asha sternly reminded her that the Anganwadi is accountable to the
Gram Panchayat whom she represents. Asha gave the Anganwadi worker time to amend her
ways. Even after 10 days when there was no change Asha took the last recourse available and
filed a complaint on behalf of the Panchayat body to the women and child department regarding
the conduct of the Anganwadi worker and sorry state of affairs at the center. Responding to the
complaint, the department summoned the worker and gave her a written warning asking her to
discharge her duties with sincerity and in full accordance with rules and regulation failing which
she would be suspended from her job. Following this functioning of the Anganwadi gradually
improved. Asha made it a point to regularly visit the center and over period of time together with
the worker identified 10 extremely malnourished children who were treated at Nutritional
Rehabilitation Centers.
Asha Bai considers the work done by her on removing 40 years old encroachment on
Panchayat land in Sarsud as her most significant work done in the term. The job was tough in
all aspects but it gave her immense satisfaction to make way to the houses of the marginalized.
With post of Sarpanch in Sarsud reserved for SC category in 2015 Asha Bai is not contesting
elections. However she has been playing an active role in motivating other women to participate
in electoral processes.

xlvii

Case Study 32: From a humble labourer to being a leader

..
Sunita Saket
Post: Panch
Year of election: 2010
GP: Mohara
Block:
Sirmore
District:
Rewa
..
Sunita Saket was a daily wage labour when elections for fourth Panchayati Raj were
announced in year 2010. During pre-election (SWEEP) campaign, team members of
partner organization motivated her to take part in elections and contest as Panch. Then she
came to know more about the electoral system and role that she could play in development of
her Panchayat Mohara. Sunita contested and won by a convincing margin. Women leadership
workshop provided her with all the know-how of Panchayati Raj and brought in her a new found
confidence to perform her role as a Panch. She started participating in gram sabha regularly
and in one such gram sabha tabled the proposal for construction of tap in her ward. The
proposal was sanctioned and this gave her a new boost.
Sunita believed in participation of her ward members in opinion formation and decision making
processes. Thus, she regularly organized meetings of her ward sabha members and
discusses different issues related to her ward. Sunita saw to it that rightful entitlement holders
get their due under different social security schemes such as Below Poverty Line, Indira
Housing project for the poor, old age pension etc. In all 72 citizens and 42 households
benefited from her these efforts. She also got 11 household electrified and 23
toilets constructed. She interfaced with officials in block administration to put forward
confidently various issues and problems faced by her in Mohara also those of the block
federation. As an executive member of Jagriti Pancha Sarpanch Sangathan, Sirmore,
Sunita had taken the initiative of mobilizing elected representatives for signing on the petition
for removal of section (40), an undemocratic provision in Madhya Pradesh State Panchayati Raj
Act by securing more than 1400 signatures.
The most important work that Sunita felt that she did was addressing the issue of feticide in
Mohara. The fact that certain communities in Mohara killed female fetuses was known to all in
Mohara but not publicly acknowledged or discussed. Every time a woman was pregnant and
she did not carry for full term would tell others what was the reason. When Sunita participated in
campaign on violence against women and made citizens from other Panchayats along with
fellow federation members aware on ill effects of feticide and child marriage, she felt frustrated
at not being able to do anything in her own Panchayat. Knowing that she would open up a can
of worms in 4th Year of her tenure she decided to make an example to start the wind of change.
Around that time she came to know of a woman
whos in- laws were pressurizing her to get female fetus aborted. She arranged a meeting with
the women first clandestinely and then encouraged her to come along with other community
women to small group meeting in which the in laws were also invited. The issue was discussed
thread bare and Sunita cited laws and the priority of Jagriti Federation in addressing this issue.
In the end the in laws relented and the woman was able to save the child. The experience that
Sunita had affected her deeply but she did not live in illusion that all cases will have a happy
ending. She knew that for one woman who had the guts to seek help there would be 10 who
wouldnt do anything at all. It was then Sunita started making this an issue to be discussed in
Gram Sabha and Panchayat meetings and also made it a point to start discussions around this

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in public spaces. Though not fully sure but Sunita says since then she has been able to avert at
least 6 cases of feticide.

OUTCOME ASSESSMENT OF THE HUNGER PROJECTS INTERVENTION IN MADHYA PRADESH

2015

The Hunger Project India

18/1 Shaheed Bhavan
Aruna Asaf Ali Marg, Qutab Institutional Area
New Delhi- 110067

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