POWER TO WOMEN THROUGH PARTICIPATION IN STEP: A STUDY

IN WESTERN INDIA

Dr. V.M.RAO

Professor and HoC

Centre for Research and Publications
Vaikunth Mehta National Institute of Cooperative Management,
University Road, Pune 411007, India
Tel: 0091-20-25701238
Fax: 0091-20-25537726/27
Mobile: 0091 9890756596
Email: nicmvmr@gmail.com

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 POWER TO WOMEN THROUGH PARTICIPATION IN STEP: A STUDY
IN WESTERN INDIA
V.M. Rao1
Background
Women carry triple burden of (a) reproduction and related household
responsibilities, (b) production and related activities for lively hood
generation, and (c) traditional community management roles. However,
at every socio-political level, they find themselves under represented and
far removed from decision making levels. They remain unable to
meaningfully influence policy and decision making. Women are excluded
in traditionally male turfs such as economy, national security, trade, and
commerce which reinforces gender based stereo types. Social stigma,
cultural boundaries, and patriarchal society with family pressures do not
allow women to participate actively in economic and political fields. Their
participation and access to formal political power structures vary across
countries. India looses on many fronts just because half of its population
has very little say in important political and economic decisions and no
country can move forward leaving half of its population. Even after 62
years of independence, we have not been able to treat women equal to
men.

With a view to improve participation of women as also their socio-

economic status, Government of India has formulated policies to
enhance women’s’ visibility in the economic, political, and social spheres.
Publication of ‘report on women towards equality’ (1974) was one among
them. Sixth Five year plan contained a separate chapter on ‘women in
development’ with special emphasis on education, access to health and
family planning, employment and economic independence. 8th Five year
plan emphasized empowerment of women. Information about schemes
exclusively meant for women was provided in the 9th Five year plan
(1997-02). Empowerment of women became one of the primary objectives
of development during this plan period while 10th Five year plan reviewed
strategies adopted in previous plans. Government of India announced a
national policy for empowerment of women (2001) to bring about
development and empowerment of women belonging to weaker groups.

Eleventh Five year plan (2007-12) is aimed at ending multi-faceted

exclusion and discriminations faced by the women and to ensure that
every women is able to share benefits of economic growth and prosperity.
The women ‘empowerment for equal participation’ bill noticed that

1
Professor and Head, Centre for Research and Publications, Vaikunth Mehta National
Institute of Cooperative Management, University Road, Pune 411 007, India.

2
reservation for women in local bodies is not enough. They should have
equal participation in the governance of the nation.

Objective
Broad objective of the study is to analyze impact of support to training
and employment programme for women (STEP) on participation and
empowerment. Specific objective of the study are to understand (a) socio-
economic status of women respondents, (b) levels of participation of
women in a developmental prograqmme, and (c) its impact on
employment, income, and empowerment.

Methodology
The study was conducted in Maharashtra, a progressive state located in
western part of India. Ahmednagar, Kolhapur and Nanded were
purposively selected for the study2 ((location of Maharashtra and selected
districts are provided in Charts 1 and 2). Multi-stage stratified random
sampling technique was used to select 350 women respondents. Apart
from secondary data on progress of selected schemes, primary data were
also collected through pre-tested questionnaires during 2009-10.

A profile of study area

Maharashtra is the third largest, area-wise, and situated in northern
centre of Indian peninsula. It is positioned between 16° N and 22° N
latitude and 72° E and 80° E longitude covering an area of 307,713 sq.
kms. State is bordered by Madhya Pradesh to north, Chhattisgarh to
east, Andhra Pradesh to southeast, Karnataka to south and Goa to
southwest. Gujarat lies to northwest, with union territory of Dadra and
Nagar Haveli sandwiched between borders. Arabian Sea makes up
Maharashtra's west coast. It has 9.42% of Indian population. State
roughly accounted for 13% of national income. There are 37 districts,
358 blocks and 43711 villages grouped under six revenue divisions (Navi
Mumbai, Nashik, Pune, Aurangabad, Nagpur and Amravati). Economy of
the state largely depends on agriculture and industries. Mumbai, the
capital of Maharashtra, also called as business capital of India, is
industrial hub of the state. Total irrigated area of the state is ha. 36.67

2
This article is based on three studies: (a) Evaluation of mushroom cultivation scheme
provided under STEP to Arunoday Bahuudeshiya Gramin Vikas Sanstha, Ahmednagar,
(b) Evaluation of dairy project implemented by Shri Baburao Nana Patil Sahakari Dudh
Vyavasayik Sanstha Mydt., Kolhapur (Maharashtra), and (c) Concurrent evaluation of
poultry scheme financed under STEP programme in Nanded. These studies were
sponsored by Ministry of Women and Child Development, Government of India, New
Delhi. The author is thankful to the Ministry for providing financial support in
undertaking projects.

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lakhs constituting 16.4% of total cropped area. Major crops grown
include rice, jowar, bajra, wheat, pulses, cotton, sugarcane, sunflower,
groundnut, soybean, turmeric, onions and vegetables. Mangoes,
bananas, grapes and oranges are fruits produced in the state.

STEP programme
Support to Training and Employment Programme for women (STEP) was
launched in 1986 as a measure to ensure well being of women in
traditional informal sectors. It aims at increasing self reliance and
autonomy of women by enhancing their productivity and enabling them
to take up income generation activities (animal husbandry, dairying,
poultry, sericulture, fisheries, etc.). Specific objectives of STEP are (a) to
mobilize women in small viable groups and make facilities available
through training and access to credit, (b) to provide training for skill up
gradation, (c) to enable groups of women to take up employment-cum-
income generation by providing backward and forward linkages, and (d)
to provide support services for further improving training and
employment conditions of women. The target group to be covered under
STEP includes marginalized, asset less rural women, and urban poor. It
was sponsored by the Ministry of Women and Child Development,
Government of India. Number of state level dairy federations and non-
governmental organizations has been implementing schemes under STEP
for overall development of women in rural areas. Most of the states
availed assistance and helped women in various sectors indicated by the
Ministry.

An overview of schemes
Table 1 provides description of the selected schemes. Ahmednagar
district got sanction for sericulture activity while dairy activity was
sponsored in Kolhapur. Nanded availed financial support for undertating
poultry project. On an average, 8 villages were covered under each
project with a total of 1800 beneficiaries. Ministry sanctioned an amount
of Rs. 77.25 lakhs (US$171,666) and released Rs. 36.84 lakhs
(US$81885). Thus, little less than 50% of the granted amount was
released so far. As against 1800 total beneficiaries, 600 were assisted.
These schemes are under various stages of progress. Implementing
agencies, in all the three cases, were non-governmental organizations
having expertise in the respective fields. They have been involved in
implementing various other schemes for the socio economic
emancipation of women and children.

Socio-economic background
Socio economic background of sample respondents is provided in Table
2. It is clear from the table that most of the respondents are in their
early 30s and average size of household is five. Thus, most of them have

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3 children each. Table also provides data on educational qualification of
the respondents. Majority (31%) of them can only sign which they have
learned through adult education programme being conducted by various
developmental agencies. Similarly, 36% of the respondents studied
between 1 to 5th standards. Thus, most of them are either can sign or
studied up to 5th standard. Not even single respondents studied more
than 12th standard. Average land holding of the respondents is 0.77 acre
which is inadequate to meet their ends.

As a result, these women were enrolled into developmental programmes.

Average financial assistance received by the women members is Rs. 3441
(US$76) which is a small amount on any standards (Table 3). In addition
to financial assistance, respondents also received training, field visits
and were organized into cooperative societies. Converted into monetary
terms, it is a substantial amount. Respondents benefited under each
item are also provided in the Table.

Time allocation and sources of income

Distribution of workload pattern is provided in Table 4. Average
workload/respondent is worked out as 814 minutes (13 hours and 34
minutes). Of the total workload, 35% is devoted to household activities
while 26% to agricultural activities (either as a farmer or laborer). Thus,
household and agricultural activities consumed as much as 61 % of
women’s workload. Other important activity is scheme which, on an
average, consumed 21% of their work. A small portion of their time is
also spent on off-farm work. Across districts, women from Ahmednagar
had a work load of 14 hours and 15 minutes, and 12 hours and 41
minutes in Kolhapur. However, differences are not significant. On the
whole, work load of respondents is on higher side. Casual field
observations revealed that average work load of men is around 9 hours
and 30 minutes. Thus, women worked invariably more number of hours
than men folk in the study area.

Sources of income across districts are provided in Table 5. Average

income/annum is worked as Rs. 26909 (US$ 600) ranging from Rs.
20569 (US$ 457) in Nanded to Rs. 35536 (US$789) in Kolhapur. It is to
be mentioned here that Kolhapur is prosperous district located in
Western Maharashtra where as Nanded is located in Vidarbha region
with less irrigation facilities. Thus, results once again supported the
secondary data.

Among various sources, scheme alone contributed 41% of total income

followed by 21% for agriculture, and 20% from off-farm activities. There
are significant differences across districts. Scheme contributed around
24% of the total income in both Ahmednagar and Nanded while it’s share

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is 62% in Kolhapur. Income from agriculture constituted 31% in Nanded
while it is 15% only in Kolhapur. Similarly, small business contributed
substantially higher percentage in Ahmednagar and Kolhapur compared
to Nanded. Further, off-farm activity contributed around 25% in both
Nanded and Ahmendagar districts while it is 6% only in Kolhapur.

Involvement in the scheme

Respondents were asked to indicate reason for their participation in the
STEP (Table 6). Surprisingly, faith in implementing agencies came out to
be the single most important factor for joining the STEP. These NGOs
have been functioning in the area for the last many years and have
already won faith of local people through their presence in terms of
infrastructure, staff, and implementation of welfare schemes for women
and children. Other important factors responsible for joining STEP
included (a) past experience in the activity, (b) saw good opportunities in
the scheme, and (c) for being independent. Thus, most of them joined
STEP willingly with a specific reason and very few respondents indicated
that there is ‘no other avenue. There are minor variations across districts
in the factors responsible for joining STEP.

Economics of the schemes

Among all the three, dairy farming taken up in Kolhapur turned out to be
most economical (Table 7). Cost of production, gross receipts and net
profit reported in Kolhapur is about 5 times higher than in other two
districts. More area under irrigation, progressive farmers, cooperative
culture, presence of Kolhapur District Cooperative Milk Producers Union
Limited, etc. could be responsible for the same. Average net income from
the scheme varied from Rs. 2161 in Nanded to Rs. 12018 in Kolhapur,
and average being Rs. 5661/annum.

Money earned from scheme was utilized for variety of purposes (Table 8).
These included purchase of agricultural inputs, animals, cattle feed,
grocery items, children’s education, and treatment to children. More
importantly, women felt that they have, for the first time, contributed to
family income. To some extent, they have control on the earnings which
in turn contributed to self confidence and dignity. Since women are
earning, men took them in to confidence in decision making process.

Participation
Participation has been defined as involvement, influence, initiative,
voluntary effort, etc. Participation is important for (a) success of
developmental programmes, (b) personal development, and (c) conflict
resolution. Women’s participation in political processes is also important
for strengthening democracy and for their struggle against
marginalization, trivialization, and operation. Greater participation of

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women in decision making processes involves consensus willingness and
civic awareness. Emergence of women as a strong group would change
prevailing political practices. Qualitative participation of women can be
achieved through training and functional literacy. Attendance in meeting
is one of the most commonly used variables for studying participation.
Other parameters used are supervision of work, meeting government
officials and handling policy related matters. Participation is a function of
literacy, community, occupational status, age, and region. However,
patriarchal culture and social structures dominant in rural India inhibit
women’s participation in decision making process. Women are often
excluded from playing legitimate and active role in rural community life
due to social and institutional constraints (UNDP) (undated).

On being asked about perceived advantage of women’s participation, a

variety of responses were provided (Table 9). They included enhanced
income, awareness, mobility, communications skills, self confidences,
possessiveness, aggressiveness, etc. Most of these benefits are not
measurable and qualitative in nature. However, they contribute to self
confidence and possessiveness leading to empowerment. Among all the
benefits perceived, awareness came out to be single most important
factor.

Women generally took interest in regular supply of protected drinking

water, primary health, child care, public distribution system, and
environment. Priorities of women also included improved school facilities,
health care, roads, fuel wood, etc. They contributed labour to repair the
road to village school so that children could go to school without
difficulty. A large majority of them felt that it was beneficial to have
women in decision making forums as this would facilitate representation
of matters concerning women. Family development was another
advantage of participation.

They have many stories to share. ‘When we came home late, inquisitive
eyes followed us and barbered words greeted us. We were also out on
field visits for 6-7 days at a time. For our sisters standing by the edges,
we were favorite topics for gossip’. Women’s entry into cooperatives has
challenged social stigmas relating to their ability to exercise power and
altered texture of daily politics by injecting different values and
perspectives. Administration has improved because women are more
accessible to community than men, more transparent, and more effective
in fighting grass root corruption. Women’s knowledge, confidence and
assertiveness within society and within their families have been boosted
their new positions.

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Degree of participation varied from region to region and situation to
situation. If a woman conducted society’s affairs on her own, fully
participated in decision making process and got things done for the
community by inter acting with outside agencies, she is fully
participating. On the other hand, if a woman does not come out of her
house or remove veil and signs on the dotted line as directed by her
husband, it is a case of zero participation. In between there are many
cases of varying degrees of participation.

Empowerment
Empowerment is defined as ‘giving power to’, ‘creating power within’ and
‘enabling’. Some scholars also felt that it is a change in the context of a
women’s life that enables her increased capacity for leading a fulfilling
human life. It enables individuals and groups to realize their full identity
and powers in all spheres of life. Empowerment gets reflected in external
qualities such as health, mobility, education, awareness, status in the
family, participation in decision making and also material security. It
also includes internal qualities such as self awareness and confidence
(The Mahbub ul Haq Human Development Centre, 2000). In short, it is a
process of awareness and capacity building leading to greater
participation, to a greater decision making power and control and to
transformative action.

Probably it has capabilities like having decision-making power herself,

access to information and resources for taking proper decision, a range
of options from which she can make choices, ability to exercise
assertiveness in collective decision making, positive thinking, and
increasing one's positive self-image and overcoming stigma.
Respondents’ perceptions about the meaning of empowerment are
provided in Table 10. ‘Having decision making power herself’ is
considered as empowerment by as many as 27% of the total respondents.
It is followed by ‘having access to information and resources for taking
proper decisions’, as many as 20% of the respondents considered it as
meaning of empowerment. Thus, STEP programme was successful in
empowering women in the study area.

Suggested interventions
Respondents provided various suggestions for improvement of the
schemes (Table 11). Women emphasized the need for marketing support
(24%) followed by effective training with emphasis on demonstrations
(18%). Other interventions included providing quality raw material on
soft loans, formation of self groups, etc. Thus, schemes to improve
human resources and inculcate responsibilities should be implemented
through formation of community structures like cooperatives, joint

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liability groups, and self help groups. If incorporated, these suggestions
would go a long way in improving effectiveness of the schemes.

9
References
Rao, V.M. (2004a), Evaluation of women dairy project in Rajasthan,
Regency Publications, New Delhi.

Rao, V.M. (2004b), Changing destiny of women through cooperatives in

Bihar, Mittal Publications, New Delhi.

Rao, V.M. (2009), Concurrent evaluation of poultry scheme financed

under STEP programme in Nanded (Maharashtra), mimeo, VMNICM,
Pune.

Rao, V.M. (2010a), Evaluation of mushroom cultivation scheme provided

under STEP to Arunoday Bahuudeshiya Gramin Vikas Sanstha,
Ahmednagar, mimeo, VMNICM, Pune.

Rao, V.M. (2010b), Evaluation of dairy project implemented by Shri

Baburao Nana Patil sahakari dudh vyavasik sanstha, Darwad, Kolhapur
(Maharashtra), mimeo, VMNICM, Pune.

The Mahbub ul Haq Human Development Centre, 2000, Human

Development In South Asia 2000: The Gender Question, Oxford
University Press, Karachi.

UNDP (undated), Decentralization in India: Challenges and opportunities,

UNDP, discussion paper series 1, Delhi.

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Table 1: An overview of the schemes sanctioned
S.N. Content Ahmednagar Kolhapur Nanded Average

Division Nashik Pune Aurangabad

1 Activity Sericulture Dairying Poultry
2 Villages 10 8 5 8
3 Year of sanction 2001 2004 2005
4 Amount sanctioned 12.00 49.48 15.77 25.72
(Rs. lakhs)
5 Amount released 12.00 9.37 15.77 12.38
(Rs. lakhs)
6 Total beneficiaries 500 600 700 600
7 Beneficiaries 125 100 175 400
assisted
8 Area under irrigation 32.3% 37.4% 22.5%
Source: Field studies

Table 2: Socio-economic status of sample respondents

S.N. Parameter Ahmednagar Kolhapur Nanded Overall
(n=125) (n=50) (n=175) (n=350)
1 Age (years) 30.0 34.9 33.5 32.8
2 Size of household 5.7 4.7 5.8 5.4
3 Literacy
Illiterate 0 7 36 43
Can only sign 0 13 95 108
Standard 1-5 71 24 32 127
Standard 6-12 54 6 12 72
More than 12 0 0 0 0
4 Average land 1.00 0.70 0.62 0.77
holding (acres)
Source: Field studies

Table 3: Financial and non-financial assistance received under schemes

S.N. Content Ahmednagar Kolhapur Nanded Average
(n=125) (n=50) (n=175) (n=350)
1 Financial 2525 3645 4152 3441
assistance (Rs.)
2 Average training 4 8 16 9
days
3 Beneficiaries sent 44 32 105 181
on visits
4 Beneficiaries 75 15 58 148
organized into
groups
5 Beneficiaries 50 35 117 202
organized under
cooperatives
Source: Field studies

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Table 4: Time allocating pattern of respondents (minutes/day)
S.N. Activity Ahmednagar Kolhapur Nanded Average
(n=125) (n=50) (n=175) (n=350)
1 Household 260 210 377 282
(30.4) (27.6) (45.6) (34.6)
2 Agriculture 257 153 217 209
(30.0) (20.1) (26.3) (25.7)
3 Scheme activity* 113 283 120 172
(13.2) (37.2) (14.5) (21.1)
4 Small business 110 72 48 77
(12.9) (9.5) (5.8) (9.5)
5 Any other 115 43 65 74
(13.5) (5.6) (7.8) (9.0)
Total 855 761 827 814
(100) (100) (100) (100)
Source: Field studies
* It’s sericulture is in Ahmednagar, dairy farming in Kolhapur, and mushroom
cultivation in Nanded.

Table 5: Source-wise income (Rs./annum) of respondents

S.N. Activity Ahmednagar Kolhapur Nanded Overall
(n=125) (n=50) (n=175) (n=350)
1 Agriculture 5100 5222 6356 5559
(20.7) (14.7) (30.9) (20.6)
2 Animal husbandry 2575 - - 858
(10.5) (3.2)
3 Scheme 5750 2216 4914 1094
(23.4) (62.4) (23.9) (40.7)
4 Small business 2300 4454 332 2362
(9.4) (12.5) (1.6) (8.8)
5 Off-farm 6650 2265 7137 5351
(27.0) (6.3) (24.7) (19.9)
6 Others 2210 1475 1830 1838
(9.0) (4.4) (8.9) (6.8)
Total 24585 35536 20569 26909
(100) (100) (100) (100)
Source: Field studies

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Table 6: Reasons for undergoing training programmes under STEP
S.N. Reasons Ahmednagar Kolhapur Nanded Overall
(n=125) (n=50) (n=175) (n=350)
1 No choice 2 2 17 23
(1.6) (4.0) (9.7) (6.5)
2 Could not get job 6 4 0 10
(4.8) (8.0) (0.0) (2.8)
3 Saw good 9 4 35 48
opportunities (7.2) (8.0) (20.0) (13.6)
4 For being 18 6 15 39
independent (14.4) (12.0) (8.6) (11.0)
5 Availability 24 8 31 63
(19.2) (16.0) (17.7) (18.0)
6 Faith in 63 16 31 110
implementing (50.4) (32.0) (17.7) (31.3)
agency
7 Past experience 3 10 46 59
(2.4) (20.0) (26.3) (16.8)
Total 125 50 175 350
(100) (100) (100) (100)
Source: Field studies

Table 7: Economics of the selected schemes

S.N. Particulars Ahmednagar Kolhapur Nanded Overall
(n=125) (n=50) (n=175) (n=350)
1 Cost of production 2945 10142 2753 5280
2 Gross receipts 5750 22160 4914 10941
3 Net profit/year 2805 12018 2161 5661
Source: Field studies

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Table 8: Utilization of money received from the scheme
S.N. Purpose Ahmednagar Kolhapur Nanded Overall
(n=125) (n=50) (n=175) (n=350)
1 Purchase of 75 26 86 187
agricultural inputs
2 Purchase of 43 24 97 164
animals
3 Cattle feed 48 35 92 175
4 Food items 86 34 108 228
5 Purchase of 95 35 125 255
dresses for
children
6 Children’s 90 27 120 237
education
7 Treatment to 87 17 118 222
children and self
8 Savings 95 22 105 222
Source: Field studies

Table 9: Benefits due to participation in schemes

S.N. Purpose Ahmednagar Kolhapur Nanded Overall
(n=125) (n=50) (n=175) (n=350)
1 Increased income 25 24 12 61
(20.0) (48.0) (6.8) (17.4)
2 Awareness 20 10 37 67
(16.0) (20.0) (21.1) (19.1)
3 Mobility 11 2 30 43
(8.8) (4.0) (17.1) (12.3)
4 Communication 19 2 24 45
skills (15.2) (4.0) (13.7) (12.9)
5 Interactions with 10 0 9 9
others/officials (8.0) (0.0) (5.1) (5.4)
6 Self confidence 14 3 35 52
(11.2) (6.0) (20.0) (14.8)
7 Possessiveness 12 4 8 24
(9.6) (8.0) (4.5) (6.8)
8 Aggressiveness 6 3 5 14
(4.8) (6.0) (2.9) (4.0)
9 Bank account 8 2 15 25
(6.4) (4.0) (8.6) (7.1)
Total 125 50 175 350
(100) (100) (100) (100)
Source: Field studies

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Table 10: Respondents’ understanding on meaning of empowerment
S.N. View Ahmednagar Kolhapur Nanded Overall
(n=125) (n=50) (n=175) (n=350)
1 Having decision 33 15 47 95
making power (26.4) (30.0) (26.8) (27.2)
herself
2 Having access to 25 10 36 71
information and (20.0) (20.0) (20.6) (20.3)
resources for
taking proper
decisions
3 Having a range of 17 7 24 48
options from which (13.6) (14.0) (13.7) (13.7)
one can make
choices
4 Ability to exercise 14 5 20 39
assertiveness in (11.2) (10.0) (11.4) (11.1)
collaborative
decision making
5 Having positive 11 4 11 26
thinking on the (8.8) (8.0) (6.3) (7.4)
ability to make
change
6 Ability to learn 8 4 10 22
skills for improving (6.4) (8.0) (5.8) (6.3)
one’s personal or
group power
7 Ability to change 7 3 12 22
others perceptions (5.6) (6.0) (6.8) (6.3)
by democratic
means
8 Increasing one’s 10 2 15 27
positive image (8.0) (4.0) (8.6) (7.7)
Total 125 50 175 350
(100) (100) (100) (100)
Source: Field studies

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Table 11: Suggestions for betterment of the schemes
S.N. Suggestion Ahmednagar Kolhapur Nanded Overall
(n=125) (n=50) (n=175) (n=350)
1 Effective training 22 11 31 64
with emphasis on (17.6) (22.0) (17.7) (18.3)
demonstration
2 Timely and 25 9 26 60
adequate credit (20.0) (18.0) (14.9) (17.1)
3 Marketing support 26 9 49 84
(20.0) (18.0) (28.0) (24.0)
4 Providing raw 15 5 20 40
material on soft (12.0) (10.0) (11.4) (11.4)
loans
5 Supervision and 19 5 22 46
guidance (15.2) (10.0) (12.6) (13.1)
6 Emphasis on SHGs 4 4 13 21
(3.2) (8.0) (7.4) (6.0)
7 Gender 14 7 14 35
sensitization for (11.2) (14.0) (8.0) (10.0)
men
Total 125 50 175 350
(100) (100) (100) (100)
Source: Field studies

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Chart 1: Map of India

17
Chart 2: Map of Maharashtra

18