Context: The Ministry of Panchayati Raj had created a Panel in 2023 to examine the issue of Women Pradhan being represented by their Male members of their families. The panel has recommended “exemplary penalties” for proven cases of proxy leadership as a measure to curb the practice of ‘Pradhan Pati’, ‘Sarpanch Pati’ or ‘Mukhiya Pati’ in Gram Panchayats across the country.
Relevance of the Topic: Mains: Issues concerning Panchayati Raj Institutions; Devolution of real power to women at panchayat.
Sarpanch Pati
- It is a term used to describe the situation when women are elected as Sarpanch or Pradhan but their relatives act as sarpanch-pati or sarpanch-devar or pradhan-pati etc. wielding the actual political and decision-making power behind women.
- The term implies that where women are de jure elected, and their husbands de facto run the Panchayat.
Constitutional and Legal Provisions in the context of Women Reservation
- 73rd Constitutional Amendment Act, 1992:
- One-third reservation for women in PRIs.
- 21 States and 2 UTs increased this to 50% reservation for women.
- Legal loophole: The Act does not explicitly prohibit proxy leadership, allowing male relatives to misuse power.
- Supreme Court’s Order (July 2023):
- In Mundona Rural Development Foundation Vs Union of India, SC directed the Ministry of Panchayati Raj (MoPR) to investigate and recommend steps to curb proxy leadership.
- Panchayati Raj Act (State-specific variations):
- Some states have stronger gender-inclusive policies, for example:
- Kerala: Reserved seats for women in Panchayat subject committees and ward-level committees.
- Madhya Pradesh & Chhattisgarh: Regular monitoring of women’s participation in PRIs.
- Some states have stronger gender-inclusive policies, for example:
Key Issues involved with respect to Women Reservation in Panchayats
- Proxy Leadership in PRIs:
- Despite a high number of women elected representatives (WERs) in Gram Panchayats, many do not exercise real power due to proxy leadership by male relatives (husbands, fathers, or brothers).
- These male relatives, referred to as ‘Sarpanch Pati’, ‘Pradhan Pati’, or ‘Mukhiya Pati’, informally assume control over governance decisions.
- Example: In Rajasthan, cases have been reported where elected women representatives are rarely seen at Panchayat meetings, while their husbands take all major decisions.
- Regional Disparities:
- Proxy leadership is more prevalent in Northern states, particularly in: Uttar Pradesh, Bihar, Haryana and Rajasthan.
- Example: In a study conducted in Bihar, it was found that over 60% of elected women panchayat leaders had their husbands or male relatives attending meetings and making decisions on their behalf.
- Lack of Effective Participation
- Although women make up 47% of elected representatives in PRIs, their real decision-making power remains low.
- Reasons being:
- Societal norms discourage women from taking leadership roles.
- Women often lack confidence, education, and training in governance.
- Family pressure forces them to delegate responsibilities to male relatives.
- Example: A survey in Haryana found that most women Sarpanches did not even know the details of their Panchayat’s budget, as their husbands handled financial matters.
- Weak accountability mechanisms:
- No strict legal provisions or penalties to deter proxy leadership.
- Complaints about proxy leadership rarely lead to action due to lack of proper complaint mechanisms.
- Example: In Rajasthan, a woman Pradhan who attempted to report her husband’s interference was threatened by community leaders and forced to withdraw her complaint.
- Insufficient training and support for Women leaders: Women Elected Representatives are often first-time leaders, lacking:
- Governance knowledge.
- Awareness of their rights and responsibilities.
- Administrative experience.
- Example: In a Panchayat in Madhya Pradesh, a woman Sarpanch struggled to understand official documents, forcing her to rely on her husband for all official correspondence.
- Lack of technology-based interventions:
- No structured digital tracking system to monitor whether the elected women representatives are actually attending meetings and making decisions.
- Example: While Kerala has a system where Panchayat meetings are live-streamed, ensuring transparency, most Northern states lack such mechanisms.
Key Recommendations to address Proxy Leadership
- Legal and Policy reforms: Strict penalties for proxy leadership as recommended by the panel.
- Exemplary penalties should be enforced for proven cases.
- Standardisation of legal measures: A uniform national policy should be framed to prevent proxy leadership.
- Example: In some Gram Panchayats in Maharashtra, proxy leadership cases have resulted in disqualification of elected women representatives, but such penalties are not consistently applied across India.
- Helpline and Whistleblower Protection Mechanisms:
- Setting up confidential helplines where women representatives can report proxy leadership without fear.
- Whistleblower rewards: Incentivizing verified complaints. Example: Kerala has a Women’s Helpline for elected representatives, which helps report gender-based issues, including proxy leadership.
- Gender-Exclusive Quotas:
- Reserved seats in Panchayat subject committees and ward-level committees to ensure women’s representation in governance.
- Example: Kerala’s model of women-only committees in Panchayats has improved decision-making and participation.
- Women Ombudspersons for PRIs:
- Appoint women’s ombuds-persons to handle complaints related to gender-based discrimination and proxy leadership.
- Example: In Odisha, a few districts have introduced women ombudspersons in PRIs, leading to better grievance redressal.
- Mandatory Public Swearing-In of Women Pradhans:
- Women must take an oath of office publicly in Gram Sabha meetings, reinforcing their accountability.
- Capacity building and leadership training:
- Mandatory training in governance, financial management, and legal rights. Training in vernacular languages for accessibility.
- Example: Tamil Nadu introduced a mandatory induction program for all first-time WERs, which significantly improved their participation.
- Direct mentorship by Women MLAs and MPs:
- Elected women Pradhans should be directly mentored by experienced women leaders.
- Example: A pilot mentorship program in Karnataka helped new women Pradhans gain confidence and effectively perform their duties.
- Gender Resource Centers in Panchayats:
- Centers offering legal advice, leadership coaching, and networking opportunities for women representatives.
- Example: West Bengal’s Self-Help Group model integrates women’s leadership training with Panchayat governance.
- Use of technology and Digital Governance:
- Virtual Reality (VR)-based training to simulate real-life governance situations and build confidence.
- AI-driven legal and governance guidance in local languages. Example: Some urban local bodies in Telangana have started using AI chatbots to assist first-time leaders in governance queries.
- Digital tracking of Women’s participation:
- Panchayat Nirnay Portal: Citizens can track the attendance and participation of elected women representatives.
- WhatsApp Groups for Women Representatives linked with officials for real-time issue resolution. Example: In Gujarat, a mobile app tracks Panchayat meeting attendance, helping curb proxy participation.
- Institutional oversight and community involvement:
- Formation of Women-Only Monitoring Councils. District and block-level councils comprising experienced women ERs and retired officials to monitor proxy leadership cases.
- Annual awards for anti-proxy initiatives: Recognising individuals and organisations that actively combat proxy leadership.
Also Read: Role & Challenges of Women in Panchayati Raj Institutions
Proxy leadership severely undermines women’s political empowerment in Panchayati Raj Institutions. By implementing strict penalties and public accountability measures, the government can ensure that elected women leaders truly exercise their democratic mandate.