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Chapter-V
Political Participation of Dalit . Women in Kalahandi District in Orissa: A Case Study of Koksara
and Dharmagarh Block
Chapter-V
Political Participation ofDalit Women in Kalahandi District in
Orissa: A Case Study of Koksara and Dharmagarh Block
Political participation refers to "any voluntary action, successful or unsuccessful,
organized or unorganized, episodic or continuous, employing legitimate or
illegitimate methods, intended in influencing the choice of public policies, or the
administration of public affairs or the choice of the politicalleaders1."
What is of crucial importance in terms of political participation is the
v1ston to associate oneself with the larger social movement for equality and
justice. This kind of political participation reqmres a larger level of mass
mobilization with very clear and coherent understanding of one's socio-political
context, a vocal and committed leadership and transparent organizational structure
which can associate in different ways; formal and informal as well.
Having such a kind of understanding of political participation one wonders
whether women as a category have the required level of political participation in
their movements, which are variously termed as fragmented, sparse or even
fizzled out. Whereas the role of women in the changed domestic and global
perspective have been considered most important to the political life our society, it
is the area of socio-economic equality, liberty and decision-making where they
have to carve out a meaningful space for themselves.
Women, particularly in rural areas, operate in a closed social system where
they are subordinate to their male members in every sphere of their lives. The
1 Myron Weiner, "Political Participation: Crisis of the Political Process," in L. Binder et al. (eds.), Crisis and Sequence in Political Development, Princeton, Princeton University Press, 1974, p. 164.
Political Participation of Dalit Women. ...
situation of dalit women is more precarious. Because they carry a triple handicap-
as women, as rural persons and as Scheduled castes2• In fact, political equality is
meaningless where the mass of the population suffers from poverty, the
continuous threat of starvation, lack of health and inequality of class, status and
power. It is more so in the case of women who suffer from another dimension of
inequality, namely, the weight of traditional attitudes that regard them as
physically and socially inferior to men. Women's participation in the political
process is central to their struggle against oppression. All the different aspects of
women's liberation depend on the articulation of their demands and aspirations,
politically associating themselves with the larger movements of liberation,
equality, liberty and justice.3
It is in this context, the focus of study is on the political participation of
dalit women of Kalahandi district in Orissa.
Kalahandi
Kalahandi is one of the 30 districts of the Orissa. The district of Kalahandi
occupies the southern-western portion of Orissa. It is bound on the north by
Bolangir district, on the east by Phulbani and Rayagada districts, on the south by
Rayagada and Nawrangpur districts and on the west by Nawarangpur,
Chhattisgarh and Nawapara district4• Total area of the district is 7920 sq. km and
the administrative headquarters is located at Bhawanipatna.
2 Sakuntala Narasimhan, Empowering Women: An Alternative Strategy from Rural India, New Delhi, Sage Publications, 1999, p.23. 3 Pradeep K. Sharma, "Political Participation and Dalit Women," in Kiran Saxena (ed.), Women and Politics, New Delhi, Gyan Publishing House, 2000, pp. 79-80. 4 S.C Bhatt (ed.), "Kalahandi," The Encyclopaedic District Gazetteers of India: Eastern Zone, vol. 9, New Delhi, Gyan Publishing House, 1998, p. 641.
162
Political Participation of Dalit Women ....
History
Whatever doubt there may have been about the name of the district according to
the records of old Central provinces, it has always been known in Orissa as
Kalahandi (black pot). What the name 'Kalahandi' may have to do with black
cotton soil which brings out black pots from the potters' wheel that are
predominant in the markets of the district and neighbourhood can only be
speculative.
The district has magnificent scenic spots with towering hills and deep
valleys. Standing on the hilltop one can see very thick valleys with wild banana
catching the eye. The Kandha living in the wild tract enjoy the babbling brook by
the side of which they have built their huts. They also make their home brewed
liquor without which they cannot live. Kalahandi also boosts of pre-historic
paintings showing that man many thousands of years ago had an artistic mind,
which was striving to find expression while living in forests. The pre-historic
drawings at Gudhandi, and Jogimath near Khariar are worth visiting.
No record is available to show how the name Kalahandi originated. It was
previously known by the name Karond. According to Lieutenant Elliot, Deputy
Commissioner, Raipur (1856), "This dependency is known only on the Nagpur '
side as Koronde (Karond), the Oriya name being Kalahandi, and as there is no
place or village corresponding to the former name it would appear to be a
corruption of the latter, though it has been originally entered in the accounts."
According to popular belief, a powerful man of Rajputana named Kalahambir,
came to this part and ruled it for many years. After his name this country was
called Kalahambir, which in course of time, corrupted into Kalahandi. The name
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Political Participation of Dalit Women. ...
Kalahandi may literally mean 'black pot,' or may also mean 'pots of arts'.
According to the later interpretation, the name has possibly derived from
'Gudhandi', a hill located close to Koksara police station of the district, in the
caves of which are painted pre-historic paintings with red and black colours.
These interpretations concerning the origin of Kalahandi are, however,
conjectural5•
The district of Kalahandi was divided into two parts vide state
Government Notification No. DRC-44/93-14223/R. dated 27 March 1993
according to which Nawapara sub-division was detached from it to form another
district. At present, the district comprised of two sub-divisions namely
Dharmagarh and Bhawanipatna and thirteen Community Development Blocks6.
Population
Total population of the district according to 2001 census is 1,335,494 persons,
comprising of 667,526 males and 667,968 females. Rural population of the district
is 1,235,275 persons (615,612 males and 619,663 females) and urban population
is .100,219 persons (51,914 males and 48,305 females).
· In Orissa the sex ratio (number of female per 1000 male) according to
census report 2001 is 9727• It is interesting to note from the table given below that
sex ratio in Kalahandi is 1001. However, in the universe of study i.e., Koksara and
Dharmagarh block, the sex ratio is quite baffling. In the Koksara block the sex
ratio is 1014 whereas in Dharmagarh block it is 982. As the way of living, culture,
5 Orissa District Gazetteers, 1980, pp. 1-2. 6 S.C Bhatt (ed.), op.cit., p.641. 7 Orissa Human Development Report 2004, Government of India, p.134.
164
Political Participation of Dalit Women. ...
language of these blocks is similar; no clear-cut explanation was found as to why
the sex ratio is so different.
T bl N 51 P a e o. t ercen age o fP I f . K ks op_u a 10n m 0 ara an dDh armagar h Bl k oc !District Total Population Male Female Sex Ratio
(Percent) (Percent) (Female per 1000 Male)
Kalahandi 13,35,494 49.98 50.02 1001
Blocks in Kalahandi District
Koksara 1,37,739 49.65 50.35 1014
Dharma garb 1,18,965 50.45 49.55 982
Source: Census of India, 2001
Table No. 5.2: Different Population Category in Koksara and Dharmagarh Block
z Category lfotal Total %of Male Total %of Female
~opulation Male Female
s ~alahandi Scheduled 2,36,019 1,17,344 49.72 1,18,675 50.28
Castes
Scheduled 3,82,573 1,88,646 49.31 1,93,927 50.69 lfribes
Koksara Scheduled 22,830 11,298 49.49 11,532 50.51 Castes
Scheduled 44,894 22,091 49.21 22,803 "50.79 Tribes
!Dharma garb Scheduled 19,912 10,035 50.40 9,877 49.60 ~astes
Scheduled 20,728 10,242 49.41 I 0,486 50.59 Tribes
Source: Census of India, 200 1. ,
Languages and Religion
Main languages spoken in the district are Oriya (Sambalpuri) and Hindi.
Religion-wise break-up of population on undivided district is indicated below as
per 1991 census: Hindus: 1586840, Muslims: 5919, Christians: 5042, Sikhs: 1022,
165
Political Participation of Dalit Women. ...
Buddhists: 4, Jains: 1508, Other religions and persuasions: 19, Religions not
stated: 21.8
Geography and Physical Features
The district is broadly divided into two distinct natural divisions, the hill tracts and
the plain country. The former chiefly comprises the ranges of hills, which run into
the southwest ofthe district, the later constitutes the river valleys of the Tel and its
tributaries and the Jonk. About eight km South-east of Bhawanipatna commences
the mountain tracts called the Dongarla, which cover a vast area of about 3665 sq.
km on the eastern side of the district and extends towards southwards. These tracts
rise in a series of precipitous hill ranges from the plains. Severe droughts and
floods also often visit this region and some areas in quick succession. Therefore,
backwardness ofthis region is multi-faceted: (i) tribal backwardness, (ii) hilly area
backwardness, and (iii) backwardness due to severe natural calamities9.
The district is noted for its forest wealth. The major forest products of the
district are: timber, bamboo, firewood and kendu leaf. Other ·important minor
forest products are: Mahua flower, sabai grass, broom grass, gum, lac, myrobalan,
sunaribark, kusum-seed, karanj seed, mahua seed and tamarind, etc. These are
collected by the local tribals and sold in the local market through the purchasing
units of the Orissa State Tribal Development Corporation. Trade on Kendu-leaf is
export oriented and has been taken over by the State Government Undertaking.
Collection of minor forest products, cutting of timber and bamboo provide
subsidiary occupation to a large chunk of inhabitants.
8 Ibid. 9 Chandra Pal, A. Sekhar, and Sugan Singh, Report on Tour of the KBK Districts on J9'h July 2005 and 20'h July 2005, Government oflndia, Planning Commission, p. 8.
166
Political Participation of Dalit Women ....
Towns, Villages and Amenities
The district, according to Census 2001, at present comprised of 2 Sub-Divisions
(Bhawanipatna and Dharmagarh); 7 Tehasils (Bhawanipatna, Kesinga, Madanpur
Rampur, Lanjigarh, Thuamul Rampur, Dharmagarh and Jaipatna); and 13
Community Development Blocks (Bhawanipatna, Kesinga, Thuamul Rampur,
Narla, Madanpur Rampur, Lanjigarh, Karlamunda, Dharmagarh, Junagarh,
Koksara, Jaipatna, Kalampur and Golamunda). It has 3 towns (Bhawanipatna,
Junagarh and Kesinga); and 2,236 villages (inhabited villages: 2,099 and
uninhibited villages: 137. Number (with percentage) of villages having one or
more amenities in undivided district of Kalahandi as per 1991 census is given
below:
Table No. 5.3: Number of Amenities in Kalahandi: Census 1991 SI. No Amenities No. of inhabited Percentage
villages 1 Education 1896 69.94
2 Medical 174 6.42
3 Drinking Water 2068 100.00
4 Post & Telegraph 384 14.16
5 Market/Hat 213 7.86
6 Communications 370 13.65
7 Approach by pucca 529 19.51 Road
1-->
8 Power Supply 577 21.28
Source: Census of India 1991.
Education
According to 2001 census, total literacy rate in Kalahandi district is 513,383
persons, out of these, 349,4 73 males and 163,91 0 females. In the rural areas of the
district, out of 448,741 persons (69.36 per cent males and 30.64 per cent females)
are literates and in the urban areas out of 64,642 persons (59.10 per cent males
1 ()7
Political Participation of Dalit Women. ...
and 40.90 per cent females) are literates. The following table shows the literacy
rate in Kalahandi district.
Figure No. 5.1: Literacy Rate in Kalahandi District
Literacy Rate in Kalahandi District
80.00
70.00
60.00
50.00
40.00
30.00
20.00
10.00
Rural Urban
Area
Source: A-5 State Primary Census Abstract 200 I.
The literacy rates of SC in Kalahandi according to 1991 Census was 28.20
percent (Male: 44.47 per cent) and (Female: 12 per cent) 10• Among the total
literate SCs in Kalahandi there were 57,744 persons, out of which 89.74 per cent
(males) and 10.26 per cent (females). In rural areas the total SC literates were
51,817 persons, 72 per cent (males) and 18 per cent (females). And in the urban
areas the total literates among SCs were 5,927 persons, 7 per cent (males) and 3
per cent (females).
Whereas, in Koksara block the total SC literates were 3,730 persons, out of
which, 2,778 (74.48 per cent) males, and 952 (25.52 per cent) females. In
10 "Kalahandi: District Fact Sheets," Orissa, Human Development Report, 2004, p. 297.
168
Political Participation of Dalit Women. .. .
Dharmagarh block the total SC literates were 4,607 persons, out of which, 3,601
(78.16 per cent) males, and 1,006 (21.84 per cent) females. The following two
tables show the literacy rates of SCs in Kalahandi district and the two blocks i.e.,
Koksara and Dharmagarh.
Figure No: 5. 2: Total Scheduled Caste Literacy Rates in Kalahandi ,--------------------------- -- ---------------.-- ------------------ ., I Literacy Rates of SCs in Kalahandi District
Kalahandi Rural Urban
loMale I [•Female i
Source: Census of India 1991, Series-19, Orissa, Part-B (II), Primary Census Abstract: SCs and STs, Directorate of Census Operations, Orissa, p.l41.
Figure No: 5. 3: Literacy Rates of Scheduled Caste in Koksara and Dharmagarh Block
Literacy Rates of SCs in Koksara and Dhramagarh Block
%
80.00
70.00
60.00
50.00
40.00
30.00
20.00
10.00
0.00
Koksara Dharmagarh
Blocks
I oMale !
l_!~emale j i
Source: Census of India 1991, Series-19, Orissa, Part-8 (II), Primary Census Abstract: SCs and STs, Directorate of Census Operations, Orissa, p .141.
169
Political Participation of Dalit Women. ...
From the above mentioned tables it can be inferred that no region or nation can
prosper if majority of its population is illiterate. Therefore, adequate attention
should be paid to the education of this region.
Profile of the Two Blocks
The block Koksara is one of the 13 blocks of Kalahandi district. It is 60 km away
from the head quarter Bhawanipatna. It has 20 Gram Panchayats (GP) which are:
Ampani, Kaudola, Kashibahal, Koksara, Khuntia, Gambhariguda, Temra,
Dahgaon, Dalguma, Dudukathenga, Phupgaon, Badpodaguda, Baradanga,
Mahima, Majhiguda, Mushapali, Moter, Rengalpali, and Ladugaon. Among the
four GPs taken as the universe of the study, in the Khuntia GP, the Revenue
Villages (RV) are: Khuntia (Hamlets: Mirjapur, Pipalpada, Bandhpada and
Baarabakhra), Tentulipada (Hamlet: nil), Sardhapur (Hamlet: nil). In the Temra
GP, the RVs are: Temra (Hamlets: Hanspada, Nuapada and Khurselguda),
Sirliguda (Hamlet: Aampada), Karlamunda (Hamlet: nil) and Bobria (Hamlet:
nil). In the Mushapali GP, the RVs are: Mushapali (Hamlet: nil), Khaparamal
(Hamlet: Aampada), and Gahanamunda (Hamlet: nil). In the Badpodaguda GP the
only RV is Badpodaguda, and the Hamlets are: Bheliajor and Rainguda. The
language spoken by the people in this block is Sambalpuri dialect, which closely
resembles with the mainstream Oriya language (mother tongue of Orissa). The
economy of the block is agriculture with no industrial base.
The block Dharmagarh is another block of the Kalahandi district. Under
this block, there are 21 GPs which are: Kanagaon, Kankeri, Khairpadar, Gatiajor,
Chhanchan Bahali, Chhilipa, Jayantpur, Tipiguda, Dumerguda, Tambachhada,
Tarapur, Tendapali, Dharpur, Dharmagarh, Nalgaon, Parla, Badbasul, Behera,
170
Political Participation of Dalit Women. ...
Boden, Brahmanchhendia and Sandhikuliar. Among the four GPs taken as the
universe of the study, in the Tambachhada GP, the RVs are: Tambachhada
(Hamlet-nil), Telipalash (Hamlet-nil), Taranja (Hamlet-nil), Khanatara (Hamlet-
Malpada), and Mathia (Hamlet-nil). In the Kankeri GP, the RVs are: Kankeri
(Hamlet-nil), and Kotmer (Hamlet-nil). In the Badbasul GP, the RVs are:
Badbasul (Hamlet-nil), Kanter (Hamlet-nil), and Haldi (Hamlet-nil). In the
Kankeri GP, the RV is only Kankeri (Hamlet-nil). The language and agriculture of
this block is same as the Koksara block.
Sampling Design
The objectives of the study and the peculiar setting of the universe of study largely
determined the type of tools and techniques, to be adopted for the collection of
information from the field. The literacy rate of Kalahandi is not high and so far as
the dalit women are concerned their literacy rate is very low in the district and in
the two blocks chosen as the area of case study and that they are people's
representatives who might not have tl}e time to fill the questionnaire meant for
data collection, which requires the respondents to fill up personally. So ·
questionnaire was avoided in favour of interview schedule. The interview
' schedule included both closed-ended and.open-ended questions. The objective of
the closed-ended questions was to record the quantifiable information such as: the
demographic profile, economic status, educational status, and occupation. On the
other hand, the open-ended questions were to record the qualitative information of
the respondents such as: their perceptions about the PRis, the experience of being
in the system, and the problems they face or faced. In fact it so happened that
many a time the researcher formulated questions then and there to further get
some more insight into the problem and their experience. To elicit complete
171
Political Participation of Dalit Women. ...
information from the respondents, the questionnaire was translated into the native
Sambalpuri language. At the same time, another research technique, FGD was
also resorted to, as most of the respondents were women. Through the FGD, the
respondents were more forthcoming with their opinion on several issues. The
process helped the researcher to freely interact and establish easy rapport with the
respondents.
The other important consideration was relating to sample size. Adequate
attention was given to make the sample size more representative and objective
one. This decision was basically due to the time and financial constraints of the
researcher.
After the 73rd Constitutional Amendment Act was passed in 1992, women
and SC/ST were given reservations in PRis, only two elections were being held in
Kalahandi in 1997 and 2002. And after collecting the dalit women representatives'
list of both Koksara and Dharmagarh block from the District Collectorate Office,
Bhawanipatna. Four ( 4) G.Ps each from each block were selected taking into .
account the reserved seats for SCs and particularly for the dalit women and also
where they have major participation and in important posts like Sarapanch and
Samiti Members. The 4 GPs of Koksara that are reserved for SCs and women
were: Khuntia, Temra, Badpodaguda and Mushapali. Out of which only Khuntia
GP was reserved for SC women. The 4 GPs of Dharmagarh block so selected
were: Kankeri, Badbasul, Parla and Tambachhada. Out of which only 2 GPs were
reserved for SC women (Badbasul and Kankeri). Though Parla G .P was reserved
for SC it was not reserved for women. However, during 1997 a SC woman had
been elected from that G.P. The total dalit women representatives of the two
172
Political Participation of Dalit Women. ...
blocks were 28 (11 from Koksara block and 17 from the Dharmagarh block). Out
of which only 2 had been re-elected again in 2002 (1 ward member of
Badpodaguda GP under Koksara block and 1 Sarapanch of Kankeri GP under
Dharmagarh block).
Along with that interview of the Panchayat officials, village heads and
elders, Members of Legislative Assemblies (MLAs), students and youths of the
locality were also conducted to collect information about the performance of the
dalit women representatives and what they felt about the entry of the dalits and
women representatives into PRis.
The following tables show the number of elected dalit women
representatives during 1997-2002 in Dharmagarh and Koksara block.
Dharmagarh Block
Table No. 5.4: Number of Elected Dalit Women Panchayat Representatives During 1997
Sarapanch Naib Sarapanch Ward Member Panchayat Name of G. P. Samiti
Member
Kankeri 1 - 2 -Tambachhada - - 1 1 Parla 1* - 1 -Badbasul l - 2 -Total 3 0 6 l
• Means Elected from Unreserved Seat.
Table No. 5.5: Number of Elected Dalit Women Panchayat Representatives
During 2002
Name of G. P. Sarapanch Naib Sarapanch Ward Panchayat Samiti Member Member
Kankeri 1* - 1 1 Tambachhada - 1 - -Parla - - 2 -Badbasul 1 - 1 -Total 2 1 4 1
* Re-elected.
173
Political Participation of Dalit Women. ...
Koksara Block
Table No. 5.6: Number of Elected Dalit Women Panchayat Representatives
During 1997.
Name of G. P. Sarapanch Naib Ward Member Panchayat Sarapanch Samiti
Member Khuntia 1 - 1 -Temra - 1 - 1 Mushapali - 1 1 -Badpodaguda - - 1 -Total 1 2 3 1
Table No. 5.7: Number of Elected Dalit Women Panchayat Representatives
During 2002
Name of G. P. Sarapanch Naib Ward Member Panchaya Sarapanch t Samiti
Member Khuntia 1 - - -Temra - - 1 1
Mushapali - - 1 -Badpodaguda - - 1* -Total 1 0 3 1
Note: * Means re-elected.
Profile of the Elected Dalit Women Representatives
Table No. 5.8: Age-wise Distribution of Respondents
Age Group Koksara Dharmagarh Total
21-35 Years 4 5 9
35-50 Years 7 11 18
50 & Above 0 1 1
Total 11 17 28
Age: Age by itself can be a significant variable in the structural analysis of
political representation of women. All the dalit women representatives were
already married. During the survey it was found that out of the total dalit women
174
Political Participation of Dalit Women. ...
representatives interviewed, 18 representatives were in the age group of 35-50
years. Only 9 were in the category of 21-35 years. Only 1 representative was
above 50 yrs. Among the married, 1 ward member of Kankeri village under the
Dharmagarh block was a widow. Interestingly not a single women representative
was found to be unmarried. This was due to the patriarchal nature of the village
society and pervasive male dominance in the rural political structures. The entry
of the married women to PRis was due to the following reasons: 1) early marriage
is common in rural areas, 2) unmarried girls were not allowed by their parents to
hold such posts, 3) the village committees have strong reservation in selecting
unmarried girls for contesting political offices, 4) girls would stake their marriage
if they indulge in public activity before marriage.
Table No. 5.9: Reasons for the Participation in Politics (Multiple Answer)
KOKSARA DHARMAGARH
Due to Reservation 9 14
Family Influence 9 14
Influence by Villagers 9 14 Personal Interest 2 3
More than anything else, all the dalit women representatives entered into
the PRis only because of the reservations for them. Because without reservations
they would not have been allowed to enter into the PRis by other higher castes or
the dominant castes of the locality. Positions of power at this level still rested with
the upper castes. The Temra G.P Samiti Member and Sarapanch of K.huntia said
that without reservation for the women at grassroots level, they could not have
come to village panchayats. The other factors were also due to the persuasion of
family members i.e. husbands or kin-group, influence from the village people and
175
Political Participation of Dalit Women. ...
their personal interests. Actually their personal interest was created by the above
factors. Jayanti Ghadei, Sarapanch (1997) of Parla GP, under the Dharmagarh
block was elected as Sarapanch by the people of her village even though it was
not reserved for women. The reason was that the dominant population of Parla
was of Bairagi caste (OBC) and they did not want to elect a SC male candidate for
the post of Sarapanch. They were afraid that if they would elect a male Sarapanch,
with power in his hand, he might ignore them. Instead of that they wanted her to
contest for election on the condition that she would listen to them. Her husband
being a tuition master was highly respected in the village for his simplicity and he
had declined to contest for the post of Sarapanch, but looking at the persuasion of
the villagers agreed to allow his wife to contest the panchayat election.
Political Experience: Among the total dalit women panchayat representatives
interviewed only three women had prior political experience and all others were
first time entrant to PRis. And not a single respondent was from political
background. The three representatives with prior political experience were: 1
Sarapanch of Kankeri under the Dharmagarh block and 1 ward member of
Badpodaguda under the Koksara block (twice elected- 1997 & 2002). The Samiti
Member of Temra Panchayat under the Koksara block was the ward member of
Ampani (20 km away from Koksara Block).
Table No. 5.10: Educational Qualification of the Respondents
Educational Koksara Dharmagarh Total
Qualification
Illiterate 0 1** 1**
School Educated 12 15 27
(upto 1 01h Standard)
College Educated 0 0 0
176
Political Participation of Dalit Women. ...
Education: The all round development of any country shows through the level of
education the females received. The women's education plays an important role in
the process of socialization of children and to be aware about their rights and
duties. It can be said that the basic education is necessary for women to cope with
the male dominated society. But, most of the representatives were found to be
school and high school literate (5- 10 standard). Only two representatives had
studied 10 standard where as all the other representatives were under ih standard.
Only 1 ** ward member of Kankeri village under the Dharmagarh block admitted
that she was illiterate and the only thing she knew was to write her name to give
signature 11• However, during the interview, it was observed that even if most of
the representatives said that they had passed 5111 or 61h standard, they seemed to be
illiterate. Because their language and hesitation to answer to a simple question
without taking the help of their family members, made the researcher to think
them to be illiterate.
Therefore, to make the policies and programmes for women successful, the
government must give importance to their education first of all.
Table No. 5.11: Occupational Pattern of Women Representatives and their Family
(Multiple Answer)
OCCUPATION KOKSARA DHARMAGARH TOTAL HOUSE WIFE 11 17 28 FARMER 0 0 0 I,ABOURER 0 1 1 PVT./GOVT JOBS 1 1 2 (Husband)
11 According to Section 11 ofthe Orissa Gram Panchayat Act, 1965 to be qualified as a member of the gram Panchayat one must be able to read and write in Oriya. See Mahendra Kumar Das, Orissa Panchayat Niyamavali (Oriya), Cuttack, Orissa Law Reviews, 2002, pp. 22.
177
Political Participation of Dalit Women. ...
Table No. 5.12: Income (monthly) of the Respondents
INCOME KOKSARA DHARMAGARH TOTAL GROUP Less than 500 0 1 1 501- 1000 2 5 7 1001-3000 7 7 14 3001-5000 1 4 5 5001-7000 0 0 0 Above 7001 1 0 1
Occupation and Income: All the dalit women representatives were house wives
and declared themselves as home makers which includes child rearing, field
working (taking food for their family members working in the field, weeding
grass from the paddy crops, cutting crops, etc.), fetching water from the pond and
well, wash clothes of the family, cook food for the entire family, looking after the
old members of the family; activities that put limits on the time they can spend in
political affairs. All of them also mentioned that they were required to play
multiple roles in society- wife, daughter-in-law and elected representative of the
people. Almost all the representatives said that the occupation of their husbands
was agricultural farmers. Only two respondents' husbands were found to be a
schoolteacher and a veterinary hospital peon. Therefore, the monthly income of
majority of respondents was Rs.l 001-3000. According to a few it was Rs.300 1-
5000. Only 1 respondent told that the monthly income of her family was less than
Rs.500 so she had to work as laborer to earn a living. One Samiti Member said
that her family monthly income was above Rs. 7001, which meant she was the
only representative who had an economically sound background.
House Condition: Most of the representatives are poor. They had little land
property or no land at all. Most of them are living in houses made of clay and few
were living in pukka houses, which they had been provided by government's
178
Political Participation of Dalit Women. ...
Indira A was Y ojna (IA Y). Only one Samiti Member had a pukka house owned by
her husband.
So, the socio-economic condition dalit women representatives is a cause
and concern as it is linked with the role perception. If they are economically poor,
they might not think about the development of the Panchayat. Our policy makers,
who have in mind putting reservation to develop both women and panchayat
through various measures, must bear in mind that mere representation is not
enough, they need to be strengthened socially and economically. As the report of
the Planning Commission on the tour of KBK districts says more focus should be
given to livelihood schemes so that incomes of very poor SC/ST and other
disadvantaged groups rise to make a dent on poverty 12•
Table No. 5.13: Personal Affiliation to Political Parties
Political Party KOKSARA DHARMAGARH TOTAL
Congress 5 10 .15
BJP 0 0 0
BJD 2 3 5
No Answer 4 4 8
Political Affiliation: When enquired about their political affiliation, all
respondents told that they had no relation with any political party, but after some
cajoling and persuasion 15 of them admitted that they supported the Congress
Party and 5 supported Biju Janata Dal (BJD), 8 did not answer at all. The most
interesting fact was that not a single respondent accepted to support the Bharatiya
Janata Party (BJP).
12 Chandra Pal, A. Sekhar, and Sugan Singh, op.cit., p. 33.
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Political Participation of Dalit Women. ...
Table No. 5.14: Response of the Representatives regarding their Attendance . th p h t f m e anc ay_a mee mg
KOKSARA DHARMAGARH TOTAL Always 10 12 22 Very often 1 4 5 Rarely 0 1 1 Never 0 0 0
Majority of the dalit women representatives maintained that they always or
very often attend the panchayat meetings. However, they even admitted to take the
help of their husbands and other family members to know about the dates of
panchayat meeting and other related information about the PRis. Their family
members i.e., husbands, sons or near relatives also accompany them to the
meeting place or to the block office.
When asked as to how they were feeling being in the Panchayati Raj
system, almost all the representatives maintained, "we are now feeling good,
independent and self-confident. Earlier we were nothing. In our initial
involvement in the village politics, we suffered a lot. According to the traditional
thinking, a woman cannot bring any good thing for her; so she cannot do any good
for others. Earlier we used to get jitters going before village elders or government
officials, but now we can freely talk to them, discuss the problems of our villages.
We had always desired to do something for our locality or village people because
the problem they face, we face. However, after the reservations for SC/ST and
women we have got a chance to fulfill our dreams and aspirations. Within our
limited knowledge and capacity, if we could change the lives of at least few
people of our locality, we would feel satisfied as human beings. The position of
~omen has definitely ,got better after coming into the Panchayati Raj and now
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Political Participation of Dalit Women. ...
they we are in a position to learn from the mistakes and in future we will
definitely not face the same problems, which we are facing now."
T bl N 5 15 R a e 0. espouses o fth El t d R e ec e t t' epresen a 1ves on D .. eCISIOD-ma k' m_g KOKSARA DHARMAGARH TOTAL
Take Decisions 2 2 4 Independent} y \
Discussion with 4 5 9 Husband/relatives Influenced by 2 4 6 leaders of PRis No answer 3 6 9
When asked how do they take a decision or form an opinion on some
issues in the PRis, only 4 respondents told that they take the decision
independently. 9 of them told that they take the decision after discussion with
husbands, family members or other village elders. 6 of them (particularly ward
members)·told that all the decisions were taken by Sarapanch and other influential
panchayat leaders or all the decisions were taken in the palli sabha.
Table No. 5.16: Support of Other Castes Male/Female Representatives in D' h . D . ISC argmg uhes
KOKSARA DHARMAGARH TOTAL
Always 2 2 4
Very often 2 3 5
Rarely 4 7 II
No answer 3 5 8
Table No. 5.17: Reasons for Non-cooperation of Other Castes Male/Female R t f . D. h . th . D f epresen a 1ves m 1sc argmg e1r U 1es
KOKSARA DHARMAGARH TOTAL
As less educated 2 2 4
As a woman 4 5 9
As minority caste 5 7 12
Any other 0 3 3
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Political Participation of Dalit Women. ...
To the question as to how often did they get the cooperation of other castes
male/female representatives in discharging their duties? The representatives were
initially not forth coming and hesitated to answer. But after some persuasion, 4 of
the respondents replied that they always had the cooperation of other castes
male/female representatives, 5 of them said very often and 11 rarely got the
cooperation and 8 did not answer at all. When asked what was the reason(s) for
their non-cooperation, 12 of the total respondents told the reason was basically
due to their caste, 9 told because they were women, 4 told because they were less
educated, and the rest told that they were the victims of jealousy and others. To
th,em some people did not want them to be in system or could not see their rise in
their social status and position.
Table No. 5.18: Responses on the Socio-Economic Changes acquired through P r . I P f . t• . PRI o 1hca ar ICIPa IOn Ill s
KOKSARA DHARMAGARH TOTAL
Increased social 3 4 7
status
Increased 3 5 8
economic status
~adelndependent 4 6 10
No change 1 2 3
To the question what changes their political involvement brought to them
in their personal (socio-economic) lives? 7 our of the total respondents said it had
increased their social status, 8 told that their economic status 13 had improved, 10
respondents maintained it had made them independent and 3 told that it had not
13 The members of the gram panchayat including the Sarapanch and Naib-Sarapanch shall be paid such sitting fee for every meeting they attend and such traveling and daily allowances [as the State Government may, by notification, determine] and such fees and allowances shall be paid from out of the Gram Fund.] Substituted vide Orissa Act No. 23 of 1987. For details see Panchayat Laws in Orissa, Cuttack, Orissa Law Reviews, 2005, p. 17.
182
Political Participation of Dalit Women. ...
changed anything (socio-economic status). According to them, "They are where
they were earlier."
Table No. 5.19: Problems faced by the Elected Representatives while Discharging their Duties (Multiple Answer)
KOKSARA DHARMAGARH TOTAL Caste-based 2 5 7 Discrimination Gender-based 3 6 9 Discrimination Administrative 4 3 7 interference All the above 2 3 5
To the question what problems they face while discharging their duties? 9
out of the total representatives maintained that they generally face gender-based
discrimination. Most of the administrative officials and other co-male members
think that we women are incompetent and do not understand anything, therefore,
most of the · time their decisions were not entertained. 7 dalit women
representatives said that somewhere or the other they always felt being treated as
untouchable (however, they declined to give any explanation to that) and 7
representatives told that "they rarely get the administrative support from so could
not do anything for the development of our locality even if we want to". 5 of them
without being specific said all the above reasons.
When asked what were the problems they identified to address urgently,
being the representatives of the population, almost all the respondents maintained
that road repairing, housing, drinking water facilities, sanitation facilities, schools
for children were the major problems of their areas and they had been trying their
best to solve those problem. Few of the respondents also told that they had no
panchayat office in their GP. However, most of the representatives maintained
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Political Participation of Dalit Women ....
that they were not getting enough support of the BDO or Chairmen of the block.
To them, "People think we are not doing anything for the locality we represent.
We want to do so many things. But they do not understand what can we do
without the support and assistance of the Block Development Officer or Chairmen
of the block or other officials."
Table No. 5.20: Perception on whether Women arc adequately represented in
the Political System
KOKSARA DHARMAGARH TOTAL Yes 7 11 18 No 4 6 10 Any other/ No 0 0 0 answer
When asked whether women are adequately represented in the political
system, 18 of the total respondents said yes without giving any reasons and 10
said no. However, all the representatives maintained "there should be more
reservations for women. What men can do, we can do the same. Then why should
we not get 50 per cent reservations?" The reason for saying yes might be due to
their lack of awareness or that at least they feel that women have got some kind of
reservations to be a part of the decision-making process which used to be the sole
prerogative ofthe males in the society.
Table No. 5.21: Opinions of the Elected Representatives on being called as the P . fth . M I C t rOXIeS 0 e1r ae oun erparts
KOKSARA DHARMAGARH TOTAL
True 6 11 17
Somewhat true 3 5 8
Not true 2 1 3
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Political Participation of Dalit Women ....
When they were asked what was their opinion on being called as the proxies of
their male counterparts, 17 out of the total respondents admitted it to be true, 8
said somewhat true and only 3 said it was not true at all. The reason they cited was
that "To look after our own households and the works of the panchayat
simultaneously is an arduous task. For some information from the block office or
about the date of our meetings if we take the help of our husbands or some
relatives, what is the wrong in it? If they accompany us to the panchayat office or
some places we are required to visit, or we ask about their opinion regarding some
decisions, it does not mean we are proxies of our male members. After all we take
the final decision so far as the panchayat activities are concerned."
To the question as to what needs to be done to empower women. Almost
all the representatives were unanimous that education is necessary. "Due to lack
of adequate knowledge, we have to accept the dictates of the B.D.O, chairman or
other officials, even if we know that it won't help our cause. Besides this, there
should be opportunities like: cow & goat breeding, Dhan kutaa, pregnancy bhatta,
free medicine for the poor, health facilities, etc.
Opinion of Officials:
According to the BDO of Koksara, in each financial year, new plans like:
Pradhan Mantri Gramodaya Yojana (PMGY), Jawahar Rozgar Yojana (JRY),
Self Help Groups (SHG), Women Self-Help Group (WSHG), Sampoorna
Grameena Rozgar Yojana (SGR Y), Swarnajayanti Gram Swarozgar Yojana
(SGSY), Rastriya Sam Vikas Yojana (RSVY), Employment Assurance Scheme
(EAS), Special Component Plan (SCP), Tribal Sub Plan (TSP), IA Y, Annapurna
Scheme (AS), Antodaya Anna Yojana (AA Y), Integrated Child Development
185
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Political Participation of Dalit Women ....
Services (ICDS), Jawahar Gram Samridhi Yojana (JGSY), Sarva Sikhya Abhiyan
(SSA), etc. and funds are coming for the villages and the women members
implement it properly. For every developmental work, which comes to their area,
all the village Sarapanchs are united to implement the work. In some instances,
the less educated village women Sarapanchs are not able to understand the
language and take the help of their husbands and other family members. This is
just the beginning. However, with experience they will be able to perform better,
after all mistakes make us learn.
According to the Chairman Koksara PS, to call the women representatives'
proxies is partly true. Gender bias and lack of education are the two major
hindrances, which the women representatives face in carrying out their functions.
He thinks that the present system of women's political representation contributes
to the empowerment of women in society to some extent. However, if they were
given the power to look into the matters of loans, funds meant for women, the
situation would be better. There should be more SHGs, with women being in the
power. He also mentioned that SC/ST women representatives are better
performers in comparison to the general castes women representatives. The reason
he cited was that the higher castes women rarely come out of their houses, mix
with people or look into the problems of their locality. It was generally their
husbands who takes all the decisions and do the work on behalf of them. Whereas,
the dalit women representatives never shy away to come to look into the problems
of the locality even if they come with their husbands or other male members and
try to solve them.
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Political Participation of Dalit Women. ...
According to Panchayat Secretary, Badbasul, Dharmagarh block, there should be
50 per cent reservations for women because they are better performer and not as
corrupt as their male counterparts. So far as the question of proxy is concerned, it
is very true, but ultimately they take the final decision because each decision is
taken in the palli sabha.
According to the Village Level Worker (VLW) of Dharmagarh, it is true
that women representatives are the proxies of their male counter parts. But the
reasons are many. Due to their lack of education, they do not understand the
policies and programmes of the government. Lack of infrastructural facilities like
electricity, road, etc. are also the stumbling block in the way of their information
regarding various development policies and programmes of the government. She
also maintained that SC/ST women representatives are the better performer in
comparison to the women of higher castes.
According to the Principal, Panchayat Samiti College, Koksara, it is 90 per
cent true that women representatives are proxies of their husbands and other male
members. But there are few like Tilottama Naik, P.S Member, Temra and
Pankajini Meher, Sarapanch, Khuntia are taking every decision independently. To
the question does the present system of political representation contribute to the
empowerment of the society, he said, "This is in the primary stage. So result is not
that satisfactory. However, I am fully optimistic that in the long run it would yield
the desired result. For this compulsory education for women is the key. With
education and knowledge, they will be the true representatives of the population.
Administrative inconvenience and lack of political awareness and training are
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Political Participation of Dalit Women ....
other major factors, which hinder them to carry out their responsibilities in an
effective manner."
Opinion of the Villagers (Heads, Elders, Youths and Students)
In both the Koksara and Dharmagarh Block, 40 % male members believe that the
female members do not know anything about the village Panchayat and they need
the help of either their husbands or their sons. They also believe that in the name
of the Panchayati Raj, the villagers get cheated by the administrative staffs of the
higher level. They also said that in the name of SC, ST and the weaker sections
and women reservation in the village politics, the capable and the most efficient
persons are debarred from coming into politics. Many of the elected members do
not know the value of the society and they cannot work for the development of the
society. Generally honest and literate persons rarely come to politics and wherever
they want to fight and work for the society, the constituency is already reserved
for the SCs, STs and women. The capable and the efficient persons do not get a
chance to work for the society and this was planned by the higher authority to
exercise their monopoly in the local administration. The people and particularly
youths of Badbasul under the Dharmagarh block were unhappy with the
Sarapanch and termed her as corrupt. To them, "She does not know anything and
whatever her husband says she does that. She is the nominal Sarapanch of our
village; her husband is the real Sarapanch. "
Where as the remaining 60 % maintained: "It is not proper to criticize
them now. There is no doubt that barring one or two, almost all the women
representatives are proxy candidates. However, this is just the initial phase, with
experience they will be able to perform better." They gave the examples of Ms.
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Political Participation of Dalit Women. ...
Tilottama Naik, the Samiti Member ofTemra and Pankajini Meher, Sarapanch of
Khuntia and said that these two women are doing a fine job.
The most interesting finding came out during the conversation with the
villagers was that in comparison to the general castes women representatives, the
SC/ST women representatives are better performers. The reason they cited was
that the higher castes women representatives do not mix with people freely and
very rarely come out of their homes to look into people's problems. Their families
are highly patriarchal and therefore, women are not allowed to participate in
public affairs. Where as the SC/ST women representatives do not shy away to
come out of their homes and mix with people freely and try to hear the problems
and also to solve them.
Discussion with Member of Legislative Assembly
According to Bira Sipka (BJD), and Chhabilal Nag (Ex-Congress candidate) the
decision to give women 33 per cent reservation in Panchayat was a bold step by
the government. This process is still in its infant stage. Therefore, the result might
not look that satisfactory to others, but in their opinion it is the dawn of a new era.
Women, who have been subjugated, exploited by our male dominated society,
have now got their long awaited due to be in the decision-making process. Even
the dalits who are the worst sufferers due to the heinous form of untouchability
have got an opportunity to be at par with other high castes. No doubt, most of the
women representatives take the help of their husbands or other male members,
however in course of time they will be able to take decisions independently. For
this education, political campaign and training is necessary. The government is
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Political Participation of Dalit Women. ...
trying hard to make people educated. However, every noble work takes time to be
a success, but this not that far away.
Conclusion
From the above discussion, it can be inferred that it is easy to point out numerous
examples of women who have worked entirely according to what they were told
by their husbands or other male members of their families. In some cases elected
women remained at home while their husbands attended the panchayat meetings
and carried out official transactions on their behalf. Some of the elected women
were approached by men only when their signatures were needed.
All this is true to a considerable extent, but this is not the whole picture. It
is very much easy to argue that reservation for women has failed. However, in our
male dominated society it is not that easy for women to come out of their homes
and make a nick in the outer world straight way. In order to realize the greater
potential created by these reservations, we should look at several other examples
in which women got an opportunity to play an independent role. In such situations
time and again, we see them making remarkable achievements for the
development of their villages or locality.
The yearning of several women to assert their independence and make a
significant contribution to the welfare of the people is visible in many examples.
In many cases they have been helped by their family members, husbands and have
been encouraged to realize their potential of initiating meaningful social change.
There are few noteworthy examples to be taken into consideration. The
Sarapanch of Kankeri village sanctioned 80 Indira Awas for poor people in her
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Political Participation of Dalit Women. ...
locality, concretized the village roads and drainage system, dug 4 bore wells as
her village people were suffering a lot for the drinking water.
The Sarapanch of Khuntia in her short stint fought with the block officials
because there was no Panchayat office in her village. She also constructed the
road to her village, sanctioned 40 Indira Awas for the poor, 2 clubs for the youths.
The Samiti member of Temra commands respect in her village and even
among the officials, because of her assertiveness and independent decision
making quality. Her village had no electricity; she fought with the B.D.O for the
electrification her village, constructed three village roads, water tank, 1 godown,
and sanctioned 54 Indira A was for the poor.
From such examples it is quite clear that when conducive atmosphere exist
for women to play a leading and active role in the decision making of the village,
the entire village community benefits. This increased participation of women is
often associated with better utilization of financial resources, increased harmony
among the villagers and prioritization ofsome important but neglected aspects of
development such as girls' education and sanitation. Corruption has been one of
the main problems of PRis. Interviews in several villages confirm that when
women representatives function in an independent way, possibilities for
corruption are lesser. Even if a Sarapanch is honest, there is the other threat that
government officials refuse to release money and do not cooperate in other ways
unless a certain commission is paid to them. There have been numerous examples
of women Sarapanch resisting these demands of officials.
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Political Participation of Dalit Women. ...
Thus it is in the interests of not just women but the entire village community to
encourage the further empowerment of women in village affairs. The 33%
reservation for women in PRis is an important part of this empowerment of
women. To further strengthen the effort of elected women representatives, the
government should provide greater security to women from the anger of powerful
vested interests who try to harm and harass them in various ways. Voluntary
organizations should also play a crucial role in helping and training elected
women representatives.
Bringing these women into politics was an act of positive discrimination. It
was· the pressure of law, combined with the political imperative of winning
elections that changed political parties' perception of women's limited capacity for
public office. But, crucially, PRI has helped to change women's perceptions of
themselves. Women have gained a sense of empowerment by asserting control
over resources, officials and, most of all, by challenging men. PRI has also given
many women a greater understanding of the workings of politics, in particular the
importance of political parties. On the other hand, some women's involvement in
PRI has helped them affirm their identity as women with particular and shared
experiences. This self-perception arises from two sources: from women's' own
sense of their shared experience and from attitudes and metaphors imposed on
them by the men. Women have opened up the possibility for politics to have not
only new faces but also a new quality.
But obstacles to the realization of PRI's transformative potential are many.
There continues to be a resistance to devolve power and funds from centres of
(male) power to the periphery. Women still face considerable handicaps to their
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Political Participation of Dalit Women. ...
· involvement in politics; for example, inadequate education, the burden of
reproductive and productive roles, a lack of self-confidence and the opposition of
entrenched cultural and religious views.
There is thus a need to provide women with specific kinds of support,
which go beyond technical training. They need support to build solidarity amongst
women, through strengthening links between women's organizations and elected
bodies. They need information about innovative organizations, which enhance
women's lives such as health providers and credit institutions. It is also necessary
to strengthen women's sense of common identity by articulating the elements of a
feminist consciousness and presenting it as the special quality of women's
leadership. There has been insufficient elaboration of what that leadership has to
offer which distinguishes it from men's leadership and which commends it as
something special. Such an elaboration through feminist discourse and action is
essential for this revolution to deliver the promise it holds.
There is also a need for a more encouraging environment, which would
allow PRI to become a process for the empowerment of women, not to mention
other social groups who have been left out of participation in representative
governance. Such an environment would include legal frameworks and services as
well as packages of technical support.
Democratic politics is, in reality, the interplay of vested interests and PRI's
great achievement has been to mandate a vested, and mutual interest, between
women and the political process. The lesson of PRI is clear: if the wisdom of
grassroots organizations, especially the courage and clarity of women, is to
become policy, it will not be through the art of intellectual persuasion but by the
193
Political Participation of Dalit Women ....
arrangements made within a political system for their voice to have power.
Bringing women into power is thus not only a matter of equality, but of correcting
an unjust and unrepresentative system.
Political Participation ofDalit Women ....
Table No. 5.22: Form no.lS
Section-3 (A)
List of reserved seats for Scheduled Castes, Scheduled Tribes, Backward Castes and Women for the post of Sarapanch in the Gram Panchayats
Name of the Panchayat Samiti- Dharmagarh District- Kalahandi
Sl. Name ofG.P Scheduled Scheduled Backward Unreserved Women
No Caste Tribe Caste
1 Kanagaon - - BC - Women
2 Kankeri sc - - - Women
3 Khairapadar - - BC - -
4 Gatiajor - - BC - -5 Chhanchan - - BC - Women
Bahali 6 Chhilipa - - BC - -7 Jayantpur - ST - - Women
8 Tipiguda - - BC - -
9 Dumerguda - - - UR Women
10 Tambachhada sc - - - -11 Tara pur - ST - - -12 Tendapali - ST - - -13 Dharpur - ST - - Women
14 Dharmagarh - - - UR -15 Nalgaon - - - UR -16 Parla sc - - - -17 Badbasul sc - - - Women
18 Be hera - - - UR -
19 Boden - - - UR -
20 Brahmanchhendia - - - UR -21 Sandhikuliari - - - UR -Source: Dtstnct Collectorate Office, Bhawampatna, Kalahandt.
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Political Participation of Dalit Women. ...
Table No. 5.23: Form no.lS
Section-3 (A)
List of reserved seats for Scheduled Castes, Scheduled Tribes, Backward Castes and Women for the post of Sarapanch in the Gram Panchayats
Name ofthe Panchayat Samiti- Koksara District- Kalahandi
Sl. Name ofG.P Scheduled Scheduled Backward Unreserved Women
No Caste Tribe Caste
1 Ampani - ST - - Women
2 Kaudola - - BC - Women
3 Kashibahal - ST - - -4 Koksara - - BC - -5 Khuntia sc - - - Women
6 Gambhariguda - - BC - -7 Gotomunda - - BC - Women
8 Temra sc - - - -9 Dahgaon - - BC - -10 Dalguma - - - UR Women
11 Dudukathenga - - - UR -12 Phupgaon - ST - - -13 Badpodaguda - ST - - Women
14 Baradanga - ST - - -
15 Mahima - - - UR -16 Majhiguda - - - UR -
17 Mushapali sc - - - -18 Moter - ST - - -
19 Rengalpali - ST - - Women
20 Ladugaon - - - UR -Source: D1stnct Collectorate Office, Bhawampatna, Kalahand1.
196