A panel constituted by the Ministry of Panchayati Raj (MoPR) has recommended “exemplary penalties” against the practice of ‘Pradhan Pati’, ‘Sarpanch Pati’ or ‘Mukhiya Pati’ in Gram Panchayats across the country.

• The committee  led by former Mines Secretary Sushil Kumar was set up in 2023 to address the issue of ‘Pradhan Pati’. 
• The committee has recommended stringent measures, including exemplary penalties, to curb this proxy leadership.

Pradhan Pati Culture

• Pradhan Pati culture refers to the practice where a woman elected as the head of a panchayat is represented by her husband or another male relative. 
• Despite women holding official positions due to constitutional reservations, their authority is often undermined, with their male relatives acting as de facto leaders.

Causes Behind Pradhan Pati Culture

• Patriarchal Mindset: Society believes men are better decision-makers, so women are often expected to follow their husbands’ lead.
  • A study by the Institute of Social Studies Trust (ISST) found that a significant proportion of women Pradhans rely on male relatives for decision-making.
• Lack of Education & Training: Many elected women have little formal education or governance experience which makes them dependent on their husbands or male relatives for decision-making.
  • There is a wide gender disparity in the literacy rate in India and literacy rates were 80.9% for men and 64.63% for women.
• Family & Social Pressure: In traditional households, women are expected to prioritize home and family over leadership.
• Reservation Used as a Formality: Women are often nominated just to fulfill the reservation quota (33% or 50%) and in reality, their husbands or male relatives take control of panchayat affairs.
  • Several women Pradhan have reported that their husbands attended all Panchayat meetings and made decisions on their behalf.
• Lack of Institutional Support: There are no strong laws or monitoring systems to check whether women pradhans are actually in charge.
  • In Tamil Nadu, a woman Pradhan was unable to access government funds for development projects due to lack of cooperation from male officials.
• Economic Dependence: Many women do not have their own income or financial independence.
  • According to a surveyby India Lends, nearly 67% of working women were still dependent on male members of the family to make financial decisions.

Consequences of Pradhan Pati Culture

• Undermines Women’s Empowerment: The very purpose of political reservation for women is defeated.
  • Pradhan Pati culture defeats the purpose of reservation granted under 73rd Constitutional Amendment by keeping real decision-making in male hands.
• Weakens Local Governance: Governance remains male-dominated, often leading to corruption and inefficiency.
  • Male proxies are not elected officials and are therefore not accountable to the electorate. This lack of accountability often leads to corruption and mismanagement of resources.
• Legal and Ethical Issues: Proxy leadership is against democratic principles and violates governance laws.
  • When a male family member takes over, it breaches the trust of voters and undermines the rule of law.
• Discourages Future Women Leaders: Young women see politics as a male-controlled space, reducing their participation.
  • Countries like Norway and New Zealand, where women’s political participation is actively encouraged and supported, have seen a surge in young women entering politics.

Constitutional provisions for women representation in PRIs

• 73rd Constitutional Amendment Act, 1992: It established a three-tier Panchayati Raj system (Gram Panchayat, Panchayat Samiti, and Zilla Parishad).
  • The amendment mandated one-third reservation for women in Panchayats, including leadership positions.
• Article 243D (Reservation of Seats): Mandates one-third reservation of seats for women in Panchayats at all levels, including for the position of Pradhan and Zila Panchayat Chairperson.
• Article 15(3): Empowers the State to make special provisions for women and children, allowing affirmative action in Panchayati Raj governance.
• Recent Developments: Some states (e.g., Bihar, Rajasthan, Madhya Pradesh) have increased the reservation for women to 50% in Panchayati Raj Institutions.

Government initiatives to Promote Women in PRIs

• Rashtriya Gram Swaraj Abhiyan (RGSA): RGSA Provides training and leadership development for elected women representatives.
  • It aims to improve decision-making, financial management, and governance skills of women leaders.
• Panchayat Mahila Shakti Abhiyan (PMSA): Encourages the formation of women’s collectives in Panchayats to boost confidence and networking and helps women leaders become more assertive and aware of their rights.
• NIRDPR Training Programs: The National Institute of Rural Development & Panchayati Raj (NIRDPR) conducts specialized training for women in policy-making, budgeting, and digital governance.
• Mission Shakti: Mission Shakti focuses on leadership training for women representatives at all governance levels, including PRIs.
• Gender-Responsive Budgeting in PRIs: Encourages Panchayats to allocate specific funds for women’s welfare projects.
• Sakhi WhatsApp Groups and Helplines: Helps elected women connect, report issues, and access governance support.
• Annual Awards for Women Leaders: Awards like Devi Awards and Best Woman Panchayat Leader Awards encourage active leadership and recognition of women in PRIs.

Key Recommendations of the Committee

• Exemplary Penalties for Proxy Leadership: Strict legal actions and penalties for proven cases where male relatives take over women’s roles in governance.
  • In 2021 Rajasthan issued a directive strictly prohibiting practice of Sarpanch Patis, warning of disqualification and legal action against those found guilty.
• Gender-Exclusive Reforms: Introduction of quotas for women in panchayat committees, public swearing-in ceremonies for women pradhans, and an annual award for those fighting against proxy leadership.
  • Bihar has increased women’s reservation to 50% in PRIs and to ensure visibility and recognition, the state introduced public swearing-in ceremonies for women leaders.
• Women-Centric Support Systems: Appointment of women’s ombudspersons, creation of watchdog committees, whistleblower rewards, and establishment of gender resource centers for leadership training and legal aid.
  • Maharashtra launched the Mahila Rajsatta Andolan, a movement to support women in PRIs.
• Technological Interventions: Virtual reality-based governance training, AI-driven assistance in vernacular languages, WhatsApp support groups for elected women, and tracking of their participation via the Panchayat Nirnay Portal.
• Capacity Building and Training: Mandatory training programs in local languages, collaboration with premier institutions like IIMs and IITs, and involvement of women MLAs and MPs in leadership mentoring.

Conclusion

The “Pradhan Pati” culture is an obstacle to achieving gender equality at the Panchayat level. It undermines the very purpose of political reservation for women, weakens local governance, and violates democratic principles. Addressing this issue requires a multi-dimensional approach, including legal reforms, capacity building, and societal change, to ensure that women can exercise their leadership roles independently and effectively.

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