Social Protection in Rural India

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SOCIAL PROTECTION IN RURAL INDIA A STUDY REPORT

A Research Project Funded by Ford Foundation, New Delhi, India

K. P. KANNAN N. VIJAYAMOHANAN PILLAI

JUNE 2007

CENTRE FOR DEVELOPMENT STUDIES THIRUVANANTHAPURAM KERALA, INDIA

Contents

Preface

Chapter 1: In Lieu of A Prologue

1 – 13

Chapter 2: Conceptualizing Social Security in a Human Development and Rights Perspective

14 –37

Chapter 3: Universalizing Social Security in India : The Long Road Ahead

38 - 95

Chapter 4: Evolution of Social Security in the Lap of Public Action: Recounting Kerala’s Experience

96 - 138

Chapter 5: In the vacuum of Public Action: Social Security in Orissa – A Low Agenda

139 – 177

Chapter 6: Local Dynamics of Social Security – A Tale of Two Village Panchayats: The Land and the People

178 – 200

Chapter 7: Local Dynamics of Social Security – A Tale of Two Village Panchayats: Basic Security: Food

201 – 225

Chapter 8: Local Dynamics of Social Security – A Tale of Two Village Panchayats: Basic Security: Employment

226 – 249

Chapter 9: Local Dynamics of Social Security – A Tale of Two Village Panchayats: Basic Security: Housing, Education and Health

250 – 293

Chapter 10: Local Dynamics of Social Security – A Tale of Two Village Panchayats: Security: Gender, Old Age and Contingency

294 – 313

Chapter 11: The Challenge of Universalizing Social Security: In Lieu of Conclusion

314 – 325

References

326 – 339

Appendix A: Household Survey Questionnaire

1 – 24

Appendix B: Institutional Survey Questionnaire

1–7

Preface

“What do you suggest, sir?” Alice asked.

“That depends on what you want,” the caterpillar said wisely.

Lewis Carroll did not raise Alice in a wonderland of public action, as we know it in terms of a dialectics between organized public demand and a willing state supply. The present study is on the marvels of such a wonderland, on the significance of public action, on an enabling environment of ‘as if’ rights that underlie the dialectics of public action, of development. The study is also on the other extreme of a sluggish land, on a vacuum of public action, thus on underdevelopment.

This Report is made up of such a comparative study between Kerala and Orissa in India. The study was made possible by a research grant from the Ford Foundation, New Delhi, sanctioned in mid-January 2004. We are grateful at the outset to all those at Ford Foundation and in its Proposal Appraisal Committee, including Prof Aswani Saith, who recognized the significance of such a study. At CDS, we have always had Prof. K. N. Raj as a beacon of inspiration to keep our spirits high.

The research institutions involved in this collaborative initiative are two leading institutions in development studies in India and China respectively. The research institute from India is the Centre for Development Studies (CDS) in Trivandrum (Thiruvananthapuram), Kerala and that from China is the Rural Development Institute (RDI) of the Chinese Academy of Social Sciences in Beijing. The present Report summarizes the works done in the context of the India part of the Project. However, the two research teams worked closely by sharing ideas and information and visiting each other’s institutions and field areas. We place on record our deep appreciation and thanks to Professor Zhang Xioshan, Director of the Rural Development Institute, Chinese Academy of Social Sciences, Beijing and his research team for their wonderful hospitality as well as academic collaboration.

The India component of the Project, as already mentioned, was sanctioned in mid-January 2004, with K.P.Kannan as the Project Director, and N Vijayamohanan Pillai as the Project

Coordinator. Later, Kailas Sarap of Sambalpur University in Orissa also joined us as an advisor to assist in the studies and surveys in Orissa. R. Mohan, Rathikanta Kumbhar, and PB Rakhe, all research scholars at the CDS, worked with the project for varying periods of time. In addition, short-term personnel for assistance were also employed from time to time as per requirements.

KP Kannan, Project Director, has however since the late 2004 moved to New Delhi, following his nomination as a Member of the National Commission on Enterprises in the Unorganized/Informal sector, constituted by the Government of India. He participated in field visits in India and China, interacted with the Chinese team and arranged meetings in Delhi.

The day-to-day management of the Project, including the whole data analysis and Report writing, was carried out by N. Vijayamohanan Pillai as Acting Director of the Project. Kailas Sarap coordinated the household survey in Sason gram panchayat of Orissa during December 2004 and January 2005, and the institutional survey there was carried out by Rathikantha Kumbhar and N. Vijayamohanan Pillai. Kailas Sarap, and his students/assistants, also arranged for the field visit in Sason that we had along with the Chinese team (Prof. Zhang Xiaoshan and Dr. Cui Hongzhi) during January 15 – 28, 2007. Immensely helpful was the Sason gram panchayat Secretary, Nigam Chandra Dhar, who went out of his way in facilitating the surveys and field visits there.

The household survey in Thalikkulam village panchayat was coordinated during the late 2004 by the Kerala Statistical Institute (KSI), an expert body in statistical survey and analysis, head-quartered at Trivandrum. The Centre of Science and Technoilogy for Rural Development, known as COSTFORD, and headquartered in Thrissur worked closely with the project team in conducting the household and institutional surveys in Thalikkulam Panchayat. They also coordinated the field visit of the Indian and Chinese teams (Prof. Zhang Xiaoshan and Prof Du Yintang) in Thalikkulam panchayat during 15 – 22 January 2005. We are greatly indebted to Mr Chandra Dath, the Director of COSTFORD for his immense enthusiasm and support in conducting the field studies in Thalikkulam panchayat. The institutional survey in Thalikkulam was carried out by P. B. Rakhe and N. Vijayamohanan Pillai. We would also like to record our thanks to M. K. Babu, Thalikkulam Panchayat President and other ward members and officials for their wholehearted support.

A number of workshops and seminars, both national and international, that we had opportunity to attend in the context of the progress of the study have greatly contributed towards the better fruition of this Project. We are thankful to the participants for their critical

comments and goading suggestions, especially Aswani Saith, Sarah Cook, Naila Kabeer, Santosh Mehrotra, Balachander, to name a few.

At CDS, we have, as usual, had all the full support and cooperation from all the concerned that have gone a long way towards the completion of this Report. We would like to record our thanks to K. Narayanan Nair, Director, Soman Nair, Registrar, and our other colleagues in the administration, library and computer centre for their cooperation and support in one way or another at various stages of this study.

We would also like to thank our families, especially, Shobha and Asalatha, for their cooperation and understanding during the course of this study. And Vijayamohanan Pillai would further like to thank Rju for smiling away his excuses for his absences from her little kingdom.

A work of this dimension would not have been possible but for the cooperation and contribution from the local populace in Thalikkulam of Kerala and in Sason of Orissa; we remember, with mixed feelings of awe and compassion, the life stories of scores of raw individuals, wet in sweat and rocked in sobs, hot with hopes and wrung with despair; being burnt in personal angst and taking refuge in collective care. We dedicate this Report to them.

K. P. Kannan N. Vijayamohanan Pillai

Centre for Development Studies, Thiruvananthapuram, 10 June 2007.

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