A NITI Aayog study finds Manipur's Gram Sabhas marked by high public awareness and women's participation but constrained by digital gaps, transparency concerns and livelihood pressures.
Imphal/New Delhi, June 30: A comprehensive study released by NITI Aayog on Tuesday has painted a mixed picture of grassroots democracy in Manipur, highlighting high levels of public awareness and women's participation in Gram Sabha meetings while pointing to a complete lack of digital infrastructure, concerns over transparency, and livelihood pressures that continue to limit effective citizen participation.
The report, "Low Participation in Gram Sabha across States and Union Territories – Volume II: Manipur," was prepared by the National Institute of Rural Development and Panchayati Raj (NIRD&PR) in collaboration with NITI Aayog. It forms part of a nationwide assessment of citizen participation in local self-governance and was released by NITI Aayog Member Dr. R. Balasubramaniam.
Although the findings are based on a relatively small survey of 91 respondents across six Gram Panchayats in three districts, the study offers one of the most detailed assessments in recent years of how Gram Sabhas are functioning in Manipur and where reforms may be needed.
The report indicates that awareness about Gram Sabha institutions is exceptionally high in the state.
Nearly 99 per cent of respondents said they were aware of Gram Sabha meetings, while more than 84 per cent reported knowing their rights as members. Four out of every five respondents said they had attended at least one Gram Sabha meeting during the previous year, and over 72 per cent described themselves as active participants.
However, the report cautions against interpreting these figures as evidence of fully effective grassroots democracy.
Most respondents characterised their participation as moderate rather than intensive, suggesting that attendance does not necessarily translate into meaningful involvement in decision-making.
The study also raises concerns about compliance with quorum requirements. While many respondents understood the concept of quorum, only a small proportion believed that meetings regularly achieved the legally required attendance. According to the report, decisions taken without adequate representation could weaken both the legitimacy and effectiveness of Gram Sabha resolutions.
Among the report's most notable findings is the prominent role played by women in Gram Sabha meetings.
Every respondent surveyed identified women as active participants in village assemblies, making Manipur one of the strongest examples of female participation among the states studied.
The report attributes much of this engagement to the active role of Self-Help Groups (SHGs), which have become an important platform for women's participation in community affairs.
Yet the study points to a significant disconnect between participation and leadership.
Despite women's overwhelming presence during Gram Sabha meetings, only about 22 per cent of surveyed Panchayats had women serving as Sarpanch or Pradhan. Even fewer respondents—just over 12 per cent—considered their Panchayats to be genuinely women-friendly.
The findings suggest that while women have become central to grassroots participation, they continue to face barriers in assuming leadership positions within local governance institutions.
The report also notes that men, youth, elderly residents and members of Scheduled Castes and Scheduled Tribes were identified as comparatively underrepresented in Gram Sabha discussions.
The study draws a sharp contrast between Manipur's physical infrastructure for Gram Sabha meetings and its digital readiness.
Basic civic amenities appear to be largely in place. Every surveyed Gram Panchayat reported access to drinking water, while most had dedicated meeting halls and toilet facilities. A majority of respondents also said meeting venues were centrally located and accessible.
The situation changes dramatically when digital infrastructure is examined.
The survey found no availability of internet connectivity, video conferencing facilities, digitised records, audio-visual equipment or the use of social media platforms such as WhatsApp for governance-related communication in the surveyed Panchayats.
The report describes this as a major obstacle to modernising local governance.
Without digital tools, Panchayats face limitations in maintaining transparent public records, communicating efficiently with citizens, engaging younger populations or adopting e-governance practices that are becoming increasingly common elsewhere in the country.
Economic realities continue to shape participation in village governance.
Rather than apathy or political disengagement, respondents identified livelihood concerns as the principal reason for missing Gram Sabha meetings.
More than 60 per cent cited time constraints arising from work commitments.
Daily wage earners and farmers were found to be particularly affected, as Gram Sabha meetings often coincide with working hours during which attendance would result in lost income.
The report suggests that scheduling meetings at more convenient times could substantially improve participation, especially among economically vulnerable households.
While awareness of Gram Sabha institutions remains high, public confidence in their functioning appears less robust.
More than half of the respondents expressed concerns regarding transparency in decision-making, while nearly two-thirds pointed to delays in implementing projects approved during Gram Sabha meetings.
Many participants reportedly felt that decisions taken during meetings were not translated into visible outcomes, contributing to the perception that the assemblies function merely as procedural formalities rather than effective platforms for local governance.
Political interference and perceived favouritism in selecting beneficiaries for government schemes were also identified as factors discouraging participation.
According to the report, improving transparency and demonstrating tangible outcomes from Gram Sabha decisions will be critical to strengthening public trust.
Despite the concerns, Gram Sabha meetings continue to focus primarily on development-related issues.
Respondents identified local infrastructure problems, approval of Gram Panchayat Development Plans (GPDPs), implementation of welfare schemes and social audits among the most frequently discussed agenda items.
Organising these meetings also requires financial resources.
Nearly half of those surveyed estimated that a typical Gram Sabha meeting costs between Rs 10,000 and Rs 25,000, covering logistical arrangements such as seating, tents, refreshments and drinking water.
Most of this expenditure is financed through Gram Panchayat funds, supplemented by locally generated revenue and grants from the Central Finance Commission.
The report concludes with several recommendations aimed at strengthening democratic participation in rural Manipur.
Foremost among them is the need for sustained public awareness campaigns that move beyond merely informing residents about meeting dates and instead explain why participation matters in shaping local governance.
Door-to-door mobilisation was identified by respondents as one of the most effective ways to improve attendance, while greater use of Ward Sabhas and Mahila Sabhas was recommended to encourage discussion before formal Gram Sabha meetings.
The report also recommends scheduling meetings around agricultural seasons and working hours to minimise income loss for villagers.
Transparency measures such as publishing Action Taken Reports after each meeting are expected to help rebuild public confidence by demonstrating that citizens' decisions lead to measurable outcomes.
Perhaps the most significant recommendation concerns digital infrastructure.
The report calls for investments in internet connectivity, digitisation of records and greater use of digital communication platforms to modernise Panchayat administration and improve citizen engagement, particularly among younger residents.
The NITI Aayog study presents a picture that differs from many other states where low public awareness is the principal challenge.
In Manipur, awareness is not the problem. Participation is.
The findings suggest that citizens understand the importance of Gram Sabhas and are generally willing to attend. Women, in particular, have emerged as the backbone of grassroots democracy, largely through years of mobilisation by Self-Help Groups and community organisations.
Yet attendance alone cannot be equated with effective participation.
The report points towards structural issues that prevent Gram Sabhas from functioning as robust democratic institutions. Delays in project implementation, questions over transparency and uncertainty regarding whether meeting decisions actually influence governance risk weakening public confidence over time.
The complete absence of digital infrastructure is perhaps the report's most striking finding.
At a time when Panchayats across many parts of India are increasingly using digital records, online communication and technology-enabled governance, the surveyed Panchayats in Manipur remain disconnected from these tools. This not only limits administrative efficiency but also makes it harder to engage younger citizens who increasingly rely on digital platforms for information.
The study also highlights an often-overlooked reality of rural governance. Participation has an economic cost.
For daily wage workers and farmers, attending a Gram Sabha meeting can mean sacrificing a day's earnings. Unless meeting schedules become more compatible with local livelihoods, participation is unlikely to improve significantly regardless of awareness campaigns.
Finally, the report underlines a paradox in women's political participation. While women dominate attendance, leadership positions remain comparatively inaccessible. Bridging this gap may require institutional reforms that go beyond reservation policies and focus on creating environments where women can exercise greater decision-making authority.
Overall, the NITI Aayog study suggests that Manipur's grassroots democracy has a solid social foundation. The challenge now lies in modernising institutions, improving accountability and ensuring that citizen participation results in visible governance outcomes rather than remaining a procedural exercise.
