ABSTRACT

Interventions in Development: A Study of the People's Plan Programme

in Kerala

Introduction
The focus of this disser1ation is on the Peoples' Plan Programme in Kerala. The
programme was implemented by the Left Democratic Government (LDF) in Kerala in its
ftrst phase from September, 1996. Even though the primary concern is that of the
Peoples' Plan Programme, the contextualisation of the study has been done within the
larger framework of Kerala and India. The theoretical framework of Marxism serves as a
foundation. Kerala does not exist in isolation, especially given the times that global and
national economies, cu.lture and policies are interwoven intricately. Hence broadly
speaking, the Peoples' Plan Programme has been placed in this background.

Objectives of the study

The broad objectives of this study were as follows:
I) To examine the philosophy, politics and objectives of the People's Plan
Programme and
2) To contextualise the relative relevance of the People's Plan Programme within the
CUlTent situation in Kerala. This would be examined within the Marxist theoretical
framework.

Primarily, the objective is to analyse the possibilities and constraints to reformist

interventions within the context of Kerala, analysed in its political economy of
development. Within this, would be the objective to appraise the People's Plan in its
conception, process and constraints. Kerala and the People's Plan Programme would not
be the sole variable. As mentioned above, this would be placed in the theoretical and
empirical context of the .Indian and Kerala scenario.
Overview of the dissertation
The theoretical framework of Marxism constitutes the first chapter. The choice of the
theoretical framework has been with regard to the specificities that exist. These
conditions, in terms of material or social, have been demonstrated by the Researcher in
the subsequent chapters. After careful thought and study, the choice has been to broadly
operate under the Marxist framework. The first chapter is an attempt to do a
philosophical as well as a theoretical overview of the relevance and theory of Marxism
(See Marcuse, 2000; Tabb, 1999, Eagleton, 2002; Meiksins Wood, 1998 and Baran,
1973). The first section deals with an economic perspective in terms of the relevance to
Marxist theory in tenns of trends in economy; the second section of the chapter deals
with some characteristics of Marxist thought in terms of concepts, ideas and notions (see
Singer, 1996, Mills, 1963, Fetscher, 1996; Edgley, 2000; Shaw, 2000; Bottomore, 1983;
Petrovic, 2000; Lukes, 2000; and Carr, 1996). Thereafter Leninist and Maoist thought has
been also highlighted. The stress is not to present Marxist thought as a linear line of
thought ii-om Marx to Lenin to Mao but rather to highlight its mai n thoughts in an attempt
to bring out an 'overview' of Marxist thought. To summarise the wide spectrum of
Marxism is a huge task but the attempt of chapter one was to bring forth the broad
features, directions and characteristics of Marxism. This section may also serve as a
'reiterating factor' to the research themes in this study; that decentralised planning at the
level of the masses has to have a political back drop and that is a vital factor to further
development.
1n the second chapter, an attempt has been made to present an overview to the socio-
political and cultural situation in India. Kerala is subject to national forces whether they
may be the activities of political parties in the electoral scenario; or .it might be the
influence of national economic policies or centre-state relations; all of which (and more)
directly and indirectly affect the Kel'ala situation. The contextualization of Kerala and
the Peoples' Plan Programme today has to be made under the framework of this
background. The framework of examination of the Indian situation was done under
sociological variables such as class, caste, gender, nation and identity politics.
The third chapter focuses on the state of Kerala and is an attempt to examine the material
and social realities existing today. The first section of this chapter is a socio-historical
perspective on Kerala. After which follows; an empirical overview under various
variables such as demographic patterns, health, caste, land relations, poverty estimates
and unemployment. Also mentioned are the specificities of the Kerala situation as seen in
the evolution of the Communist Movement or in the various social movements specific to
the state.

From this overview of the Kerala situation, the fOUl1h chaptcr focuses on the concepts of
decentralisation, planning and development. It is stressed in this chapter that these
concepts have a historical base and hence the first section of this chapter is on the
evolution of these concepts. The next section focuses on contemporary definitions and
features of concepts such as decentralisation and social capital. The third part of this
chapter spells out a Marxist perspective to planning, decentralisation and development. In
this regard the focus is on the Chinese experimcnts in this regard (see Whcelwright and
McFarlane, Liu, 1981; Suyin, 1973 and Burchett and Alley, 1976). The last section is
specific to the Kerala experience in culture, campaign, science and decentralisation. The
role of the Kerala Sastra Sahitya Parishad (KSSP) is elaborated as a specific case.

Chapter five enumerates the research methodology and the methods adopted for the
study. The areas studied and the reasons for the same are enumerated further on in this
abstract. Chapter six presents the data collected from the field. The presentation is done
in two sections. Section one presents the findings from Kozhikode and Mallapuram
districts done in 2007. Section two of this chapter presents the findings of the fieldwork
done in Emakulam, Cannore and Palakkad districts in 1999. The final chapter presents
the conclusions of the study. This has been organised in two sections; the first section of
this chapier focuses on some general conclusions from the field and the second section
elaborates on larger possible implications and limitations of the study.
Research methodology and description of the areas chosen for this study
The methodology employed would be that of Qualitative and method would the case
study method. The case study would be that of the Peoples' Plan Programme.
The Field Areas Chosen for this Study
The fieldwork was done in two phases. The first phase was done during 1999-2000 and
the second phase was done in 2007. The first phase in 1999-2000 was done in Central
Kerala in Ernakulam, Palakkad and Cannon: districts. The specific area descriptions arc
specified below. The second phase of the study in 2007 was done in Kozhikode and
Mallapuram dislIicts in Northern Kerala. Southern Kerala is not represented in this study.
The description of the work done in 2007 and 1999·2000 is as follows:
a) Work done in 2007 in Kozhikode and Mal/apuram Districts
These districts were chosen primarily because the Researcher was based in Kozhikode in
the period July, 2007 to December, 2007. Since the base of operations was at Kozhikode,
it was decided that the fieldwork would be done in and around Kozhikode. After enquiry,
the Researcher came to know that the Mavoor Panchayat which was declared the best
Panchayat is in the nearby precincts. The rest of the area in this phase of fieldwork;
Peru manna, Narikunni and Kurvattoor Panchayats were chosen as they were near to
Mavoor. In each of the areas in the fieldwork done in Kozhikode and Mallapuram
districts, the following process was done:
i) Area One: Perumanna Panchayat
Open ended thematic questions were put to ten people (five men and five women). They
were diverse; between 22-55 years old; and consisted of both Muslim as well as SC
representation. Representation of SC/ST and Muslim also figured. Three officials at the
Panchayat offiee were interviewed as well as secondary data in terms of data were
procured from them. Names and profiles have been held back on request.
ii) Area Two: Mavoor Panchayat:
As mentioned above, Mavoor was chosen because it was ranked as the best Pane hay at for
the Peoples' Plan. Here the Researcher talked to Panchayat officials; visited the office
and collected secondary data. Ten open ended thematic interviews were administered;
five men and five women; all in the age group 22-60. The background profile of these
study participants has been given but names have been withheld under request.
iii) Area Three: Koduvally Panchayat
The sources of data for this Panehayat are both secondary and pnmary data. The
secondary sources come from Panchayat officials. Open ended thematic interviews were
administered for reactions among the twelve people. The profile and the names have been
revealed with permission.
•
iv) Area Four: Narikunni Panchayat
The approach in this Panchayat was different. Here the Researcher visited the Panchayat
area, identified and visited the centres of enquiry and talked to people whom he met. The
responses are categorised around areas of enquiry.
v) Area Five: Kuruvattoor Panchayat
For the open ended thematic interviews, a total of ten people were taken randomly (Five
men and five women). The profile of the study participants is mentioned in the report.
The responses are categorised around the areas of enquiry.

b) Work done ill 1999-2000 ill Ernakulam, Palakkad and CUllllore Districts
The focus in the first phase was on choosing a judicious mix between the so called
'developed' mainstream districts and the far flung areas. In this process, areas were
chosen from the Ernakulam district which is in the central part of Kerala. In complete
contrast are the other areas chosen in this phase. The tribal regions in CannOTe and
Palakkad districts are some of the poorest regions of Kerala. The choice of those areas
was done not just to study the contTast but also to focus on the poorest of the poor; to
study what their present state is and what the development initiative of the Peoples' Plan
Programme means to them. The following areas were chosen to be studied in the fiTst
phase of this study:
i) Area Six: Vadekkekara (Ward IV)
Thematic interview schedules were administered to 20 people in Ward IV (ten men and
ten women). The study participants belonged to the house numbers IVI13S-370. Apart
from this, during the course of stay, the Researcher talked to various people who
interacted with him. Those brief conversations have also been reported here. The attempt
was to probe into what perspectives people held about not just the Peoples' Plan but also
about various issues.
ii) Area Seven: Makkanayi (Ward I)
While doing field work at Vadekkekara, the Researcher came to know through local
people the existence of an 'exclusive tribal' colony about two kilometres away. Since it
also meant that this was a tribal colony in an 'urban setting', the Researcher decided to
visit the place. The Researcher did not stay in this colony but visited it daily from ParavUf
while doing the field work there. This colony consists of eight househo.lds spread within a
23 cent plot ofland.
iii) Area Eight: Ambedkar Colony (also called '28' and '26')
•
In the village' 28', there are thirty houses with 37 families; in '26', there are ten families.
During the course of the stay, a group discussion on the Peoples' Plan was conducted.
Apart from that, since the number of families was few in both '28' and '26' daily
conversations were recorded. The 'Moopan' or the Chief of the village, a 78 year old
veteran was also present through out.
iii) Area N inc: Sholayur Panchayat
This Panchayat is in Palakkad district (Attapady region). The choice was because it is one
of most deprived and neglected areas of .Kerala. Here ..the Researcher attended Gram
Sabha meeting, interviewed Panchayat officials, stayed at the tribal village of
Vergumbady and interviewed people there.

Brief summary of the findings

General conclusions from the field data constitute the first section in the conclusions
chapter. Most rural and urban areas selected under this study have well documented plans
and objectives. However, it is in the implementation that there remains a lacuna. A
majority of study participants cited corruption in the implementing bodies as one of the
main reasons for the plans not translating into concrete long term sustainable
development projects. Adequate lack of support services and training was another factor
cited. Infrastructure development projects have occurred in a significant manner in some
of the field areas. This was found lacking in the scheduled caste and tribal areas. As such
caste remains an important variable in all the field areas chosen. Most SC and tribal study
participants laid stresseu on the various kinds of social and economic discrimination in
force. Patriarchy is also a variable in force in various ways. This is seen in attitudes,
access to economIc participation as well as in the planning process in these regions.
Many of the study participants belonging to religious minority groups pointed out to the
threat of Hindutva being a matter of major concern. Health facilities were also seen to be
in force but at a bare minimal level. Health services seem to be overstressed and that was
seen in the chikun gunya epidemic in 2006-2007. Land relations in the tribal regions were
pm1icuJarIy skewed. The role of the political parties is all compassing in these field areas,
especially seen is the rise in presence of the Hindutva parties. Household debt was seen in
all areas by the Researcher. A detailed description of all of the above is in Chapter six.
The 'immediate' findings from the field were contextualised to 'larger' questions in the
second section of the conclusions chapter. Many questions were raised in this section. For
instance, fi'om the trends observed from the field, one could ask a vital question as to
what could programmes such as the Peoples' Plan Programme achieve. Does the Peoples'
Plan Programme achieve a larger structural breakthrough in Kerala society? It may not
seem so. Infrastructural developments have occurred in many of the field areas adopted
for the study, but the overwhelming trend that seems to be visible is towards micro
initiatives. Hence the Peoples' Plan Programme has to be located within the larger realm
of Macro and MiCro development approaches. The trends from the data indicates that
there have been many micro initiatives and with all its limitations has led to some
possibilities of short term change. It is in the long term that the question of the
possibilities of radical change is to be asked. An attempt has been made to contextualise
the trends seen in the field to Jarger questions within the framework of Marxist theory.
All these questions arc important primarily because it is larger structures, policy and
ideology that matters in the implementation of programmes such as the Peoples' Plan
Programme.