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Women's Leadership in COVID-19 Response: Self-Help Groups of the National Rural Livelihoods Mission Show The

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Women's Leadership in COVID-19 Response: Self-Help Groups of the National Rural Livelihoods Mission Show The ISSN (Online) - 2349-8846 Women’s Leadership in COVID-19 Response: Self-help Groups of the National Rural Livelihoods Mission Show the Way RUKMINI TANKHA Rukmini Tankha ([email protected]) is a consultant with the Initiative for What Works to Advance Women and Girls in the Economy (IWWAGE) at LEAD, Krea University. Vol. 56, Issue No. 19, 08 May, 2021 During COVID-19, it was recognised that the far-flung network of National Rural Livelihood Mission’s women’s self-help groups, spanning the length and breadth of the country, could be leveraged to ensure prevention and containment of the virus in rural areas. Women’s SHGs and their federated structures harbour tremendous potential because of the social capital and solidarity networks they possess. This article presents insights from a study and summarises good practices, strategies and innovations that were spearheaded by SHGs amidst the pandemic. Findings from the report provide early lessons from ground-level action taken and recommendations for strengthening women’s leadership to respond to crises. The world over the impact of the COVID-19 pandemic and lockdown has not been gender- neutral (Gates 2020). Women have faced severe economic and health impacts, shouldered the disproportionate burden of unpaid work and remained more vulnerable to gender-based violence (UN 2020). Nevertheless, amidst the grim reality that the pandemic may reverse hard fought gains in women’s empowerment and gender equality, a beacon of hope and inspiration was provided by the unsung women who have been leading from the front in COVID-19 response. This has been best exemplified in rural India, where inspiring stories of ISSN (Online) - 2349-8846 resilience and innovation emerged of women’s self-help groups (SHGs) of the National Rural Livelihoods Mission (NRLM) supporting COVID-19 relief efforts. Launched in 2011, the National Rural Livelihood Mission, renamed as Deendayal Antyodaya Yojana National Rural Livelihoods Mission (DAY-NRLM)1 in 2015, is India’s largest government programme working exclusively with rural women. Operating in 6,318 blocks and 686 districts in 28 states and six union territories of India (MoRD 2021), NRLM’s approach centres on building strong institutional platforms of the poor, organising 10 to 20 women members into SHGs, which are turned into primary and secondary level federations. The programme aimed at reducing poverty by providing access to gainful self-employment and skilled wage employment opportunities, operates at a massive scale, comprising membership of 7.14 crore rural women mobilised into 66 lakh SHGs (MoRD 2020). During COVID-19, it was recognised that this far-flung network of NRLM’s women’s SHGs, spanning the length and breadth of the country, could be leveraged to ensure prevention and containment of the virus in rural areas. Women’s SHGs and their federated structures harbour tremendous potential because of the social capital and solidarity networks they possess. Since SHG members belong to the same milieu, they live among and remain closely connected with communities, enjoy their trust and have invaluable local knowledge, including who constitutes the most marginalised socio-economic groups and individuals. In part because of these attributes, women’s SHGs emerged as pivotal actors in COVID-19 crisis management, remaining well-placed to reach the last mile, drawing on their interpersonal ties to support communities and acting as a “conduit for providing relief to the most vulnerable” (Kejrewal 2020). Lessons from Crisis Response With the objective of recognising and visualising the work that women’s SHGs undertook as part of COVID-19 response, and highlighting their indispensable economic and social contribution, the Initiative for What Works to Advance Women and Girls in the Economy (IWWAGE) completed a report, “Community and Institutional Response to COVID-19 in India: Role of Women’s Self-Help Groups and National Rural Livelihoods Mission” (Tankha 2020b). Based on secondary data sources,2 the report summarises good practices, strategies and innovations that were spearheaded by SHGs amidst the pandemic. This article, based on the findings of the above report, outlines early lessons from ground-level action taken, indicating the importance of the following key characteristics of crisis response, as well as challenges and opportunities for the way ahead. Women as barefoot responders: The NRLM has trained and deployed more than 3 lakh community resource persons (CRPs) (MoF 2021: 359), who are considered the “pillars” of the programme, and who spearhead the doorstep delivery model, providing services on a range of themes for communities (MoRD 2019). Sustained and intensive rounds of capacity ISSN (Online) - 2349-8846 building and nurturing of these women CRPs meant that at the time of COVID-19, these cadres were at the forefront of crisis response. This is best demonstrated by the cadre of NRLM’s business correspondent sakhis, who provided doorstep access to financial services during the lockdown and facilitated access to cash transfers under the national COVID-19 relief package. Between 25 March and 31 July 2020, around 6,934 business correspondent sakhis from 14 states conducted 83.63 lakh transactions under the Pradhan Mantri Garib Kalyan Yojana (PMGKY) amounting to ₹1,845 crore, and transferred ₹30,957 crore under the Pradhan Mantri Jan Dhan Yojana (PMJDY) to 20.65 crore women account holders during April, May and June 2020 (Sinha 2020). NRLM also conducted large-scale online training on risk communication for prevention of spread of COVID-19 with the support of its staff, to its ready cadres of capacitated CRPs, who in turn were expected to relay awareness generation to the lowest tiers of SHG members and communities in villages. This cascading approach was at the core of being able to target rural communities for preventive health information and behaviour change communication on COVID-19. NRLM reports suggest that over 5 lakh community resource persons, cadres and community workers and more than 5 crore SHG members were trained in this streamlined fashion (MoRD 2020: 54–5). Decentralised response and context-specific solutions: Heightened by mobility restrictions, the pandemic brought to the fore the need for localised response and for trusting communities to act to implement the best solutions. Kerala provided the leading example of this, with its Kudumbashree network of women’s groups working in close partnership with tiers of local self government and local actors such as health workers, volunteers and the police to engineer a decentralised and participatory response (Isaac 2020). Of their own accord, SHG members also displayed ingenuity and resourcefulness to tackle COVID-19. For raising awareness on the virus, women used creative outlets and digital media, such as wall writings in Chhattisgarh (PTI 2020), rangolis in Uttar Pradesh, WhatsApp groups in Kerala, voice messages in Bihar (PIB 2020a) and community-operated vehicles with a loudspeaker in Assam. Other out-of-the-box SHG-led innovations included the construction of locally made bamboo pole hand-wash facilities promoting safe hand hygiene in Nagaland and a boat-operated floating supermarket delivering supplies to households in the backwaters of Kerala (Paul 2020). Adapting skills and repurposing activities to meet crisis demands: At the height of the crisis, when regular supply chains were disrupted and most other stakeholders were facing an economic slump, the SHGs rose to the challenge of manufacturing essential commodities and providing services for meeting emergency needs. Across states, the SHG women showed initiative and enterprise, pivoting their skills and engaging in the large-scale production of masks, sanitisers, hand wash and protective gear and activating community kitchens. The NRLM data indicates that 2.96 lakh SHG women from 58,581 SHGs across 29 states produced 22.54 crore face masks, 13,662 women across 17 states produced 4.8 lakh litre of sanitiser and 1,790 women across 10 states produced 1.02 lakh litre of handwash ISSN (Online) - 2349-8846 (DAY-NRLM 2020). Community kitchens managed by members of women’s SHGs provided cheap and nutritious food to the most vulnerable in Kerala, Odisha, Jharkhand (Mukhya Mantri Didi Kitchens and Dal Bhaat Kendras), Bihar (Didi Ki Rasois) and Uttar Pradesh (Prerna Canteens). A defining example of how SHG members repurposed their livelihoods was in Assam, where women who make Gamusa (cotton cloth having cultural significance) in large quantities in anticipation of its market demand during the Assamese festival of Rongali Bihu instead used this Gamusa material to make masks (Hazarika 2020). Innovations from selected states also show how SHG members were able to evolve with the times, branding and diversifying crisis-related products by using superior raw materials and local designs. For instance, masks were made of handspun khadi in Uttar Pradesh, of Pochampally fabric in Telangana, depicted famous Madhubani paintings in Bihar, and were branded and marketed under the name “Asomi” by the Assam State Rural Livelihoods Mission (Hazarika 2020). Essential services and gender-based violence: The extraordinary circumstances of the lockdown put into the spotlight concerns of gender-based violence and women’s health and well-being. Responding to these intensified needs, focused support was provided to communities in locations where projects are being conducted by the NRLM with technical resource agencies. In particular, under the IWWAGE-supported
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