LOCAL GOVERNANCE DURING THE COVID 19 PANDEMIC - Lessons on the emergent role of LSGs in Kerala in community- centric Disaster Management - Ethnographic study focused on ASHA workers from 14 districts in Kerala RESEARCH TEAM Dr. Joy Elamon Dr. Nirmala Sanu George Dr. Amrutharaj R.M. Neha Miriam Kurian KERALA INSTITUTE OF LOCAL ADMINISTRATION 2020-2021 i EXECUTIVE SUMMARY After the news of Coronavirus emerged from China and the World Health Organisation declared the COVID 19 a pandemic on March 11th, countries across the world have dealt with the crisis differently. While many identified this as a law and order or health- related problem, many identified it as a social problem. Kerala’s early response to the pandemic had caught national and international attention including that of the World Health Organisation for its community-centric nature. And in that, the roles of Kerala’s local Self-governments (LSGs) as well as its front-line workers, the Accredited Social Health Activists (ASHA) workers have not been small. This short study has two parts: one looks at the role donned by LSGs in Kerala in the COVID response as a community-centric disaster management model that offers lessons for further strengthening in Kerala as well as replication in other settings. The other is an ethnographic study looking at the specific, intersectional and gendered issues covering various health, social, financial and familial issues of front-line health workers, the ASHAs in order to suggest measures for improvement. The study has shown that the LSGs in Kerala took contextualised, community-centric action building on the State’s social capital and making use of their Constitutional mandate and powers under the overall guidance of the State Government Departments. The decades of concerted strengthening of LSGs through regular capacity building, transfer of funds, functions and functionaries as well as recent formal recognition of LSG’s role in disaster management and associated trainings and tools saw the LSGs upholding ideals of social justice and equity during the COVID response. The operation of the framework further saw overall conformity with the principles of devolution of functions, namely subsidiarity, autonomy, role clarity, complementarity, people’s participation, accountability and transparency propounded by the Sen Committee. Going ahead this stands testament to the need for further strengthening and formal recognition of the role of LSGs in building long-term community resilience in other states in India as well, through regulatory as well as financial and other means after conducting focused studies. As far as ASHA workers are concerned, their role as front-line workers in the COVID pandemic has been deeply appreciated. However, the study showed that many ASHA workers have been doing their service on inadequate remuneration and inconsistent income. It also showed that considering the social and financial background that many of them come from, they are not in a position to bargain with the authorities for better working conditions. That said, they are all committed to their work and state that their work has gained recognition among the general public post COVID. The study found the need to better the condition of ASHA workers through measures including fixing a line of control and reducing hierarchy, ensuring job security and a decent income as well as providing regular training to them. There is also a need for enhancing their risk allowance and providing them with insurance coverage and protective gears. ii TABLE OF CONTENTS ACKNOWLEDGEMENTS .......................................................................................................... v LIST OF FIGURES ..................................................................................................................... vi LIST OF TABLES ....................................................................................................................... vi ABBREVIATIONS ..................................................................................................................... vi INTRODUCTION ........................................................................................................................ 1 PART I: Lessons on the emergent role of LSGs in community-centric Disaster Management ... 3 1. INTRODUCTION ............................................................................................................. 4 1.1. Background .................................................................................................................... 4 1.1.1. Why Local self-governments in disaster management? ......................................... 4 1.1.2. Why Kerala? ........................................................................................................... 6 1.2. Significance of the study .............................................................................................. 10 1.3. Research questions and objectives ............................................................................... 10 1.3.1. To analyse the response strategies adopted by Kerala’s LSGs during the COVID 19 pandemic ................................................................................................................................. 10 1.3.2. To critically analyse the emergent role of LSGs in community-centric disaster management ............................................................................................................................ 11 1.3.3. To critically study ways and means to further strengthen such role ........................ 11 2. LITERATURE REVIEW .................................................................................................... 12 3. ANALYTICAL FRAMEWORK ........................................................................................ 17 4. ANALYSIS of the measures taken up by LSGs as COVID response................................. 19 4.1. Pre-emptive measures .................................................................................................. 24 4.2. Contextual adaptation ................................................................................................... 25 4.3. Inter-departmental coordination activities ................................................................... 26 4.4. Care of vulnerable and marginalised sections .............................................................. 28 4.5. Support during lockdown ............................................................................................. 29 4.6. Preventive measures ..................................................................................................... 30 4.7. Medical facilities .......................................................................................................... 31 4.8. Sanitation and waste management work ...................................................................... 33 4.9. Community kitchens .................................................................................................... 34 4.10. Agricultural activities ............................................................................................... 35 iii 4.11. Funding ..................................................................................................................... 36 5. DISCUSSION on the emergent role of LSGs in Disaster Management ............................. 39 5.1. Overall guidance of the State government ................................................................... 39 5.2. First respondents .......................................................................................................... 42 5.3. Umbrella platform for inter-sectoral co-ordination and volunteer teams .................... 44 5.4. Humanitarian approach ................................................................................................ 46 5.5. Performing critical functions on the ground ................................................................ 48 5.5.1. Health care facilities related to COVID ................................................................ 48 5.5.2. Sanitation and waste management work ............................................................... 49 5.5.3. Providing food through Community kitchens for the needy ................................ 50 5.5.4. Agricultural activities for attaining food security ................................................. 51 5.5.5. Medicines and regular health facilities ................................................................. 51 PART II: Role of ASHA Workers in Combating Covid-19 - Short Ethnographic Studies ........ 53 6. INTRODUCTION ............................................................................................................... 54 6.1. Background .................................................................................................................. 54 6.2. Significance of the study .............................................................................................. 55 6.3. Research question ......................................................................................................... 55 6.3.1. To analyse the specific, intersectional and gendered issues covering various health, social, financial and familial issues of ASHA workers during the COVID-19 pandemic .............................................................................................................................. 55 6.4. LITERATURE REVIEW ............................................................................................