Planning & Implementation of IAY – A Study in 12 states

1. Planning & Implementation of IAY – A Study in 12 states STUDY TEAM Dr.Y. Gangi Reddy, Project Director Dr. S. Venkatadri, Professor & Head Dr. P. SivaRam, Associate Professor Y.Gangi Reddy Associate Professor (CRI) gangi@nird.gov.in gangi1957@gmail.com NIRD, Rajendranagar, Hyderabad-500 030 040-24008416/20025011 +919848387111 +919848780266 Centre for Rural Infrastructure (CRI), National Institute of Rural Development, HYDERABAD.

2. Rural Housing Housing is a basic human need after Food & Clothing (Roti, Kapada & Makaan) Constitution of India: Article 21 (1951) Universal Declaration of Human Rights (UDHR)1948 Istanbul Declaration 1996 Owning a house provides significant economic security and Social status in village community

3. Indira Awas Yojana (1996 – 75:25) All BPL or income less than Rs. 32,000 (Annual) GP and Gram sabha - Waiting list on GP wall Selection is based on Priority, SC/ST-60% (Permanent Waitlist) Unit Cost Plain Rs. 45,000 - (48,500) minimum plinth 200 sq.fts. Support for Up gradation Rs. 15,000 Payment by GP through bank account (female) Monitoring & Evaluation (midterm- GP with a committee- gram sabha)

4. Shortage of Housing in India • 2001Census • Total shortage 35 Million • People in Kutcha: 32 Million • Houseless : 3 Million • Working Group 11th FY Plan • 43 Million (2007-12) • Working Group 12thFY Plan • 48.81 Million (2012-17) • BPL (90%) 43.93 • Decadal GR of RHH 24.31%

5. Indira Awas Yojana (1996 – 75:25) • All BPL or income less than Rs. 32,000 (Annual) • GP and Gram sabha- Writing list on GP wall • Priority, SC/ST-(Permanent Waitlist) Proportionate • Unit Cost Plain Rs. 70,000 - (75,000) minimum plinth 20 sm • Support for Up gradation Rs. 20,000 • Credit cum subsidy Rs. 62,500 (50,000 +12,500) • Payment through bank account (female) • Monitoring &Evaluation (Gram sabha,Local Area Officers, Awaassoft & NLM of MoRD) New Initiatives • Administrative Expenses – 4% of fund released • House site support for Landless- 20,000 (Homestead)-20,000 • Empowered Committee (ASRD) • 5 % of total budget for special projects) • Habitat for PTG/FRA & Individual for Scattered • Access to Land, Finance, Infrastructure, Technology, Delivery mechanism, Capacity building & Information

9. NEED FOR THE STUDY • Given the background of Shelter for all the poor and the programme of IAY, several states initiated their own state specific programmes such as INDIRAMMA, Ashraya, SPAY, AAY & Samathvapuram during the recent past. • Several Good Practices are adopted by different states in fulfilling the Housing Needs of the Poor. • MoRD was interested to take up a study on IAY in different states to document the same so as to strengthen the programme of IAY. • With this background the study was undertaken on IAY

10. Objectives of the study To review the guidelines of IAY and their relevance to the socio-economic profile of beneficiaries and trace out the various problems of housing of rural poor To understand the constraints, analyze provisions and the process of implementation of IAY programme To identify different best practices adopted in the implementation of IAY To suggest interventions for refinement of national rural housing policy for effective implementation of IAY

11. Study Area & Sample Annexure

12. Methodology & Data Collection Selection of the district and blocks was done in consultation with the concerned officials and progress of the work done In-depth study is based on data collection from the primary stakeholders (IAY households) Total Sample: 960 Focus Group Discussions: 1. IAY Beneficiaries 2. GP Members 3. Concerned Officials Consulted with: 1. RBCs / Nirmiti Kendras 2. Brick Making Units

13. Aspects of Best Practices Identified • Selection Process of the beneficiaries • Cost of Construction: Unit Assistance Credit Sources No. of Installments • Own contribution (labour, materials, finance) • Appropriateness to Household Needs: Space etc. • Cost Effective Technology Locally available Raw materials Design used for the House Disaster Proof Technology • Convergence Practices: Household Needs – Electricity, IHHL, Drinking Water etc. Livelihoods etc. • Access and Service availability • Institutional Mechanism - Institutional Structure - Institutional Support • Transparency and Accountability

14. MAJOR FINDINGS OF THE STUDY

15. INSTITUTIONAL FRAMEWORK • Rural Housing and Development Corporation • State Housing Boards/ Corporations • National Mission for Rural Housing • Habitat Development • National Housing Bank (NHB) • National Rural Building Centers (RTP-NIRD) • Research and Development (CBRI-CSIR-IITs) • Griha Nirmith Kendras • Policy perspectives • National Rural Housing and Habitat Policy (2008) • Joint Secretary (Rural Housing), MoRD, GOI

16. Selection of Beneficiaries

17. Good Practices • Participatory Selection Procedure: • - Transect Walk : • A.P., Kerala, Karnataka, Tamilnadu, Gujarath, Maharashtra etc. • - Selection through Grama Sabha: • In almost of all the states, but in some states Grama Sabha resolutions were not there. • Tamilnadu: Selection Process is based on BPL and IAY waitlist but considering who could able to construct the house • IAY boards were displayed with all the details at GP - Maharastra, Gujarat, Tamilnadu etc. • Due weightage is given to Houselessness for selection of Blocks and Villages - Maharashtra • Priority was given to SCs first and then to STs, OBCs and OCs respectively at beneficiary level – Maharashtra and Rajastan • Yearly Selection and Display of Beneficiary List in at GP and Ward (Vaartha Boards ) – Kerala • Priority was given to Orphans, Disabled, widows etc. – Kerala, Himachal Pradesh & Gujarat • Realistic BPL Survey – Rajastan, Maharashtra etc.

18. GPs were providing the temporary shelter for the beneficiaries while construction was going on - Tamilnadu. • State specific schemes are more attractive than IAY – Kerala ESN • Uniform Assistance to both state specific and IAY – Tamilnadu & A.P. • 100% coverage of SC, ST under IAY – A.P. (Maharastra & Rajastan – 2002 BPL) • Saturation Approach – A.P. (Maharastra – limited to SCs, STs) • The beneficiaries constructed their houses under IAY in the least plinth area (about 201 sq.ft.). This type of practice was seen especially in Tamilnadu state. • Priority to the coverage of beneficiaries rather than the enhanced unit of assistance – Rajastan

19. Policy Suggestions: • BPL Survey should be done both the methods of Participatory and Secondary data base: Income and Expenditure method, per capita consumption of food / Calaries intake method etc. It should be done once in five years. Grama Sabha can delete the names of the beneficiaries but it should not include new beneficiaries. • In IAY boards on GP walls should provide the following information: • S.No. • Name & Father/ Husband name of the beneficiary • BPL Rank • IAY wait List Number • Year of Allotment • Year of completion of IAY

20. Appropriateness to Household Needs (Land) • Kerala: Government is providing Rs. 35,000/- for General with 50% subsidy, Rs.70,000/- for SCs with full subsidy for house site. • 2. The highest percentages of (about 78.75%) of the beneficiaries were provided the land from the Govt. in Tamilnadu followed by 58.75% in Maharashtra, 50% in A.P. • 3. In Tamilnadu, most of the Panchayats were providing the temporary shelter while construction is going on.

21. Problems in facilitating the Landless PoP - Land cost is very high in many states like Kerala, Tamilnadu, A.P., Karnataka - In many states like Kerala etc CPR land is not available, if land is available, it is very far away from the main panchayat. - Forest officials were not giving permission to get the possession certificate on land and sometimes it takes one to two years time to allot the land for the poor especially in tribal areas. - It is very difficult to provide the land for the newly married couples, who are separated from their parents after getting married. - The provision of Rs.10,000/- (homestead) is not at all sufficient to purchase at least one cent of land.

22. Design of the House • Only few states like Tamilnadu, Rajastan, Mahararastra, A.P., Assam had taken initiation towards designs made available for the benefit of beneficiaries. • But only one or two types of designs are made available for the benefit of beneficiaries. kERALA tAMILNADU

23. kERALA rAJASTAN h.p.

24. Unit Cost of Assistance

25. Installments System practiced by various state governments

26. Unit Cost provided by the State Government of Kerala

27. Installments System and Unit Cost • Good Practices: • Beneficiary contribution is compulsory - Maharastra, Rajastan • Adavance Payment is being done - A.P., Kerala, Rajastan, Gujarat, Assam, H.P., Orissa, Chattisgarh • Absence of final installment - Rajastan - Affects the completion of the house. Different Practices: • No additional amount - Gujarat, Himachal Pradesh. • No. of Installments varies from state to state. • Unit Cost and Installment Amount varies from state to state. • Only few states are adopting the system of Beneficiary contribution in terms of finance - Maharastra, Rajastan.

28. The average cost for the construction of IAY house was observed Rs.311.9 per one sq.ft. of plinth area in India as a whole. • It is very high in the states like Kerala Rs. 518.4 followed by H.P. (Rs.379.3) • It is very low in the states like Jharkhand (Rs.212.4) followed by Chattisgarh (Rs.227.9), Maharashtra (227.8) etc.

29. The proportion of IAY assistance to the total construction cost of the house was observed 56.38% in India as a whole. • The same was observed very low in states like H.P (28.38%) followed by Kerala (33.8%), Orissa (37.7%) etc. where construction is very high Nominal credit is availed from SHGs --- A.P., Karnataka, Tamilnadu. More credit was also availed from the Housing Credit societies - Kerala, Tamilnadu etc.

30. The Proportion between Labour Cost and Material Cost is Rs.1:4 in the states like Kerala, H.P. due to high labour cost whereas in all other states it is Rs.1:6.3 only. • Labour Cost is very high in Kerala, Himachal Pradesh due to scattered houses • Average construction cost is very low in Tribal Areas due to accessibility of locally available construction material with a free of cost.

31. Credit Sources: • The average share of Bank finance is just 5.46 % in all India. • The contribution of DRI loans is negligible in all the states except Gujarat, where 50% of beneficiaries were getting DRI Loans. • Banks are not willing to pay loans as the credit amount seems to be very low in almost of all the states • In states like; Tamilnadu, Kerala, Gujarat, Maharashtra, Himachal Pradesh, Rajastan and A.P., Banks are not giving loans without getting proper security documents or getting proper secured Assets • In states like; Himachal Pradesh, Gujarat Banks are not giving loans when one’s close relative is a defaulter in the respective banks. • DRI Loans are getting very easily where GP Presidents and members are active and strong. For Ex: Tamilnadu Case study • DRI Loans are being provided to the beneficiaries where district level authorities are very active. Ex: Gujarat

32. Role of Money Lender continues in Karnataka (18%), Kerala (15%), H.P. and A.P. (11%) and Jharkhand (10%) • The share of SHGs contribution is about 2.21 per cent in all India • It is very high in the states like A.P. (5.72%) followed by Karnataka (5.21%) • The contribution of NREGA wages is significant in all the states during construction • Wages are used for the purpose of household consumption • Having a NREGA Bank account helped in getting loans from Banks - Tamilnadu, Gujarat, Kerala, A.P

33. OWN CONTRIBUTION • Own Labour Contribution is seen in all the states. • House construction was being done in the presence / fully involvement of Beneficiary households. • Community Help was seen in almost of all the states except where the housing construction was handed over to the local Masonry as a contract. • The practice of Collective Purchase of materials - Maharashtra, Karnataka, A.P., Rajasthan thereby getting economies of scale. • In Maharashtra (especially in Thane district) bricks were made by the beneficiaries themselves (collective action with 4 to 5 members) with locally available mud. • District authorities are supplying the construction material like cement, steel / iron, windows, doors etc. with subsidized rates – A.P. and Tamil Nadu • IAY beneficiaries turning into a brick producer – Orissa (Mayurbunj).

34. A.P. mAHARASTRA rAJASTAN

35. Availability of Plinth Area and Backyard Area for the IAYHouse

36. Other Household Needs • Minimum of three room construction - H.P., Kerala, Karnataka. • Washing Platforms are constructed in Backyard - Tamilnadu. • Seating Platforms are constructed in frontyard - Tamilnadu, Karnataka • Traditional Chulhas linked to the Bathroom tub – Tamilnadu • Additional room for occupational activity – Tamilnadu, Maharastra and tribal areas • Plantation of Trees in all houses - Maharastra, Kerala, H.P • Both Plinth area and Backyard area was highest in Rajastan,H.P.Kerala • Houses were being constructed in Agricultural fields especially in Rajastan, Himachal Pradesh • Houses were being constructed along with their old houses – Rajastan, Chattisgarh

37. COST EFFECTIVE TECHNOLOGY • - In Rajastan, locally available Stone Patties were used for Roof • In Rajasthan, for flooring and filling the gap between the bricks for the construction of wall - Lime mud mortar with locally available material • In Tamilnadu, IAY beneficiaries were fixing the tiles on the roofing • Most of the IAY beneficiaries still using the Asbestos Sheets / steel sheets for the Roof - Maharashtra, Gujarath • Most of the IAY houses were being built with bullies (local name is wooden patties) for the support of Roof in the states like Maharashtra, Gujarath • The State Govt. (In A.P. and Tamilnadu) is supplying the material like steel, windows, doors and cement. • In Himachal Pradesh, people are using 3 types of sand viz., a) Coarse Sand for RCC roofing b) Fine Sand is used for Plastering of walls, flooring purpose and c) Sand mixed with mud is used for filling the gap between bricks etc.

38. Due to high cost of Sand, Stone Dust (M Sand) is used - Kerala • Cement Bricks are made with M Sand - Kerala • M sand is also used for Plastering - Kerala • Concrete based Window Frames - Tamilnadu, Kerala Cost Effective Techniques Usage of bricks in RCC of second layer Arc roof – saves cement, sand and mortar – Rajastan Honey Comb Technique is used for pit construction of IHHL – Gujarat V shaped RCC roofs - Kerala - easy draining of rain water

39. Disaster Proof Technology • Pillar foundation is seen - Kerala, Himachal Pradesh considering soil condition • About 95 % of the beneficiaries don’t have knowledge about Disaster proof technology. • The cost of construction of Disaster Proof housing is high. • Housing Insurance for IAY – Kerala • Inter Locking Brick construction method is limited to few areas due to non availability of skilled masons - Kerala Rural Building Centers In Kerala, Nirmithi Kendras are not useful for IAY beneficiaries In the states like Gujarat, the beneficiary households are getting the construction material from Gulf of Combat which is 200 KMs far away from these places In the absence of facilitation centers adoption of new technology and technique of construction is limited

40. Arc method RBC ASSAM Inter lock brick technology

41. Need for Technical Staff • In Himachal Pradesh, Latrine Pits 10”x10”x6” costing Rs.30,000/- • Technical ly 4”x4”x6” is enough costing Rs.8,000/- to Rs.12,000/- per Latrine • About 70% using Grade- II Bricks (I Grade: Fine; II Grade: Medium; III Grade: Lowest) • 20 % using the Grade-I bricks and 10% using the Lowest quality of bricks. •  Cracks on the walls due to poor plastering & curing (TN, A.P & Maharashtra ) • In Gujarath state, the beneficiaries from Vadodara and Anand districts were getting the bricks from Gulf of Combat, which is 300 KMs far by paying extra Rs. 1/- to Rs.1.50 per each brick in the absence of alternative technology & locally available material. • Very few houses constructed with inner locking brick Technology in Kerala • It is very difficult to motivate the people to construct their houses with the alternative & cost effective technology. • Honey Comb Masonry Technique for the construction of IHHL in some parts of Gujarat • Very few following the Arc type of technique arranging the bricks in Kerala state.

42. Convergence with Household Needs Electricity with RGGVY: In India – 39.52% - Highest in Kerala (78.75%), Tamil Nadu (58.8%) IHHLs Convergence with TSC: Convergence of IAY with TSC is about 62..8% in India as a whole – Tamil Nadu, Jharkahand, Kerala are highest in the position Rajasthan & Kerala: If all the facilities did not complete amount will be deducted from the unit cost. Usage is about 42.7 % in India as a whole.

43. Convergence with NRDWP mAHARASTRA 57% IAY HHs were converged with NRDWAP in India as a whole. - Tribal Areas – 100% Only 14.3% HHs were connected with Tap Connection to their house Premises – Gujarat is high (78%) Encouragement for Water Harvesting Structures: - Kerala – Rs.10,000/- for digging wells - Rajasthan – Rs.20,000/- for Tanks - Tamil Nadu – Rs.6,000/- for laying tiles on the Roof rAJASTAN KERALA

44. Convergence with Livelihoods Convergence with NREGS – 75.7% in India as a whole - But highest in A.P (88.3%) followed by Rajastan (78%), Maharastra (75%, Tamil Nadu (73%), Jharkhand (67.5%) Amount is being utilized for household consumption during construction This is the major contribution than financial assistance. kERALA tAMILNADU

45. Convergence with NREGA during Construction • Land Development – Himachal Pradesh, Kerala • Upto Plinth level Construction – Engagement of two labours under NREGA – Kerala • Latrine Pit Digging and Construction – Maharastra • Convergence with NREGA for getting Bank Loans under DRI – Tamil Nadu, Gujarat

50. Involvement of Local NGO: Jharkhand Payment: Except in Tamilnadu and Kerala, rest of the states following the payment system with joint account of both Grama Sevik / Junior Engineer and Beneficiaries. Material Support: In Andhra Pradesh: 18.3 % of the HHs were getting the material from RBCs. Tamil Nadu Govt. is providing material support – Cement, Cement based Windows, Iron, Doors etc. on subsidized price.