IAY guidelines chapter1-2

INDIRA AWAAS YOJANA
(IAY)
GUIDELINES
Government of India Ministry of Rural Development Department of Rural Development Krishi Bhavan
NEW DELHI – 110 114
June 2013
PREFACE
Indira Awaas Yojana (IAY), a flagship scheme of the Ministry of Rural Development has since inception been providing assistance to BPL families who are either houseless or having inadequate housing facilities for constructing a safe and durable shelter. This effort has been part of a larger strategy of the Ministry’s poverty eradication effort, supporting the development of an environmentally sound habitat with adequate provisions for incremental expansion and improvement.
Ministry’s commitment of ‘shelter for all‘ gained further momentum when India became a signatory to the Istanbul Declaration on Human Settlement in June 1996 recognising thereby the need for access to safe and healthy shelter and basic services as are essential for a person’s physical, psychological, social and economic well being. The object of the habitat approach is to achieve adequate shelter for all, especially the deprived urban and rural poor through an enabling approach leading to development and improvements in access to basic facilities like infrastructure, safe drinking water, sanitation, electricity etc.
The Constitution of India places rural housing in the domain of State Governments and the Panchayati Raj Institutions. Central Government has been implementing IAY as part of the enabling approach to shelter for all, taking cognizance of the fact that rural housing is one of the major anti-poverty measures for the marginalised. The house is recognised not merely as a shelter and a dwelling place but also an asset which supports livelihood, symbolises social position and is also a cultural expression. A good home would be in harmony with the natural environment protecting the household from extreme weather conditions, has the required connectivity for mobility and facilities for economic activities.
CONTENTS
Chapter
Content and Sub heads
At pages
1.
Historical Background
1
2.
Approach and Strategies
2
3
Salient features of the scheme
5
3.1 Target group
5
3.2 Components of the scheme
5
3.2.1 Assistance for construction of new house
5
3.2.2 Upgradation of kutcha or dilapidated houses
6
3.2.3 Provision for house sites
7
3.2.4 Special projects
8
3.3 Funding pattern
8
3.4 Earmarking of funds
8
3.5. Allocation of funds
9
3.6 Administrative expenses
10
3.7 Agency for implementation
11
3.8 Empowered committee
11
4.
Implementation of IAY
13
4.1 Implementation approaches
13
4.2 Identification of habitations
14
4.3 Baseline survey and preparation of five year priority
list
14
4.4 Finalization of annual select list of beneficiaries
15
4.5 Setting of targets
15
4.6 Sensitization of beneficiaries
16
4.7 Issue of sanction letter and release of first installment
16
4.8 Allotment of houses
17
4.9 Construction
18
4.10 Design and construction standards
18
4.11 Technical support
19
4.12 Stages of construction and release of installments
19
4.13 Timelines for construction
20
4.14 Completion
20
5.
Release and management of funds
21
5.1 Allocation
21
5.2 Proposals to be made State wise
21
5.3 Release of funds
21
5.4 Procedure for release of first installment
22
5.5 Procedure for release of second installment
22
5.6 Release of State share
24
5.7 Reallocation
24
5.8 Management of IAY account
24
5.9 Payment to beneficiaries
25
6.
Support Systems
26
6.1 Dissemination of appropriate building technologies
26
6.2 Capacity building
26
6.3 Transfer of technology
27
6.4 Technology Facilitation Centres
27
6.5 Fixing rates of material
27
6.6 Prefabrication
27
6.7 Training Masons
27
6.8 Convergence
28
6.9 Mobilising additional resources
29
7
Role of Panchayats
31
8.
Accountability
34
8.1 Disclosure
34
8.2 Audit
35
8.3 Social Audit
35
8.4 Grievance Redressal
37
9.
Monitoring
39
9.1 Monitoring by Government of India
39
9.2 Monitoring by implementing agency
39
9.3 Quality monitoring
39
9.4 Community / Participatory monitoring
40
9.5 Managament Information System
40
9.5.1 Features of AwaasSoft
40
9.5.2 Process of data entry at different levels
42
9.5.3 Fund flow through AwaasSoft
43
9.6 Monitoring through MIS
43
9.7 Training on AwaasSoft
44
10.
Annexe
Schedule
45
Annexe I - Check List for release of 2nd Installment
46
Annexe II - Proforma for release of 2nd Installment
48
Annexe III - Consolidated Utilization Certificate
51
11.
Latest Amendments
55
CHAPTER - 1
HISTORICAL BACKGROUND
1.1 Public housing programme in the country started with the rehabilitation of refugees immediately after independence. Till 1960, nearly 5 lakh families were provided houses in different parts of northern India.
1.2 In 1957, as a part of the Community Development Movement (CDM) a Village Housing Programme (VHP) was introduced providing loans to individuals and cooperatives of upto Rs.5,000/- per unit. Only 67,000 houses could be constructed in this scheme till end of the 5th Five Year Plan (1974-1979). Another scheme introduced in the 4th Plan called House Sites-cum-Construction Assistance Scheme (HSCAS) was also transferred to the State Sector from 1974-75.
1.3 Indira Awaas Yojana (IAY) is the biggest and most comprehensive rural housing programme ever taken up in the country. It has its origin in the wage employment programmes of National Rural Employment Programme (NREP), which began in 1980, and the Rural Landless Employment Guarantee Programme (RLEGP), which was started in 1983, as construction of house was permitted under these programmes. However, there were no common norms.
1.4 It was in June, 1985 that Indira Awaas Yojana was launched as a sub- scheme of RLEGP by earmarking a part of the fund for construction of houses for SCs/STs and freed bonded labourers. When Jawahar Rozgar Yojana (JRY) was launched in April, 1985, 6% of the funds was allocated for housing for the SCs/STs and freed bonded labourers. In 1993-94, the coverage was extended to Non-SC/ST families by increasing the earmarked fund for housing under JRY to
10% and allowing the use of the additional 4% for this category of beneficiaries.
1.5 Indira Awaas Yojana was made an independent scheme with effect from
1st January, 1996. It is now a flagship programme of the Ministry of Rural Development as part of the larger strategy of rural poverty eradication, in order to reduce the rigours of poverty and to provide the dignity of an address to the poor households to enable them to access different rural development programmes.
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CHAPTER - 2
APPROACH AND STRATEGIES
2.1 Housing is a fundamental human need; it is a basic requirement for human survival as well as for a decent life. Housing is not just for individual families alone; it is for the community. Basically houses afford shelter from the elements of nature, privacy and protection from the hustle and bustle of the external world. As a dwelling place, it provides security and enables access to different facilities based on its location. Going beyond mere shelter, dwelling and house, ultimately everyone desires a ‗home‘ which gives a sense of ownership and identity, affords psychological satisfaction and promotes self-esteem and confidence. A home contributes significantly to well-being and is essential for a person‘s social and economic development. It supports livelihoods and promotes social integration. It is a form of cultural expression and symbolizes social position.
2.2 To have a comfortable home is the fulfilment of a deep and, often, long cherished wish. By giving shape and form to desires and preferences, in turn, the home shapes family and social life. It is a major factor in moulding the life and behaviour of individuals and contributes significantly to formation of character and creates an eco-system for holistic development. A good home would be in harmony with the natural environment and protect the household from extreme weather, remaining warm in winter, cool in summer and dry during the rains. The household should be able to maintain the home and carry out the required repairs within its financial resources and utilizing locally available skills and materials. The home would have the right external connectivities for mobility, for facilities, for economic activities and for natural resources.
2.3 A house is both a consumer good as well as a capital good. It is an economic good which enhances the standard of living. It is a critical entitlement in a welfare state to be provided to citizens who cannot afford it on their own. Investment in public housing stimulates local economic development besides expanding welfare.
2.4 Public housing essentially aims to provide the basic requirements of
functional space for a family that is, a ‗core house‘ or a ‗starter house‘. While it
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provides essential dwelling space in a limited area, it is complete in all respects, including a toilet. Such a house lends itself to expansion and development as the family grows or improves its economic status. Design and adequacy of a core house would vary from culture to culture. It is more than just a roof over one‘s head. It implies sufficiency of space, ease of accessibility, availability of minimum needs, provision of physical comfort and a pleasant, micro-climate within and around, existence of a good environment and guarantee of safety and stability. It has to be organically linked to social, livelihood and ecological surroundings. It has to enable linkages to stimulate progress so as to free the next generation from the travails of the present one, mainly through options for education and vocation.
2.5 It has to be noted that a large portion of existing housing stock in rural India is community financed, self-built and self-managed, mostly using locally available materials and labour creatively with traditional technologies and, often improved in quality and extended in area over time. It is the result of a ‗social production process‘ which is people-centered. It naturally is an environment- friendly product, Government initiatives, therefore, should focus on enabling access to resources and improved knowledge, technology and skill.
2.6 Rural housing development has to be seen in the context of poverty alleviation and overall rural development and the following strategies are relevant:-
(i) Strengthening the ongoing process and helping people to carry it forward by supporting the process instead of supplanting it with inappropriate designs and technologies;
(ii) Supporting the construction of a 'core house' with adequate provisions for incremental expansion and improvement - also incorporating workspaces as acceptable within the house;
(iii) Determining the design of dwelling units on the basis of user requirements;
(iv) Promoting choice of materials and construction technologies keeping in view affordability, adaptability, employment generation, environmental benefit (green technologies), energy consumption over the life cycle, ease of maintenance and sustainability;
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(v) Identifying appropriate building technologies and upgrading of traditional and local technologies which could result in construction of durable houses which would last for at least 30 years with normal maintenance;
(vi) Focusing on the habitat as an organic entity which conserves use of natural resources like water, sunlight and greenery and is also sensitive to the socio-economic aspects of rural livelihood;
(vii) Preserving the organic nature of the settlement;
(viii) Promoting affirmatively equity and social justice by enabling SC/ST families, women-headed households and people with disabilities and, particularly marginalized groups who cannot even express their need for shelter, to access the scheme and construct houses;
(ix) Engendering the decision making process in respect of design, technology and financing of the house;
(x) Re-skilling and sensitizing traditional masons and construction workers as also engineers and developing women mason groups with an understanding of good design, appropriate building technologies and also cost effective construction practice along with efficient site and construction management;
(xi) Providing greater role to the Panchayats especially at the village level in the planning and implementation of the housing programme.
2.7 IAY thus provides an opportunity for reinventing people as builders and promoting a kind of ―reverse participation‖, with Government participating in the indigenous process of the people to house themselves.
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