CHAPTER – 3
SALIENT FEATURES OF THE SCHEME
3.1 Target group
Indira Awaas Yojana is essentially a public housing scheme for the houseless poor families and those living in dilapidated and kutcha houses with a component for providing house sites to the landless poor as well. The scheme is designed to enable Below Poverty Line (BPL) households identified by the community through Gram Sabhas following criteria suggested for such identification from time to time, to build their houses or get house sites with financial and technical assistance from the Government.
3.2 Components of the scheme:- IAY has the following components:
3.2.1 Assistance for construction of a new house
The unit cost of an IAY house in plain areas and in hill states and difficult areas (including IAP districts) would be as given in the Schedule attached. Difficult areas are those where due to reasons like low availability of materials, poor connectivities and adverse geographic, climatic and geological conditions, the cost of construction goes up significantly. The identification of ‗difficult area‘ within a State shall be done by the State Government based on the methodology developed by it and approved by the Empowered Committee for the programme. Village Panchayats may be treated as the unit.
Note: A ‗new house‘ would mean a house constructed with a minimum built up area of at least 20 sq. mts. excluding the toilet. IAY house has to be ‗pucca‘ in the sense that it should be able to withstand normal wear and tear due to usage and natural forces including climatic conditions, with reasonable maintenance, for at least 30 years. It should have roof of permanent material and its walls should be capable of withstanding local climatic conditions and need to be plastered only when the outer surface of the walls is erodible. Any building technology which helps achieve durability of 30 years can be adopted by the State Government including mud and bamboo houses constructed with appropriate specifications. Materials and technologies approved by reputed organizations like HUDCO,
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BMPTC, IITs, engineering colleges and eminent NGOs in the field of building construction could be used. Technologies and materials which have BIS specifications may also be included. Reuse/recycling of used construction material is permitted. ‗Green Technologies need to be specially encouraged. If any new technology is to be adopted, prior approval may be taken of the Empowered Committee or any agency approved by the Empowered Committee. The beneficiary should have the final informed choice of materials and technology.
Every house should include a toilet, soak pit and compost pit. Smokeless chulhas should also be included, which however can be dispensed with wherever households have an LPG /biogas connection. Roof water harvesting system as appropriate locally should also be set up. Every household should be actively encouraged to construct a bathroom.
If States provide additional assistance, minimum built up area can be enhanced. Maximum area can be fixed by States to prevent people from falling into debt.
Normally, individual buildings alone may be taken up under the scheme. Wherever the beneficiaries specifically so prefer, duplex housing can be permitted. In congested localities where the cost of land is very high, the beneficiaries may be allowed to construct multi-storey building with each floor being given to one family. In such cases, it shall not exceed three floors including the ground floor and there should be a multi-party agreement with the State Government specifying the construction and maintenance responsibilities.
3.2.2 Upgradation of kutcha or dilapidated houses:
This would involve upgradation of roof/walls, repair/replacement of parts and the like. Upgradation may reuse/recycle materials. Through use of additional material/replacement of material, changes in design enabling durability, and/or better workmanship, the house should, with reasonable maintenance, be capable of lasting at least 30 years. Assistance would be as given in the Schedule to the guidelines.
Note: A ‗kutcha‘ house is one in which walls and/or roof is made of material, such as un-burnt bricks, bamboos, mud, grass, reeds, thatch, loosely packed stones, etc which are not durable due to inappropriate application of techniques and are not able to withstand normal wear and tear.
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A ―dilapidated house‖ means a pucca house rendered unserviceable through wear and tear or damaged by any other cause.
Upgradation means improvement of such a kutcha/dilapidated house to a standard similar to a new house.
3.2.3 Provision of house sites
The landless poor are particularly vulnerable as they bear the double disadvantage of being unsheltered and with no land to build a house on. Assistance as per Schedule would be provided for the purpose of providing house sites.
State Governments may notify the entitlements for house sites in their respective States. If justified, this could vary within the State. Different extents of land may be prescribed for different localities based on the availability of land and its cost. Ideally 10 cents of land should be provided.
For the house sites component, the District Collector should identify public lands available in the habitations and allot them to the eligible landless. In case public land is not available the required land may be purchased by following the procedure prescribed by the State government. If this is not possible, land acquisition may be undertaken as the last resort.
While selecting land, it should be ensured that it is fit for construction of houses especially in terms of connectivity, availability of drinking water, access to public institutions, etc. The State should ensure that site is chosen with the involvement of the people for whom it is meant and is fully acceptable to them.
If money provided under the scheme is not sufficient, additional funds may be provided by the State Government. If the beneficiary is willing to purchase the land she may be reimbursed the eligible amount after due verification. States should issue detailed guidelines for this component.
The States may prepare projects for providing houses to all such landless people who have been given land sites and give special priority to them under IAY. Once the details of such landless people to be given housing sites are available, Ministry of Rural Development would earmark a stream of IAY funds exclusively for the benefit of this group based on a formula and this amount would be non-divertible.
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3.2.4 Special projects
Five percent of IAY allocation would be retained at the Central level as reserve fund. Special Projects for utilizing the reserve fund can be posed by the States/UTs for the following purposes:-
(1) Rehabilitation of BPL families affected by natural calamities.
(2) Rehabilitation of BPL families affected by violence and law and order problems.
(3) Settlement of freed bonded labourers and liberated manual scavengers.
(4) Settlement of particularly vulnerable tribal groups.
* (5) Rehabilitation of people affected by occupational diseases like Silicosis, Asbestos, people affected by overuse of pesticides etc. or people affected in an epidemic of diseases like Kala –azar.
* (6) Settlement of households benefitted under The Scheduled Tribes and Other Traditional Forest Dwellers (Recognition of Forest Rights) Act, 2006 commonly known as FRA beneficiaries.
*(7) Settlement of people forced to relocate in districts along the international border.
(8) New technology demonstration – especially with focus on affordable and green technologies.
These projects would have to be submitted by State Governments with adequate details and justification to the Ministry of Rural Development by September [except (1) and (2)] and it will be considered by the Empowered Committee constituted for the purpose of approval.
3.3 Funding pattern
The cost of the scheme except the component for provision of house sites would be shared between Government of India and State Governments in the ratio 75:25. In the case of North Eastern States the ratio is 90:10. The cost of providing house sites would be shared 50:50 between Government of India and State Governments. Government of India would provide the full cost in respect of Union Territories (UTs).
3.4 Earmarking of funds
At the national level, 60% of the funds would be earmarked for SCs and STs with the proportion between SCs and STs being decided from time to time by the Ministry of Rural Development and reflected in the targets. Further, 15% of the funds would be set apart for beneficiaries from among the minorities. The State should ensure that atleast 3% of beneficiaries are from among persons with disabilities. Statewise allocation of funds will be as given in para 3.5. The
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*vide Ministry’s order No. M- 13011/07/2013- RH dated 28/11/2013
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earmarking is only the minimum limit that should be achieved by the State and States, if they so desire may add to the target under these categories. The targets in these categories should not be reduced. However, targets from SC and ST can be interchanged if there are no eligible beneficiaries from either of the category and it is certified as such.
If a district has no eligible persons under any category, it should be certified as such by the District Collector or CEO Zilla Parishad. A certificate once accepted shall be irrevocable. The targets shall then be reallocated proportionately among other districts to the same category. The consequential changes should be made in AwaasSoft immediately. For selection of Minority beneficiaries States can use the existing Permanent waitlist and go lower in the list to cover them. If States have a separate waitlist for Minorities the same can be used.
3.5 Allocation of funds
95% of the total budget would be utilized for the components relating to new houses, upgradation of houses and provision of house sites and administrative expenses. The remaining 5% would be reserved for special projects as indicated in para 3.2.4.
Allocation to States/UTs and from States/UTs to districts, blocks and wherever the States so desire, to the Village Panchayats would be on the basis of houseless people from among the BPL population for each category i.e. SC, ST, minorities and others, once the Socio Economic Caste Census(SECC) currently under way is finalised.
Till such time data are available to make such allocations, the Ministry would fix the annual allocation for the States/UTs broadly on the basis of 75% weightage to housing shortage in rural areas as per the latest census data and
25% weightage to the number of people below poverty line (BPL). Within this
overall target, allocation of funds for SCs, STs and Minorities would be made on the basis of the proportionate population of these categories in the States/UTs, suitably adjusted to avoid distortions. State shall follow this principle for allocating targets below the State level. States which decide to adopt any other alternative formula using data/ relevant to the scheme should seek prior approval of the Empowered Committee with full justification (para 3.8).
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Upto 20% of the district allocation can be used for upgradation of kutcha/dilapidated houses of families below poverty line as decided by the States on the basis of need.
3.6 Administrative expenses
Upto 4% of the funds released can be utilised for administering the scheme, of which upto 0.5% can be retained at the state level and the balance shall be distributed to the districts. The district allocation would include two parts, one part to meet fixed expenditure which would be same for all districts in a State and the other part proportional to the targets allotted to the district in order to meet working expenses. The States may decide the formula and also the formula for distribution to the intermediate and Village Panchayat levels in accordance with workload assigned to them. The norms adopted by States for distribution of funds under this category shall be intimated to the Ministry of Rural Development within six months.
Eligible items of expenditure under administrative expenses are the following:-
(i) *Upto 1% of administrative expenses should be used for IEC activities for preparation of IEC material including electronic material especially on different designs and technology options;
(ii) **Upto 1% of administrative expenses should be used for Social Audit;
(iii) Imparting habitat and housing literacy to beneficiaries;
(iv) Construction of prototypes and preparation of small scale models for demonstration;
(v) Cost of photographs of the house at various stages and of uploading them; (vi) Cost of quality supervision and monitoring through visits;
(vii) Cost of hardware/software for MIS;
(viii) Cost of data entry in AwaasSoft, including hiring of personnel on contract; (ix) Training of master masons and beneficiaries providing labour, including
training on maintenance practices;
(x) Training of Community Resource Persons (CRPs) and NGOs;
(xi) Payment of honorarium to CRPs and service charges to NGOs; (xii) Training of officials and elected representatives of Panchayats;
(xiii) Conduct of assessments and evaluation studies;
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⃰ Vide Ministry’s order No. M- 13011/06/2013- RH dated 26/09/2013
** vide Ministry’s order No. J- 11011/06/2013 – RH dated 12/12/2013
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The administrative expenses shall be shared by the Centre and States in the same ratio as applicable to the main programme expenditure.
3.7 Agency for implementation
At the district level the implementation should be entrusted to Zilla
Parishad or its equivalent in States where there are no Zilla Parishads.
At the local level, the Village Panchayat, or its equivalent where the State has no Village Panchayats, would implement the programme. If Village Panchayats are too small to implement the scheme, the State may entrust the task to the Panchayat at the intermediate level. In such cases, Village Panchayats should be given clear roles in selection of habitats and beneficiaries and in supervision and monitoring.
3.8 Empowered committee
There shall an Empowered Committee chaired by Secretary(RD)/Additional
Secretary(RD) consisting the of following members
i. Joint Secretary (Rural Housing) ii. Adviser (Planning Commission) iii. Representative of HUDCO
iv. Representative of Knowledge Network
v. Representatives of two eminent NGOs from the field of building construction
vi. Secretary dealing with Rural Housing, of the state concerned vii. Representative of I.F.D
The Empowered Committee may invite experts as required to assist it in its meetings
The functions of the Empowered Committee are:-
(i) To approve State‘s criteria for determination of difficult areas (para
3.2.1)
(ii) To decide on targets for completion of houses and for new construction
(para 4.5)
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(iii) To approve any alternative formula adopted by States for the districtwise allocation of targets (para 3.5)
(iv) To decide on reallocation of funds (para 5.3)
(v) To sanction special projects for the 5% allocation (para 3.2.4)
(vi) To clear special projects for subsidy-linked schemes availing bank loans [para 6.9 (iv)]
(vii) To permit cash payments temporarily in exceptional case [para 4.7(iii)]
(viii) To permit transfer of Central share by state agency in a single instalment to difficult areas [para 5.6.1.IV]
(ix) To approve new construction technologies proposed by State Governments which have not been approved by any technical body (para 3.2.1 Note)
(x) To review the programme, suggest studies etc.
(xi) To issue clarifications in matters where there are genuine difficulties in operationalising the guidelines
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CHAPTER – 4
IMPLEMENTATION OF IAY
4.1 Implementation approaches
The implementation strategy for IAY needs to be developed by each State by balancing the needs and advantages of habitation or cluster approach and individual household approach.
In order to achieve economies in construction and provide a bouquet of basic minimum needs to poor families and ease of extension and monitoring, IAY should be implemented following the habitation approach, as far as possible. All habitations of the following categories may be covered on priority to achieve saturation:-
1. PTGs
2. Beneficiary families of the Forest Rights Act
Other habitations may be identified by the State Government for coverage using locally relevant, transparent socio-economic criteria.
However, to cover eligible beneficiaries of certain categories who may be living scattered within a Village Panchayat, the individual household approach can be used: While following this approach, first priority should be given to families of manual scavengers, including those rehabilitated and rehabilitated bonded labourers. Thereafter the priority to be adhered to is as follows:-
(i) Women in difficult circumstances, including widows, those divorced or deserted, women victims of atrocities and those whose husbands are missing for at least three years, and, women headed families.
⃰⃰ (i)(a)Households with a single girl child.
(ii) Mentally challenged persons (with at least 40% disability) (iii) Physically challenged persons (with at least 40% disability) (iv) Transgender persons
(v) Widows and next-of-kin of members of defence/paramilitary/police forces killed in action (even if not BPL);
⃰ (vi) Households where a member is suffering from Leprosy or Cancer.
⃰ (vii) People living with HIV (PLHIV)
(viii) Other houseless BPL families
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⃰ Vide Ministry’s order No. M- 13011/07/2013- RH dated 28/11/2013
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This would also ensure coverage of the most vulnerable people in the priority list. The above suggested priority needs to be followed for SCs, STs, persons with disabilities, Minorities and others.
States may decide the proportion of houses to be taken up following the habitation approach and those to be taken up for scattered individual beneficiaries. Once this is done, action may be initiated following the procedure suggested in para 4.2 and para 4.3.
4.2 Identification of habitations
The habitations have to be prioritized on the basis of transparent criteria
to be developed by the State Government – with a five year and annual priority list.
As soon as the habitations are selected, a detailed survey should be got done by the State Implementing Agency with the involvement of the Panchayats concerned, collecting details of houses as well as other facilities in the habitations like physical connectivity, power connectivity, water supply, environmental sanitation and social infrastructure like anganwadis, libraries, community halls, work sheds, etc. This survey should be complemented by participatory methods like transect walks, focus group discussions and people‘s planning. All the eligible beneficiaries from the selected habitations have to be listed out.
4.3 Baseline survey and preparation of five year priority list
In the first year (2013-14), the existing priority list for IAY may continue to be used.
Within the first six months of the availability of the SECC data, the list has to be revised. Baseline data should be taken from Socio-Economic Caste Census
2011. A five year priority list of people who need to be given assistance should be
prepared using the SECC baseline data through a participatory process. Identification and ranking of beneficiaries may be done using locally acceptable norms of priority for different categories following the methodology for participatory identification of the poor (PIP). Ministry of Rural Development would issue detailed guidelines for PIP.
SECC data should also be used to identify the landless households. All families having less than two cents of land would be considered landless for the
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purpose of the scheme. A list thus extracted should be verified on the ground through a survey in which the Village Panchayats and local community are fully involved. Once the landless poor are identified they may be prioritized, as per the PIP process indicated for the IAY houses component with separate lists prepared for SCs/STs, minorities, persons with disabilities and others.
The five year priority list of IAY beneficiaries and the list of landless households generated from the above process and the list of beneficiaries from the identified habitations should be presented in the Gram Sabha and its approval taken. The meeting should be attended by a representative of the District Collector and it should be videographed. In order to correct errors of inclusion and exclusion, the process of appeal indicated for SECC may be adopted. The five year priority list once approved by the Gram Sabha should be uploaded on AwaasSoft for habitations and for scattered households.
4.4 Finalisation of annual select list of beneficiaries
In order to finalize the annual select list of IAY beneficiaries, it would be expedient to complete the process mentioned in para 4.3 and place the five year priority list before the Gram Sabha and draw the annual select list based on the target assigned for habitations and for scattered households.
The Gram Sabha meeting to approve the annual select list shall also be attended by a nominee of the District Collector and it shall be videographed. While doing so, list of new inclusions and list of exclusions if any shall be marked as such with reasons. The Gram Sabha meetings should be completed by 30th November and the finalized list sent to the Zilla Parishad before 31st December, so that, based on the tentative targets, the annual beneficiary list of the district can be finalized.
Details of beneficiaries selected should be entered on AwaasSoft.
4.5 Setting of targets
The State-wise targets would be set by the Ministry of Rural Development annually for two aspects of the programme:-
(1) For completion of houses sanctioned during the previous years.
(2) For selection of beneficiaries for new houses to be started during the year.
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The Targets would be set after setting apart 4% from 95% of the allocation for administrative expenses. The targets thus set would be vetted by the Empowered Committee before being communicated to the States.
4.6 Sensitisation of beneficiaries
All the beneficiaries selected for the year should be requested to assemble at a place and at a time convenient to them. Persons with disabilities and old and infirm persons should be specially assisted for this. The beneficiaries should be informed of the details of the programme and their rights and responsibilities including the assistance which they are eligible to get and the conditions which they need to satisfy. More importantly, they should be sensitized in detail on the housing designs and construction technologies which are available and their costs for labour and materials and facilitated to make an informed choice based on affordability and cultural preference. For this purpose, states should devise easy- to-read diagram-based handbooks in the local language. Videos should be made of different designs/technologies and shown to the beneficiaries. Small scale models should also be exhibited. Prototypes could be built in selected localities with easy access within the Block, for demonstration. The beneficiaries should be requested to indicate the assistance they need.
4.7 Issue of sanction letter and release of first instalment
When beneficiaries come for the above meeting, the following procedures may be completed:-
(i) A sanction order shall be issued in favour of each beneficiary in the local language in the format prescribed by the State Department/Agency detailing the terms and conditions especially the payment schedule.
(ii) An entitlement card has to be given to every beneficiary, indicating in local idiom understood by the lay public, all her/his entitlements and obligations. This should indicate the support services available and the outer time limits for different services and how grievances would be redressed.
(iii) The fund transfer orders releasing first instalment to each beneficiary should also be given. The fund should be transferred into the Bank/ Post Office account of each beneficiary. Release of instalments in cash to beneficiaries is not permissible under IAY.
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(iv) For exemption, permission of Empowered Committee may be obtained after providing adequate justification and that too for a limited period of time, subject to the following conditions:-
a) The payment will be made in Gram Sabha meeting in the presence of all members.
b) The total amount sanctioned for construction of the house and the amount of instalment being paid will be announced for information of all members
c) Receipt of payment shall be taken from the beneficiary and kept on record in the Gram Panchayat
d) This will be verified specifically in Social Audit.
The State Government may decide on a particular day to mark the above event which could be observed across the state as Awaas Divas. The beneficiaries of house site component could also be given the land titles on the same day. Holding of such an event would ensure transparency and stimulate community participation in implementation and monitoring.
4.8 Allotment of houses
Allotment of the IAY house shall be jointly in the name of husband and wife except in the case of a widow/unmarried /separated person. The State may also choose to allot it solely in the name of the woman. In the case of beneficiaries selected under the quota for persons with disabilities, the allotment should be only to such persons. The allotment order should be in a form which may be prescribed by the State conferring the title to the house. In the case of house sites, the land identified may be assigned in the name of the eldest woman of the household except in the case of all-male households and pucca title granted as patta and house for the assignee of the land should also be allotted to
that person. There should be a provision for non-alienation for at least 15 years.
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4.9 Construction
The construction should be carried out by the beneficiary himself/herself. No contractor should be involved in the construction of houses under IAY.
If any case of construction through contractors comes to notice, the Ministry of Rural Development will have the right to recover the releases made to the State for those IAY houses. The house should also not be constructed by any Government department/agency. The spirit of IAY requires that the house is not to be constructed and delivered by any external agency. However, Government departments or agencies can give technical assistance or arrange for coordinated supply of material such as cement, steel or bricks or prefabricated components if the beneficiaries so desire.
But construction may be entrusted to reputed agencies in the case of very old beneficiaries above sixty years of age and persons with disabilities who may not be able to stand the strain of supervisory construction and who request for such support in writing.
Also services of reputed NGOs, / Charitable Organisations, Youth clubs of standing, Nation Service Scheme (NSS) Units of Schools and Colleges may be utilized to provide necessary support services to the beneficiaries especially for adopting suitable materials and building technologies, managing construction and in monitoring. States may accredit such agencies based on transparent criteria and fix reasonable service charges to be paid to them from the provisions for administrative expenses.
4.10 Design and construction standards
There should not be any mandatory type design. A menu of options in respect of use of materials and building technologies as appropriate locally, may be provided to the beneficiary along with the cost implications and the choice should be left to the beneficiary.
There should be special effort to promote green housing, which will include improved use of local materials, appropriate building designs and construction techniques. The objective is to reduce the negative environmental impact of housing and improve user comfort. This is through greater reliance on renewable
and locally available material, through reduced use of energy during the life-cycle
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of the house and the use of materials and designs appropriate to local weather patterns.
The layout of the house should also be decided by the beneficiary who may, however, be advised on a good layout as suitable to the locality. For households having persons with disabilities, barrier-free design should be adopted to facilitate smooth and free movement in the house. In areas prone to natural calamities, disaster resilient features should be built in.
It is also desirable that the house should have, in addition to the mandatory components, the following:
(i) Adequate space for pursuing livelihood activities;
(ii) A verandah;
(iii) Stair case to go to the top of the house.
4.11 Technical support
Support in the form of technical and managerial guidance should be provided for construction of IAY house. Foundation laying and lintel level are critical stages for maintaining the quality of the house. Therefore, technical support should be provided at least at these two stages.
4.12 Stages of construction and release of instalments
The number of instalments given to beneficiaries should be fixed at three. The release of instalments should be linked to the level of construction reached.
(i) The first instalment should be given on the Awaas Divas along with the sanction order. It should not be more than 25% of the unit cost.
(ii) The 2ndinstalment should be released on reaching the level lintel. It should not be less than 60% of the unit cost.
(iii) The 3rdinstalment should be given only after the house including the sanitary latrine is constructed and the beneficiary starts living in the house. But floor finish, fixing of shutters to doors and windows, plastering other than what is essential to withstand natural forces, and painting need not be insisted on for receiving the assistance. It should be an amount not more than 15% of the unit cost;
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Release of each instalment should be preceded by site visit by the designated official and verification of the work details of which would be uploaded to the programme website (AwaasSoft) along with photographs in support.
4.13 Timelines for construction
Generally, subject to weather and other factors, the stages of construction should be managed within the following timelines
Stage
Level
Time limit
Stage1
Construction upto lintel level
Nine months from date of
release of first instalment
Stage 2
Completion
Nine months from date of
release of second instalment
4.14 Completion
Completion of a dwelling unit normally should not take more than two years from the date of sanction of first instalment. However, since the beneficiaries are from the PBL category who often find it difficult to mobilize the resources required to complete the house, cases of delay must be monitored and the beneficiaries facilitated to complete the house within a maximum period of three years. On completion of an IAY dwelling unit, the Zilla Parishad concerned should ensure that for each house so constructed, a display board is fixed indicating the IAY logo, year of construction, name of the beneficiary etc. The expenditure on this account can be met from the funds available under the scheme. The cost of each logo should be fixed by the State Government but the central share shall not exceed Rs.100/- from the programme fund.
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SALIENT FEATURES OF THE SCHEME
3.1 Target group
Indira Awaas Yojana is essentially a public housing scheme for the houseless poor families and those living in dilapidated and kutcha houses with a component for providing house sites to the landless poor as well. The scheme is designed to enable Below Poverty Line (BPL) households identified by the community through Gram Sabhas following criteria suggested for such identification from time to time, to build their houses or get house sites with financial and technical assistance from the Government.
3.2 Components of the scheme:- IAY has the following components:
3.2.1 Assistance for construction of a new house
The unit cost of an IAY house in plain areas and in hill states and difficult areas (including IAP districts) would be as given in the Schedule attached. Difficult areas are those where due to reasons like low availability of materials, poor connectivities and adverse geographic, climatic and geological conditions, the cost of construction goes up significantly. The identification of ‗difficult area‘ within a State shall be done by the State Government based on the methodology developed by it and approved by the Empowered Committee for the programme. Village Panchayats may be treated as the unit.
Note: A ‗new house‘ would mean a house constructed with a minimum built up area of at least 20 sq. mts. excluding the toilet. IAY house has to be ‗pucca‘ in the sense that it should be able to withstand normal wear and tear due to usage and natural forces including climatic conditions, with reasonable maintenance, for at least 30 years. It should have roof of permanent material and its walls should be capable of withstanding local climatic conditions and need to be plastered only when the outer surface of the walls is erodible. Any building technology which helps achieve durability of 30 years can be adopted by the State Government including mud and bamboo houses constructed with appropriate specifications. Materials and technologies approved by reputed organizations like HUDCO,
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BMPTC, IITs, engineering colleges and eminent NGOs in the field of building construction could be used. Technologies and materials which have BIS specifications may also be included. Reuse/recycling of used construction material is permitted. ‗Green Technologies need to be specially encouraged. If any new technology is to be adopted, prior approval may be taken of the Empowered Committee or any agency approved by the Empowered Committee. The beneficiary should have the final informed choice of materials and technology.
Every house should include a toilet, soak pit and compost pit. Smokeless chulhas should also be included, which however can be dispensed with wherever households have an LPG /biogas connection. Roof water harvesting system as appropriate locally should also be set up. Every household should be actively encouraged to construct a bathroom.
If States provide additional assistance, minimum built up area can be enhanced. Maximum area can be fixed by States to prevent people from falling into debt.
Normally, individual buildings alone may be taken up under the scheme. Wherever the beneficiaries specifically so prefer, duplex housing can be permitted. In congested localities where the cost of land is very high, the beneficiaries may be allowed to construct multi-storey building with each floor being given to one family. In such cases, it shall not exceed three floors including the ground floor and there should be a multi-party agreement with the State Government specifying the construction and maintenance responsibilities.
3.2.2 Upgradation of kutcha or dilapidated houses:
This would involve upgradation of roof/walls, repair/replacement of parts and the like. Upgradation may reuse/recycle materials. Through use of additional material/replacement of material, changes in design enabling durability, and/or better workmanship, the house should, with reasonable maintenance, be capable of lasting at least 30 years. Assistance would be as given in the Schedule to the guidelines.
Note: A ‗kutcha‘ house is one in which walls and/or roof is made of material, such as un-burnt bricks, bamboos, mud, grass, reeds, thatch, loosely packed stones, etc which are not durable due to inappropriate application of techniques and are not able to withstand normal wear and tear.
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A ―dilapidated house‖ means a pucca house rendered unserviceable through wear and tear or damaged by any other cause.
Upgradation means improvement of such a kutcha/dilapidated house to a standard similar to a new house.
3.2.3 Provision of house sites
The landless poor are particularly vulnerable as they bear the double disadvantage of being unsheltered and with no land to build a house on. Assistance as per Schedule would be provided for the purpose of providing house sites.
State Governments may notify the entitlements for house sites in their respective States. If justified, this could vary within the State. Different extents of land may be prescribed for different localities based on the availability of land and its cost. Ideally 10 cents of land should be provided.
For the house sites component, the District Collector should identify public lands available in the habitations and allot them to the eligible landless. In case public land is not available the required land may be purchased by following the procedure prescribed by the State government. If this is not possible, land acquisition may be undertaken as the last resort.
While selecting land, it should be ensured that it is fit for construction of houses especially in terms of connectivity, availability of drinking water, access to public institutions, etc. The State should ensure that site is chosen with the involvement of the people for whom it is meant and is fully acceptable to them.
If money provided under the scheme is not sufficient, additional funds may be provided by the State Government. If the beneficiary is willing to purchase the land she may be reimbursed the eligible amount after due verification. States should issue detailed guidelines for this component.
The States may prepare projects for providing houses to all such landless people who have been given land sites and give special priority to them under IAY. Once the details of such landless people to be given housing sites are available, Ministry of Rural Development would earmark a stream of IAY funds exclusively for the benefit of this group based on a formula and this amount would be non-divertible.
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3.2.4 Special projects
Five percent of IAY allocation would be retained at the Central level as reserve fund. Special Projects for utilizing the reserve fund can be posed by the States/UTs for the following purposes:-
(1) Rehabilitation of BPL families affected by natural calamities.
(2) Rehabilitation of BPL families affected by violence and law and order problems.
(3) Settlement of freed bonded labourers and liberated manual scavengers.
(4) Settlement of particularly vulnerable tribal groups.
* (5) Rehabilitation of people affected by occupational diseases like Silicosis, Asbestos, people affected by overuse of pesticides etc. or people affected in an epidemic of diseases like Kala –azar.
* (6) Settlement of households benefitted under The Scheduled Tribes and Other Traditional Forest Dwellers (Recognition of Forest Rights) Act, 2006 commonly known as FRA beneficiaries.
*(7) Settlement of people forced to relocate in districts along the international border.
(8) New technology demonstration – especially with focus on affordable and green technologies.
These projects would have to be submitted by State Governments with adequate details and justification to the Ministry of Rural Development by September [except (1) and (2)] and it will be considered by the Empowered Committee constituted for the purpose of approval.
3.3 Funding pattern
The cost of the scheme except the component for provision of house sites would be shared between Government of India and State Governments in the ratio 75:25. In the case of North Eastern States the ratio is 90:10. The cost of providing house sites would be shared 50:50 between Government of India and State Governments. Government of India would provide the full cost in respect of Union Territories (UTs).
3.4 Earmarking of funds
At the national level, 60% of the funds would be earmarked for SCs and STs with the proportion between SCs and STs being decided from time to time by the Ministry of Rural Development and reflected in the targets. Further, 15% of the funds would be set apart for beneficiaries from among the minorities. The State should ensure that atleast 3% of beneficiaries are from among persons with disabilities. Statewise allocation of funds will be as given in para 3.5. The
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*vide Ministry’s order No. M- 13011/07/2013- RH dated 28/11/2013
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earmarking is only the minimum limit that should be achieved by the State and States, if they so desire may add to the target under these categories. The targets in these categories should not be reduced. However, targets from SC and ST can be interchanged if there are no eligible beneficiaries from either of the category and it is certified as such.
If a district has no eligible persons under any category, it should be certified as such by the District Collector or CEO Zilla Parishad. A certificate once accepted shall be irrevocable. The targets shall then be reallocated proportionately among other districts to the same category. The consequential changes should be made in AwaasSoft immediately. For selection of Minority beneficiaries States can use the existing Permanent waitlist and go lower in the list to cover them. If States have a separate waitlist for Minorities the same can be used.
3.5 Allocation of funds
95% of the total budget would be utilized for the components relating to new houses, upgradation of houses and provision of house sites and administrative expenses. The remaining 5% would be reserved for special projects as indicated in para 3.2.4.
Allocation to States/UTs and from States/UTs to districts, blocks and wherever the States so desire, to the Village Panchayats would be on the basis of houseless people from among the BPL population for each category i.e. SC, ST, minorities and others, once the Socio Economic Caste Census(SECC) currently under way is finalised.
Till such time data are available to make such allocations, the Ministry would fix the annual allocation for the States/UTs broadly on the basis of 75% weightage to housing shortage in rural areas as per the latest census data and
25% weightage to the number of people below poverty line (BPL). Within this
overall target, allocation of funds for SCs, STs and Minorities would be made on the basis of the proportionate population of these categories in the States/UTs, suitably adjusted to avoid distortions. State shall follow this principle for allocating targets below the State level. States which decide to adopt any other alternative formula using data/ relevant to the scheme should seek prior approval of the Empowered Committee with full justification (para 3.8).
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Upto 20% of the district allocation can be used for upgradation of kutcha/dilapidated houses of families below poverty line as decided by the States on the basis of need.
3.6 Administrative expenses
Upto 4% of the funds released can be utilised for administering the scheme, of which upto 0.5% can be retained at the state level and the balance shall be distributed to the districts. The district allocation would include two parts, one part to meet fixed expenditure which would be same for all districts in a State and the other part proportional to the targets allotted to the district in order to meet working expenses. The States may decide the formula and also the formula for distribution to the intermediate and Village Panchayat levels in accordance with workload assigned to them. The norms adopted by States for distribution of funds under this category shall be intimated to the Ministry of Rural Development within six months.
Eligible items of expenditure under administrative expenses are the following:-
(i) *Upto 1% of administrative expenses should be used for IEC activities for preparation of IEC material including electronic material especially on different designs and technology options;
(ii) **Upto 1% of administrative expenses should be used for Social Audit;
(iii) Imparting habitat and housing literacy to beneficiaries;
(iv) Construction of prototypes and preparation of small scale models for demonstration;
(v) Cost of photographs of the house at various stages and of uploading them; (vi) Cost of quality supervision and monitoring through visits;
(vii) Cost of hardware/software for MIS;
(viii) Cost of data entry in AwaasSoft, including hiring of personnel on contract; (ix) Training of master masons and beneficiaries providing labour, including
training on maintenance practices;
(x) Training of Community Resource Persons (CRPs) and NGOs;
(xi) Payment of honorarium to CRPs and service charges to NGOs; (xii) Training of officials and elected representatives of Panchayats;
(xiii) Conduct of assessments and evaluation studies;
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⃰ Vide Ministry’s order No. M- 13011/06/2013- RH dated 26/09/2013
** vide Ministry’s order No. J- 11011/06/2013 – RH dated 12/12/2013
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The administrative expenses shall be shared by the Centre and States in the same ratio as applicable to the main programme expenditure.
3.7 Agency for implementation
At the district level the implementation should be entrusted to Zilla
Parishad or its equivalent in States where there are no Zilla Parishads.
At the local level, the Village Panchayat, or its equivalent where the State has no Village Panchayats, would implement the programme. If Village Panchayats are too small to implement the scheme, the State may entrust the task to the Panchayat at the intermediate level. In such cases, Village Panchayats should be given clear roles in selection of habitats and beneficiaries and in supervision and monitoring.
3.8 Empowered committee
There shall an Empowered Committee chaired by Secretary(RD)/Additional
Secretary(RD) consisting the of following members
i. Joint Secretary (Rural Housing) ii. Adviser (Planning Commission) iii. Representative of HUDCO
iv. Representative of Knowledge Network
v. Representatives of two eminent NGOs from the field of building construction
vi. Secretary dealing with Rural Housing, of the state concerned vii. Representative of I.F.D
The Empowered Committee may invite experts as required to assist it in its meetings
The functions of the Empowered Committee are:-
(i) To approve State‘s criteria for determination of difficult areas (para
3.2.1)
(ii) To decide on targets for completion of houses and for new construction
(para 4.5)
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(iii) To approve any alternative formula adopted by States for the districtwise allocation of targets (para 3.5)
(iv) To decide on reallocation of funds (para 5.3)
(v) To sanction special projects for the 5% allocation (para 3.2.4)
(vi) To clear special projects for subsidy-linked schemes availing bank loans [para 6.9 (iv)]
(vii) To permit cash payments temporarily in exceptional case [para 4.7(iii)]
(viii) To permit transfer of Central share by state agency in a single instalment to difficult areas [para 5.6.1.IV]
(ix) To approve new construction technologies proposed by State Governments which have not been approved by any technical body (para 3.2.1 Note)
(x) To review the programme, suggest studies etc.
(xi) To issue clarifications in matters where there are genuine difficulties in operationalising the guidelines
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CHAPTER – 4
IMPLEMENTATION OF IAY
4.1 Implementation approaches
The implementation strategy for IAY needs to be developed by each State by balancing the needs and advantages of habitation or cluster approach and individual household approach.
In order to achieve economies in construction and provide a bouquet of basic minimum needs to poor families and ease of extension and monitoring, IAY should be implemented following the habitation approach, as far as possible. All habitations of the following categories may be covered on priority to achieve saturation:-
1. PTGs
2. Beneficiary families of the Forest Rights Act
Other habitations may be identified by the State Government for coverage using locally relevant, transparent socio-economic criteria.
However, to cover eligible beneficiaries of certain categories who may be living scattered within a Village Panchayat, the individual household approach can be used: While following this approach, first priority should be given to families of manual scavengers, including those rehabilitated and rehabilitated bonded labourers. Thereafter the priority to be adhered to is as follows:-
(i) Women in difficult circumstances, including widows, those divorced or deserted, women victims of atrocities and those whose husbands are missing for at least three years, and, women headed families.
⃰⃰ (i)(a)Households with a single girl child.
(ii) Mentally challenged persons (with at least 40% disability) (iii) Physically challenged persons (with at least 40% disability) (iv) Transgender persons
(v) Widows and next-of-kin of members of defence/paramilitary/police forces killed in action (even if not BPL);
⃰ (vi) Households where a member is suffering from Leprosy or Cancer.
⃰ (vii) People living with HIV (PLHIV)
(viii) Other houseless BPL families
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⃰ Vide Ministry’s order No. M- 13011/07/2013- RH dated 28/11/2013
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This would also ensure coverage of the most vulnerable people in the priority list. The above suggested priority needs to be followed for SCs, STs, persons with disabilities, Minorities and others.
States may decide the proportion of houses to be taken up following the habitation approach and those to be taken up for scattered individual beneficiaries. Once this is done, action may be initiated following the procedure suggested in para 4.2 and para 4.3.
4.2 Identification of habitations
The habitations have to be prioritized on the basis of transparent criteria
to be developed by the State Government – with a five year and annual priority list.
As soon as the habitations are selected, a detailed survey should be got done by the State Implementing Agency with the involvement of the Panchayats concerned, collecting details of houses as well as other facilities in the habitations like physical connectivity, power connectivity, water supply, environmental sanitation and social infrastructure like anganwadis, libraries, community halls, work sheds, etc. This survey should be complemented by participatory methods like transect walks, focus group discussions and people‘s planning. All the eligible beneficiaries from the selected habitations have to be listed out.
4.3 Baseline survey and preparation of five year priority list
In the first year (2013-14), the existing priority list for IAY may continue to be used.
Within the first six months of the availability of the SECC data, the list has to be revised. Baseline data should be taken from Socio-Economic Caste Census
2011. A five year priority list of people who need to be given assistance should be
prepared using the SECC baseline data through a participatory process. Identification and ranking of beneficiaries may be done using locally acceptable norms of priority for different categories following the methodology for participatory identification of the poor (PIP). Ministry of Rural Development would issue detailed guidelines for PIP.
SECC data should also be used to identify the landless households. All families having less than two cents of land would be considered landless for the
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purpose of the scheme. A list thus extracted should be verified on the ground through a survey in which the Village Panchayats and local community are fully involved. Once the landless poor are identified they may be prioritized, as per the PIP process indicated for the IAY houses component with separate lists prepared for SCs/STs, minorities, persons with disabilities and others.
The five year priority list of IAY beneficiaries and the list of landless households generated from the above process and the list of beneficiaries from the identified habitations should be presented in the Gram Sabha and its approval taken. The meeting should be attended by a representative of the District Collector and it should be videographed. In order to correct errors of inclusion and exclusion, the process of appeal indicated for SECC may be adopted. The five year priority list once approved by the Gram Sabha should be uploaded on AwaasSoft for habitations and for scattered households.
4.4 Finalisation of annual select list of beneficiaries
In order to finalize the annual select list of IAY beneficiaries, it would be expedient to complete the process mentioned in para 4.3 and place the five year priority list before the Gram Sabha and draw the annual select list based on the target assigned for habitations and for scattered households.
The Gram Sabha meeting to approve the annual select list shall also be attended by a nominee of the District Collector and it shall be videographed. While doing so, list of new inclusions and list of exclusions if any shall be marked as such with reasons. The Gram Sabha meetings should be completed by 30th November and the finalized list sent to the Zilla Parishad before 31st December, so that, based on the tentative targets, the annual beneficiary list of the district can be finalized.
Details of beneficiaries selected should be entered on AwaasSoft.
4.5 Setting of targets
The State-wise targets would be set by the Ministry of Rural Development annually for two aspects of the programme:-
(1) For completion of houses sanctioned during the previous years.
(2) For selection of beneficiaries for new houses to be started during the year.
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The Targets would be set after setting apart 4% from 95% of the allocation for administrative expenses. The targets thus set would be vetted by the Empowered Committee before being communicated to the States.
4.6 Sensitisation of beneficiaries
All the beneficiaries selected for the year should be requested to assemble at a place and at a time convenient to them. Persons with disabilities and old and infirm persons should be specially assisted for this. The beneficiaries should be informed of the details of the programme and their rights and responsibilities including the assistance which they are eligible to get and the conditions which they need to satisfy. More importantly, they should be sensitized in detail on the housing designs and construction technologies which are available and their costs for labour and materials and facilitated to make an informed choice based on affordability and cultural preference. For this purpose, states should devise easy- to-read diagram-based handbooks in the local language. Videos should be made of different designs/technologies and shown to the beneficiaries. Small scale models should also be exhibited. Prototypes could be built in selected localities with easy access within the Block, for demonstration. The beneficiaries should be requested to indicate the assistance they need.
4.7 Issue of sanction letter and release of first instalment
When beneficiaries come for the above meeting, the following procedures may be completed:-
(i) A sanction order shall be issued in favour of each beneficiary in the local language in the format prescribed by the State Department/Agency detailing the terms and conditions especially the payment schedule.
(ii) An entitlement card has to be given to every beneficiary, indicating in local idiom understood by the lay public, all her/his entitlements and obligations. This should indicate the support services available and the outer time limits for different services and how grievances would be redressed.
(iii) The fund transfer orders releasing first instalment to each beneficiary should also be given. The fund should be transferred into the Bank/ Post Office account of each beneficiary. Release of instalments in cash to beneficiaries is not permissible under IAY.
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(iv) For exemption, permission of Empowered Committee may be obtained after providing adequate justification and that too for a limited period of time, subject to the following conditions:-
a) The payment will be made in Gram Sabha meeting in the presence of all members.
b) The total amount sanctioned for construction of the house and the amount of instalment being paid will be announced for information of all members
c) Receipt of payment shall be taken from the beneficiary and kept on record in the Gram Panchayat
d) This will be verified specifically in Social Audit.
The State Government may decide on a particular day to mark the above event which could be observed across the state as Awaas Divas. The beneficiaries of house site component could also be given the land titles on the same day. Holding of such an event would ensure transparency and stimulate community participation in implementation and monitoring.
4.8 Allotment of houses
Allotment of the IAY house shall be jointly in the name of husband and wife except in the case of a widow/unmarried /separated person. The State may also choose to allot it solely in the name of the woman. In the case of beneficiaries selected under the quota for persons with disabilities, the allotment should be only to such persons. The allotment order should be in a form which may be prescribed by the State conferring the title to the house. In the case of house sites, the land identified may be assigned in the name of the eldest woman of the household except in the case of all-male households and pucca title granted as patta and house for the assignee of the land should also be allotted to
that person. There should be a provision for non-alienation for at least 15 years.
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4.9 Construction
The construction should be carried out by the beneficiary himself/herself. No contractor should be involved in the construction of houses under IAY.
If any case of construction through contractors comes to notice, the Ministry of Rural Development will have the right to recover the releases made to the State for those IAY houses. The house should also not be constructed by any Government department/agency. The spirit of IAY requires that the house is not to be constructed and delivered by any external agency. However, Government departments or agencies can give technical assistance or arrange for coordinated supply of material such as cement, steel or bricks or prefabricated components if the beneficiaries so desire.
But construction may be entrusted to reputed agencies in the case of very old beneficiaries above sixty years of age and persons with disabilities who may not be able to stand the strain of supervisory construction and who request for such support in writing.
Also services of reputed NGOs, / Charitable Organisations, Youth clubs of standing, Nation Service Scheme (NSS) Units of Schools and Colleges may be utilized to provide necessary support services to the beneficiaries especially for adopting suitable materials and building technologies, managing construction and in monitoring. States may accredit such agencies based on transparent criteria and fix reasonable service charges to be paid to them from the provisions for administrative expenses.
4.10 Design and construction standards
There should not be any mandatory type design. A menu of options in respect of use of materials and building technologies as appropriate locally, may be provided to the beneficiary along with the cost implications and the choice should be left to the beneficiary.
There should be special effort to promote green housing, which will include improved use of local materials, appropriate building designs and construction techniques. The objective is to reduce the negative environmental impact of housing and improve user comfort. This is through greater reliance on renewable
and locally available material, through reduced use of energy during the life-cycle
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of the house and the use of materials and designs appropriate to local weather patterns.
The layout of the house should also be decided by the beneficiary who may, however, be advised on a good layout as suitable to the locality. For households having persons with disabilities, barrier-free design should be adopted to facilitate smooth and free movement in the house. In areas prone to natural calamities, disaster resilient features should be built in.
It is also desirable that the house should have, in addition to the mandatory components, the following:
(i) Adequate space for pursuing livelihood activities;
(ii) A verandah;
(iii) Stair case to go to the top of the house.
4.11 Technical support
Support in the form of technical and managerial guidance should be provided for construction of IAY house. Foundation laying and lintel level are critical stages for maintaining the quality of the house. Therefore, technical support should be provided at least at these two stages.
4.12 Stages of construction and release of instalments
The number of instalments given to beneficiaries should be fixed at three. The release of instalments should be linked to the level of construction reached.
(i) The first instalment should be given on the Awaas Divas along with the sanction order. It should not be more than 25% of the unit cost.
(ii) The 2ndinstalment should be released on reaching the level lintel. It should not be less than 60% of the unit cost.
(iii) The 3rdinstalment should be given only after the house including the sanitary latrine is constructed and the beneficiary starts living in the house. But floor finish, fixing of shutters to doors and windows, plastering other than what is essential to withstand natural forces, and painting need not be insisted on for receiving the assistance. It should be an amount not more than 15% of the unit cost;
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Release of each instalment should be preceded by site visit by the designated official and verification of the work details of which would be uploaded to the programme website (AwaasSoft) along with photographs in support.
4.13 Timelines for construction
Generally, subject to weather and other factors, the stages of construction should be managed within the following timelines
Stage
Level
Time limit
Stage1
Construction upto lintel level
Nine months from date of
release of first instalment
Stage 2
Completion
Nine months from date of
release of second instalment
4.14 Completion
Completion of a dwelling unit normally should not take more than two years from the date of sanction of first instalment. However, since the beneficiaries are from the PBL category who often find it difficult to mobilize the resources required to complete the house, cases of delay must be monitored and the beneficiaries facilitated to complete the house within a maximum period of three years. On completion of an IAY dwelling unit, the Zilla Parishad concerned should ensure that for each house so constructed, a display board is fixed indicating the IAY logo, year of construction, name of the beneficiary etc. The expenditure on this account can be met from the funds available under the scheme. The cost of each logo should be fixed by the State Government but the central share shall not exceed Rs.100/- from the programme fund.
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