Post on 13-Mar-2020
Government of Jammu & Kashmir
Evaluation Report On
Indira Awas Yojana (IAY) In J & K State
(Sample Districts Ganderbal and Udhampur)
Reference Period (2012-13 to 2014-15)
Directorate of Economics and Statistics, J&K Planning, Development & Monitoring Department
0
500
1000
1500
2000
2500
3000
2012-13 2013-14 2014-15 Total
1415
853
608
2876
1150
250 193
1593
265
603 415
1283
Target Achiement Spill over Cases
Physical achievement profile under IAY in sample district Ganderbal during the reference
period(2012-13 to 2014-15)
Ph
ysic
al Targ
ets
/A
ch
ievem
en
ts (in
No,s
)
Years
0
500
1000
1500
2000
2500
3000
3500
2012-13 2013-14 2014-15 Total
701
1053
1705
3459
626
43
470
1139
75
1010
1235
2320
Target Achevement Spill over Cases
Physical achievement profile under IAY in sample district Udhampur during the reference period (2012-13 to 2014-15)
Years
Ph
ysic
al Targ
ets
/A
ch
ievem
en
ts (in
No,s
)
Contents
Chapter No Description of Chapter Page Nos
Highlights 1-8
I Introduction 9-14
II Physical & Financial Achievements 15-28
III Field Findings 29-50
IV Response of Implementing Department
51-52
V Summary of Main Findings 53-60
VI Suggestions offered 61-62
Annexure A List of Sample Beneficiaries who have not been covered as on
the date of Survey
63
Annexure B List of Sample Beneficiaries who reported that they were forced to pay bribe to officials for getting financial assistance under the scheme received assistance.
64
Annexure C List of Beneficiaries who had constructed Katcha Type of
Houses after receiving financial assistance under Scheme
65
Annexure D Photographs of some Sample
Houses constructed under IAY in Sample Districts of Ganderbal &
Udhampur
66-72
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 1
Highlights of the Study
1) Indira Awas Yojana(IAY), a flagship programme of the Ministry of Rural
Development, was launched primarily to help the construction of
dwelling units for members of SC/STs, freed bonded labourers and also
non- SC/ST rural poor living below the poverty line.
2) The programme is implemented as Centrally Sponsored Scheme on cost
sharing basis between Centre and State. During the reference period of
the study (2012-13 to 2014-15), the Govt. was providing a lump sum
financial assistance of Rs.75,000/- per unit for construction of new
house and Rs.15,000/- for upgradation of dilapidated Kutcha house in
hilly states and difficult areas including J&K.
3) The scheme of IAY has been re-structured into Pradhan Mantri Awaas
Yojana-Gramin (PMAY-G) w.e.f. 1st April, 2016 by the Govt of India with
the commitment to provide “Housing for All” by 2022. As per revised
guidelines, the unit assistance has been enhanced from Rs.75,000 to
Rs.1.30 lakhs in hilly states, difficult areas and Integrated Action Plan
(IAP) districts.
4) Since the scheme revision took place after the reference period of the
study(2012-13 to 2014-15), therefore, the evaluation study verified the
norms prevailing during that period only.
5) The Allocations and Expenditure figures under the Scheme at the State
level during the reference period (2012-13 to 2014-15) reveals that the
programme has remained less focused by the planners and also by the
implementing agencies.
6) Normally, the progressive programmes claim more and more allocations
year after year but here the case is otherwise as the allocations under
the Scheme were slashed down year after year.
7) Starting with the allocation of Rs.8994.10 lacs in the 1st year (2012-13)
of the reference period, the allocation under the Scheme were slashed
down by 6% to Rs.8452.06 lacs in the 2nd year (2013-14). In the 3rd
year of reference period i.e. 2014-15, the allocation was again slashed
down by 16% to Rs.7097.12 lacs.
8) On the expenditure side, the story is not different, as expenditure
percentage fell down year after year. The expenditure was 87% during
2012-13 and the same also got down by 14 percentage points to just 73%
in 2013-14. In the last year of the reference period i.e. 2014-15, the
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 2
expenditure utilization percentage also gone further down to just 66% of
the allocations.
9) The overall allocation for the reference period 2012-13 to 2014-15 was
of the order of Rs.24543.28 lakhs of which the expenditure was of the
magnitude of Rs.18688.10 lakhs, registering an expenditure of 76% for
the State.
10) On the physical front, during the reference period, 41093 IAY houses
were constructed/upgraded against the target of 74238 at the State
level. Thus the achievement on physical front was only 55% against the
financial achievement of 76%. During the first year of reference period
i.e. 2012-13, the physical achievement viz-a-viz targets was 72% which
got down to 49% in the 2nd year and further to just 40% in the 3rd year
of the reference period. This State of affairs shows that the programme
performance is decreasing year after year. The District level
achievements were reflective of the same situation as witnessed at the
State level.
11) At the Sample District level, the situation is no different. The availability
of funds in Sample District Udhampur has declined from Rs.279.80 lacs
in 2012-13 to Rs.57.88 lacs in 2014-15, registering a drop of 79%. In
Sample District Ganderbal, though the allocation has remained almost
constant during the three years of reference period but utilization has
constantly declined with every passing year.
12) The physical performance at Sample District level has also remained
dismal. Achievement of just 43% of the physical targets and mounting
figure of spill over cases over the three years of reference period from
2012-13 to 2014-15 in both the Sample Districts clearly reveal the
unrealistic fixation of targets by the implementing department without
taking into account the available resources, manpower, the capacity to
utilize and other related inputs.
13) There has been dismal physical achievement of cases targeted in both
the sample districts. Ganderbal district has been able to achieve only
55% of cases targeted during the reference period 2012-13 to 2014-15
where as Udhampur District has fallen even below and covered just 33%
cases targeted.
14) It is necessary to ensure linkage between the targets and financial
resources made available for the programme so that the targets are
physically achievable within the resources. This has to be done
realistically by the executing department. Fixation of targets for the
programme and then its dis-aggregation on the basis of geographical
area–District/project, is in fact the starting point for launching a
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 3
particular programme. The un-realistic fixation of targets among other
things, makes it difficult for the monitoring agencies to watch
performances in comparison to the targets and thus could mislead in
identifying shortfalls and problem areas. So fixation of targets for the
programme completely compatible with the resources, manpower and
other inputs, is much desirable in the programme implementation.
15) In order to strike a comparison between the official claims of the
Implementing Department regarding achievements made under IAY and
what actually existed on the ground and also to ascertain the impact
and extent of success of the scheme, a field enquiry was launched in
sample Districts of Ganderbal and Udhampur.
16) In the instant Evaluation Study, a field study was launched in 47
sample panchayats of the two Districts, covering 40 villages as per the
stipulated sample size and procedure. 333 beneficiaries had been
selected for coverage under the scheme in the sample villages of twin
Districts of Udhampur and Ganderbal during the reference period
(2012-13 to 2014-15). However, 322 beneficiaries had actually been
covered and were selected as sample. In addition to this, non-
beneficiaries in the surveyed villages, were also contacted to ascertain
the causes of their non-coverage under the scheme. In the sample
villages, a sizeable number of Knowledgeable persons, was also
contacted to ascertain their views on the successes/failures of the
scheme together with the adherence of norms by the Implementing
Department. The views expressed by all of them about the scheme, are
given in the ensuing paras.
17) Out of 333 beneficiaries claimed covered in Sample villages of two
Sample Districts Ganderbal and Udhampur, 322 beneficiaries had
actually been covered under the scheme by the implementing
department. 11 beneficiaries in sample villages of Udhampur District
had not been disbursed any amount of assistance under the scheme as
on the date of survey. During the field verification, all the 322 selected
Sample beneficiaries who had been actually covered were located and
contacted in the field. The response percentage achieved thus is 100%.
18) During the field verification, it was found that 310 (96%) sample
beneficiaries had constructed the huts/houses fully with roof. While as
the construction of houses was still incomplete in respect of 12 (4%)
Sample beneficiaries.
19) The reasons responsible reported for incompletion of houses by most of
sample beneficiaries 4(34%) was the non-release/delayed release of
amount of assistance by the Implementing Department. It is in place to
mention here that the department implementing the scheme had not
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 4
been able to cover even a single beneficiary in the sample District
Udhampur during 2014-15. 5(42%) reported that non-availability of
material/workers was the reason for incompletion of their houses.
1(8%) reported that the assistance proved inadequate to complete the
construction of his house. 2(17%) had migrated to other places as such
leaving the construction incomplete.
20) The guidelines that funds under the scheme should be transferred to
beneficiaries accounts and not in cash, has been followed fully as no
sample beneficiary reported to have been paid in cash. All the 322(100%)
sample beneficiaries who were provided financial assistance under the
scheme, reported that they were given cheques which they deposited in
the bank and the money was credited into their account.
21) Had the selection and sanctioning process under the scheme been fair,
an enquiry from the Sample beneficiaries was conducted. Majority of
the Sample beneficiaries 313(97%) reported that the selection and
sanctioning process under the scheme was fair. However, 3%(9) sample
beneficiaries from Ganderbal District reported that it was not fair as they
were forced to pay bribe to officials for getting financial assistance under
the scheme.
22) The field enquiry revealed that due coverage has been given to the
targeted group of population by the implementing department while
selecting beneficiaries for coverage under the scheme. Out of total of
322 sample beneficiaries, 156(49%) have been selected from SC/ST
category. 107(33%) from OBC category and 59(18%) from others falling
Below Poverty Line.
23) During the field enquiry, all the Sample beneficiaries 322 (100%) were
found belonging to Below Poverty Line (BPL) and were on the rolls of BPL
lists maintained by the Department. The guideline in this regard has
been fully followed.
24) Regarding sanitary situation and availability position of other necessary
facilities to the houses constructed under IAY by Sample beneficiaries,
it was observed that majority of the houses constructed by the Sample
beneficiaries under IAY scheme do not have a latrine facility. Only
52(17%) of sample beneficiaries had constructed sanitary latrines.
Smokeless chullas have not been installed by almost all. As regards other
facilities, 88% reported to have been provided electricity and 71%
reported providing of water supply. When enquired as to why they have
not constructed sanitary latrine/Soakage pit, the Sample beneficiaries
reported that they had not enough money to construct soakage pit. The
absence of drainage system in their areas was the other reason reported
for non construction of sanitary latrines by the sample beneficiaries.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 5
25) The facilities like toilet, smokeless chullas, electricity, water supply,
connectivity etc. as per the guidelines of the scheme were to be provided
to the IAY beneficiaries by the State by putting in place a robust system
of support services. Convergence of other State/Central Programmes for
providing these facilities was the responsibility of the State Govt. as per
the guidelines of the Scheme. The Implementing Department of the
Scheme, however, has taken this part of the guidelines casually and, as
such, not put in place a support services system as envisaged under the
Scheme.
26) As per guidelines governing the scheme, 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. In contravention to these
scheme guidelines, majority of the sample beneficiaries 203(65%) have
constructed semi-pucca type of houses and most astonishingly 15(5%)
have constructed katcha type of houses. Construction of katcha type of
house after availing assistance under IAY is a brazen violation of the
guidelines. How come the field functionaries of department implementing
the scheme allowed such violations is a matter of concern. It reveals lack
of monitoring/supervision over the scheme by the department concerned.
27) The guideline that houses under IAY should have a built-up area of at
least 20 square meters, was observed to have been followed by the
majority of the Sample beneficiaries. 92% of the sample beneficiaries
have constructed the houses which had a built-up area of 20 square
meters or more. Only 24 (8%) Sample beneficiaries had the houses which
have a built-up area of less than 20 square meters. Dereliction of
guidelines/directions by the Sample beneficiaries, demands strict
supervision of the scheme.
28) On completion of an IAY dwelling unit, the scheme guidelines
prescribes that a display board/nameplate indicating the IAY logo, year
of construction, name of beneficiary etc. should be fixed on each
house. This guideline too was observed not to have been followed as
display board on only 8(3%) completed houses were found fixed by the
evaluation teams during the course of field verification. Majority of
houses 302(97%) constructed under IAY in the Sample Districts had no
display boards fixed on them. Why display boards were not fixed on the
completed houses by the Implementing Department if the funds were
available for this, demands to be looked into.
29) Technical guidance was reported to have been provided by 218(67%)
sample beneficiaries. Details on the housing designs and construction
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 6
technologies available and their costs for labour and materials were
reported to have been provided by these Sample beneficiaries.
30) Supervision over the construction of house by the officers/officials of
the Implementing Department, was reported by 322(100%) sample
beneficiaries. Scheme guidelines prescribes that supervision at
Foundation laying and lintel should be conducted at least at these two
stages. The feedback from sample beneficiaries reveal that supervision
at these two stages was not cent percent. Lack of supervision by the
field functionaries of the Implementing Department has resulted in
incomplete construction of houses by a sizable portion of the Sample
beneficiaries. In order to ensure that all the assisted beneficiaries
construct the houses, supervision over the construction of houses
should be intensified.
31) The Satisfaction level of the Sample beneficiaries with regard to
different parameters of the scheme was elicited. Almost all the Sample
beneficiaries(99%) were not satisfied with the amount of assistance.
Amount of assistance of Rs.75000/- as per their viewpoint is too low and
difficult to manage. Keeping the market rates of construction material and
labour in view, all the beneficiaries pleaded for enhancement in the
financial assistance. The sample beneficiaries, however, expressed
satisfaction with regard to other parameters of the scheme like mode of
payment, timely payment, selection procedure and technical guidance.
32) All the Sample beneficiaries reported that even after putting-in their
own saving and other resources in addition to amount of assistance
provided under the scheme, they are not able to manage the
construction of house as envisaged under the scheme. They therefore
pleaded that the amount of assistance should be enhanced to somewhere
around Rs.1.50 lakhs. Keeping the market rates of construction
material/labour in view, the beneficiaries demand on this account is
justified and therefore requires consideration by the Govt.
Enhancement in the amount of assistance will enable the beneficiaries
to construct the house as per the stipulations of the scheme without
making too many compromises.
33) After constructing the house under the scheme, majority (77% ) of the
Sample beneficiaries reported feeling comfortable now in their new
houses. They were fully satisfied and were reportedly feeling socially
secure. Only a small portion (4%) of the sample beneficiaries reported,
were feeling still uncomfortable due to multiple reasons like insufficient
space, lack of inner furnishing, non-availability of other facilities like
latrine/water/electricity etc.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 7
34) In order to gather impression about the scheme from those who, though
belonging to targeted group i.e. SC/ST/BPL category but were not
covered under the scheme, a field enquiry in the Sample villages as per
stipulations of the study design was conducted and non-beneficiaries
were also covered.
35) The response of the non-beneficiaries reveals that majority (84%) of
them had BPL ration card and were eligible for coverage under the
Scheme. Almost all (97%) were desirous to get covered under the scheme.
285 (85%) out of them have already applied for coverage under the
Scheme but had not been covered till date.
36) Inefficiency of the Implementing Department to provide coverage under
the Scheme to the eligible , desirous and applying non-beneficiaries, was
quoted as reason by majority (64%) of the non-beneficiaries. Where as
36% reported that they lack influence/approach to get covered under the
scheme.
37) The non-beneficiaries had a very good impression about the Scheme and
100% of them regarded the Scheme beneficial and almost all of them
(97%) were willing to get covered under the scheme. Keeping the high
hopes of the non-beneficiaries in view, the Department implementing the
Scheme should gear-up its machinery and cover all of them in a planned
manner.
38) A good number of knowledgeable persons (200) from the Sample villages
was selected for eliciting their opinion about the scheme. 100% of the
KP’s considered the scheme beneficial and voted for its continuance.
They furthermore confirmed the fact that only eligible persons were
getting benefit under the scheme in their villages. However, some of
them were not satisfied with amount of assistance provided under the
scheme. They reported that it is not enough and therefore suggested
for its enhancement. Enhancement in the amount assistance is a
demand put forth by all the stakeholders viz; beneficiaries, non-
beneficiaries and knowledgeable persons and therefore needs to be
considered by the Government.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 8
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 9
Chapter - I
Introduction
The survival of the human being largely depends on fulfillment of
basic needs. So far as the basic necessities of a person are concerned, he
needs food, clothes and shelter to live in. Housing is one of the basic
requirements for survival as well as for a decent life. For a normal citizen,
owning a house provides significant socio-economic security and social
status in society. For a shelter less person, a house brings about a profound
social change in his existence endowing him with an identity, thus
integrating him with his immediate social milieu. In India, a substantial
proportion of the households either do not own house or have inadequate
housing. As the population of the country is increasing rapidly, the number
of houseless families is increasing at an alarming rate.
Public Housing Programmme in the country started with the
rehabilitation of refugees immediately after independence. In 1957, as a part
of the community development movement (CDM) a village housing
programme was introduce providing loans to individuals and cooperatives
up to Rs. 5000 per unit. Another scheme introduced in the 4th plan called
home sites – cum construction assistance scheme (HSCHS) was also
transferred to the State sector from 1974-75. The Indira Awas 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
the National Rural Employment Programmes (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. It was in June 1985
that Indira Awas Yojana was launched as a sub scheme of RLEGP by
earmarking a part of the fund for SCs/STs and freed bounded labourers.
With effect from January 1996 this scheme was made an independent
scheme and is now a flagship programme of the ministry of Rural
Development as part of the large strategy of rural poverty eradication.
The constitution of India places rural housing in the domain of State
Governments and the Panchayati Raj Institutions. Central Govt. 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 marginalized. The house is recognized not merely as a
shelter and a dwelling place but also an asset which supports livelihood,
symbolizes social position and is also a cultural expression. A good home
would be in harmony with the natural environment protecting the
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 10
household from extreme weather conditions, has the required connectivity
for mobility and facilities for economic activity.
The main objective of the scheme is to provide a financial aid to the
members of scheduled castes/scheduled tribes, freed bonded labourers and
also to other non scheduled castes/scheduled tribes rural poor below the
poverty line for the construction of their dwelling units by providing them a
lump sum amount as financial assistance.
The IAY scheme is being implemented in all the Districts of Jammu &
Kashmir State through Rural Development Department, J&K on 75:25 cost
sharing basis between centre and State respectively since January, 1996.
During the reference period of the study (2012-13 to 2014-15), the Govt.
was providing a lump sum financial assistance of Rs.75,000/- per unit for
construction of new house and Rs.15,000/- for upgradation of dilapidated
Kutcha house.
However, the scheme of IAY has been re-structured into Pradhan
Mantri Awaas Yojana Gramin (PMAY-G) w.e.f. 1st April, 2016 by the Govt of
India with the commitment to provide “Housing for All” by 2022. As per
revised guidelines, the unit assistance has been enhanced from Rs.70,000 to
Rs.1.20 lakh in plains and from Rs.75,000 to Rs.1.30 lakhs in hilly states,
difficult areas and IAP districts. The cost of unit (house) assistance is to be
shared between central and state governments in the ratio 60:40 in plain
areas and 90:10 for north-eastern and hilly states.
Since the scheme revision took place after the reference period of the
study(2012-13 to 2014-15), therefore, the evaluation study verified the
norms prevailing that period only.
Salient features of the scheme
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 Sabah’s 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.
Components of the scheme:- IAY has the following components:
a) Assistance for construction of a new house:
Assistance for construction of a new house is provided to BPL families
under the scheme. A new house would mean a house constructed with a
minimum built up area of at least 20 sq. mts. excluding the toilet.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 11
b) Upgradation of kutcha or dilapidated houses:
Assistance for upgradation of Kutcha house is also provided to BPL
families under the Scheme. 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 pa cked stones, etc which are not durable due to
inappropriate application of techniques and are not able to withstand
normal wear and tear. A dilapidated house means a pucca house rendered
unserviceable through wear and tear or damaged by any other cause.
c) Provision of house sites:
House sites are also provided under the scheme for the landless poor
who have no land to build a house on. Assistance as per Schedule would be
provided for the purpose of providing house sites. For the house sites
component, the District Collector identifies public lands available in the
habitations and allot them to the eligible landless.
Need for Evaluation
In order to assess the effectiveness of the scheme, the Stale Level
Evaluation Committee (SLEC) in its 6th meeting held at Jammu on 24th of
February 2015, decided to conduct evaluation study on Indira Awas Yojana
(IAY) at the State level through the Directorate of Economics and Statistics
during the year 2015-16. The study, was accordingly, accomplished with the
following terms of reference(TOR):-
Objectives of the Study:-
The objectives of the study were:-
1) To assess the extent to which the objectives of the scheme have been
achieved;
2) To assess whether the identification of beneficiaries was proper and in
accordance with the guidelines of the scheme;
3) To ascertain whether the funds earmarked under the scheme were
utilized for the specific purpose;
4) To assess the extent to which the administrative, technical and
financial discipline was followed in the implementation of the scheme;
5) To assess the impact of the scheme on the quality of life of the
beneficiaries;
6) To see whether the houses under the scheme were actually
constructed on the ground;
7) To ascertain problems/bottlenecks being faced in the implementation
of the scheme, reasons thereof and measures to address them
successfully.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 12
Reference Period:
The reference period of the study was 2012-13 to 2014-15.
Sample Size & Selection Procedure:
Multistage sampling procedure was followed in the selection of
Sample. At the 1st stage, one District from each division of the State was
selected as Sample following simple random selection procedure. The
Districts selected as Sample following simple random selection procedure.
The Districts selected as Sample thus were Ganderbal from Kashmir division
and Udhampur from Jammu division. At the 2nd stage, two blocks one with
maximum financial coverage and another with minimum financial coverage
was selected. At the 3rd stage, 20% villages of each Sample block subject to
a minimum of 10 villages were selected on random basis for detailed field
enquiry. In the selected Sample village, all the IAY beneficiaries were
covered. Besides this, 10 eligible non-beneficiaries (subject to availability)
from each Sample village were also questioned with regard to
their non-coverage under the scheme. This apart, 5 knowledgeable
persons of each Sample selected village were interviewed so as to have their
opinion about worthiness of the implementation of the scheme in their
village. On the basis of above laid down sampling procedure, District
Ganderbal from Kashmir division and District Udhampur from Jammu
division deserved selection as Sample Districts for detailed field enquiry and
were, accordingly selected.
Field Operations:
The collection of information from the selected Districts as per devised
formats was done by concerned District Statistics and Evaluation Officer
(DSEO). On the basis of collected information Sample was drawn as per the
stipulated sampling procedure. The field operations were conducted by the
DSEO Offices and for that purpose, the Statistical Staff placed in the Block
Development Offices of the District remained at their disposal.
Supervision:
The Regional Joint Directors in their respective Districts carried-out
intensive supervision of the field operations. They were required to prepare
observatory/ supervisory notes on the functioning of the scheme in the
Sample area which subsequently were received by the Directorate of
Economics and Statistics and were used as an authentic source of
information for drafting the final report on the study.
Scrutiny and Tabulation:
Scrutiny of schedules was done by a committee of experts constituted
by DSEO of concerned District under the supervision of Assistant Director.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 13
In case discrepancies were noticed, rectifications were done and if necessary
reference back to the field was also done to ensure that the data contained
in the schedules is free from any errors whatsoever. The data was then
displayed on master sheets and condensed as per the requirements of
tabulation plan which was devised by the Directorate of Economics and
Statistics and provided in advance to the concerned DSEO offices.
Report Writing:
The report on the Study was authored at the Directorate level keeping
intact the Sample block/District level information.
Analytical Tools:
All appropriate Statistical and Mathematical tools and techniques
were applied in analyzing data in order to make phenomenon easy to
understand and to enhance the presentation of the report. These included
percentages, averages, ratios, bar charts, pie-diagrams, trend curves etc.
Instruments of Investigation:
For obtaining official data from the implementing Department, seven
formats were devised. For conducting field operations, three different
schedules; Beneficiary Schedule, Non-beneficiary Schedule and
Knowledgeable Person Schedule were devised. All formats and schedules are
annexed with the final report for facilitating future studied on the same and
similar subjects and for other uses by different stakeholders.
Limitations:
The guidelines of the scheme provide that allocation of funds 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. To examine whether the
funds allocated to the Districts was as per the guidelines of the scheme,
information on BPL houseless people in respect of all Districts was
requested from the Directors of Rural Development Department Jammu/
Kashmir. However, despite rigorous follow-up in the form of chain of
reminders the requisite information was not furnished by both of them. A
considerable time was lost for getting this piece of information. Evaluation,
as everyone knows, is a time-bound job and cannot afford wastage of
precious time. Completion of evaluation study beyond its scheduled time
defeats the very purpose for which this whole exercise is carried out.
Therefore, in the absence of information on District wise houseless people,
funds allocation to Districts could not be analyzed whether they were as per
guidelines of the scheme or not.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 14
Secondly, the figures on financial/physical targets/achievements for
the reference years 2012-13 to 2014-15 furnished by the District Rural
Development Agencies of the two Sample Districts viz; Ganderbal and
Udhampur did not match with the figures on financial/physical
achievements furnished by Director Rural Development Department
Kashmir/Jammu in respect of these two Sample Districts. This reveals the
lack of coordination between the divisional level and District level
implementing authorities. The matter regarding this was taken up the
concerned District Rural Development Agencies but no worthwhile reply was
furnished by them. In order avoid contradiction between the State level and
District level figures, it was felt worthwhile to adopt the figures of only one
agency viz. Director Rural Development Department, Jammu/Kashmir for
analysis. However, while comparing the physical achievements of Sample
Districts viz. Ganderbal and Udhampur as reported concerned Directors of
Rural Development Department and Rural Development Agencies, it was
observed that the physical achievements were reported exaggerated by
concerned Directors of Rural Development. Since the Sample of beneficiaries
was to be drawn from the actual physical achievements, therefore the
physical achievements reported by concerned District Rural Development
Agencies were taken into consideration for analysis at Sample District level.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 15
Chapter – II
State Profile of IAY Scheme:
Indira Awas 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. It was in June
1985 that Indira Awas Yojana was launched as a sub–scheme of RLEGP by
earmarking a part of the fund for construction of houses for SC/STs and
freed bonded laborers. The scheme was made independent with effect from
1st January, 1996. It is now a flagship programme of the Ministry of Rural
Development as a part of the larger strategy of rural poverty eradication, in
order to reduce the rigorous of poverty and to provide the dignity of an
address to the poor households to enable them, among other things, to
access different rural development programmes.
The objective of Indira Awas Yojana (IAY) is primarily to help
construction of dwelling units for members of SC/STs, freed bonded
laborers and also non- SC/ST rural poor below the poverty line.
The evaluation process is the input and output analysis of the
scheme and naturally before analyzing the outputs in terms of realization of
objectives, the assessment of inputs of the scheme has to be made. The
basic input of IAY scheme is the financial allocations earmarked for it and,
of course, the efforts of the implementing Department and the co-operation
of all other stakeholders. The instant evaluation study is the State level
study and thus before analyzing the ground level situation of the scheme
implementation in the Sample Districts, the State profile of the work done
needs to be reflected. The scheme is implemented in all the Districts of the
State. As per the scheme guidelines, the allocations to the Districts are to be
made on the basis of houseless people from among the BPL population for
each category i.e., SC, ST, minorities and others on the basis of socio-
economic caste census (SECC). In J&K State the District level allocations
and expenditure in respect of IAY scheme for the reference period 2012-13
to 2014-15 is reflected is the following table.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 16
Table: 1
District wise Allocations and Expenditure during Reference Period.
S.
no
District
Financial Achievements under IAY Scheme (Rs.in lacs)
2012-13 2013-14 2014-15 Total Alloca-
tion
%age
Exp
%
age Allocation Exp. Allocation Exp Allocation Exp Allocation Exp.
1 2 3 4 5 6 7 8 9 10 11 12
1 Anantnag 1275.82 1120.69 1270.89 779.44 777.90 636.86 3324.61 2536.99 13.55 76
2 Bandipora 84.04 83.86 184.13 136.95 70.56 56.35 338.73 277.16 1.38 82
3 Baramulla 1729.73 1343.35 1133.01 556.83 1084.40 295.40 3947.14 2195.58 16.09 56
4 Budgam 725.99 633.00 618.32 408.25 561.38 379.92 1905.69 1421.17 7.77 75
5 Ganderbal 326.17 321.47 320.46 219.43 319.63 124.38 966.26 665.28 3.94 69
6 Kargil 148.28 145.49 323.91 168.31 205.79 137.58 677.98 451.38 2.77 67
7 Kulgam 499.80 470.82 204.67 198.86 266.70 88.81 971.17 758.49 3.96 78
8 Kupwara 904.56 809.70 580.31 450.45 998.08 691.37 2482.95 1951.52 10.11 79
9 Leh 153.66 152.63 219.73 192.49 141.50 73.79 514.89 418.91 2.09 81
10 Pulwama 581.55 437.23 582.81 466.99 442.89 242.11 1607.25 1146.33 6.55 71
11 Shopian 234.00 186.12 300.78 239.64 414.71 193.29 949.49 619.05 3.86 65
12 Srinagar 14.97 12.33 18.70 15.00 15.05 11.30 48.72 38.63 0.19 79
Total 6678.57 5716.69 5757.72 3832.64 5298.59 2931.16 17734.88 12480.49 72.26 70
%age Kashmir - 86% - 67% - 55% - 70% - -
Table continued …..
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 17
S.
no
District
Financial Achievements under IAY Scheme (Rs.in lacs)
2012-13 2013-14 2014-15 Total Alloca
- tion
%age
Exp%
age Allocation Exp. Allocation Exp Allocation Exp Allocation Exp.
1 2 3 4 5 6 7 8 9 10 11 12
1 Jammu 799.06 622.28 638.97 700.99 526.06 393.12 1964.09 1716.39 8.00 87
2 Samba 123.30 114.88 130.76 102.68 20.78 34.15 274.84 251.71 1.12 92
3 Udhampur 274.89 269.28 362.70 350.31 41.24 38.12 678.83 657.71 2.77 97
4 Kathua 373.56 351.98 292.03 260.92 377.35 154.23 1042.94 767.13 4.24 74
5 Reasi 76.96 82.94 189.32 190.84 114.46 282.07 380.74 555.85 1.56 146
6 Doda 81.06 86.06 135.45 137.71 138.10 91.75 354.61 315.52 1.45 89
7 Kishtwar 85.94 88.96 182.45 182.45 113.65 243.58 382.04 514.99 1.56 134
8 Poonch 214.73 213.37 290.16 208.35 251.18 87.27 756.07 508.99 3.08 67
9 Rajouri 193.63 195.49 349.67 47.22 47.78 284.76 591.08 527.47 2.40 89
10 Ramban 92.40 94.80 122.83 126.18 167.93 170.87 383.16 391.85 1.56 102
Total Jammu
division 2315.53 2120.04 2694.34 2307.65 1798.53 1779.92 6808.40 6207.61 27.74 91
% Jammu
Division - 92% - 86% - 99% - 91% - -
Grand total
(J&K State) 8994.10 7836.73 8452.06 6140.29 7097.12 4711.08 24543.28
18688.1
0 - 76
%age Exp - 87% - 73% - 66% - 76% - -
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 18
Housing is a fundamental human need; it is a basic requirement for
human survival as well as for a decent life. To have a comfortable home is
the fulfillment of a deep and long cherished wish. It is a major factor in
moulding the life and behavior of individuals and contributes significantly to
formation of character for over all development of the family. The importance
which the governments give to this all important programme could very well
be judged from the financial resources which are made available for this
programme in the annual plans.
During the first year of the reference period i.e., 2012-13, an amount
of Rs.8994.10 lakhs were allocated for 22 Districts of the State out of which
an amount of Rs.7836.73 lakhs was utilized registering an expenditure of
87%. During the next year 2013-14, the allocation was of the order of
Rs.8452.06 lakhs and expenditure booked was Rs.6140.29 lakhs at
utilization %age of just 73. Thus the allocation during 2013-14 was less by
Rs.542.04 lakhs as compared to the previous year.
Normally the progressive programmes claim more and more allocations
year after year but here the case is otherwise as the allocations were slashed
down by more than 6%. Again the expenditure was 87% during 2012-13 and
the same also got down by 14 percentage points to just 73%. In the last year
of the reference period i.e. 2014-15, the allocation fixed was Rs.7097.12
lakhs and the expenditure was only of the magnitude of Rs.4711.08 lakhs
giving an expenditure of just 66%. Here again the allocation were slashed
down by 16% as compared to the year 2013-14 and by 21% when compared
to the allocation figures of 2012-13. The utilization during the year has also
gone further down to just 66% of the allocations. Thus from these allocations
and expenditure figures it transpires that the programme has remained less
focused by the planners and also by the implementing agencies. The overall
allocation for the reference period 2012-13 to 2014-15 was of the order of
Rs.24543.28 lakhs of which the expenditure was of the magnitude of
Rs.18688.10 lakhs registering an expenditure of 76% for the State.
Among the Districts, the lowest utilization of allocated financial
resources was reported from District Baramulla to the extent of 56%
followed by District Shopian and Kargil attaining utilization percentage of 65
and 67 respectively. The highest utilization of allocation was reported from
District Reasi to the extent of 146% followed by District Kishtwar and
Ramban utilizing 134% and 102% allocations respectively. In other words
these Districts, all from Jammu division have created liabilities on account of
IAY programme. This scenario need explanation by the implementing
Department as to how these District implementing offices were allowed to go
beyond the allocated financial resources.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 19
0.00%
2.00%
4.00%
6.00%
8.00%
10.00%
12.00%
14.00%
16.00%
18.00%
16.09%
13.55%
10.11%
8. 00% 7.77%
6.55%
4.24%
3.96% 3.94% 3.86%
3.08% 2.77%
2.77%
2.40% 2.09%
1.56% 1.56% 1.56% 1.45% 1.38% 1.12%
0.19%
Ranking of districts as per Percentage Allocation of Funds under IAY Scheme in J&K State
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 20
The guidelines of the scheme provide that allocation of funds 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. However, in the absence
of information on houseless BPL people living in various Districts of the
State, the allocation of funds to them could not therefore be examined by
this Evaluation Agency for being as per guidelines or not.
However, during the reference period from 2012-13 to 2014-15
District Baramulla was allocated the maximum funds to the extent of
16.09% followed by Anantnag of the magnitude of 13.55% and Kupwara
claiming 10.11% funds. The minimum allocation was provided to Srinagar
followed by Samba and Bandipora to the extent of 0.19%, 1.12% and 1.38%
respectively of the total allocations at the State level. The two Sample
Districts of Ganderbal and Udhampur have claimed 3.94% and 2.77% of the
total allocations respectively. So far as Regional allocation is concerned, the
Kashmir division including Leh and Kargil was allocated 72.26% funds and
Jammu division to the extent of 27.74% of the total allocations for the State.
Physical Achievements:-
The ultimate end result of IAY scheme is to provide a dwelling unit to
the houseless. The construction is required to be carried-out by the
beneficiary himself/herself. No contractor is allowed to be involved in the
construction of houses under IAY. No type design is mandatory. However, 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 but the choice is left to the beneficiary. The department
implementing the scheme is required to provide technical and managerial
guidance, particularly at foundation laying and lintel level to maintain the
quality of the house. The release of installments is linked to the level of
construction reached. The physical achievements as claimed by the Rural
Development Department are reflected hereunder:- .
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 21
Table No-2
Physical Achievements under IAY Scheme during the Reference Period
S.
no District
Year-wise number of Beneficiaries covered under IAY Scheme
%age Ach 2012-13 2013-14 2014-15 Total
Target Ach* Target Ach* Target Ach* Target Ach*
(1) (2) (3) (4) (5) (6) (7) (8) (9) (10) (11)
1 Anantnag 2929 2698 3481 2239 4016 1234 10426 6171 59%
2 Bandipora 508 205 643 262 803 80 1954 547 28%
3 Baramulla 5813 3470 3142 1823 1344 544 10299 5837 57%
4 Budgam 1448 1447 2209 1282 1323 424 4980 3153 63%
5 Ganderbal 1409 1212 816 790 1134 525 3359 2527 75%
6 Kargil 930 930 479 262 479 317 1888 1509 80%
7 Kulgam 1583 1156 711 368 592 247 2886 1771 61%
8 Kupwara 4584 2652 3109 1336 2924 828 10617 4816 45%
9 Leh 566 330 485 295 531 218 1582 843 53%
10 Pulwama 1550 804 1914 1914 1387 267 4851 2985 62%
11 Shopian 760 377 1073 450 748 511 2581 1338 52%
12 Srinagar 33 33 31 31 31 9 95 73 77%
Total Kashmir div 22113 15314 18093 11052 15312 5204 55518 31570 57%
%age Kashmir - 69% - 61% - 34% - 57% -
Table continued …..
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 22
S. no
District
2012-13 2013-14 2014-15 Total % age
Ach. Target Ach* Target Ach* Target Ach* Target Ach*
1 2 3 4 5 6 7 8 9 10 12
1 Jammu 1768 1122 1834 886 1355 338 4978 2346 47%
2 Samba 263 273 376 34 295 1 870 308 35%
3 Udampur 603 626 1099 43 797 470 2402 1139 47%
4 Kathua 828 886 845 224 635 208 2090 1318 63%
5 Reasi 270 57 600 228 321 514 1203 799 66%
6 Doda 267 197 617 194 389 256 1221 647 53%
7 Kishtiwar 209 229 592 0 334 555 1087 784 72%
8 Poonch 497 523 909 104 434 506 1886 1133 60%
9 Rajouri 714 445 1254 145 709 55 2215 645 29%
10 Ramban 198 194 372 12 198 198 768 404 53%
Total Jammu div. 5617 4552 8498 1870 5467 3101 18720 9523 51%
% Jammu Division - 81% - 22% - 57% - 51% -
Grand total 27730 19866 26591 12922 20779 8305 74238 41093 55%
% age - 72% - 49% - 40% - 55% -
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 23
As could be seen from the above depicted tabulated information that
during the reference period, 41093 IAY houses were constructed/upgraded
against the target of 74238 at the State level. Thus the achievement on
physical front was only 55% against the financial achievement of 76%.
During the first year of reference period i.e. 2012-13 the physical
achievement viz-a-viz targets was 72% which got down to 49% in the 2nd
year and further to just 40% in the 3rd year of the reference period. This
State of affairs shows that the programme performance is decreasing
year after year. The District level achievements were reflective of the
same situation as witnessed at the State level. District Kargil has
managed construction/upgradation of 1509 houses against the target of
1888 registering 80% achievement, the highest in the State followed by
District Srinagar, Ganderbal and Kishtwar at 77%, 75% and 72%
respectively. The Districts at the lowest ebb in terms of physical
achievements were Bandipora, Rajouri and Samba attaining 28%, 29% and
35% level respectively. It could be seen from the tabulated information that
Districts with low targets have shown better percentage of the physical
achievements and those with higher targets have achieved low percentage.
Thus the achievements in absolute terms were low.
The Directorate of Rural Development Department Kashmir/Jammu
were approached by this Evaluation Agency and asked to provide reasons for
low financial and physical achievements viz-a-viz targets so as to justify the
same. In response the Director Rural Development Department Kashmir
reported that the late release of 2nd installment of Central share besides
non-availability of M.T in respective treasuries of Baramulla, Ganderbal,
Kargil, Shopian and Pulwama Districts was the reason for low expenditure
in these Districts. No response, however, was furnished by the Director
Rural Development Department, Jammu on this account despite repeated
reminders.
Financial/physical progress of IAY Scheme at the Sample District level:
The analysis of progress made under the Scheme at the Sample
District level both on financial and physical side is equally important before
commensuration of the same with feedback from the field in the ensuing
chapter. The achievements made under the scheme during the reference
period (2012-13 to 2014-15) in the Sample Districts of Ganderbal and
Udhampur are reproduced hereunder for analysis.
Financial allocations and achievements reported there against by the
District Rural Development Agencies of Udhampur and Ganderbal Districts
is given in table hereunder.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 24
Table No- 3
Financial allocations and expenditure under IAY in Sample Districts of
Ganderbal and Udhampur during the reference period (2012-13 to
2014-15)
S.
no
District Year-wise financial allocations and expenditures under IAY (Rs. in lacs)
2012-13 2013-14 2014-15 Total
Tota
l
Avail
abil
ity
Exp
Tota
l
Avail
abil
ity
Exp
Tota
l
Avail
abil
ity
Exp
Tota
l
Avail
abil
ity
Exp
(1) (2) (3) (4) (5) (6) (7) (8) (9) (10)
1.
Gan
derb
al
326.1
7
321.4
7
320.4
6
219.4
3
319.6
3
124.3
8
966.2
6
665.2
8
2.
Udh
am
pu
r
274.8
9
269.2
8
362.7
0
350.3
1
41.2
4
38.1
2
678.8
3
657.7
1
Total
601.0
6
590.7
5
683.1
6
569.7
4
360.8
7
162.5
0
1645.0
9
1322.9
9
%age Exp
98%
83.3
%
45%
80.4
2%
Perusal of utilization profile of funds given in the table above clearly
reveal that implementation of the scheme has been very poor in both the
Sample Districts. Though the availability of funds in Ganderbal District has
almost remained constant during the three years of reference period but
utilization has constantly gone down with every passing year. Declining
trend of utilization of funds from Rs.321.47 lacs in 2012-13 to Rs.124.38
lacs in 2014-15 is aptly depicted by the graph given below at “A”. Under
utilization of available funds is highly unfortunate because there are
thousands of houseless BPL families in the Sample District who are eagerly
waiting for coverage under the scheme. Under utilization of available
funds/non realization of targets set every year is big cause of concern for the
successful implementation of the Scheme and therefore needs to be looked
into by the Department concerned for redressal. The Department concerned
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 25
should gear up its machinery and fine tune the implementation mechanism of
the scheme so as to improve the utilization capacity of its District Level
Executing Agencies.
Graph “A”
As regards Udhampur District, the situation is not much different.
The availability of funds in the District has declined from Rs.279.79 lacs in
2012-13 to Rs.41.24 lacs in 2014-15 registering a drop of 85%. Slashing
down of allocations by such a huge margin means that the implementation of
the scheme is neither progressive nor steadfast. If the implementing
department could not increase fund availability under the scheme over the
years but at the same time it should not decrease it so much that even half
number of houseless families could be covered. Realistic earmarking of funds
every year with realistic fixation of physical targets is sine-quo-non for
successful implementation of the scheme. Graph given below at “B” clearly
depicts the drastic drop in funds availability over the years in Udhampur
District.
Graph “ B”
326.17 320.46
319.63
321.47 219.43
124.38
0
50
100
150
200
250
300
350
2012-13 2013-14 2014-15
Availability Expenditure
Availability and Utilization Profile of Funds under IAY in Sample District
Gandebal during the Reference Period (2012-13 to 2014-15)
Rupees in
Lacs
274.89
362.70
41.24
269.28
350.31
38.12 0
50
100
150
200
250
300
350
400
2012-13 2013-14 2014-15
Availability Expenditure
Availability and Utilization Profile of Funds under IAY in Sample
District Udhampur during the Reference Period (2012-13 to 2014-15)
Ru
pee
s in
Lac
s
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 26
On the physical side, the achievements made against targets set in the
Sample Districts during the reference period (2012-13 to 2014-15) as
reported by the respective District Implementing Agencies is reflected in the
table given below:-
Table No-4
Yearwise Physical Targets and Achievements under IAY in Sample
Districts during the Reference Period (2012-13 to 2014-15)
S.
no
District
Year-wise Physical Targets and Achievements under IAY in Sample
Districts(No’s)
2012-13 2013-14 2014-15 Total
Targ
et
Ach
Spil
l over
Cases
Targ
et
Ach
Spil
l over
Cases
Targ
et
Ach
Spil
l over
Cases
Targ
et
Ach
Spil
l over
Cases
(1) (2) (3) (4) (5) (6) (7) (8) (9) (10) (11) (12) (13) (14)
1.
Gan
derb
al
1415
1150
265
853
250
603
608
193
415
2876
1593
1283
2.
Udh
am
pu
r
701
626
75
1053
43
1010
1705
470
1235
3459
1139
2320
Total
2116
1776
340
1906
293
1613
2313
663
1650
6335
2732
3603
%age Ach
84%
15%
29%
43%
Achievement of just 43% of the physical targets and mounting figure of
spill over cases over the three years of reference period from 2012-13 to 2014-
15 in both the Sample Districts clearly reveal the unrealistic fixation of targets
by the implementing department without taking into account the available
resources, manpower, the capacity to utilize and other related inputs. There
has been dismal physical achievement of cases targeted in both the Sample
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 27
Districts. Ganderbal District has been able to achieve only 55% of cases
targeted during the reference period 2012-13 to 2014-15 whileas Udhampur
District has fallen even below and covered just 33% cases targeted. It is
necessary to ensure linkage between the targets and financial resources
made available for the programme so that the targets are physically
achievable within the resources. This has to be done realistically by the
executing department. Fixation of targets for the programme and then its
dis-aggregation on the basis of geographical area–District/project is, in fact
the starting point for launching a particular programme. The un-realistic
fixation of targets among other things makes it difficult for the monitoring
agencies to watch performances in comparison to the targets and thus could
be misled in identifying shortfalls and problem areas. So fixation of targets
for the programme completely compatible with the resources, manpower and
other inputs is much desirable in the programme implementation.
Physical achievement profile in respect of both the Sample Districts for
easy comprehension has been presented in the graphic form as under:-
0
500
1000
1500
2000
2500
3000
2012-13 2013-14 2014-15 Total
1415
853
608
2876
1150
250 193
1593
265
603 415
1283
Target Achiement Spill over Cases
Physical achievement profile under IAY in Ganderbal district during the reference period (2012-13 to 2014-15)
Ph
ysic
al Targ
ets
/
Ach
ievem
en
ts (in
No,s
)
Years
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 28
0
500
1000
1500
2000
2500
3000
3500
2012-13 2013-14 2014-15 Total
701
1053
1705
3459
626
43
470
1139
75
1010 1235
2320
Target Achevement Spill over Cases
Physical achievement profile under IAY in sample district Udhampur during the reference period (2012-13 to 2014-15)
Years
Physic
al T
arg
ets
/A
chie
vem
ents
(in N
o,s
)
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 29
Chapter – III
Field Findings
In order to strike a comparison between the official claims of the
Implementing Department regarding achievements made under IAY and
what actually existed on the ground and also to ascertain the impact and
extent of success of the scheme, a field enquiry was launched in Sample
Districts of Ganderbal and Udhampur. The essence of Evaluation Studies
are the field findings based on observations, inspections and interactions
with all the stakeholders and of course, the view of knowledgeable persons
as an independent and unbiased source of assessment. Many inferences
and conclusions are evidently and uncontroversialy drawn from the official
information itself both of positive and negative nature, but the actual status
of the scheme is measured mainly on the yardstick of field operations by
applying all possible and appropriate tools and techniques.
In the instant Evaluation Study, a field study was launched in 47
Sample Panchayats of the two Districts covering 40 villages as per the
stipulated Sample size and procedure. All the beneficiaries covered in the
Sample blocks of the two Sample Districts of Udhampur and Ganderbal
during the reference period (2012-13 to 2014-15) were selected as Sample
for detailed field verification.
However, during examination of official data furnished by the ACD
Udhampur, it transpired that beneficiaries slated for coverage under the
scheme in the District during the 2014-15 were not disbursed any single
installment of financial assistance. As per official data furnished, 60
beneficiaries were targeted to be covered in the Sample villages of the
Udhampur District during 2012-13 to 2014-15. However, 11 beneficiaries
targeted for coverage in the Sample villages during the year 2014-15 were
found actually not covered. Not a single installment of assistance was
released in their favour by the implementing department. These beneficiaries
as such were kept out of ambit of field verification. The detailed particulars
of these Sample beneficiaries is given at the end of the report as Annexure -
“A”.
When enquired why no amount of assistance was released in favour of
the beneficiaries slated for coverage under the scheme in the district during
the 2014-15, the department concerned reported that late release of 1st
installment of Central assistance was the reason due to which 1st
installment of assistance could not be released in their favour.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 30
In addition to this, non-beneficiaries in the surveyed villages were also
contacted to ascertain the causes of their non-coverage under the scheme,
besides arriving at a simple estimation of deserving but uncovered cases
under IAY. In the Sample villages, a sizeable number of Knowledgeable
persons was also contacted to ascertain their views on the success/failures
of the scheme together with the adherence of norms by the Implementing
Department. The ultimate Sample which was finally contacted on the basis
of which inferences and conclusions were drawn with reference to the
objectives of the study is reflected below:-
Table No – 5
Sample Selected
S
.
n
o
Sampl
e
Distri
ct
Num
ber
of
CD
Bloc
ks
in
the
Dist
rict
Num
ber
of
CD
Bloc
ks
selec
ted
as
Sam
ple
Number of
Panchayats/
villages in
the Sample
Blocks
Number
selected as
Sample
Number of beneficiaries
covered under IAY in the
Sample Villages
Panch
ayats
Villa
ges
Panch
ayats
Villa
ges
Benefic
iaries
targete
d for
coverag
e
Benefic
iaries
actually
covered
Benefic
iaries
Selecte
d as
Sample
(1) (2) (3) (4) (5) (6) (7) (8) (9) (10) (11)
1
.
Gande
rbal
7 2 56 68 27 20 273 273 273
2
.
Udha
mpur
7 2 66 138 20 20 60 49 49
Total 14 4 122 206 47 40 333 322 322
A comprehensive field survey was conducted in the selected Sample
villages of the two Districts to contact the Sample beneficiaries and elicit
their opinion about different parameters of the scheme. The beneficiaries
contacted and response percentage achieved is reflected in the table given
below:-
Table No -6
Number of Sample beneficiaries located & response percentage
S.
no
Sample
District
No of Sample IAY
beneficiaries
No of Sample beneficiaries
located & contacted
Response %age
(1) (2) (3) (4) (5)
1. Ganderbal 273 273 100%
2. Udhampur 49 49 100%
Total 322 322 100%
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 31
As is evident from the table given above, all the 322 selected Sample
beneficiaries were located and contacted in the field. The response
percentage achieved thus is 100%.
Physical Status of Houses of Sample Beneficiaries:
It is envisaged under the Scheme that the beneficiary will construct a
hut/house after getting financial assistance under the scheme. The
beneficiary has to construct hut/house himself of course under due
guidance and supervision of IAY authorities. Whether the Sample
beneficiaries have constructed the huts/houses after getting financial
assistance under the scheme has been ascertained in the field. Table given
below depicts the physical status of houses/huts constructed by the Sample
beneficiaries under the scheme.
Table No – 7
Status of Houses of Sample IAY Beneficiaries
S.
no
Sample
District
No of Sample
IAY
beneficiaries
contacted
Completion Status of houses of IAY beneficiaries
House
Complete
with roof
In-Complete
Plinth
level
Lintel
level
Roof
level
Total
(1) (2) (3) (4) (5) (6) (7) (8)
1. Ganderbal 273 263 - 10 - 10
2. Udhampur 49 47 - 1 1 2
Total 322 310 - 11 1 12
%age 96% - - - 4%
The table given above clearly reveal that 96% of the Sample
beneficiaries had constructed the huts/houses fully with roof. While as the
construction of house was still incomplete in respect of 4% Sample
beneficiaries. Reasons reported for incompletion/non-start of work of
huts/houses by the Sample beneficiaries are reflected in the table
hereunder:-
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 32
Table No - 8
Reasons for Incompletion of Huts/Houses reported by Defaulting
Beneficiaries
S
.
n
o
Sample
District
No of
Sample
IAY
beneficia
ries
Number
of
beneficia
ries
whose
huts
were in-
complete
Reasons reported for incompletion of Huts/houses by
Sample beneficiaries
Non
release
of full
installm
ents
Delayed
release
of
installm
ents
Insufficie
ncy of
required
fund
Non-
availability
of
material/w
orker
Migrat
ed to
other
places
(1) (2) (3) (4) (5) (6) (7) (8) (9)
1
.
Gander
bal 273 10 1 1 1 5 2
2
.
Udham
pur 60 2 1 1 - - -
Total 322 12 2 2 1 5 2
%age 17% 17% 8% 42% 17%
The reasons responsible for incompletion of houses in respect of most
of Sample beneficiaries 4(34%) as per table given above is the non-
release/delayed release of amount of assistance by the Implementing
Department. 5(42%) reported that non-availability of material/workers was
the reason for incompletion of their houses. 1(8%) reported that the
assistance proved inadequate to complete the construction of his house.
2(17%) had migrated to other places as such leaving the construction in-
complete.
Amount of Assistance received as reported by Sample Beneficiaries:
The guidelines governing the release of installments under the scheme
state that number of installments should be fixed at three. The release of
installments should be linked to the level of construction reached. The first
installment should be given on Awas Divas and should not be more than
25% of unit cost. 2nd installment should be released on the reaching lintel
level and should not be more than 60% of the unit cost. The 3rd installment
of 15% of unit cost should be given only after the house including the
sanitary latrine is constructed. Table given below depicts the details about
the number of installments of assistance received by the Sample
beneficiaries.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 33
Table No – 9
Number of Installments of Assistance received as reported by the
Sample Beneficiaries
S.
n
o
Sample
District
No of
Sample
IAY
beneficiari
es
No of Sample beneficiaries who reported to had
received
The
number of
Sample
beneficiari
es who
received
full
payment of
Rs.75000
from
among
those have
received all
three
installmen
ts
No
Installme
nt at all
One
Installme
nt
Two
Installmen
ts
All Three
installmen
ts
(1) (2) (3) (4) (5) (6) (7) (8)
1. Ganderb
al 273 0 6 160 107
107
2. Udhamp
ur 49 0 2 44 3
3
Total 322 0 8 204 110 110
%age - 3% 63% 34%
Only 34% (110) Sample beneficiaries as per table given above had
received all the three installments of assistance. 63% Sample beneficiaries
reported to had received two installments, 3% only one installment. All the
110 Sample Beneficiaries who had received all the three installments
reported that they received full amount of Rs.75000/- as envisaged under
the scheme.
Mode of Payment of Assistance to Sample Beneficiaries:
As per scheme guidelines, the funds should be transferred into the
Bank/Post Office account of each beneficiary. Release of installments in
cash to the beneficiaries is not permissible under IAY. How funds have been
transferred to the Sample beneficiaries is reflected in the table hereunder:-
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 34
Table No –10
Fund transfer mode as reported by the Sample beneficiaries
S.
no
Sample
District
No of
Sample
beneficiaries who
have received
financial assistance
Mode of payment of installments of assistance as
reported by Sample beneficiaries
Payees Account
Cheque
Bank draft Cash
(1) (2) (3) (4) (5) (6)
1. Ganderbal 273 273
2. Udhampur 49 49 0 0
Total 322 322 0 0
%age 100%
From the table given above, it is clear that guideline with regard to the
transfer of funds to beneficiaries has been followed fully, as no Sample
beneficiary reported to have been paid in cash. All the 322(100%) Sample
beneficiaries who were provided financial assistance under the scheme
reported that they were given cheques which they deposited in the bank and
the money was credited into their account.
Fairness in Selection procedure:
How fair the selection and sanctioning process under the scheme is,
an enquiry from the Sample beneficiaries was conducted. It was enquired
from them despite being eligible for coverage under the scheme whether or
not they were asked to pay any bribe. The response reported on this account
is reproduced as under:-
Table No –11
Fairness in Selection Procedure as reported by the Sample Beneficiaries
S.
no
Sample
District
No of Sample
IAY beneficiaries
enquired
No of Sample beneficiaries reporting
(Fair)
No Bribe demanded
Not Fair
(Bribe demanded)
(1) (2) (3) (4) (5)
1. Ganderbal 273 264 9
2. Udhampur 49 49 0
Total 322 313 9
%age 97% 3%
Majority of the Sample beneficiaries (97%) as per table given above
reported that the selection and sanctioning process under the scheme was
fair and they were not forced to pay any bribe. However, 3% (9) Sample
beneficiaries from Ganderbal District reported that they were forced to pay
bribe to officials for getting financial assistance under the scheme. The list of
these Sample beneficiaries is given at the end of the report as Annexure-
“B”.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 35
Coverage of SC/ST and other BPL families:
The IAY Scheme as per guidelines is for Scheduled Caste/ Scheduled
Tribes, OBCs and Other Socially Backward Classes living Below Poverty
Line. How far have been these guidelines been followed by the Implementing
Department in selecting the beneficiaries under the scheme in Sample
Districts is reflected in the table hereunder:-
Table No - 12
Social Category of Sample Beneficiaries
S.
no
Sample
District
No of Sample
IAY Beneficiaries
Category to which Sample IAY Beneficiaries
belong to
SC ST OBC Others
(1) (2) (3) (4) (5) (6)
1. Ganderbal 273 - 118 102 53
2. Udhampur 49 27 11 5 6
Total 322 27 129 107 59
%age 9% 40% 33% 18%
Table given above reveals that due coverage has been given to the
targeted group of population by the implementing department while
selecting beneficiaries for coverage under the scheme. Out of total of 322
Sample beneficiaries, 156(49%) have been selected from SC/ST category.
107(33%) from OBC category and 59(18%) from others falling below poverty
line.
Scheduled Caste (9%)
Scheduled Trible (40%)
OBC (33%)
Others( BPL) (18%)
Selection profile of beneficaries under IAY in sample districts
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 36
BPL Status of Sample Beneficiaries:
The beneficiaries to be covered under the scheme as per the guidelines
of the scheme must necessarily belong to Below Poverty Line (BLP) category.
How far have this guidelines been taken into consideration by the
implementing agency while selecting the beneficiaries under the scheme is
reflected in the table given below:-
Table No – 13
BPL Status of Sample Beneficiaries
S.
no
Sample
District
No of Sample
IAY beneficiaries
BPL status of Sample IAY beneficiaries
BPL APL
(1) (2) (3) (4) (5)
1. Ganderbal 273 273 -
2. Udhampur 49 49 -
Total 322 322 -
%age 100%
The guidelines of the scheme with regard to the selection of
beneficiaries from only BPL category appears to have been fully followed by
the implementing department as is evident from the above table. All the
Sample beneficiaries (100%) were found belonging to Below Poverty Line
(BPL) and were on the rolls of BPL lists maintained by the Department.
Economic Status of Sample beneficiaries:
The economic status of the Sample beneficiaries is reflected in the
table given below:-
Table No – 14
Economic status of Sample Beneficiaries
S.
no
Sample
District
No of Sample
IAY
beneficiaries
Monthly income of Sample IAY Beneficiaries from all
Sources
Below
Rs.
3000/-
Rs. 3000-
4000/-
Rs. 4000-
5000/-
Rs. 5000-
6000/-
Above Rs.
6000/-
(1) (2) (3) (4) (5) (6) (7) (8)
1. Ganderbal 273 245 28 - - -
2. Udhampur 49 28 11 5 4 1
Total 322 273 39 9 4 1
%age 85% 12% 3% 1% -
The monthly income of the majority of the Sample beneficiaries (85%)
was less than Rs. 3000/-. 12% reported monthly income in the range of
Rs.3000-4000/, 3% in the range of Rs. 4000-5000/- and 1% in the range of
Rs. 5000-6000/- .
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 37
Land possessed by Sample beneficiaries:
Land reported in possession by the Sample beneficiaries is reflected in
the table given below:-
Table No – 15
Land possessed by Sample Beneficiaries
S.
no
Sample
District
No of Sample
IAY
Beneficiaries
Land Holdings as reported by Sample Beneficiaries
Below 5
Kanals
5-7
Kanals
7-10
Kanals
10-15
Kanals
Above 15
Kanals
(1) (2) (3) (4) (5) (6) (7) (8)
1. Ganderbal 273 253 18 02 - -
2. Udhampur 49 34 5 4 5 1
Total 322 287 23 6 5 1
%age 89% 8% 2% 1% -
Perusal of table given above reveals that all the Sample beneficiaries
were in possession of some land holding. None of the Sample beneficiary
was landless. Though majority of them (89%) were having a land holding of
less than 5 kanals. 8% of them were having a land holding in the range of 5-
7 kanals, 2% in the range of 7-10 kanals and 1% in the range of 10-15
kanals.
Sanitary Status and Availability of other facilities to the Houses of Sample
Beneficiaries:
The sanitary situation and availability position of other necessary
facilities to the houses constructed under IAY by Sample beneficiaries is
presented in the table given below:-
Table No – 16
Sanitary status of huts/houses constructed by Sample beneficiaries
S.
no
Sample
District
No. of Sample
IAY
Beneficiaries who have fully
constructed the
Houses
No. of IAY Beneficiaries who
have
No, of Completed
Houses provided
Constructed Sanitary
Latrine/Soakage
pit
Installed Smokeless
Chulla
Electricity Water Supply
(1) (2) (3) (4) (5) (6) (7)
1. Ganderbal 263 42 - 231 200
2. Udhampur 47 10 1 42 20
Total 310 52 1 273 220
%age 17% - 88% 71%
The above table reveals that majority of the houses constructed by the
Sample beneficiaries under IAY scheme does not have a latrine facility. Only
52 (17%) of Sample beneficiaries had constructed sanitary latrines.
Smokeless chullas has not been installed by almost all. As regards other
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 38
facilities, 88% reported to had been provided electricity and 71% reported
provided water supply. When enquired why they have not constructed
sanitary latrine/Soakage pit, the Sample beneficiaries reported that they
had not enough money to construct soakage pit. The absence of drainage
system in their areas was the other reason reported for non construction of
sanitary latrines by the Sample beneficiaries.
The facilities like toilet, smokeless chullas, electricity, water supply,
connectivity etc. were as per the guidelines of the scheme to be provided to
the IAY beneficiaries by the State by putting in place a robust system of
support services. Convergence of other State/Central Programmes for
providing these facilities was the responsibility of the State Govt. as per the
guidelines of the State. In order to bring about convergence, the guidelines
of the scheme clearly, spell out that a State level meeting may be held
exclusively for the purpose by the Chief Secretary of the State by January
every year in all State level departments/agencies responsible for different
schemes may be called and action plan for convergence prepared to ensure
that there is automatic and simultaneous convergence in favour of IAY
beneficiaries, as they belong to the families in real need. The implementing
department of the scheme, however, has taken this part of the guidelines
casually and, as such, not put in place a support services system as
envisaged under the Scheme.
Nature of Houses Constructed by Sample Beneficiaries:
As per guidelines governing the scheme, 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 the outer surface of the walls is erodible. Have the
houses been constructed by the Sample beneficiaries as per standing
guidelines was also ascertained in the field. Table given below reflects the
type of houses constructed by the Sample IAY beneficiaries:-
Table No – 17
Type of Houses Constructed by the Sample Beneficiaries
S.
no
Sample
District
No. of Sample IAY
Beneficiaries who have fully Constructed the
Houses
Type of Houses Constructed by Sample
Beneficiaries
Pucca house Semi-Pucca Katcha
(1) (2) (3) (4) (5) (6)
1. Ganderbal 263 85 177 1
2. Udhampur 47 7 26 14
Total 310 92 203 15
%age 30% 65% 5%
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 39
In contravention to the scheme guidelines, majority of the Sample
beneficiaries 203(65%) have constructed semi-pucca type of houses and
most astonishingly 15(5%) have constructed katcha type of houses.
Construction of katcha type of house after availing assistance under IAY is
a brazen violation of the guidelines. How come the field functionaries of
department implementing the scheme allowed such violations is a matter of
concern. It reveals lack of monitoring/supervision over the scheme by the
department concerned. The detailed particulars of the 15 Sample
beneficiaries who have constructed katcha type of houses is given at
Annexure “C” of the report.
Built-up Area of Houses constructed by Sample Beneficiaries:
The houses to be constructed under IAY Scheme should have a built-
up area of at least 20 square meters as per the guidelines of the scheme.
Have the Sample beneficiaries constructed their houses keeping this
guideline in view will be clear from the table give below:-
Table No – 18
Built-up Area of Huts/Houses Constructed by Sample Beneficiaries
S.
no
Sample
District
No. of Sample IAY
Beneficiaries who have
fully Constructed the
Houses
Built-up Area of Huts/Houses of Sample
Beneficiaries
10 Sq.
mtrs
15 Sq
.mtrs
20 Sq
mtrs
25 Sq
mtrs
More than
25 Sq mtrs
(1) (2) (3) (4) (5) (6) (7) (8)
1. Ganderbal 263 0 22 5 13
223
2. Udhampur 47 0 2 9 19
17
Total 310 0 24 14 32 240
%age 8% 5% 10% 77%
As envisaged in the guideline that houses under IAY should have a
built-up area of at least 20 square meters, has been followed by the majority
of the Sample beneficiaries as is evident from the table above. 92% of the
Sample beneficiaries have constructed the houses which had a built-up area
of 20 square meters or more. Only 24(8%) Sample beneficiaries had the
houses which have a built-up area of less than 20 square meters.
Dereliction of guidelines/directions by the Sample beneficiaries demands
strict supervision of the scheme.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 40
Display of Sign Board indicating the Houses Constructed under IAY:
On completion of an IAY dwelling unit, the scheme guidelines
prescribe that a display board/nameplate indicating the IAY logo, year of
construction, name of beneficiary etc. should be fixed on each house. The
expenditure on this account can be met from the funds available under the
scheme. Table No. 19 reflects whether this guideline has been followed
by the implementing department of the scheme:-
Table No – 19
IAY Logo/Nameplate fixed on Huts/Houses constructed by Sample
Beneficiaries
S.
no
Sample
District
No. of Sample
IAY Beneficiaries
No. Sample IAY Beneficiaries who have Displayed
IAY Logo/Nameplate huts/houses
Yes
No
(1) (2) (3) (4) (5)
1. Ganderbal 263 1 262
2. Udhampur 47 7 40
Total 310 8 302
%age 3% 97%
This guideline too has not been followed as display board on only
8(3%) completed houses were found fixed by the evaluation teams during
the course of field verification. Majority of houses 302 (97%) constructed
under IAY in the Sample Districts had no display boards fixed on them. Why
display boards were not fixed on the completed houses by the implementing
department if the funds were available for this, demands an in-depth
departmental enquiry.
Technical and Managerial Guidance provided to the Sample
Beneficiaries:
Scheme guidelines provide that technical support in the form of
technical and managerial guidance should be provided to the beneficiary for
construction of house. Foundation laying and lintel support should be
provided at least at these two stages. The feedback from the Sample
beneficiaries about the technical support provided is reflected in the table
hereunder:-
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 41
Table No –20
Technical Support provided & Supervision made by Field Functionaries
S.
n
o
Sample
District
No. of
Sample
IAY
Beneficiarie
s
Number of
Beneficiaries reported
Level at which Supervision made
by Field Functionaries
Technica
l inputs
provided
Supervisio
n Made
Demarcatio
n Level
Plint
h
Level
Lenti
l
Level
Roof
Leve
l
(1) (2) (3) (4) (5) (6) (7) (8) (9)
1. Ganderbal 273 191 273 21 214 204 188
2. Udhampu
r
49 27 49 9 44 19 35
Total 322 218 322 30 258 223 223
%age 67% 100% 9% 80% 69% 69%
Technical guidance was reported provided by 218(67%) Sample
beneficiaries. Details on the housing designs and construction technologies
which are available and their costs for labour and materials were reported
provided by these Sample beneficiaries.
Supervision over the construction of house by the officers/officials of
the implementing department was reported by 322(100%) Sample
beneficiaries. Scheme guidelines prescribe that supervision at Foundation
laying and lintel should be conducted at least at these two stages. The
feedback from Sample beneficiaries given in the table above reveal that
supervision at these two stages was not cent percent. Supervision at
foundation/plinth level was reported conducted by 80% Sample
beneficiaries whereas at lintel level it was reported by 69% Sample
beneficiaries. Lack of supervision by the field functionaries of the
implementing department has resulted in incompletion of construction of
houses by a sizable portion of the Sample beneficiaries. In order to ensure
that all the assisted beneficiaries construct the houses, supervision over the
construction of houses should be intensified.
Satisfaction Level of Beneficiaries:
In order to gauge the satisfaction level of the Sample beneficiaries with
regard to different parameters of the scheme, a field enquiry was conducted
and the response reported against each parameter by the beneficiaries has
been presented in the tabular form below:-
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 42
Table No – 21
Satisfaction level of Sample beneficiaries
S.
no
Sample
District
No. of
Sample
IAY
Beneficiaries
Enquired
No. of Sample Beneficiaries Reporting Satisfied with
Amount of
Assistance
Mode of
Payment
Timely
Payment
Selection
Procedure
Technical
Guidance
(1) (2) (3) (4) (5) (6) (7) (8)
1. Ganderbal 273 0 268 265 271 220
2. Udhampur 49 2 39 25 36 29
Total 322 2 307 290 307 249
%age 1% 95% 87% 90% 77%
It is clear from table above that almost all the Sample beneficiaries
(99%) were not satisfied with the amount of assistance. Amount of
assistance of Rs.75000/- as per their viewpoint is too low and difficult to
manage. Keeping the market rates for construction material and labour in
view, all the beneficiaries pleaded for enhancement in the financial
assistance. The Sample beneficiaries, however, expressed satisfaction with
regard to other parameters of the scheme like mode of payment, timely
payment, selection procedure and technical guidance.
Enhancement in Amount of Assistance Proposed by Sample Beneficiaries:
Since all the Sample beneficiaries were not satisfied with the amount
of assistance under the scheme, their opinion about how much it should be
was elicited. The amount of assistance proposed by the Sample beneficiaries
is presented in table given below:-
Table No – 22
Enhancement in Amount of Assistance Proposed by Sample
Beneficiaries
S.
no
Sample
District
No. of Sample
IAY Beneficiaries
enquired
No. of Sample Beneficiaries proposed for
Enhancement in the Amount of Assistance
Rs. 1 Lakh Rs. 1.25
Lakh
Rs. 1.50
Lakh
Above Rs.
1.50 Lakh
(1) (2) (3) (4) (5) (6) (7)
1. Ganderbal 273 4 3 85 165
2. Udhampur 49 2 3 29 15
Total 322 6 6 114 178
%age 2% 2% 35% 55%
All the Sample beneficiaries reported that even after putting-in their
own savings and other resources in addition to amount of assistance
provided under the scheme, they are not able to manage the construction of
house as envisaged under the scheme. They, therefore, pleaded that the
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 43
amount of assistance should be enhanced considerably. Majority of them
55% proposed that the amount of assistance should be somewhere around
Rs. 1.50 lakhs. Keeping the market rates of construction material/labour in
view, the beneficiaries demand on this account is justified and therefore
requires consideration by the Govt. Enhancement in the amount of
assistance will enable the beneficiaries to construct the house as per the
stipulations of the scheme without making too many compromises.
Upgradation Cases Sanctioned:
Apart from new constructions, the upgradation cases were also
sanctioned in the Sample villages of Ganderbal and Udhampur Districts.
The upgradation cases sanctioned and their status observed in the field is
reflected in the table given below:-
Table No – 23
Upgradation Cases taken in Sample Districts and Status thereof.
S.
no
Sample
District
Number of
Upgradation
Cases
Sanctioned
Status of Upgradation Cases observed during Field
Verification
Upgradation Complete
Upgradation in-
Complete
(1) (2) (3) (4) (5)
1. Ganderbal 25 24 1
2. Udhampur 0 0 0
Total 25 24 1
%age 96% 4%
The table given above reveals that 25 upgradation cases were
sanctioned in the Sample villages of Ganderbal District and no upgradation
case was sanctioned in the Sample villages of Udhampur District. During
the field verification, all the upgradation cases except one were observed
complete.
Opinion of Sample Beneficiaries after constructing house under the
scheme:
Different feelings were expressed by the Sample beneficiaries after
constructing the houses under the scheme and they have summarized in
the table give below:-
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 44
Table No – 24
Opinion of Sample Beneficiaries after Constructing house under the
Scheme
S.
n
o
Sample
District
No. of
Sample
IAY
Beneficiari
es
Enquired
No Sample Beneficiaries Expressed Different Feelings
Comforta
ble
Comforta
ble &
Satisfied
Comforta
ble and
Socially
Secure
Comforta
ble to
Some
Extent
Uncomforta
ble
(1) (2) (3) (4) (5) (6) (7) (8)
1. Ganderb
al
263 97 61 51 45 9
2. Udhamp
ur
47 21 5 5 15 3
Total 310 116 66 56 60 12
%age 38% 21% 18% 19% 4%
After constructing the house under the scheme, majority (77%) of the
Sample beneficiaries reported feeling comfortable now in their new houses.
They were fully satisfied and were reportedly feeling socially secure. Only a
small portion (4%) of the Sample beneficiaries reported were feeling still
uncomfortable due to multiple reasons like insufficient space, lack of inner
furnishing, availability of other facilities like water/electricity etc.
Non-beneficiary Feedback:
In order to gather impression about the scheme from those who
though belonging to targeted group i.e. SC/ST/BPL Category but were not
covered under the scheme, a field enquiry in the Sample villages as per
stipulations of the study design was conducted and non-beneficiaries were
Comfortable 38%
Comfortable & satisfied
21%
Comfortable and socially secure
18%
Comfortable to some extent
19%
Uncomfortable
4%
Feeling expressed by sample beneficaires after constructing house under the Scheme
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 45
also covered. Non-beneficiaries selected for field enquiry from the two
Sample Districts is depicted in the table hereunder:
Table No- 25
Number of Non-beneficiaries Enquired
S.
no
Sample District
No. of Non-beneficiaries Contacted
SC ST OBC Others Total
(1) (2) (3) (4) (5) (6) (7)
1. Ganderbal - 43 75 54 172
2. Udhampur 56 8 11 89 164
Total 56 51 86 143 336
%age 17% 15% 26% 42%
From the table given above, it is very clear that non-beneficiaries from
all the targeted groups have been selected in order to have their response
about the scheme.
Awareness of Non-beneficiaries about Scheme:
Whether the non-beneficiaries belonged to targeted group and were
aware about the scheme and whether they were desirous to get covered
under the scheme and finally whether they applied for the same, an enquiry
from them conducted and the response reported by them is reproduced in
the table hereunder:-
Table No- 26
Number of Non-beneficiaries Reporting Awareness and Desire for
Coverage under the Scheme
S.
no
Sample
District
No. of Non-
beneficiaries
Contacted
Number of non-beneficiaries reported
Having
BPL
Card
ST
Aware of
IAY
Scheme
OBC
Desirous to get
covered under
the Scheme
Others
Applied for
coverage
under the
Scheme
Total
(1) (2) (3) (4) (5) (6) (7)
1. Ganderbal 172 165 172 172 170
2. Udhampur 164 116 157 155 115
Total 336 281 329 327 285
%age 84% 98% 97% 85%
The response of the non-beneficiaries given above in the table reveals
that majority (84%) had BPL ration card and were eligible for coverage under
the Scheme. Though, almost all (97%) were desirous to get covered under
the scheme but not all of them (as only 85%) have applied for coverage
under the scheme.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 46
Reasons Reported for not applying and though applied but not covered
by the Implementing Department:
The reasons reported by the non-beneficiaries who though eligible and
desirous to get covered under the scheme and had applied for the same are
given in the table hereunder:-
Table No- 27
Reasons for Non- coverage under the Scheme reported by Non-
beneficiaries
S.
no
Sample
District
No. of Non-
beneficiaries
who applied
for Coverage under the
Scheme
Number of non-beneficiaries reporting reasons for
non-coverage
Deptt
Inefficiency
Lack of
Approach
Bribe Demanded
(1) (2) (3) (4) (5) (6)
1. Ganderbal 170 99 71 -
2. Udhampur 115 83 32 -
Total 285 182 103
%age 64% 36%
Inefficiency of the implementing department to provide coverage under
the scheme to the eligible, desirous and applying non-beneficiaries was
quoted as reason by majority (64%) of the non-beneficiaries. Whereas 36%
reported that they lack influence/approach to get covered under the
scheme. In order to cover these deserving non-beneficiaries, the
implementing department should gear-up its machinery and mobilize
resources available under the scheme judiciously so that all the available
funds are utilized and all the expected are benefited.
Reasons for Non- coverage under the Scheme:-
Reasons reported by the non-beneficiaries who did not applied for
coverage under the same are reproduced in the table hereunder:-
Table No- 28
Reasons for not applying for Coverage under the Scheme reported by
Non-beneficiaries
S.
no
Sample
District
No of Non-
beneficiaries
who did not
apply
Reasons for not applying for Coverage under the
Scheme
Lengthy
Procedure
Lack of
Guidance
Apprehension of
Bribe
(1) (2) (3) (4) (5) (6)
1. Ganderbal 02 - 2 -
2. Udhampur 49 10 39 -
Total 51 10 41 -
%age 20% 80% 0%
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 47
Lack of guidance was reported as main reason for not applying under
the scheme by 80% of the non-beneficiaries. Lengthy procedure was
reported as reason for 20% of the non-beneficiaries.
Impression of Non-beneficiaries about the Scheme:
What was impression of the non-beneficiaries about the scheme and
whether they would like to get covered under the scheme was also elicited
from them. Response reported by them have been reflected in the table given
below:-
Table No- 29
Impression of Non-beneficiaries about the Scheme and their Willingness
for getting Coverage under the Scheme
S.
no
Sample
District
No of Non-
beneficiaries
contacted
Number of non-beneficiaries
Reported the Scheme
Beneficial
Willing to get covered
under the Scheme
(1) (2) (3) (4) (5)
1. Ganderbal 172 172 172
2. Udhampur 164 164 155
Total 336 336 327
%age 100% 97%
From the table given above, it is clear that the non-beneficiaries had a
very good impression about the scheme and 100% of them regarded the
scheme beneficial and almost all of them (97%) were willing to get covered
under the scheme. Keeping the high hopes of the non-beneficiaries in view,
the department implementing the scheme should gear-up its machinery and
cover all of them in a planned manner.
Knowledgeable Persons(KPS) Feedback:
In Evaluation exercise, the basics for drawing of inferences and
conclusions with regard to the success or failure of the scheme are the
observations, inspections, interviews and interactions with the stakeholders.
The stakeholders may possess an element of bias which sometimes could
affect drawing of inferences and conclusions positively or negatively. To
overcome this deficiency and substantiate the findings though an unbiased
source, knowledgeable persons are tapped in the Evaluation Studies. The
feedback provided by them could help in determining the shortcomings of
the Scheme and appropriate measures could be suggested to the
Department to do away with these shortcomings.
In the instant study, knowledgeable persons were also enquired to
express their views in respect of various components and implementation
aspects of the scheme as observed by them in their vicinity. The number of
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 48
knowledgeable persons contacted across the Sample Villages along with the
educational and occupational status is reflected below:-
Table No- 30
Number of Knowledgeable Persons(KPs) Enquired
S.
no
Sample District
No. of
Knowledgeable
Persons(KPs)
Contacted
Educational Qualification of Knowledgeable
Persons(KPs) Contacted
Below
Middle
Matric Graduate Above
Graduate
(1) (2) (3) (4) (5) (6) (7)
1. Ganderbal 100 50 42 6 2
2. Udhampur 100 27 32 19 22
Total 200 77 74 25 24
%age 38% 37% 13% 12%
A good number of knowledgeable persons from the Sample villages
was selected for eliciting their opinion about the scheme. Majority (62%) of
them by qualification were Matric and above. 25% of them were Graduate
and above. Being qualified, it is but natural that these KP’s will have a more
knowledge and better understanding of the Scheme.
Awareness of Knowledgeable Persons(KPs) about the Scheme:
Awareness of the knowledgeable persons about the scheme was
elicited and their source of awareness was also enquired from them. The
response reported by them is given in the tabular form below:-
Table No-31
Awareness of Knowledgeable Persons(KPs) about the Scheme
S.
no
Sample
District
No of
Knowledgeable
Persons(KPs)
contacted
No of
KP’S
aware
of IAY
Scheme
Source of awareness of Knowledgeable
Persons(KPs)
Radio TV Rural Dev
Deptt.
Others
(1) (2) (3) (4) (5) (6) (7) (8)
1. Ganderbal 100 100 11 4 93 1
2. Udhampur 100 100 11 4 93 1
Total 200 200 18 15 167 2
%age 100% 9% 7% 83% 1%
All the Knowledgeable persons were reported aware about the scheme.
The main source of their awareness about the scheme was the implementing
department and its field functionaries. Radio/TV and other media was
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 49
reported other sources of awareness about the scheme by 16% of the KP’s.
Friends & neighbours were reported as source of awareness by 4% of KP’s.
Impression of Knowledgeable Persons (KPs) about the Scheme:-
The knowledgeable persons when enquired about the scheme and its
different aspects reported as under:
Table No-32
Impression of Knowledgeable Persons(KPs) about the Scheme
S.
no
Sample
District
No of Non-
beneficiaries
Contacted
Number of Knowledgeable Persons(KPs) Reported
Considered
the Scheme
Beneficial
Coverage of only
Eligible Beneficiaries
under the Scheme
Assistance
under Scheme
not enough
(1) (2) (3) (4) (5) (6)
1. Ganderbal 100 100 100 1
2. Udhampur 100 100 100 2
Total 200 200 200 3
%age 100% 100% 2%
100% of the KP’s, as is evident from the table above considered the
scheme beneficial and voted for its continuance. They furthermore
confirmed the fact that only eligible persons were getting benefit under the
scheme in their villages. However, some of them were not satisfied amount
of assistance provided under the scheme. They reported that it is not
enough and therefore suggested for its enhancement. Enhancement in the
amount assistance is a demand put forth by all the stakeholders viz.
beneficiaries, non-beneficiaries and knowledgeable persons and therefore
needs to be considered by the Govt.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 50
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 51
Chapter – IV
Response of Implementing department on the findings of the evaluation
study:
The draft evaluation report as per standing State Level Evaluation
Committee(SLEC) instructions was submitted to the Concerned
implementing department(Director Rural Development Department
Jammu/Kashmir) for their response on the findings of the evaluation report
vide this letter No: DES/Evl/6th SLEC/IAY/State level/2016-17/123-26
dated: 22-12-2016.
In response, the Director Rural Development Department Jammu vide
letter No:DRDJ/P&S/6th SLEC/IAY/State level/15162-64 dated:04-02-2017
furnished his comments. However, no comments were received from the
Director Rural Development Department Kashmir despite repeated
reminders and long wait.
Rather than furnishing comments on the findings of the evaluation
study, a note on revisions which have taken place in the Scheme from time
to time have been furnished by Director Rural Development Department
Jammu. However, the same have been incorporated in the revised report.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 52
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 53
Chapter – V
Summary of Main findings:
1) Indira Awas Yojana(IAY) is a flagship programme of the Ministry of
Rural Development launched primarily to help the construction of
dwelling units for members of SC/STs, freed bonded laborers and also
non- SC/ST rural poor below the poverty line.
2) During the reference period 2011-12 to 2014-15, the programme was
being implemented as a Centrally Sponsored Scheme on cost sharing
basis between Centre and State in the ratio of 75:25. The Government
was providing financial assistance of Rs.75000/- for new construction
and Rs.15000/- for upgradation during the period under reference.
3) The scheme of IAY has been re-structured into Pradhan Mantri Awaas
Yojana Gramin (PMAY-G) w.e.f. 1st April, 2016 by the Govt of India with
the commitment to provide “Housing for All” by 2022. As per revised
guidelines, the unit assistance has been enhanced from Rs.70,000 to
Rs.1.20 lakh in plains and from Rs.75,000 to Rs.1.30 lakhs in hilly
states, difficult areas and IAP districts. The cost of unit (house)
assistance is to be shared between central and state governments in the
ratio 60:40 in plain areas and 90:10 for north-eastern and hilly states.
4) Since the scheme revision took place after the reference period of the
study(2012-13 to 2014-15), therefore, the evaluation study had nothing
to do with the revised norms and had to concentrate on what was
prevailing during that time period. The rates and the norms prevailing
during that period only were verified in the field .
5) The allocations and expenditure figures under the scheme at the State
level during the reference period (2012-13 to 2014-15) reveal that the
programme has remained less focused by the planners and also by the
implementing agencies.
6) Normally the progressive programmes claim more and more allocations
year after year but here the case is otherwise as the allocations under
the Scheme were slashed down year after year.
7) Starting with the allocation of Rs.8994.10 lacs in the 1st year (2012-13)
of the reference period, the allocation under the scheme were slashed
down by 6% to Rs.8452.06 lacs in the 2nd year (2013-14). In the 3rd year
of reference period i.e. 2014-15, the allocation was again slashed down
by 16% to Rs.7097.12 lacs.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 54
8) On the expenditure side, the story in no different as expenditure
percentage fell down year after year. The expenditure was 87% during
2012-13 and the same also got down by 14 percentage points to just
73% in 2013-14. In the last year of the reference period i.e. 2014-15,
the expenditure utilization percentage also gone further down to just
66% of the allocations.
9) The overall allocation for the reference period 2012-13 to 2014-15 was
of the order of Rs.24543.28 lakhs of which the expenditure was of the
magnitude of Rs.18688.10 lakhs registering an expenditure of 76% for
the State.
10) On the physical front, during the reference period 41093 IAY houses
were constructed/upgraded against the target of 74238 at the State
level. Thus the achievement on physical front was only 55% against the
financial achievement of 76%. During the first year of reference period
i.e, 2012-13 the physical achievement viz-a-viz targets was 72% which
got down to 49% in the 2nd year and further to just 40% in the 3rd year
of the reference period. This State of affairs shows that the programme
performance is decreasing year after year. The District level
achievements were reflective of the same situation as witnessed at the
State level.
11) At the Sample District level, the situation is no different. The availability
of funds in Sample District Udhampur has declined from Rs.279.80
lacs in 2012-13 to Rs.57.88 lacs in 2014-15 registering a drop of 79%.
In Sample District Ganderbal, though the allocation has remained
almost constant during the three years of reference period but
utilization has constantly declined with every passing year.
12) The physical performance at Sample District level has also remained
dismal. Achievement of just 43% of the physical targets and mounting
figure of spill over cases over the three years of reference period from
2012-13 to 2014-15 in both the Sample Districts clearly reveal the
unrealistic fixation of targets by the implementing department without
taking into account the available resources, manpower, the capacity to
utilize and other related inputs.
13) There has been dismal physical achievement of cases targeted in both
the Sample Districts. Ganderbal District has been able to achieve only
55% of cases targeted during the reference period 2012-13 to 2014-15
while as Udhampur District has fallen even below and covered just 33%
cases targeted.
14) It is necessary to ensure linkage between the targets and financial
resources made available for the programme so that the targets are
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 55
physically achievable within the resources. This has to be done
realistically by the executing department. Fixation of targets for the
programme and then its dis-aggregation on the basis of geographical
area–District/project is, in fact the starting point for launching a
particular programme. The un-realistic fixation of targets among other
things makes it difficult for the monitoring agencies to watch
performance in comparison to the targets and thus could mislead in
identifying shortfall and problem areas. So, fixation of targets for the
programme completely compatible with the resources, manpower and
other inputs is much desirable in the programme implementation.
15) In order to strike a comparison between the official claims of the
Implementing Department regarding achievements made under IAY and
what actually existed on the ground and also to ascertain the impact
and extent of success of the scheme, a field enquiry was launched in
Sample Districts of Ganderbal and Udhampur.
16) In the Instant Evaluation Study, a field study was launched in 47
Sample panchayats of the two Districts covering 40 villages as per the
stipulated sample size and selection procedure. 333 beneficiaries had
been slated for coverage under the scheme in the Sample villages of
twin Districts of Udhampur and Ganderbal during the reference period
(2012-13 to 2014-15). However, 322 beneficiaries had actually been
covered and were selected as Sample. In addition to this, non-
beneficiaries in the surveyed villages were also contacted to ascertain
the causes of their non-coverage under the scheme. In the Sample
villages, a sizeable number of Knowledgeable persons was also
contacted to ascertain their views on the success/failure of the scheme
together with the adherence of norms by the Implementing Department.
The views expressed by all of them about the scheme are given in the
ensuing paras.
17) Out of 333 beneficiaries claimed covered in Sample villages, 322
cases/beneficiaries had actually been covered under the scheme by the
Implementing Department. 11 beneficiaries in Sample villages of
Udhampur District had not disbursed any amount of assistance under
the scheme as on the date of survey. During the field verification, all the
covered 322 selected Sample beneficiaries were located and contacted in
the field. The response percentage achieved thus is 100%.
18) During the field verification, it was found that 96% (310) Sample
beneficiaries had constructed the huts/houses fully with roof. While as
the construction of house was still incomplete in respect of 4% (12)
Sample beneficiaries..
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 56
19) The reasons responsible reported for incompletion of houses by most of
Sample beneficiaries 4(34%) was the non-release/delayed release of
amount of assistance by the implementing department. It is in place to
mention here that the department implementing the scheme had not
been able to cover even a single beneficiary in the Sample District
Udhampur during 2014-15. 5 (42%) reported that non-availability of
material/workers was the reason for incompletion of their houses.
8(3%) reported that the assistance proved inadequate to complete the
construction of his house. 2(17%) had migrated to other places as such
leaving the construction in-complete.
20) The guidelines that funds under the scheme should be transferred to
beneficiaries accounts and not in cash has been followed fully as no
Sample beneficiary reported to have been paid in cash. All the
322(100%) Sample beneficiaries who were provided financial assistance
under the scheme reported that they were given cheques which they
deposited in the bank and the money was credited into their account.
21) Was the selection and sanctioning process under the scheme fair, an
enquiry from the Sample beneficiaries was conducted. Majority of the
Sample beneficiaries 313(97%) reported that the selection and
sanctioning process under the scheme was fair. However, 3%(9) Sample
beneficiaries from Ganderbal District reported that it was not fair as they
were forced to pay bribe to officials for getting financial assistance under
the scheme.
22) The field enquiry revealed that due coverage has been given to the
targeted group of population by the implementing department while
selecting beneficiaries for coverage under the scheme. Out of total of
322 Sample beneficiaries, 156(49%) have been selected from SC/ST
category. 107(33%) from OBC category and 59(18%) from others falling
below poverty line.
23) During the field enquiry, all the Sample beneficiaries 322 (100%) were
found belonging to Below Poverty Line(BPL) and were on the rolls of BPL
lists maintained by the Department. The guideline in this regard has
been fully followed.
24) Regarding sanitary situation and availability position of other necessary
facilities to the houses constructed under IAY by Sample beneficiaries,
it was observed that majority of the houses constructed by the Sample
beneficiaries under IAY scheme does not have a latrine facility. Only
52(17%) of Sample beneficiaries had constructed sanitary latrines.
Smokeless chullas has not been installed by almost all. As regards other
facilities, 88% reported to had been provided electricity and 71% reported
provided water supply. When enquired why they have not constructed
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 57
sanitary latrine/Soakage pit, the Sample beneficiaries reported that
they had not enough money to construct soakage pit. The absence of
drainage system in their areas was the other reason reported for non
construction of sanitary latrines by the Sample beneficiaries.
25) The facilities like toilet, smokeless chullas, electricity, water supply,
connectivity etc. were as per the guidelines of the scheme to be provided
to the IAY beneficiaries by the State by putting in place a robust system
of support services. Convergence of other State/Central programmes for
providing these facilities was the responsibility of the State Govt. as per
the guidelines of the State. In order to bring about convergence, the
guidelines of the scheme clearly, spells out that a State level meeting may
be held exclusively for the purpose by the Chief Secretary of the State by
January every year in all State level departments/agencies responsible
for different schemes may be called and action plan for convergence
prepared to ensure that there is automatic and simultaneous convergence
in favour of IAY beneficiaries, as they belong to the families in real need.
The Implementing Department of the scheme, however, has taken this
part of the guidelines casually and, as such, not put in place a support
services system as envisaged under the Scheme.
26) As per guidelines governing the scheme, 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. In contravention to these
scheme guidelines, majority of the Sample beneficiaries 203(65%) have
constructed semi-pucca type of houses and most astonishingly 15(5%)
have constructed katcha type of houses. Construction of katcha type of
house after availing assistance under IAY is a brazen violation of the
guidelines. How come the field functionaries of department implementing
the scheme allowed such violations is a matter of concern. It reveals lack
of monitoring/supervision over the scheme by the department concerned.
27) As envisaged in the guidelines that houses under IAY should have a
built-up area of at least 20 square meters was observed followed by the
majority of the Sample beneficiaries. 92% of the Sample beneficiaries
have constructed the houses which had a built-up area of 20 square
meters or more. Only 24(8%) Sample beneficiaries had the houses which
have a built-up area of less than 20 square meters. Dereliction of
guidelines/directions by the Sample beneficiaries demands strict
supervision of the scheme.
28) On completion of an IAY dwelling unit, the scheme guidelines prescribes
that a display board/nameplate indicating the IAY logo, year of
construction, name of beneficiary etc. should be fixed on each house.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 58
This guideline too was observed not followed as display board on only
8(3%) completed houses were found fixed by the evaluation teams during
the course of field verification. Majority of houses 302(97%) constructed
under IAY in the Sample Districts had no display boards fixed on them.
Why display boards were not fixed on the completed houses by the
implementing department if the funds were available for this demands an
indepth departmental enquiry.
29) Technical guidance was reported provided by 218(67%) Sample
beneficiaries. Details on the housing designs and construction
technologies available and their costs for labour and materials were
reported provided by these Sample beneficiaries.
30) Supervision over the construction of house by the officers/officials of
the implementing department was reported by 322(100%) Sample
beneficiaries. Scheme guidelines prescribes that supervision at
Foundation laying and lintel should be conducted at least at these two
stages. The feedback from Sample beneficiaries reveal that supervision
at these two stages was not cent percent. Supervision at
foundation/plinth level was reported conducted by 80% Sample
beneficiaries whereas at lintel level it was reported by 69% Sample
beneficiaries. Lack of supervision by the field functionaries of the
implementing department has resulted in incompletion of construction
of houses by a sizable portion of the Sample beneficiaries. In order to
ensure that all the assisted beneficiaries construct the houses,
supervision over the construction of houses should be intensified.
31) The satisfaction level of the Sample beneficiaries with regard to different
parameters of the scheme was elicited. Almost all the Sample
beneficiaries(99%) were not satisfied with the amount of assistance.
Amount of assistance of `.75000/- as per their viewpoint is too low and
difficult to manage. Keeping the market rates for construction material
and labour in view, all the beneficiaries pleaded for enhancement in the
financial assistance. The Sample beneficiaries, however, expressed
satisfaction with regard to other parameters of the scheme like mode of
payment, timely payment, selection procedure and technical guidance.
32) All the Sample beneficiaries reported that even after putting-in their
own saving and other resources in addition to amount of assistance
provided under the scheme, they are not able to manage the
construction of house as envisaged under the scheme. They therefore
pleaded that the amount of assistance should be enhanced to somewhere
around Rs.1.50 lakhs. Keeping the market rates of construction
material/labour in view, the beneficiaries demand on this account is
justified and therefore requires consideration by the Govt.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 59
Enhancement in the amount of assistance by the Govt as per revision
in guidelines in 2016 Rs.70,000 to Rs.1.20 lakh in plains and from
Rs.75,000 to Rs.1.30 lakhs in hilly states, difficult areas and IAP districts
is a step in right direction. This will enable the beneficiaries to construct
the house as per the stipulations of the scheme without making too
many compromises.
33) After constructing the house under the scheme, majority (77% ) of the
Sample beneficiaries reported feeling comfortable now in their new
houses. They were fully satisfied and were reportedly feeling socially
secure. Only a small portion(4%) of the Sample beneficiaries reported
were feeling still uncomfortable due to multiple reasons like insufficient
space, lack of inner furnishing, non-availability of other facilities like
latrine/water/electricity etc.
34) In order to gather impression about the scheme from those who though
belonging to targeted group i.e. SC/ST/BPL category but were not
covered under the scheme, a field enquiry in the Sample villages as per
stipulations of the study design was conducted and non-beneficiaries
were also covered.
35) The response of the non-beneficiaries reveals that majority (84%) of
them had BPL ration card and were eligible for coverage under the
Scheme. Almost all (97%) were desirous to get covered under the scheme.
285(85%) have already applied for coverage under the scheme but were
not covered till date.
36) Inefficiency of the implementing department to provide coverage under
the scheme to the eligible , desirous and applying non-beneficiaries was
quoted as reason by majority(64%) of the non-beneficiaries. Whereas 36%
reported that they lack influence/approach to get covered under the
scheme.
37) The non-beneficiaries had a very good impression about the scheme and
100% of them regarded the scheme beneficial and almost all of them(97%)
were willing to get covered under the scheme. Keeping the high hopes of
the non-beneficiaries in view, the department implementing the scheme
should gear-up its machinery and cover all of them in a planned manner.
38) A good number of knowledgeable persons (200) from the Sample villages
was selected for eliciting their opinion about the scheme. 100% of the
KP’s considered the scheme beneficial and voted for its continuance.
They furthermore confirmed the fact that only eligible persons were
getting benefit under the scheme in their villages. However, some of
them were not satisfied amount of assistance provided under the
scheme. They reported that it is not enough and therefore suggested
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 60
for its enhancement. Enhancement in the amount assistance is a
demand put forth by all the stakeholders viz. beneficiaries, non-
beneficiaries and knowledgeable persons and therefore needs to be
considered by the Govt.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 61
Chapter – VI
Suggestions Offered:
1) Like a progressive scheme, the funds allocation/utilization under IAY
over the years should increase rather than decline as has been
witnessed during the instant evaluation study. Every possible effort right
from the administrative level to the execution level should be made to
make the scheme a progressive one. Not only the allocations under the
scheme over the years should increase but the fund utilization should
also improve.
2) Regarding non-achievement of physical targets and mounting figure of
spillover cases, it is suggested to ensure linkage between the targets and
financial resources made available for the programme so that the targets
are physically achievable within the resources. This has to be done
realistically by the executing department. Fixation of targets for the
programme and then its dis-aggregation on the basis of geographical
area, in fact, the starting point for launching a particular programme. The
un-realistic fixation of targets among other things makes it difficult for the
monitoring agencies to watch performance in comparison to the targets
and thus could mislead in identifying shortfall and problem areas. So,
fixation of targets for the programme completely compatible with the
resources, manpower and other inputs is much desirable in the
programme implementation.
3) Installments due under the scheme should be released in favour of the
beneficiaries on time so that they could complete the construction of
houses/huts. This is because in the field it was found that 4 Sample
beneficiaries could not complete the construction of house due to non-
release/delayed release of amount of assistance by the implementing
department.
4) Beneficiaries slated for coverage under the scheme during the year
should necessarily be covered and all the necessary arrangements like
arrangement of funds etc should be made with due seriousness. This is
because the department implementing the scheme had not been able to
cover even a single beneficiary in the Sample District Udhampur during
2014-15 citing the reason that funds were not released on time.
5) Sanitary situation and availability position of other necessary facilities
to the houses constructed under IAY by Sample beneficiaries was
observed very poor as majority of the houses constructed by the Sample
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 62
beneficiaries under the scheme does not have a latrine facility. Only
52(17%) of Sample beneficiaries had constructed sanitary latrines.
Smokeless chullas has not been installed by almost all. As regards other
facilities, 88% reported to had been provided electricity and 71% reported
provided water supply.
6) The facilities like toilet, smokeless chullas, electricity, water supply,
connectivity etc. were, as per the guidelines of the scheme, to be provided
to the IAY beneficiaries by the State by putting in place a robust system
of support services. Convergence of other State/Central programmes for
providing these facilities is the responsibility of the State Govt. as per the
guidelines of the State. Every possible effort should be made by the
department implementing the scheme to bring about such convergence.
7) Supervision over the scheme was observed poor as dereliction with
regard to the size of house, fixing of IAY logo/nameplate and construction
of houses by the sample beneficiaries was observed in the field. The
department implementing the scheme should therefore gear-up it
machinery and improve the supervision over the scheme.
8) Amount of assistance of Rs.75000/- was reported too low and difficult to
manage by almost all the sample beneficiaries. Keeping the market rates
for construction material and labour in view, all the beneficiaries pleaded
for enhancement in the financial assistance. Therefore it is proposed that
the amount of assistance should be enhanced to somewhere around
Rs1.50 lakhs.
9) Due publicity to the scheme should be given so that all the eligible and
desirous candidate could apply for coverage under the scheme. This is
because reason for not applying by majority(64%) non-beneficiaries was
quoted as lack of awareness about the scheme.
10) The non-beneficiaries had a very good impression about the scheme and
100% of them regarded the scheme beneficial and almost all of them(97%)
were willing to get covered under the scheme. Keeping the high hopes of
the non-beneficiaries in view, the department implementing the scheme
should gear-up its machinery and cover all of them in a planned manner.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 63
Annexure “A”
List of 11 beneficiaries falling in the Sample villages of Udhampur District
who had been slated for coverage under the scheme during 2014-15 but had
not been paid 1st installment of assistance as on the date of Survey
S.no Name of Sample
beneficiary
Parentage Address
(1) (2) (3) (4)
1 Smt. Shaya Devi W/O Badri Nath Khoon (Amara)
2 Sh. Kaka Ram S/O Romilla Ram Khoon (Amara)
3 Sh. Junait Ali S/O Mir Ali Khoon (Amara)
4 Sh. Pritam lal S/O Tillu Ram Jakhanoo
5 Sh. Uttam Chand S/O Tara Chand Dhamma
6 Smt. Kamlesh W/O Raj Kumar Baryalta
7 Smt. Savitri W/O Tara Chand Baryalta
8 Smt. Kanta Devi W/O Nek Ram Karkrai
9 Smt. Surya Bibi W/O Gulab Din Sarail Chowla
10 Sh. Shallo Ram S/O Sant Ram Jugwal
11 Sh. Sohan Lal Sarju Ram Kail
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 64
Annexure “B”
Detailed particulars of 9 Sample beneficiaries who reported that they were
forced to pay bribe to officials for getting financial assistance under the
scheme
S.n
o
Name of Sample
beneficiary
Parentage Address
(1) (2) (3) (4)
1
Zahoor Ahmad Shah Abdul
Rehman
Youngoora village, Wakoora
block, District Ganderbal.
2
Irfan Ahmad Chopan Abdul Karim
Chopan
Zazna village, wakoora block,
District Ganderbal.
3 Mohammad Altaf
Parra
Ab Rashid
Parra
Zazna village, wakoora block,
District Ganderbal.
4
Moahmmad Amin
Parray
Ab Salam
Parray
Zazna village, wakoora block,
District Ganderbal.
5
Ab. Ahad Kumar Habib Ullah
Kumar
Barwalla village, Kangan block,
District Ganderbal.
6
Mohammad Shafi
Gania
Gh Mohi din
Ganie
Barwalla village, Kangan block,
District Ganderbal.
7
Aijaz Ahmad Gania Mohd
Abdullah
Barwalla village, Kangan block,
District Ganderbal.
8
Farooq Ahmad Mir Gh Ahmad
Mir
Barwalla village, Kangan block,
District Ganderbal.
9
Mohammad Kamal
Kumar
Gh Mohd
kumar
Barwalla village, Kangan block,
District Ganderbal.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 65
Annexure “C”
Detailed particulars of 15 Sample beneficiaries who have constructed
Katcha Type of Houses after receiving financial assistance under IAY
Scheme
S.no Name of Sample
beneficiary
Parentage, W/O Address
(1) (2) (3) (4)
1
Smt. Vidhya Devi W/O Sh. Gian
Singh
Chapper Barta,
Udhampur.
2
Smt. Sheela Devi W/o Sh. Kapoor
Singh
Chapper Barta,
Udhampur.
3
Smt. Masooma W/o Sh Rahid
Ahmad
Jaganoo, Udhampur.
4
Smt. Pukhru Devi Wd/O Lt. Sh.
Mansa Ram
Bhagpur, Jaganoo,
Udampur.
5
Smt. Babir Devi W/O Sh. Kumar
Chand
Laddan Kotibala,
Udampur
6
Smt Arif Bibi W/O Gammi Kotibala, Udhampur.
7
Smt. Sandlo Devi W/O Sh
Khajoor Singh
Kuh, Udhampur.
8
Smt. Chana Devi Wd/o Sh Sarnoo Kuh, Udhampur.
9
Sh. Sukar Din S/O Sh Gulab
Din
Thad Rathian West,
Udhampur.
10. Smt. Bal Krishan S/O Sh Hari
Ram
W NO 4 Rathina West,
Udhampur.
11. Smt. Makhana Devi Wd/O Sh Bhir
Singh
Ritti, Udhampur.
12. Smt. Banto Devi Wd/O Sh
Shnaku Ram
Kuperla Ritti,
Udhampur.
13. Smt. Koshalya Devi W/O Sh Munshi
Ram
Ritti, Udhampur.
14. Sh Gani S/O Sh. Attal
Din
Channi Mohd Satani,
Udhampur.
15. Ab Gani Sangoo Mohandia
Sangoo
Margund village, Kangan
Ganderbal.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 66
Annexure – D
Photographs of houses of Sample beneficiaries of Yangoora Village, District Ganderbal.
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 67
Photographs of houses of Sample beneficiaries of Wangath, Khanan&CheerwanVillages, District Ganderbal
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 68
Photographs of houses of Sample beneficiaries of Wakura Villages, District Ganderbal
Photographs of houses of Sample beneficiaries of Margund Villages, District Ganderbal
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 69
Photographs of houses of Sample beneficiaries of Kangan Villages, District
Ganderbal
Photographs of houses of Sample beneficiaries of Dab Villages, District
Ganderbal
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 70
Photographs of houses of Sample beneficiaries of Akhal Villages, District
Ganderbal
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 71
Photographs of houses of Sample beneficiaries of Sample Villages of District
Udhampur
Evaluation Report on Indira Awas Yojana(2012-15)
Directorate of Economics & Statistics, J&K 72
Directorate of Economics and Statistics, J&K SDA Colony, Bemina, Srinagar/ Ashok Vihar Janipur, Jammu
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