A Dissertation Entitled SOCIAL AUDIT of ASRAYA PROJECT in POTHENCODE PANCHAYAT

A dissertation entitled SOCIAL AUDIT OF ASRAYA PROJECT IN POTHENCODE PANCHAYAT

A project report submitted to the University of Kerala, in partial fulfilment of requirements for the Master of Social Work Degree Examination

Submitted by Name: SUNITHAKUMARI. M. S. Exam Code: 91514404 Candidate Code: 91517115022 Subject Code: SW 2.4.5 B

LOYOLA COLLEGE OF SOCIAL SCIENCES SREEKARIYAM P O THIRUVANANTHAPURAM – 695017 UNIVERSITY OF KERALA 2017-2019

DECLARATION

I, Sunithakumari. M. S., do here by declare that the dissertation titled “Social Audit of Asraya Project in Pothencode Panchayat” is based on the original work carried out by me and submitted to the University of Kerala during the year 2017- 2019 towards the partial fulfilment of the requirements for the Master of Social Work Degree Examination. It has not been submitted for the award of any degree, diploma, fellowship or other similar title of recognition before.

Sreekariyam, Mrs. Sunithakumari. M. S.

Thiruvananthapuram 20/09/2019

ACKNOWLEDGEMENT

I would like to express my deepest appreciation to my Research Guide, Dr. Francina. P. X. She continually and convincingly conveyed a spirit of adventure in regard to research in me. Without her guidance and persistent help this dissertation would not have been possible.

I would like to thank the principal of Loyola College of Social Sciences, Dr. Saji. P. Jacob and the head of the department of Social Work, Dr. Sonny Jose, for providing me an opportunity to do the dissertation and giving me all the support and guidance which made me complete this dissertation duly. I am extremely thankful to them for providing such support and guidance, although through their busy schedule.

In addition, I thank the faculties of the Social Work Department, who introduced me to Social Work. I also thank Dr. Sunil Kumar, the librarian and Mr. George Mathew, assistant librarian of Loyola College of Social Sciences for suggesting and providing me with resources for my dissertation. I also thank my respondents who have willingly shared their views with me for my study. I also thank my family and friends who have supported my throughout the dissertation period. Last, but not the least, I would like to thank Lord Almighty for showering blessings on me and keeping me healthy throughout this period. - Mrs. Sunithakumari. M. S.

CONTENTS

PAGE CHAPTER PARTICULARS NUMBER

I INTRODUCTION 1-10

II REVIEW OF LITERATURE 11-57

III RESEARCH METHODOLOGY 58-62

IV CASE PRESENTATION 63-73

V DATA ANALYSIS AND INTERPRETATION 74-79

FINDINGS, SUGGESTIONS AND VI 80-83 CONCLUSION

BIBLIOGRAPHY AND APPENDIX 84-86

ABSTRACT

The dissertation entitled “Social audit of Asraya project in Pothencode Panchayat” was conducted in Pothencode Grama Panchayat (Thiruvananthapuram). The purpose of the study was to understand the Social Audit of Asraya project in Pothencode Panchayat and the profile of Asraya beneficiaries and their families. And the study revealed the present beneficiaries eligible as Asraya families and the benefits received by the Asraya beneficiary (food, clothing, medical facilities, shelter, drinking water facility and education). The study envisaged in the understanding of Asraya Families on role of Kudumbashree (Community Development Society, Area Development Society and members of Neighbourhood groups). The study design is used by the researcher is the case study design to describe the Social Audit of Asraya Project in Pothencode Panchayah. The researcher has selected five cases for the research and conveniance sampling is used by the researcher for the sampling..

The results indicate that the role Kudumbhashree plays awaring the beneficiaries about the challenge fund of Asraya and receiving health care facilities and also about Pallium India. The study provides a path to understand how a government scheme is implemented and how it helps in empowering a community. . Asraya follows a strict process to identify destitute families. But due time, these families may emerge out of the destitute situation and still receive Asraya benefits while some families remain unidentified suffer from poverty. Social audit is a tool to identify the genuine destitute families so as to lend a helping hand towards them. Social audit acts as a method to bring the truth of the social issues faced by the destitute families to the government’s concern.

CHAPTER – I INTRODUCTION

1 INTRODUCTION

1.1 INTRODUCTION

Asraya is an integrated project aimed at identification and rehabilitation of destitute families. It was started in 2002 as a follow up of the Kudumbashree initiative to identify the families that had been left out even from the outreach of decentralised planning and poverty alleviation programmes. One of the main challenges of the program is destitute identification. Another significant challenge would be to tailor a policy structure in such a way that it would benefit all the beneficiaries the best way possible through the funds available to them. Asraya, now Destitute Free Kerala (DFK), aspires to overcome these challenges to reach out the best way possible to these neglected households. Destitute among different population segments live different lifestyles. For instance, some households in the urban sector may have better access to hospitals and other public facilities than the ones who live in tribal areas. In such a scenario, Asraya aims to reach out to all these households among different population segments in an egalitarian manner catering to their basic needs for survival. This study is a qualitative based analyse on four different population segments and they are Urban, Rural, Coastal and Tribal communities.

1.2 KUDUMBASHREE:

Kudumbashree is the poverty eradication and women empowerment programme implemented by the State Poverty Eradication Mission (SPEM) of the Government of Kerala. The name Kudumbashree in Malayalam language means „prosperity of the family‟. The name represents „Kudumbashree Mission‟ or SPEM as well as the Kudumbashree Community Network.

Kudumbashree was set up in 1997 following the recommendations of a three member Task Force appointed by the State government. Its formation was in the context of the devolution of powers to the Panchayat Raj Institutions (PRIs) in Kerala, and the Peoples„ Plan Campaign, which attempted to draw up the Ninth Plan of the local governments from below through the PRIs.

Kudumbashree has a three-tier structure for its women community network, with Neighbourhood Groups (NHGs) at the lowest level, Area Development Societies (ADS) at the middle level, and Community Development Societies (CDS) at the

2 local government level Kudumbashree is a network of Community based organisations working in partnership with Local Governments.

• Excellent outreach and feedback systems

• Community role in beneficiary identification

• Demand creation for public services and enhanced access

• Community based monitoring

1.2.1 Kudumbashree Programme Domains

Kudumbashree, with its central objectives of poverty eradication and women empowerment, has three strategic domains in which programmes are formulated and rolled out through the community network. The three programme domains are:

 Economic Empowerment

 Social Empowerment

 Women Empowerment

Social Empowerment: Social empowerment programmes focus on inclusion. There are sections of the poor that are left out of the fold of development programmes including those of the Kudumbashree network. There are sections that are even too weak to be part of the community network. Social Empowerment programmes are steps towards ensuring the inclusion of such vulnerable sections. Major programmes are the following:

 Destitute Identification and Rehabilitation

 Rehabilitation of Mentally Challenged Persons

 Children„s Programmes (Cheriyan, 2018)

1.3 ASRAYA The state government through Kudumbashree and local self-government department is implementing a new project for the upliftment of destitute and isolated people to the mainstream of social system which is named to be "Asraya”. The project was started in 2003 and in 2007 it had undergone restructuring and there in 2009 it was investigated as a continuous services program anticipating the need of new members to be added to the project. The second phase of the project was approved in

3 2013.The current structure of the project ensures flexible admission to the project which considered the poor people who became destitute because of unfortunate circumstances and this will lead to the state to achieve this status of destitute free Kerala.

When Destitute free Kerala become a project all the existing beneficiaries which includes 153498 and the newly found beneficiaries as per the data collected by local self-governing institution will be included in it. The implementation of the project will be a collective interests by the LSGDS Institution block and district Panchayat, Civil supplies and health education and Social Justice Department. (Government of Kerala, 2017)

1.3.1.Definitions

 „Scheme‟ means „Aagathi Rahitha Keralam Padathi/ Destitute Free Kerala project‟  „ADS‟ means „Area Development Society‟  „CDS‟ means „Community Development Society‟  „Challenge fund‟ means „the funds allocated by the state government for Kudumbashree for the project‟ (Government of Kerala, 2017)

1.3.2 General Instructions

1.3.2.1 Finding beneficiaries

 A survey of the beneficiaries involved in the Asraya I and II schemes will be followed to identify those who are eligible for the services. This means those who are unable to afford food, education and medication can be included in the plan.  Those who are not included in the Asraya Project till date but who are eligible will be included in the scheme based on the risk factors identified by the Kudumbashree. The state government through Kudumbashree and local self-government department is implementing a new project for the upliftment of destitute and isolated people to the mainstream of social system which is named to be "Asraya”. The project was started in 2003 and in 2007 it had undergone restructuring and there in 2009 it was investigated as a continuous

4 services program anticipating the need of new members to be added to the project. The second phase of the project was approved in 2013.The current structure of the project ensures flexible admission to the project which considered the poor people who became destitute because of unfortunate circumstances and this will lead to the state to achieve this status of destitute free Kerala.

 Those who are not included in the Asraya Project till date but who are eligible will be included in the scheme based on the risk factors identified by the Kudumbashree. The choice of beneficiaries for the Destitute Free Kerala Project will be wholly based on the following factors. There are nine stress factors. Of these, only those families affected by 7 factors can be considered. But for this family to be considered a destitute family, one of the specific stress factors must be applicable. Those affected by only 4 stress factors (those who have resolved the first four grievances of the local government departments) should make special plans through integrated intervention of the local government and Kudumbashree in order to enable them to earn income as special beneficiaries.

1.3.3 Risk Factors Applicable to the Family

Serial Rural area Urban Area No.

1. Land less/ people with less than Landless / people with less than 10 cents of land 5 cents of land

2. Homeless/ those living in Homeless/ those living in damaged or decaying houses damaged or decaying houses

3. No drinking water facility No drinking water facility within 150 metres within 150 metres

4. Lack of sanitary toilet facility Lack of sanitary toilets facility

5 Family with not at least one Family with not at least one 5. employee (employment less employee (employment less than 10 days a month) than 10 days a month)

6. Family with woman as the head Family with woman as the head

Family with physically or Family with physically or 7. mentally challenged or those mentally challenged or those with chronic illness with chronic illness

SC/ST category, family who SC/ST category, family who 8. have adopted fishing as a have adopted fishing as a profession profession

9. Families with adult illiterates Families with adult illiterates

1.3.4 Additional stress factors applicable to the family

A. Rural Areas

i. People with no land for housing (exterior land, forest land, those live near canals, field areas, water barriers etc.) ii. People who spent the night in public places, on the streets, shop verandas. iii. Unmarried mother/ mother and children only or women who have been abandoned by their husband and are suffering. iv. Young widows with financial crisis, unmarried women who have cross the marriage. v. People suffering from chronic illness and incurable diseases and those with physical and mental illnesses. vi. Family with no one under 60 years of age who can afford to find provision for food. vii. People involved in begging for livelihood. viii. Women who have been subjected to atrocities.

B. Urban Areas

i. People who spend their night in public places, street, shop verandas. ii. Young widows with financial crisis, unmarried women who have crossed the marriage age.

6 iii. People involved in beggary for livelihood. iv. Family with no one under 60 years of age who can afford to find provision for food. v. Women who have been subjected to atrocities. vi. Families with street children, children living in Juvenile homes, poor homes. vii. Children below the age of 14 who are forced to earn for their family. viii. Families with commercial sex workers. ix. Families with women residing in temple house. x. People living in slum.

1.4 SOCIAL AUDIT

Social Audit is an audit conducted by the people, especially who are affected by or are the intended beneficiaries of the scheme being audited and facilitated by the Government. Social Audit is verification of the implementation of a scheme/preference and its results by the community with active involvement of the primary state holder. Social Audit is done by comparing official records with actual ground realities, with the participation of the community in the verification exercise and reading out the findings aloud is a public platform. Social Audit also examines whether the money was spent properly and has made difference to people‟s lives. ( Mahatma Gandhi NREGA Social Audit Society - Kerala, 2019)

Social Audit is the examination and assessment of a programme/scheme conducted with the active involvement of people and comparing official records with actual ground realities. Social Audit is a powerful tool for social transformation, community participation and government accountability. (Subashini & Viji, 2017)

1.4.1 Social Audit in India

Social audit in India is part of international trend towards greater accountability in all fields. The concept of Social Audit is comparatively new in India which is globally known as People‟s Audit or Public Audit. In India, the concept has been adopted differently but with almost same basic ingredients of social audit. In Indian context, social audit found mention in the recommendations of Ashok Mehta Committee. Central Government constituted Ashok Mehta Committee (1977) to give

7 recommendations to revive Panchayti Raj Institutions with required strength and significant role in the development functions of local governments. The Committee in its recommendations mentioned establishment of “Social Audit Cell” at the district level as a watch dog agency to monitor the utilization of funds allocated for the socioeconomic development of marginalized groups. Later, 73rd Constitutional Amendment Act, 1993 provided constitutional status to Panchayati Raj Institutions vide article 243M, made special provisions in respect of scheduled areas.

Government of India to constitute Dilip Singh Bhuria Committee (1994). The Committee recommended entrusting statutory status upon the Gram Sabha to conduct the Social Audit at the Panchayat level. Defining social audit, the committee specified that the audit to be in nature of non-financial audit and may entail even of discussions of developmental programmes. Making it more specific, the committee emphasized that records would be subjected to close scrutiny and the criterion would be not financial disbursement but whether the intended benefits had reached the target groups. (BANSAL, 2016)

Social Audit in context of Indian conditions, described it a process comprising financial and non-financial resources used by public agencies for development schemes shared with the stakeholder folk, through a common public platform. Social Audit helps people to trace accountability and transparency by providing an opportunity to scrutinize the results of development initiatives, schemes and programmes by the ultimate beneficiaries (BANSAL, 2016).

1.4.2 Objectives of Social Audit  Promote transparency and accountability in the implementation of the programme.  Inform and educate people about their rights and entitlements under the law in course of conducting Social Audit.  Provide a collective platform. Such as Social Audit Gram Sabha for people to express their needs and grievances.  Promote peoples participation in all stages of implementation.  Strengthen participation is Gram Sabha, make it an inclusive and participatory institution and make it a platform for positive collective action.

8  Improve capacity of local stake holders who participate in the Social Audit.  Strengthens the scheme by deterring corruption and improving implementation ( Mahatma Gandhi NREGA Social Audit Society - Kerala, 2019) Section 17 of the MGNREGA has mandated Social audit of all Works executed under the MGNREGA. Social Audit is different from Financial Audit. Financial audits involve inspecting and assessing documents related to financial transactions in an organization to provide a true picture of its profits, losses and financial stability. Social audits focus on the performance of a programme in fulfilling its intended social objectives and ethical vision through consultation with a range of stakeholders including social programme beneficiaries, community members, government officials and verifying the information obtained with documents and physical evidence. Thus social audits examine and assess the social impact of specific programmes and policies. The process of Social Audit combines people's participation and monitoring with the requirements of the audit discipline. It is necessary to promote people's participation in the audit along with support provided by an independent social audit organization that facilitates the process. The Social Audit process is a fact-finding process. The work of the Auditor is to investigate by cross-verifying facts and details in the records from the workers and cross- verifying works at site. The "Auditors" must not view themselves as "Prosecutors". (Subashini & Viji, 2017) 1.4.3 Benefit of Social Audit  It informs and educates people about their rights and entitlements.  It provides a collective platform for people to ask queries, express their needs and grievances.  It promotes people's participation in all stages of implementation of programmes.  It brings about transparency and accountability in government schemes.  It strengthens decentralised governance. 1.4.4 Features of Social Audit  Fact finding not fault finding.  Opportunity for awareness building on entitlements and processes.

9  Creating the space and platform for dialogue among various levels of stakeholders.  Timely grievance redressal.  Strengthening the democratic process and institutions.  Building people's pressure for better implementation of programmes. 1.4.5 STEPS TO SOCIAL AUDITING: There are six key steps to Social Auditing- i. Preparatory activity includes understanding key principles of Social Audit, listing core values and social objectivities of the department/programmes and matching activities with objectives, listing current practices and delivery systems, fixing the responsibility for doing Social Audit and budget for Social Audit. ii. Defining audit boundaries by identifying key issues and objectives and identifying stakeholders. iii. Selection of performance indicators for social accounting and book keeping. iv. Preparing and using social accounts. v. Presentation of social accounts to social auditor for the quality of the reports and further dissemination to stakeholders and civil society. vi. Review for the brushing up the policy, administration rules, legislative process and functioning besides alignment for societal objective for process standardization (BANSAL, 2016)

CHAPTER – II REVIEW OF LITERATURE

11 REVIEW OF LITERATURE

A literature review discusses published information in a particular subject area and sometimes information in a particular subject area within a certain time period.

2.1 SOCIAL AUDIT

2.2 HISTORY OF SOCIAL AUDIT

The evolutions that took place over the time on the thought of social audit and practical development are presented with details of the short history of social audit evolved in last three decades of the 20th century

In the mid-1970s in the United Kingdom and Europe, the term Social Audit described the possible impact on jobs, the community and the environment if a particular enterprise or industry were to close or relocate. The different evolutions of the term Social Audit laid emphasis on the social dimension in contrast to the economic impact of any activity or programme. Social Audit as used by organisations to help them achieve improved performance is quite different in method and practice from the early evaluations.

12 Social Audit was developed in 1978 at Beechwood College (an independent worker cooperative training institution in the United Kingdom). In training courses and conferences run between 1978 and 1984 at Beechwood, the initial presentations and discussions on Social Audit took place and gained momentum. Freer Spreckley (1981) published the manual, “Social Audit – A Management Tool for Co-operative Working” in which a method of Social Audit was fully described for the first time. The methodology contained therein described an organisational method for democratic organisations for measuring their own social performance.

The four main four main elements :

 Social Purpose  External View  Internal View and  Social Accounting

Beechwood College also developed a set of Social Audit legal clauses for an organisation‟s constitution, which were later used, in 1985, as the basis for the Industrial Common Ownership Movement‟s model constitutions

2.3 MEANING OF SOCIAL AUDIT

The word “Audit” came from Latin language which meant “to hear”. The process of audit on a comprehensive basis means an assessment of a policy, programme, rule, act, guidelines, person, law, organization, system, process, enterprise, project or product etc. The primary objective of an audit is to identify defects or irregularities in any of the functions or activities examined and to indicate possible remedial measures to add value to the efficiency and effectiveness to an agency engaged in the delivery of public services. (BANSAL, 2016)

2.4 DEFINITION OF SOCIAL AUDIT

Pearce, J. (2005) defined “Social Auditing is the process whereby an organization can account for its social performance. It assesses the social impact and ethical behaviour of an organization in relation to its aims and those of its stakeholders.”

13 Freer Spreckley defined “Social auditing is a systematic and objective accounting procedure that enables organisations to measure a range of internal and external factors not covered by financial auditing.”

Bauer and Fenn Jr.(1973) stated that” Social audit is a commitment to systematic assessment of and reporting on some meaningful, definable domain of a company‟s activities that have social impact.

According to Cooper and Yuji (1984) in Kohler‟s Dictionary, “A social audit is an examination of the performance of an accounting unit in various areas of social concern. Such activities include independent review and appraisal of social and environmental consequences of corporate activities. (BANSAL, 2016)

2.5 PURPOSE OF SOCIAL AUDIT Social audits can vary in terms of scope and purpose. A broader social audit could investigate the work of multiple government departments over a number of years in several districts. 11 By contrast, a social audit that is more specific and limited in scope would be used by civil society and government agencies to manage a particular project in one village at a given time. The objective to undertake social audit is a fact finding exercise instead of a fault finding process but it is an activity of taking account of the social, environmental and community sectors achievement by an institution. It provides an account of the outcome of an organisation's non- financial objectives through systematic and regular monitoring, based on the views of direct and indirect recipients of the benefits (BANSAL, 2016).  It informs and educates people about their rights and entitlements.  It provides a collective platform for people to ask queries, express their needs and grievances.  It promotes people's participation in all stages of implementation of programmes.  It brings about transparency and accountability in government schemes.  It strengthens decentralised governance. 2.6 STRENGTHS OF SOCIAL AUDIT The area where social audit application could be useful incorporated-  Review of ethical and social impact,

14  Results orientation of the institution with the benefits accrued/outcomes for 16 service recipients.  Determination of how well the organization is living up to the mission and values it espouses;  Providing a basis for shaping management strategy in a socially responsible and accountable way and to identify opportunities and potential problems before they arise;  Facilitating organizational learning on how to improve social performance and strategic management of organizations, including concern for their influence and social impact on organizations and communities;  Providing information to the community, public, other organizations and institutions about the allocation of their resources invested in the organization and  Increasing the organization‟s accountability to the groups it serves and on which it depends. (BANSAL, 2016) 2.7 DOS OF SOCIAL AUDIT  There should be a favourable environment building process before the social audit.  Awareness and simple (IEC) materials on entitlements should be circulated.  Be polite to workers and beneficiaries.  Introduce yourself before starting the interview/interaction or group discussion.  Honour the request of beneficiaries if she/he makes any.  Cross-check the information before coming to a conclusion (or writing the report)- cross verification is a must.  Publicly read out the evidence to the beneficiary before taking his/her signature.  Ask the people who have shared testimonials to come over to the public meeting to give their testimony in person, if possible.  Protect the safety and security of the beneficiaries who are interested to testify.  Make people aware about their rights and entitlements during the survey and during public meetings.

15  Take extra steps to ensure participation of vulnerable groups like SC, ST, NT, DNT, differently abled, single-woman headed households during the process.  Cover all villages and hamlets i.e. 100% verification needs to be done.  Maintain a neutral stand by interacting with various groups in the village instead of just the powerful ones (such as the sarpanch, ward members, secretary, gram rozgar sewak, mate and others).  As far as possible, try to stay in public buildings. 2.8 DON’T SOCIAL AUDIT  Don't be judgmental.  Don't misuse other's records (for instance, borrowing a worker's job-card & not returning it). Don't take undue favours (hospitality and transport) from others during the process.  Avoid taking advantage from people in powerful positions.  Don't drink alcohol during the process. 2.9 AUDIT OF SCHEME RULES, 2011

The Audit of Scheme Rules, 2011 were prepared by MoRD in consultation with the Comptroller and Auditor General (CAG) of India. These rules are also called the Mahatma Gandhi National Rural Employment Guarantee Audit of Schemes Rules, 2011.These rules define the process of social audit and responsibilities of the Social Audit Unit (SAU), state government and the field functionaries of MGNREGA, to be followed across the country.

These rules also emphasize the role of the SAU, its pre-requisites, the process of social audit and the responsibilities of designated officials.

2.10 SOCIAL AUDIT UNIT AND ITS ROLE

The State Government shall identify an independent organisation as a Social Audit Unit to facilitate the conduct of social audit. SAU shall be responsible for the following:  Build capacities of Gram Sabhas for conducting social audit.  Identify, train and deploy suitable resource-persons from primary stakeholders to conduct social audit.

16  Prepare required reporting formats, resource materials, guidelines and manuals.  Create awareness amongst the wage-seekers about their rights and entitlements.  Facilitate verification of records with primary stakeholders and at the worksites.  Host the social audit reports including action taken reports in the public domain.

2.11 SOCIAL AUDIT PRE-REQUISITES

 The process of social audit shall be independent of any process undertaken by the implementation agency of the scheme.  The implementing agency shall not interfere with the conduct of social audit.  The implementation agency shall make all information/documents available to the SAU at least 15 days prior to the date of commencement of social audit.  The resource person deployed for facilitating social audit in a Panchayat shall not be a resident of the same Panchayat. 2.12 KEY ROLES OF THE GRAM PANCHAYAT TOWARDS SOCIAL AUDIT:  Convening the Gram Sabha for planning and social audit  Making available all relevant documents for social audit such as:  Muster rolls  Bills and vouchers  Other connected books of accounts and documents  Measurement book  Copies of sanction orders (both technical and administrative)  Proactive disclosures (in the GP office or main public spaces) including names of job-card holders, details of work (completed and ongoing) at WorkSite, wages paid, quantity and costs of materials along with supplier agencies.

17 2.13 ROLES OF OTHER STAKEHOLDERS

 The Programme Officer will ensure that all the required information and records will be made available 15 days prior to the commencement of the social audit.  The state government is responsible to take follow-up action on the findings of the social audit.  The District Programme Coordinator will ensure that the state government takes corrective action on the social audit report.  The State Employment Guarantee Council will monitor the action taken by the State Government and submit the annual report to the State legislature. (Subashini & Viji, 2017)

2.14 ASRAYA

2.14.1 Definition - Asraya mean?

Asraya is a Sanskrit word meaning “refuge,” “base,” “shelter” or “protection.” In Hindu philosophy, it can refer to a specific deity that is worshiped by a devotee, rather than Brahman as a whole. Within Buddhist philosophy, Asraya can mean “one who offers,” or is sometimes used in reference to the physical body or can be equated with the six senses.

2.15 AGATHIRAHITHAKERALAM – Reaching the Unreachable Since independence, both the Central and State governments have been focusing on poverty eradication through the trickling down effect of the general growth process and direct income generation programs. All income generation programs were either asset generation programs or employment generation programs. Though these helped in uplifting many from the clutches of poverty, they failed at reaching out to the poorest of the poor. Thus the economic growth of the country, many a times, did not help the destitute to escape the penury to which they have been thrown into. In 2003, the Government of Kerala introduced a new project through the State Poverty Eradication Mission (Kudumbashree), catering to these unreachable poorest of poor, called Asraya. In 2017 Asraya the Asraya project which had seen many phases was restructured into a more comprehensive one time program called Agathirahithakeralam (Destitute Free Kerala).

2.15.1 AGATHIRAHITHAKERALAM – the Destitute Identification and Rehabilitation Program One of the main challenges in the program is destitute identification. So far poverty has been measured in the country based on consumption expenditure. However, the criteria of destitute identification in Agathirahithakeralam are tailored according to the socio economic structure of Kerala. This is done by means of a 9 – point criteria and additional criteria (8 in rural and 10 in urban areas). Those families who satisfy 7 out of 9 – point criteria and 1 additional criterion are deemed to be destitute. The beneficiary families are identified by the Community Development Societies (CDS), the apex body of the three – tier community organization of Kudumbashree, and later ratified by the local self-government Institutes (LSGIs). The CDS and the LSGI together prepared a project for the beneficiary families by identifying the services needed by each family and allocating funds for the same. Once the project is approved by the State Government it is implemented by the CDS and the LSGI together.

2.15.2 AGATHIRAHITHAKERALAM – A Multidimensional Approach Agathirahithakeralam is different from other poverty eradication projects in the sense that instead of focusing on a particular aspect of poverty, it endeavours to look into various dimensions of poverty. While many of the basic, developmental and psychological needs of an Agathirahithakeralam beneficiary family are taken care under the aegis of Kudumbashree, the other needs are satisfied by Government Departments like LSGIs, Health Department, and Public Distribution System etc. Resources required for funding different components of the project are mobilized from existing schemes and programs. The funding of the project is by Kudumbashree, LSGIs and philanthropic individuals and institutions. Kudumbashree allocates fund for basic needs called the Challenge Fund (40% of the total project cost subject to a maximum of ₹40 lakhs for general projects and ₹50 lakhs for ST projects). The entire project is monitored at various levels starting at the bottom by the foot soldiers of Neighbourhood Groups of Kudumbashree.

19 2.15.3 AGATHIRAHITHAKERALAM– A Convergence Program The success of erstwhile Asraya, despite being a behemoth program, lies in the fact that it was a convergent program. Agathirahithakeralam project follows the same foot prints of Asraya. The stakeholders of Agathirahithakeralam program, apart from beneficiaries, are various Government departments steered by the LSGIs under the guidance of Kudumbashree. There is no better example of how community involvement (via Kudumbashree Community Organizations) helps in uplifting the poor, than Agathirahithakeralam. Its success also lies in the fact that it has a decentralized approach to poverty eradication.

2.15.4 AGATHIRAHITHAKERALAM– An Innovative Program Asraya, Agathirahithakeralam (Destitute Free Kerala) is equipped with better technology in beneficiary identification (via mobile app) and project preparation rendering the project more cost effective and timely. There is a provision for appeal submission and appeals are verified by LSGIs. For monitoring of the projects after implementation, Monitoring Committees will be formed at State and District level. The families who do not have enough criteria to become beneficiaries under the project but have no job for even 10 days a month will be treated as Special Cases and given a helping hand. It also has an anytime inclusion provision. Thus Asraya which has donned new attire in the form of Agathirahithakeralam is expected to tackle the many facets of poverty in a better way. (Kudumbasree, 2019) Asraya is an integrated project aimed at identification and rehabilitation of destitute families. Started in 2002 as a follow up of the Kudumbashree initiative to identify the families that had been left out even from the outreach of decentralised planning and poverty alleviation programmes.

The scheme requires every Grama Panchayat to prepare separate micro-projects for each destitute household identified. These micro projects are then integrated with the annual plans of the Grama Panchayats. The scheme is financed by combining plan funds of the Grama Panchayats, contributions by Block and District Panchayats, centrally sponsored schemes, and State government funds.

During the first year of implementation, 101 Grama Panchayats in the State came up with projects, involving rehabilitating 8233 destitute families. The Grama

20 Panchayats had been able to ensure institutional systems for the simultaneous implementation of multiple micro plans in the field. (The Kudumbasree story, 2012)

2.16 SALIENT FEATURES Asraya stands out as a unique scheme in destitute identification and rehabilitation because of certain key features. These features have been built into the very design of the scheme; some of them were there from the beginning, while some others were added subsequently based on experience.

 Kudumbashree CDS is the designated agency for implementation

 Destitute families are identified by NHGs, verified by ADS, eligibility checked at the CDS, and approved by the Grama Panchayat Committee.

 Objective and transparent process for identification of destitute families

 Integrated approach addressing the survival needs, basic amenities, continued support, and development of destitute families through a package of care services

 Multi-year projects; three year duration initially, extendable through projects for continued support to the needy

 Individual micro projects for every destitute family, prepared at the NHG level

 Micro projects combined at the CDS level, and integrated with the Grama Panchayat‟s Plan

 Financing by central, State government support, contributions by District and Block Panchayats and plan fund of the respective Grama Panchayats; Attempts to mobilise financial and other support from agencies and individuals

 Utilisation of existing schemes:

o Land for house construction for the homeless by Grama Panchayat

o House under Indira Awas Yojana (IAY)

o Electrification through Rajiv Gandhi Grameen Vidyutikaran Yojana

21 o Drinking water through the special scheme of Kerala Water Authority (KWA) covering BPL families, and

o Latrine through support from Total Sanitation Mission and so on.

 Challenge Fund for Grama Panchayats that decided to provide food to the destitute family. Challenge Fund up to Rs 25 lakh (Initially Rs 10 lakh; later revised to Rs 25 lakh), limited to 40% of the total project cost.

 Special Asraya Projects for tribal families under Tribal Sub Plan

o Challenge fund Rs 40 lakh subject to the ceiling of 40% of the total outlay

Challenge fund can be used for all components other than those relating to creation of basic amenities (The Kudumbasree story, 2012)

2.17 DESTITUTE IDENTIFICATION Asraya Project has an objective process for identifying destitute families at the NHG level. The process uses „Nine Point Risk Parameters‟; families meeting seven of the nine risk parameters are shortlisted. From this shortlist, families meeting at least one parameter in an Additional Eight Point Risk Parameters are included as destitute families for rural areas. In the case of urban areas, there are separate „Nine Point Risk Parameters‟, followed by „Additional Ten Point Risk Parameters‟. Families meeting one out of the ten parameters are shortlisted

2.17.1 Nine Point Risk Parameters( Rural)

i. Kutcha house

ii. No access to safe drinking water

iii. No access to sanitary latrine

iv. Illiterate adult in the family

v. Family having not more than one earning member

vi. Family getting barely two meals a day or less

vii. Presence of children below the age of five in the family

viii. Alcoholic or drug addict in the family

22 ix. Scheduled caste of scheduled tribe family

2.17.2 Additional Eight Point Risk Parameters (Rural)

i. Having no landed property to create their dwelling place (living in poramboke land, forest land, side bunds of canal and paddy fields etc.)

ii. Spending the night time in public places, streets or in the verandas of shops for sleeping.

iii. Unwed mothers, single parent or separated women living in distress.

iv. Young widows who are economically poor or women who have passed the age of marriage and remain unmarried.

v. Subject to severe, chronic and incurable disease or with physical or mental disabilities.

vi. No healthy member to win bread for the family below the age of sixty.

vii. Beggars who resort to beggary as vocation.

viii. Women subject to atrocities.

2.17.3 Nine Point Risk Parameters (Urban)

i. No land / less than five cents of land

ii. No house / dilapidated house

iii. No sanitary latrine

iv. No access to safe drinking water within 150 metres

v. Woman-headed household / Presence of a widow, divorcee / abandoned lady / unwed mother

vi. No regularly employed person in the family

vii. Socially disadvantaged groups (SC/ST)

viii. Presence of person with physical or mental disabilities / chronically ill member in the family

ix. Families without colour television

23 2.17.4 Additional Ten Point Risk Parameters (Urban)

i. Spending the night time in public places, streets or in verandas of shops for sleeping

ii. Beggars who resort to beggary as vocation

iii. Young widows who are economically poor or women who have passed the age of marriage and remain unmarried

iv. No healthy member to win bread for the family below the age of sixty

v. Women subjected to atrocities

vi. Families having street children / children in juvenile home or poor home

vii. Families having children below the age of 14 who work to earn money for the family

viii. Family living in slums

ix. Families having women members who live in „Abala Mandiram‟

x. Families having commercial sex workers (The Kudumbasree story, 2012).

2.18 PACKAGE OF CARE SERVICES The package of care services that Asraya offers addresses a wide range of needs typical of destitute persons and families. It takes care of almost anything that would be required for their rehabilitation; it is also flexible to accommodate specific needs. The package of services takes care of survival needs, sustenance needs, and development needs of the destitute families. 2.18.1 Food: Provision for ensuring food to all destitute families

 Food grains under Annapoorna Programme to all destitute persons above 65 years of age.  Destitute families facing extreme poverty without any source of income or pension are covered under Antyodaya Anna Yojana Programme, with local

24 body directly paying the ration shops handling public distribution system (PDS).  Members of destitute families are covered under Food for Work Programme such as SGRY to ensure wage employment and supply of food grains.  In the case of the physically or mentally challenged, chronically ill from incurable diseases, and very old people with nobody at home able enough to cook food, cooked food was to be served through anganwadies under the responsibility of NHGs and ADS.

2.18.2 Health Care: Ensuring health care and free medicines to all destitute persons

 Efforts by local governments for providing special care to destitute persons suffering from tuberculosis, leprosy, cancer, AIDS, cardiac, kidney, or neuro diseases with the support of the primary or community health centres. Medical camps and services of specialists from government medical colleges, district, or general hospitals were to be used. Speciality hospitals in the area were to be persuaded for providing free service to destitute persons.  Supply of free medicines to the needy destitute persons.  Initiatives for utilising Chief Minister‟s or Prime Minister‟s Distress Relief Fund for the treatment of destitute persons; also encouraged was tie up with philanthropists and charitable organisations.  Voluntary health workers‟ corps at local body level to render assistance to destitute families.

2.18.3 Assistance to Physically and Mentally-Challenged

 Three percent allocation for the disabled under Indira Awaz Yojana, Sampoorna Grameen Rozgar Yojana (SGRY) etc to be spent on priority basis for the disabled from Asraya families.  Skill development programmes through the involvement of agencies such as Kerala State Handicapped Persons‟ Welfare Corporation, Kerala Federation of the Blind etc.  Local governments to use their plan grants under general sector to promote employment oriented projects for the disabled in destitute families.  Steps for financial assistance for employment oriented projects for the disabled from Central/State Social Welfare Advisory Boards.

25 2.18.4 Pensions

 Priority to eligible persons from destitute families in distribution of old age and other pensions.

2.18.5 House Sites

 Local governments to accord priority in providing land for house sites to landless destitute families; local governments, District and Block Panchayats permitted to buy land for destitute families.  Concessions available to SC/ST families made available to destitute households irrespective of their communities.

2.18.5.1 Housing

 Priority in constructing houses for the destitute families that are lacking in proper housing.  House construction through Neighbourhood Groups or Voluntary Agencies.

2.18.6 Drinking Water

 Provision of public stand posts at the nearest possible spot.  Preference to areas with large number destitute families in new water supply schemes.  Construction of open draw wells.

2.18.7 Education

 Efforts in enrollment of children from destitute families and re-admission of drop outs.  Provision of study materials, uniform, umbrella, footwear, school bags etc., to children of destitute families through sponsorship by individuals or voluntary agencies.  Special coaching to ensure educational improvement of children of destitute families through formation of Voluntary Support Groups at the local body level.

2.18.8 Social Inclusion

 Community Development Societies to initiate enrollment of members of destitute families in Neighbourhood Groups.  Execution, supervision, and monitoring of projects under rehabilitation of destitute families by Neighbourhood Groups.  Awareness creation on the state of destitute families among general public through CDS.  Counselling for family members.  Training programmes for building up physical and mental efficiency of destitute persons with professional advice from psychologists and experts (The Kudumbasree story, 2012)

2.19 IMPLEMENTATION Implementation of Asraya starts with community based identification of destitute families by Kudumbashree ADS. The ADS identifies the destitute through the Neighbourhood Groups (NHGs). After identification and verification by CDS, the Grama Panchayat approves the list. Micro plans are prepared for the rehabilitation of each destitute person or family. These micro plans are consolidated at the CDS level to make the CDS level plan. Responsibilities of various components have been clearly assigned for the smooth implementation of the plans.

Components Responsibility Survival needs (Food and CDS member secretary clothes) Pension Grama Panchayat / Municipality/ Corporation Secretary Health care Medical officer of the local body Education Member secretary Basic amenities (Land, Grama Panchayat / Municipality/ Corporation house, drinking water, Secretary or an official entrusted by the sanitation) secretary

27 Development needs Member secretary (Employment, skill training) Mental health (Mental Member secretary health care) Special projects (With Grama Panchayat / Municipality/ Corporation special components decided Secretary or an official entrusted by the at the local body level) secretary

2.20 PREPARATION OF BENEFICIARY LIST

 Beneficiaries for the Destitute Free Kerala Project should be identified by the ADS in each ward with the support of their neighbourhood guilds and the list prepared by the ADS should be forwarded by CDS chairperson and approved by the local body.  The beneficiaries of the Destitute Free Project will be identified through the list enrolled in the Mobile application prepared by the Kudumbashree. (A handbook about the functioning of mobile application is prepared and distributed by the Kudumbashree.) After completing the information collection, a draft has to be prepared and the draft list is to be submitted by the CDS Chairperson to the Panchayat President.  The draft list should be published by the CDS in the local self-government. The draft list has to be published in the notice boards of local self- government and Anganwadis.  Complaints and problems in the draft list should be appealed to the CDS Chairpersons and T appeal has to be forwarded to the secretary in writing and the bill for the same has to be given to the complainant. All the complaints should be reviewed.  The officers VEO/HI authorized by the Panchayat/municipality/corporation secretary has to take needed steps in all the appeals after proper investigation and review. The RP who was part of the survey should also partake in the review and field visit.  The draft list of the beneficiaries should be approved by a separate (destitute) Gram Sabha of the local body.

28  If the Officers suggest ineligible beneficiaries, they will have to face legal action for fraud.  When the list is published, the application should be written against the beneficiary in the list, along with the name and designation of the person who recommended it (Secretary of the neighbourhood guild, ADS, CDS, Ward member, Officers). It has to be done for all beneficiaries.  The final list shall be approved by the special committee when necessary.  A social audit should be conducted with the local body during each project period and in that social audit the services received by the present beneficiaries of the project are to be evaluated.

2.21 PREPARATION PROCEDURES OF THE DESTITUTE FREE KERALA PROJECT

 CDS-level medical camp should be conducted strictly in the presence of the government Medical Officer to determine the health situation of the beneficiaries of the project. The medical officer is the person who has to approve the beneficiary‟s health factor.  Based on the final list of beneficiaries approved by the Local Self Government Institution, the CDS should be prepared online and submitted to the Local Self Government Agency for approval. (CDS must prepare to hard copies).  The plan shall be approved by the special council or committee of the autonomous bodies.  A copy of the plan approved by the Councillor Committee should be handed over to the District Panchayat Block Panchayat.  General Information of Local Government, CDS in Project Document, Methodology details of the steps taken to prepare the project, List of beneficial factors that apply to beneficiaries, financial analysis component wise cost, Yearly turnover of finance, Family information, if funds from other sources are allocated, they have their consent form. Methodology, financial analysis and consent forms must be scanned and incorporated into the plan. In addition, a certified copy of the decision approved by the Local Authorities Plan document. In addition, the class auditing report should also

29 be included. In case of delay in the approval of the project, the share of Local Governments involved in the infrastructure development can be added to the 2/3 year of the project. For this purpose, there should be no change in the plan for the current year.  Each family should have a separate page for family information. Address of household name in household information, Ward Number, Category, Ration Card Number, Aadhaar Card Number, Ration Shop number,(Only if available).Photo by family members standing in front of the house, Route map from main road to home, Relationships with family heads, Physical condition of family members, Quality of life, For services to the family, There should be the required amount of source service and the duration(These should be recorded online).

2.21 PROJECT APPROVAL PROCEDURES

 Detailed as prepared above Asraya project guidelines Along with the decision approved by the local bod District Mission Coordinator should submit online and 2 copies of the hardcopy.  Technical inspection of the project should be done at district level. At the district level the beneficiaries of the scheme should be revised and if there are any technical defects, they will be transferred to the local body.  The District Mission Coordinator shall submit the proposal online to the State Mission with the recommendation of the DMC and shall be approved by the Government. If the deficiency is found in the District Mission Co-ordinator's inspection, the project document can be sent back online and directed to rectify the shortcomings. The amendment also requires that an updated copy of the plan be established.  The approved plan shall be issued by a CDS sealed by the District Mission Coordinator and shall be used for the project work. CDS will from time to time be responsible for keeping these out.  A copy of the government approved plan should be printed with the government approval order and placed in the CDS local body.

30  District missions must ensure that the projects submitted are complete. The District Mission Coordinator will be responsible for returning the deficiency in the project submitted to the State Mission. 2.22 PROJECT IMPLEMENTATION  The local government is not informed of the approval of the project. The Local Authority shall consult with the Chairman and prepare an assessment plan for the local body to report to the Local Authority.  Executives must ensure that the accredited plan does not include ineligible beneficiaries. For this purpose, before the execution of the project, it should be checked and approved until it is disqualified and approved by the Evaluation Committee. A beneficiary may review the eligibility at any stage of the project execution to be unworthy (If there is a living situation with a fixed salary) The District Mission can make a recommendation to remove the person or family from the local body with the approval of the assessment committee. In the process, the person should be given a fair chance to be heard.  Immediately after receiving the Challenge Fund of the Asraya project the amount of the Secretary to the Local Self Government Institution shall be transferred to the joint account of CDS Chairperson and Member Secretary. Action should be taken by the Deputy Director of the Panchayat and the Regional Joint Director of Urban Affairs against the Local Secretaries who have not remitted the amount.  Executing Officers should ensure that beneficiaries of the approved plan receive full service within the plan period.  All the services relating to the Asraya Project should be made available through the Neighbourhoods Group. Connecting each needy family to a neighbouring neighbourhood. Responsibility to provide services must be volunteered and fulfilled in the neighbourhood. Neighbourhoods meetings should ensure the presence of holiday family members while providing services. Visit members of the destitute family to review the availability of assistance under the plan and keep the weapon registered. This information should be reported to each Mass Review. The full version of the project work

31 should be presented to the CDS Chairperson on a monthly assessment committee. Related Neighbourhoods, Cases, Notices Take necessary steps.  The project progress must be evaluated in the District or State Review by the local body.  The beneficiaries should have access to food grains and kits every month. Reporting to the Executive Officers, District Mission Coordinator, State Mission and Panchayat Deputy Director, Regional Joint Director, Disciplinary action should be taken against them by the Deputy Director of Panchayat and the Regional Joint Director of Urban Affairs.  The amount of funds allocated for the project shall be received within the plan period. The amount required for the project each year shall be ensured by the District Planning Committee.  The duration of the project will be three consecutive years from the date the Government approves the development plan.

2.23 ADDING NEW MEMBERS

 In the event of a family member becoming a victim of such a tragedy and therefore coming in, along with the documents approved by the Panchayat Governing Council, the certification of the Village Officer and the Medical Officer and the details of the family applications for inclusion in the scheme should be submitted online by DMC. If approved by the DMC to be approved and approved as part of the Arms Existing Plan, it should be sent to the Kudumbashree State Mission Office for approval with the Executive Director.  In case of incidental inclusion, the total amount required for inclusion of the missing persons shall be sought from the Local Government Public Sector Development Fund.

2.24 FUNDS

Funds can be utilized and allocated for this project from the three tier Panchayati Raj system. Of the total amount 10 percentage shall be allocated from district Panchayat 15 percentage from block Panchayat and 35 percentage from Gram

32 Panchayat. However, in the municipal area whole amount except that is of the challenge fund shall be allocated by the same organization itself.

2.24.1 Challenge Fund

 Challenge fund the amount allocated by the government through the Kudumbashree for the project is known as challenge fund for destitute rehabilitation fund.  Kudumbashree Account and Audit Society (KAAS) audit of first phase and second phase of Asraya should be completed and balance amount should be transferred to destitute free Kerala project. The balance amount and interest of the challenge fund issued as per the government order through Kudumbashree should be allocated for the implementation of the project, other balance funds can also be allocated for the implementation of the project.  Either 40 percentage or 40 lakhs of the total amount of the project which is lesser will be granted as challenge fund.  If it is of ST project then 40 % or 50 lakh which is lesser will be used for the project.  The rest of the amount available in the Asraya project will be granted for the destitute free Kerala project.  Challenge fund shall not be used for increasing the basic facilities and amenities.  Challenge formed can be used for following proponents:

i) Basic requirements

Food food grains, nutrition kit, distribution of cooked food, expense for the distribution of food products

Health preparing health record, medical camps- in PHC/other government hospitals (Allopathy/AYUSH), medicines which are unavailable in PHC/ other government hospitals, RSBY insurance premium, equipment‟s for treatment, wages for the home nurses, travelling expenses

33 for the journey to referral hospitals; rent for ambulance.

Clothing when sponsors are unavailable for ST groups

Pension The expense for Preparing documents for the purpose of applying for different pension.

Education when sponsors are not available for giving educational materials, uniform, Scholarship, Stipend. Fees for education according to government school fees standards, the expense for improving the classroom, expense for sports and arts training, educational materials for the physically and mentally challenged for which the social security mission or the running project could not provide.

ii) The expenses for making the Destitute Free Kerala Project:

The registration fees for buying/building property/ houses, stamp duty, and documentation should be excluded for the beneficiaries of DFK. The amount for the registration can be taken from the challenge fund till the order for the above mentioned is passed by the department of registration.

2.24.2 Other Funds

2.24.3 General Category Development Fund

 The fund which is sanctioned for care services for general category development fund by the LSGs can be used for all the factors including of basic survival, basic needs, improvement of basic needs, developmental necessities, mental requirements etc.  But if fund is available in challenge fund or interest is not available in that situation fund from general category development fund Can be used for any requirements.

34  In case challenge fund is being utilised and HMC fund also is to be used. then to reimburse it non-road maintenance fund can be used.  Medicines and medical equipment can be purchased with the HMC fund in an emergency and repayable from the challenge fund.  LSG local fund CDS, local fund, MP/ MLA funds, different district/block/department's funds (SC/ST, Coastal fishing area, social justice) can be used for DFK services. (E.g.: - tools, materials)

2.24.4 Reserve Fund

5% of the allocated challenge fund should be kept ask reserve fund. But when the challenge fund amount is exhausted there is no need to keep the Reserve Fund. with acknowledgement of evaluation committee for emergency needs expense for making pension documents and emergency needs decided by the CDS. The reserve fund can be used for the funeral services of destitute beneficiary a maximum of rupees 3000 can be used from the reserve fund. r if the Amount deposited in the Reserve fund is exhausted before the challenge refund is exhausted an equal amount of 5% can be incorporated from the interest money. a permission from the valuation committee is to be obtained for going so.

2.25 DESTITUTE FREE KERALA ACCOUNT:

A new account shall be maintained by nationalised banks for destitute free Kerala scheme. The account maintained should be of joint account in the names of CDS chair person, members and secretary. The amount allocated to Asraya and utilized should be accounted as opening balance in the newly opened account. The remaining amount should be closed only after getting the remaining amount of challenge fund and interest by the state secretary.

2.26 INSTRUCTIONS OTHER

 As per 2014-15 Only the annual challenge fund amount will be utilized. After spending 80% of the received amount rent sum will be given as instalments to local governments that are listed under MIS Kudumbashree.

35  The amount which was allotted under challenge fund for destitute free Kerala project and which was not been utilized shall be added with same and financial analysis shall be done.  No beneficiary shall be linked to financial institution for availing loans for any work undertaken in relation to the development of basic facilities.  Once a project is formed and recognized it is mandatory to continue the project as spill over for the next few financial years.  Project review - The project shall be reviewed before every financial year. During the project review if it is found that the families have become capable then the neighbourhood group shall notify the concerned levels of ADS, CDS. The evaluation committees shall approve and the local self-government secretary shall recommend and notify the District mission to remove the family‟s name from the project list however families having members availing life-long treatment and persons with disability shall not be removed from the list if they are still availing medical treatment, food and education.

In case they need any of these factors by still keeping this component that beneficiary family can be continued in the plan.

 Separate account for the Challenge Fund of the Scheme (Destitute free Kerala Project Account) shall be maintained in the official address of the CDS Chairperson and Member Secretary. At present, if there are multiple bank accounts for the project, these multiple bank accounts shall be co- ordinated and maintained as a single account.  The Utilization responsibility of the challenge Fund allocated by Kudumbashree in connection with the project is entirely up on the Member Secretary. In case of local purchase of medicines, an application should be given the respective Member Secretary with the recommendation of the Medical Officer. The member secretary shall purchase and provide the medicine from the Neethi/Jan Oushadhi/ government regulated medical stores or bills should be reimbursed for the purchase that was made during emergency. Bills must be filed and kept.  The revenue expenditure of Destitute free Kerala Plan should be presented before evaluation the committee every month.

36  Beneficiaries from Scheduled Caste and Scheduled Tribes included in the Destitute free Kerala should be included in Local Self-Government SC ST development sub plan. The amount from the components of the development sub-plan shall be allocated to them.

2.27 NEEDS THAT CAN BE INCLUDED IN THE PACKAGE OF SERVICES AND SUGGESTIONS FOR RESOLVING.

2.27.1 The necessities of life

2.27.2 Food

 Destitute families who do not currently have AAY ration cards shall be given food grains from public distribution system or other civil supplies institutions until the cards are available. The food grain shall be purchased at the prevailing rate. A person can purchase a maximum of 35 kg per month subject to a limit of 10 kg of rice/wheat.  It is important to ensure the supply of food items and pulses via Ration shops, public distribution systems. CDS, concerned Neighbourhood groups and person should ensure that the ration shop owners are providing this service. In case of any fault, CDS / ADS shall complaint to the concerned Local Self-Government chairman, Public Distribution Department Officer and the problem shall be resolved.  The entire grain shall be purchased and provided to the beneficiaries as per the ration card. In the case of direct purchase by the beneficiaries, the CDS should ensure that all food grain is available. If additional grain is required than from the ration shops then additional grains, can be purchased from government-controlled institutions  Destitute families who do not currently have ration cards shall be provided food grains from government-controlled institutions such as Neethi Store, Maveli Store, Kudumbashree Markets etc. It should be purchased at a lower cost through tender and distributed. At least 5 kg Rice/wheat /other cereals shall be purchased and provided to a person per month. This help can only be provided until ration card available is available (for a maximum of one year).

37  The list of destitute families who do not currently have a ration card shall be included within the scheme. They must be provided a deserving ration card (AAY, priority). The measures shall be taken under the leadership of (ADS/CDS/Local self-government) via District Collector‟s special order.  In addition to what is available through the PDS, nutritional kit should also be provided monthly to the Destitute families who have been selected for providing food. A Single member shall be given Rs.500 / - per month. 700 / - for a family of two members, Rs900 / - for a family of 3 or more members can be utilized. Nutrition kit shall include pulses, coconut oil, Sugar, Vegetables, Eggs, Milk and Fish Items according to the decision of evaluation committee. The items required for the kit shall be purchased from government-controlled institutions, Kudumbashree units etc. but CDS shall locally provide items that cannot stored (Milk, Fish, Vegetables)

A brief summary of services provided per month shall be presented before the evaluation committee.

 Essential food items for malnourished beneficiaries shall be assessed with the help of the PHC Medical Officer. The progress of nutrition should be monitored monthly. Nutritional status should be verified under the guidance of PHC/ CHC/Taluk Medical Officer. This will be recorded on the health card and progress shall be monitored. The service of palliative nurse shall be utilized for this.  Families with malnourished people shall be given provision of supplementary nutrition and the amount shall be increased to Rs.100 / - per month as per the instruction PHC medical officer  Destitute Rehabilitation Fund shall be utilised to cook and distribute food for families with people with inability to cook food due to special reasons (e.g., those who are physically and mentally challenged, critically ill -red plus category, Families with only aged people) The evaluation committee shall decide the manner in which food should be distributed. Anganwadi, Kudumbashree, Neighbourhood groups, ADS, NGOs can be entrusted with this. For this need (cookery and related expenses) A maximum Rs.60/ - can

38 be spent on per person, per day from Destitute Fund. Additional expenditure shall be mobilized through donations and sponsorship.  An alternative shall be arranged to deliver food/food items at homes for people with physical difficulties to collect Food/ food items from related institutions or centres. The required amount should be decided by the evaluation committee. Such facility is for people in the Red Plus category  The evaluation committee shall decide a manner to implement the above mentions items in 7 and 8. Neighbourhood groups / juveniles groups shall be entrusted to verify that the cooked food / raw food items are delivered or not. According to the evaluation committee's decision, if required, the task can be delegated other NGOs. The expenditure to deliver the food or food items should be included in the project.  The provision of services to persons belonging to the red plus category should be reviewed mandatorily at CDS meetings every month. It should be reported at district and state level. Any problems related to the Red Plus category is resolved within a maximum of one week.

2.27.2 Health

 The Gram Panchayat is to appoint any medical officer (in the same gram Panchayat) from Allopathy /Ayurveda /Homeopathy as a nodal officer for providing health services to the destitute under scheme.  A file shall be prepared containing detailed information about the Physical and psychological details of patients included in the project and should be maintained in CHC/PHC. To record basic information the services of the palliative care nurse can be used. To find out the health problems, a medical camp should be conducted under the guidance of nodal medical officer with the involvement of experts and medical officers from all the departments. Up to Rs. 25,000 / - can be spent for this purpose from Panchayat scheme. Before the project is given for approval, this type of medical camp shall be organised and the health card should be issued to the eligible persons. The Member Secretary shall be responsible for duly organizing the medical camp and the issuance of the health card. The DMC shall assure this. This may include the cost of preparing a health factor related file.

39  Once the plan is approved every patient shall be given treatment book within one month. The book shall be prepared in such a manner, book‟s first page shall include photo and can be used as identity card. Health card model is attached to appendix 1.  The case sheet of each project family should be kept in the respective local self-government institution‟s palliative care nurse/anganwadis.  Services available in government approved hospitals for the treatment of persons suffering from tuberculosis, leprosy, cancer, AIDS, heart disease, kidney and brain diseases should be utilized. The local self-government bodies concerned with these must take special action.  The services of specialist doctors available in medical colleges and district/general hospitals should be utilized for the treatment of patients in the above-mentioned categories. Special medical camps can be set up for them and the cost of medicines will be borne by from the Destitute Rehabilitation Fund. Other expenses should be met through sponsorships.  Patients who need regular medication for chronic illnesses should be provided with the prescribed medicines from the medical officer of the local self-government bodies, by the respective government hospitals. If there is a lack of stock in the health department or inadequate supply, the medicines which are not available in the Government Hospital should be made available to the patient by the Medical Officer through the H.M.C (Hospital Management Fund). This amount should be transferred from Challenge Fund to H.M.C Fund.  Patients enrolled in the program without a non-availability certificate can purchase locally sourced medicines (local purchase) from Neethi Store, government-controlled medical stores etc.  Based on the doctor‟s prescription, the drugs should be available from Neeti stores and the price should be reimbursed to the respective store by a member secretary‟s cheque.  The beneficiaries of the scheme should be included to the RSBY insurance scheme without premium. If the premium has to be paid, it can be paid from the Challenge Fund.

40  Medical camps can be organized up to twice a year if needed. If any of the beneficiaries are ill during the camp, they can be allowed to cover the amount allocated for health care.  If the amount allocated under the scheme is insufficient, the member secretary may purchase the required drug through the nodal medical officer on behalf of the beneficiaries using the Non-Road Maintenance Fund available to the local self-government institutions. The palliative care nurse should keep track of its stock and delivery in the respective government hospitals. Medicines can be brought from government-controlled medical stores and Neethi stores.  In case of emergency (people in desperate need) patients should be provided with medicines at their homes through the PHC field staff (protection, JPHN/ASHA worker)  People who need assistance with daily routine can avail the following services as certified by the medical officer of the local self-government institution in charge:  If there is a palliative home care scheme in the Panchayat/Municipality, the local self-government body shall ensure that their services are available to the patients involved.  When palliative home care is launched, the „health‟ component of the plan can be fully integrated into it. Until then the provisions of this order may continue.  Patients suffering from chronic illness and those who need treatment at home or in hospitals should be provided with medical equipment such as mattresses, waterbeds, wheelchairs, drip stands, commode, catheter, dressing equipment, oxygen and respiratory equipment etc., other than that of the doctor prescribed medications.  Train and encourage volunteers to take care of the above patients with no care. The amount required for these service activities should be checked as a public contribution. For assessing the availability of services received by the beneficiaries of the programme, the services of +2, college-level youth volunteers/government or semi-government employees can be used. In exceptional circumstances, with the approval of the District Mission

41 Coordinator, the Rural Employment Guarantee Scheme may provide a wage equal to the allowable daily wage from the project fund. Those who are willing to do this service should be trained and trained under the leadership of PSC/CSC Medical Officer. Beneficiaries in need of care assistance must be determined on the basis of a report from the PSC/CSC medical officer. The nodal medical officer shall arrange for the evaluation of the quality of service provided to them under the leadership of the PHC/CHC field staff.  Patients with a Plan Health Card should be exempted from the investigation fee associated with the initial inspection fee at Government Hospitals.  The expenses for transport of patients to the referral centre for emergency and specialist treatment, will be utilized from the Challenge fund in the following manners:  Upon the recommendation of the Medical Officer, the member secretary shall pay cash to the beneficiaries from the Challenge Fund for the cost of food for one or two bus/second-class train charges (Rs. 60/- per person) along with patients who are severely disabled and can travel by bus or train to the referral hospital.  In the case of patients who do not have the health or medical conditions to travel by bus or train, in the absence of free ambulance facility can be provided with the transportation charge from the Challenge Fund, on the basis of the medical officer‟s report. Only a maximum of Rs. 1,500/- can be spent from the Challenge Fund.  Local authorities should strive to provide private hospitals with modern facilities free of charge to treat the sick destitute. The DPC, headed by the expert committee constituted under this order, has taken steps to provide free medical treatment to all major hospitals in the district.  The local authorities shall take necessary steps to provide treatment services to the needy from the Prime Minister‟s/Chief Minister‟s/Local Self- Government‟s Relief Fund and Karunya Fund. Application for assistance from the Chief Minister‟s Relief Fund, through the District Collector and the Prime Minister‟s Relief Fund, through the Member of Parliament.

42  Individuals and charities interested in philanthropy should be encouraged to sponsor treatment facilities for needy individuals. Such campaigns for identifying sponsorships can be organized.  A committee of hospice care volunteers who are interested in volunteering at the local body with a specialized palliative care unit and providing services to address the health problems of the needy should be established.  Quarterly meetings of volunteers of this nature should be undertaken in consultation with the respective District Panchayat Officers and the State Mission should assess these and understand the problems in a holistic manner.  Local governments should endeavour to utilize the services of Rotary/ Lions/ Indian Medical Association etc.  Beneficiaries can be provided access to Government approved treatment options such as Allopathy, Ayurveda and Homeopathy for implementation of the Health Care Module in the Destitute Free Kerala Program. The Member Secretary should obtain the required amount of medicines and other medical equipment for the patients as per the alternative medical treatment, whether Allopathic/ Ayurvedic/ Homeopathic physician belonging where the beneficiary resides.

2.27.3 Clothing

Clothes are only received through sponsorship. The family members of the ST category can avail the clothing from the Challenge Fund in the event of non- availability of sponsorship. Allocation of funds from the departments under the scheme should be utilized for this purpose. The amount, similar to this one, can be allotted for the distribution of clothes for government school children for this purpose.

2.27.4 Pension

 Local self-government institutions must give highest priority to grant pensions such as old age pension to the eligible and needy destitute individuals.

43  For this, the local self-government institutions should conduct special adalats. These adalats should ensure the participation from officers who provide medical, income and caste certificates.  The CDS should ensure that the eligible beneficiary family members receive a welfare pension sanctioned by the Panchayat or municipality.  The expenses for preparation of medical certificates and various documents for receiving pension and other related expenses including travel expenses may be deducted from the reserve fund of the affordable rehabilitation fund.

2.27.4 Education

 The CDS should identify children who have dropped out from schools and are in a position to continue their education, and facilitate services for continuing their education.  Children from beneficiary families who are in a situation to stay at hostels and study should be provided with required facilities. Hostels for scheduled castes/scheduled tribes should accommodate 10% of other category students.  Study material, clothing and food should be ensured for children. This should be mobilised through financial support, scholarship, stipend, sponsorship offered by individuals or organisations etc. If sponsorship is not available, uniforms, study materials etc. should be funded through the money received as per Destitute Rehabilitation Fund Plan Guideline.  Government prescribed fee rate can be provided through Challenge Fund in educational institutions. (Fees of unaided, self-financing institutions not included)  An academic team (support group) consisting of graduates, college students, service minded teachers voluntarily teaching in Panchayat schools, Saksharatha Prerak should be organized at local self-government institutions. The quality of education of children belonging to beneficiary families can be improved and special classes can be conducted for them. The organizational fund for these can be allocated through challenge fund; but honorarium cannot be allowed.

44  Physically and mentally challenged individuals can be provided with help through the guidelines for decentralized planning by local self-government institutions.  Travelling facilities should be ensured for children facing physical and mental challenges in the beneficiary families, by the Social Justice Department/Sponsorship.  The CDS should ensure the education of students from beneficiary families.

2.28 BASIC REQUIREMENTS

2.28.1 Shelter/land

 Local government bodies should provide land to other families only after giving land to all the landless families in the government approved scheme.  Projects for constructing houses can be allocated using the share of Urban, Village - Block, District Panchayat. Village - Block, District Panchayats should collaboratively allocate money. The Village Panchayat should take up the project and provide landless families with land within the timeframe. Kudumbashree challenge fund should not be used for this.  For the rehabilitation of destitute families, land less than 3 cent from village areas and land less than 1 can't from urban areas can be allocated. Places where there is an unavailability of land, land can be found in outskirt areas. Also, private land can be taken over for providing land for rehabilitating the destitute families.  The price for purchase of land should be equal to the rate paid by the scheduled tribe to all categories of beneficiaries.  Registration fee, stamp duty, documentation charge etc. is avoided to beneficiaries of the project when purchasing land. This should be done after the order received from Department of Registration.  There should be a provision that when land is given to the beneficiaries, it can only be handed over to the beneficiary's legal heir after the demise of the beneficiary.  Beneficiaries

45 2.29 TRAINING FOR JOB

 Destitute families need to be provided with the training they need to find the right initiatives. The programme can be collaborated with Sill Improvement programs of Block Panchayats, Gram Panchayats and also Kudumbashree.  They should be provided with job training to ensure job availability. The District Mission Co-coordinator shall arrange the training of the employees on the basis of the total number of vacation beneficiaries who need training.  CDS must ensure that eligible members of the project families receive training and employment through skill development programs implemented by the central and state governments.

2.30 SPECIAL PROJECTS 2.30.1 Physically and Mentally Challenged People  While implementing Central Government programmes (IAY/PMAY) 3% can earmarked for physically and mentally challenged persons. This fund should be utilized maximum.  Vocational skills training will be provided with the help of institutions like the Disability Welfare Corporation and the Kerala Federation of the Blind.  Local Self Government Institutions shall promote projects for providing employment to the physically and mentally challenged families of destitute families using the Public Sector Scheme.  Financial assistance available through National Handicapped Persons Financial Corporation can be provided. For this the State Handicapped Persons welfare corporation, Poojapura Thiruvananthapuram can be approached.  Special services for the physically and mentally challenged and CDS initiatives to bring together the isolated, forming special neighbourhood groups for them.  If the members of the Project Families who are physically and mentally challenged are not getting any funds to purchase materials needed for various purposes and also for learning material, the Asraya Fund can be utilized to fulfil such needs. Under the doctor's direction, children with fits, learning disabilities, Multiple myeloma, Autism can get the assistance of a

46 care taker on emergency situations where the special school is having holiday and care taker shall be payed from MGNREG Scheme.  If there are no special schools in the Municipalities/ Gram Panchayat where the physically challenged children reside, they will be admitted to schools in the nearest local body. Facilities as per the project should be provided in these cases and the Vehicle/Travel expenses shall be met from Challenge fund or from the Schemes of Social Justice Department.  Buds Schools for the mentally challenged children should be given assistance along with Social Justice Department. Immediate Assistance under Individual Care Plans (ICP) shall be done by the projects fund.  People who do not own any land or home, facing health issues and isolated shall be brought to the rehabilitation centres of LSG‟s. If LSG‟s does not have rehabilitation centres the LSG or the CDS shall be responsible for rehabilitation of the person into to the nearest government rehabilitation centre. The initial expenses can be met from the project fund.  Further Rehabilitation activities should be done under the responsibility of ADS and Neighbourhood groups.  If there are no rehabilitation centres in Districts, then District Panchayat shall initiate the programmes to set up those centres.

2.30.2 Mental Needs  Members of the destitute families not having membership in Neighbourhood groups shall be motivated to get enrolled in NHG‟s. Collection of Compulsory thrift amount shall be avoided so that the social exclusion shall be avoided.  Programmes shall be conducted by Local Self Governments along with CDS to make the society aware of the problems faced by destitute families.  Counselling service shall be provided to improve the Physical and mental abilities of the members of the destitute families and also to ensure that they indulge with the members of the society. Help of Counsellors from School/NGO/Kudumbashree can be seeked. The honorarium shall be the funds collected from kind hearted people or from the challenge fund.

47  The Local Self Government shall take necessary steps to conduct programmes which can improve the mental state and happiness of the Asraya family members with the help of Kudumbashree, Neighbourhood groups or with the help of educational institutions.  Training programmes as according to the advice from Psychologists and other experts can be by Local Self Governments and the expense shall be met from general expense. 2.30.3 Monitoring  The evaluation committee is responsible for the implementation of the project. For continuous evaluation sub committees should be constituted. The president of the local self-government will be the president of the committee. Welfare standing committee chairperson, health standing committee chairperson, Panchayat / Municipal Secretary, CDS chairperson, Member secretary, nodal medical officer, ICDS Supervisor, CDS Social development convener, VEO/HI (in Municipal Areas), two social workers are to be members of the committee. The report of the Sub Committee should be evaluated in the Panchayat / Municipal committees. Subcommittee should be met in every three months before evaluation committee meeting. The report of the subcommittee should be evaluated by next preceding evaluation committee and give necessary instructions for the implementation of the project.  Under the District Evaluation committee there should be an expert committee constituted by the government which should visit local self- governing institutions and conduct district wise evaluation. District Planning committee will have a chairperson and district collector as the convener. The other members will be Kudumbashree mission district coordinator, district medical officer, district social justice officer and other then the official members there will be members from community medicine and rehabilitation, and from social service sector. Two social workers will also be the part of the committee. The committee can be expanded if needed. The maximum members shall be 15. The expert committee shall meet at least thrice in a year.

48  The Important duties of the committee are to monitor the progress of the project, quality of the project, availing sponsorships and to help people who are treated in Private hospitals to get the benefits of the project. The committee should submit reports to the government.  To evaluate the efficiency of the project, Kudumbashree special team will be functioning.  State level review and evaluation should be done under the specially constituted committees having head of departments and subject experts.  Neighbourhood group having beneficiary family should evaluate the benefits of the project. The president/Secretary of the NHG, should report the status to ADS and CDS committees. Each NHG Should maintain „Destitute Family Monitoring Register‟. Project implementation should be evaluated in Panchayat/ District/State PRM meetings.  District Mission Officers shall verify and certify the documents/monitoring register relating to the destitute free Kerala project at the CDS level.  It is the responsibility of the CDS accountant to manage the project at Kudumbashree‟s MIS. The member secretary and DMC have to monitor and make sure that this is done accordingly.  The Panchayat Level Assessment Committee shall ensure that those who do not have the necessary elements to be included in the scheme but are subjected to the services due to the circumstances of life, should be provided with the services provided by the Department of Social Justice. An expert committee under the District Planning Committee will notify and decide whether to be included in the plan. The recommendation of the expert committee should be included in the project document.

2.31 KUDUMBASHREE ROLES AT DIFFERENT LEVELS Kudumbashree community organisation is responsible for the formulation and implementation of Asraya. The NHGs, ADS, CDS, and the Mission are engaged at various stages of implementation.

Entity Responsibility NHG Identification of destitute families; support in delivery of

49 service package ADS Verification of identified destitute families and recommendation to CDS; support in delivery of service package CDS Project formulation (responsibility from micro projects for families to CDS level project); Liaison with LSGI and Kudumbashree; Ensuring approval of the project by LSGI after discussion in Evaluation Committee; CDS is the implementing agency of the LSGI for Asraya. District Verification of proposal; Recommendation to State Mission Mission State Project approval and forwarding of the project to Mission Government of Kerala; Fund release to LSGIs through District Mission; Monitoring and reporting. Source: (The Kudumbasree story, 2012)

2.31 ASRAYA - SHIFT IN STRATEGY Asraya has been a unique scheme. Its core strategy has been the convergence of existing schemes to achieve effective rehabilitation of destitute families and persons. Asraya succeeded in formulating field level micro plans effectively for rehabilitation. By 2008, a total of 758 Grama Panchayats and 24 urban local bodies had rehabilitated 60,532 destitute families

An evaluation of scheme implementation in 2007 by Kudumbashree Mission brought out certain weaknesses in the process. Weaknesses Identified

 Wrong inclusion of families as destitute in the scheme  Exclusion of deserving families  Food allowance to beneficiaries replacing food supply  Medical allowance to beneficiaries replacing healthcare support  Lack of interest on the part of implementing agencies in meeting the survival needs  Beneficiaries not getting food and medicines on a regular basis

50  Fund release to beneficiaries replacing buying land and constructing houses for them  Inordinate delays in house construction  Asraya seen as a housing scheme  Plan fund, instead of provisions under other existing schemes, used for disbursement of pensions  Lapses in installing computerised monitoring of the rehabilitation programme at the CDS level  Ambiguities in fund utilisation  Inadequacies in monitoring and supervision of rehabilitation programme  Gaps in realisation of promised fund support from other government departments, agencies, organisations etc  Asraya getting reduced to a subsidy scheme  The government direction on providing priority to Asraya in five year plans of the Grama Panchayats.

In order to address these weaknesses, Department of Local Self Government ordered two actions.

1. To re-evaluate all the Asraya projects implemented from 2002-03 to 2008-09 and take steps to ensure survival and development support to the destitute families that still needed them.

2. To formulate and submit new sub projects identifying the destitute families that had been left out; the projects should ensure all the components for providing them adequate care and services.

The Government Order contained detailed methodology for re-evaluation of the Asraya projects utilising the services of newly graduated students of social work. (The Kudumbasree story, 2012) 2.32 ASRAYA - ACHIEVEMENTS Asraya has been implemented in 890 Grama Panchayats and 32 urban local bodies of the State by 2015. A total of 72,116 families have been identified and projects worth Rs 4107.6 million have been prepared. Hundreds of projects are under implementation across the State.

51 Destitute rehabilitation under Asraya has been process oriented. With the community organisation of Kudumbashree playing a pivotal role, the scheme has been able to generate several success stories. Achievements of the scheme are mostly attributed to some of its special features:

 The project beneficiaries are destitute families; not individuals.  There is no application forms and approval; the Grama Panchayat identifies the destitute family through Neighbourhood Groups.  Ownership of house constructed for a destitute family goes to the Grama Panchayat after the death of a destitute, if there are no survivors in the family; Grama Panchayat may allot this house to another destitute family.  Special system at the District Planning Committee (DPC) level to vet Asraya projects.  Co-financing of every Asraya Project by State Poverty Eradication Mission using State Plan Funds to the extent of 25% of the project cost or Rs 10 lakh.

2.33 CHALLENGES Recognised (The Kudumbasree story, 2012) as a highly innovative and effective scheme for destitute identification and rehabilitation, Asraya has evolved as a benchmark for social development programmes in the State. The way it was formulated, the care with which its package of services was designed, and the diligence with which its implementation was taken up by the community organisation had been impressive.

The various orders, circulars, guidelines, and directions issued by the Government of Kerala and the Kudumbashree Mission are testimony to the proactiveness that led to the design of such a comprehensive scheme. However, from early on, leaving aside a few trail-blazers, many Grama Panchayats were lukewarm in their response to Asraya. The State Government had to intervene and make it mandatory for the Grama Panchayats to include Asraya projects in their Plans for many of them to come forward to take up Asraya projects.

As Kudumbashree Mission is going ahead with the implementation of Asraya as per the revised norms, the scheme is faced with challenges in terms of buy-in by the local governments, excessive burden of responsibilities falling on the community

52 network, and the need to maintain high levels of diligence to prevent deviations from the core principles. (The Kudumbasree story, 2012)

2.35 ASRAYA

Asraya is one of the flagship programmes of Government of Kerala initiated and designed by Kudumbasree Mission. While implementing the poverty alleviation programmes, it has been observed that the programmes implemented by the Government and other agencies never reach the rock bottom poor. These people, who live in utter distress and despair, constitute a very small number in the society - the bottom 2% of the total population. Kudumbashree designed a project called Asraya - Destitute Identification Rehabilitation and Monitoring Project for the rehabilitation of destitute families. Destitute families are identified using a transparent risk index framed by the Mission. Individual needs of the family are identified through a participatory need assessment. The project envisaged to address lack of food, health problems including chronic illness, pension, educational facilities to children, land for home, shelter, drinking water, safe sanitation facilities, skill development, employment opportunities, etc. The programme has received national attention and fetched kudumbashree the Prime Minister's Award for excellence in public administration for the year 2007-08 Background:

Kerala‟s initiatives in democratic decentralization have thrown up several good development practices, the most outstanding of which is „Kudumbashree‟., the State Poverty Eradication Mission of Government of Kerala.

Kudumbashree is a network of Community based organisations working in partnership with Local Governments. This ensure

 Excellent outreach and feedback systems

 Community role in beneficiary identification

 Demand creation for public services and enhanced access

 Community based monitoring

Community based organization Through this programme, implemented by Local Governments with pro-active facilitation by the State Poverty Eradication Mission, every family below poverty line is organized, with each family being represented by a woman, into a Neighbourhood Group (NHG) at the local level with 10 to 20

53 families (previously it was 15 – 40 families) which is federated into an Area Development Society (ADS) at the level of the Village Panchayat/Municipal Ward, which are further networked into a registered society called Community Development Society (CDS) at the level of the Local Government. Thus an inclusive and empowered Community Based Organization works in partnership with the Village Panchayat or Municipality to plan and implement a participatory poverty reduction programme. As of now there are 2.11 lakh NHGs (covering 37.8 lakh families), 18,916 ADSs and 1072 CDSs in the State. (2 Asraya kudumbasree, 2012)

2.36 WHAT IS DESTITUTION?

Destitution is a multidimensional concept: first and foremost, the failure to acquire the ―basic needs‖ is an important component of destitution. Secondly, the degree of exclusion from, or failure to have access to, various markets like credit and labour markets and local public services, e.g. health services, also signifies the level of destitution of a group of people. Finally, degree of discrimination in building human capital - that can perpetuate exclusion in other markets – will also play an important role in excluding various opportunities to a group of people. Because of its associations with social exclusion, destitution has broader connotations than income

54 or consumption poverty. In the definition developed for the Wollo Destitution Study, one component is ―dependence on transfers‖, which implies a reliance on social capital. Economists have focussed on hysteresis phenomena - sequences of events in which losses of certain crucial assets are triggered which act as a ratchet and trigger other losses in turn, after which things can never return to what they were before. Loss of assets leads to loss of income from rent or production, loss of income may also be a labour market phenomenon resulting from the denial or the unavailability of wage work. (Cheriyan, 2018)

2.37 ASRAYA - THE BEGINNING TO DESTITUTE FREE KERALA

Asraya is one of the flagship programmes of Government of Kerala initiated and designed by Kudumbashree Mission. While implementing the poverty alleviation programmes, it has been observed that the programmes implemented by the Government and other agencies never reach the rock bottom poor. These people, who live in utter distress and despair, constitute a very small number in the society - the bottom 2% of the total population. Kudumbashree designed a project called Asraya - Destitute Identification Rehabilitation and Monitoring Project for the rehabilitation of destitute families. Destitute families are identified using a transparent risk index framed by the Mission. Individual needs of the family are identified through a participatory need assessment. The project envisaged to address lack of food, health problems including chronic illness, pension, educational facilities to children, land for home, shelter, drinking water, safe sanitation facilities, skill development, employment opportunities, etc.

During the first year of implementation, 101 Grama Panchayats in the State came up with projects, involving rehabilitating 8233 destitute families. The Grama Panchayats had been able to ensure institutional systems for the simultaneous implementation of multiple micro plans in the field.

Asraya stands out as a unique scheme in destitute identification and rehabilitation because of certain key features. These features have been built into the very design of the scheme; some of them were there from the beginning, while some others were added subsequently based on experience.

 Kudumbashree CDS is the designated agency for implementation

55  Destitute families are identified by NHGs, verified by ADS, eligibility checked at the CDS, and approved by the Grama Panchayat Committee.

 Objective and transparent process for identification of destitute families

 Integrated approach addressing the survival needs, basic amenities, continued support, and development of destitute families through a package of care services

 Multi-year projects; three year duration initially, extendable through projects for continued support to the needy

 Individual micro projects for every destitute family, prepared at the NHG level

 Micro projects combined at the CDS level, and integrated with the Grama Panchayat's Plan

 Utilisation of existing schemes: o Land for house construction for the homeless by Grama Panchayat o House under Indira Awas Yojana (IAY) o Electrification through Rajiv Gandhi Grameen Vidyutikaran Yojana o Drinking water through the special scheme of Kerala Water Authority (KWA) covering BPL families, o Latrine through support from Total Sanitation Mission and so on.

 Special Asraya Projects for tribal families under Tribal Sub Plan o Challenge fund Rs 40 lakh subject to the ceiling of 40% of the total outlay

56 o Challenge fund can be used for all components other than those relating to creation of basic amenities The way Asraya evolved into a comprehensive scheme can be seen from the various government orders, circulars, and directions that have been issued over the years. (Cheriyan, 2018)

CHAPTER – III RESEARCH METHODOLOGY

58 RESEARCH METHODOLOGY

3.1. TITLE: Social Audit of Asraya Project in Pothencode Panchayat

3.2. RESEARCH QUESTIONS:

 GENERAL RESEARCH QUESTION:

o What is the Social Audit of Asraya project in Pothencode Panchayat??

 SPECIFIC RESEARCH QUESTION:

o What is the profile of Asraya beneficiaries and their families? o What makes the present beneficiaries eligible as Asraya families o What are the benefits received by the Asraya beneficiary? (food, clothing, medical facilities, shelter, drinking water facility and education) o What is the understanding of Asraya Families on role of Kudumbashree (Community Development Society, Area Development Society and members of Neighbourhood groups)?

3.3 RESEARCH DESIGN:

Case Study Design is used since the researcher tries to describe the Social Audit of Asraya Project in Pothencode Panchayat. Case study research refers to an in-depth, detailed study of an individual or a small group of individuals. Such studies are typically qualitative in nature, resulting in a narrative description of behaviour or experience.

3.4 PILOT STUDY:

Pilot study was conducted in Ward No.12 - Karoor Mandapakunnu of Pothencode Panchayat. It was conducted to test the aspects of the research design.

3.5 UNIVERSE:

The universe of the study is Asraya beneficiaries in Pothencode Grama Panchayat

59 3.6 UNIT:

A unit of study is a Asraya beneficiaries in Pothencode Grama Panchayat

3.7 SAMPLING:

The researcher has selected five cases for the research and the sampling strategy used is convenience sampling.

3.8 SOURCES OF DATA:

The researcher collected Primary date from respondents of Pothencode Grama Panchayat. Secondary data was collected from information provided by Government web sites and researches on social audit conducted by various scholars

3.9 TOOLS OF DATA COLLECTION:

The researcher used interview guide and observation as tools of data collection. In- depth interviews were conducted for case study.

3.10 DATA COLLECTION:

The data was collected from Five Asraya families in Pothencode Panchayat.

3.11 DATA ANALYSIS:

The researcher analysed the data on the basis of the research general and specific research questions.

 GENERAL RESEARCH QUESTION:

o What is the Social Audit of Asraya project in Pothencode Panchayat??

 SPECIFIC RESEARCH QUESTION:

o What is the profile of Asraya beneficiaries and their families? o What makes the present beneficiaries eligible as Asraya families

60 o What are the benefits received by the Asraya beneficiary? (food, clothing, medical facilities, shelter, drinking water facility and education) o What is the understanding of Asraya Families on role of Kudumbashree (Community Development Society, Area Development Society and members of Neighbourhood groups)?

The research was done according to the order of the specific questions. The researcher has taken each question pertaining to the correspondent variable and the data which are analysed and interpreted on the basis of each cases that the researcher collected using the case study design.

3.12 CHAPTERISATION:

The research is divided into six chapters.

 Chapter I on Introduction deals with the  Chapter II on Review of Literature contains  Chapter III on Research Methodology is the methodological part of the study.  Chapter IV includes Case Presentation of the five case studies conducted by the researcher.  Chapter V on Data Analysis and Interpretation contains the analysis of the cases on the basis of the research questions.  Chapter VI deals with Findings, Suggestions and Conclusion for further research.

3.13 ETHICAL CONSIDERATION:

 The researcher didn‟t made any harm to the fellow participants in any ways .  The researcher give importance to the participant and respected their dignity .  The seek full consent from the participant prior to the study.  The researcher ensured the protection of the privacy of research participants and also ensured the confidentiality.  The researcher communicated with the respondents in transparency and honesty.

61 3.14 LIMITATIONS OF THE STUDY:

Asraya auditing is the process of auditing which was undertaken in the Pothencode Panchayat is the first auditing initiative of Kudumbashree in Kerala. Because of that the study lacks the abundance of data. And also the respondents had some hesitation to speak openly to the researcher. There is a lack of guidelines in accordance to the process. The respondents of the study lack awareness about the process of auditing. The lack of coordination among the Kudumbashree and Panchayat are also a limitation to the study. The researcher had some limitations of time too. There is no scope for the generalisation.

CHAPTER – IV CASE PRESENTATION

63 CASE PRESENTATION

CASE 1: Mrs. A

Mrs A is a 73-year-old woman who lives with two of her daughters, one who is mentally and physically challenged and another who is severely anaemic. The Asraya beneficiary suffers from heart-related diseases and has been a victim of heart attack twice. She also recently fractured her femur from a fall and has difficulty walking because of that. She uses a walker, which has been borrowed from a neighbour, as a support to walk. The house is located at Aanaickode in Manjamala ward of Pothencode Panchayat. The house is around 30 meters away from the main road and is surrounded by trees such as jackfruit and coconut trees. The house is constructed in low lying land which is rich in humus and hence the area is surrounded by plants and trees. Holes of snakes were present right in front of their house and when asked, the beneficiary mentioned that snakes were commonly visible in the area. And since the area accumulates water, it forms a breading place for mosquitoes. The house is around 30 meters away from the main road. The path is outside the boundaries of other‟s houses. It might be difficult to walk during heavy rain as the soil may be of loose texture and leg may emerge in it. Since it is in a low lying area, the land may collect water and be a breading place for mosquitoes. The house was built as part of the IAY plan during the year 2006-2007. But the work was not completed due to lack of resources. The family did not receive the complete amount as sanctioned by the plan. Later the family was supported by their neighbours and other community members who helped them build a roof for their house. They also received Rs.50000/- as part of Asraya project for maintenance of their house. They still have to receive another Rs. 50000/- (full amount – Rs. 1 lakh). The house is still uncompleted. The house doesn‟t have a kitchen and the family cooks outside in the open. During rainy days they have to depend on other community members for a meal. The house requires maintenance work as some parts of the roof were falling apart. The house also lacks general hygiene, both within and outside. The family‟s physical conditions makes it difficult to maintain cleanliness in and around the house. There were mosquito larvae present in the buckets and other containers which could store liquid; outside the house. Condition of the toilet and whether it is being regularly used, if not, reasons .The toilet is attached with the

64 bathroom and located outside the house. It lacks roofing. It was also unsanitary. It is being regularly used by the members. It was built with the aid from the Panchayat around 10 years ago. There is a mentally and physically challenged member in the house and the toilet is not friendly for her. It is neither friendly for the elderly Asraya beneficiary who has difficulty in walking. The family has one bed, one cupboard, a couple of bulbs and a tailoring machine. There are not much household appliances like a mixer grinder; they use a traditional hand grinder. The family draws water from their well and sometimes from the public pipe connection which is 30 meters away from the house. It will be difficult for the family to draw water from outside due to their physical conditions during summer. Even though the family doesn‟t have a kitchen, they cook outside using gas. During rainy season they have to depend on other community members for meals. They have received free connection of gas but how far they use it is doubtful. The lack of kitchen and cooking facilities is making life more difficult for them. The Asraya beneficiary has a yellow ration card and receives a total of 35kg of food items. Other than food materials bought using the ration card, the family gets a supply of food materials from Neethi store using the Asraya fund. They don‟t buy milk or fish. The protein and vitamin consumption of the family is very low and may result in malnutrition. The Asraya beneficiary used to take care of the family through daily wage jobs under MGNREGA. Her current physical conditions make her unable to do so. One of her daughters is mentally (50% disability) and physically challenged and studies at Karunya Bud School at Vengode. Her other daughter is severely anaemic. She used to work under the MGNREGA but is unable to complete 100 days of work due to anaemia. She knows stitching and received the tailoring machine (which was received from a club) but is unable to stitch due to high heart rate, an after effect of anaemia. She has had two blood transfusions during the past 3 years. The Asraya beneficiary receives widow pension and receives the full amount. Her daughter receives disability pension and also receives the full amount of pension. But since it is received at 4-month intervals, it becomes difficult during other months. The Asraya beneficiary has had two heart attacks during the past two years. She has also suffered an injury because of a fall and has fractured her femur. She currently uses a walker borrowed from a neighbour. She also has slight physical challenges in the same leg which suffered the fracture. She has RSBY health insurance card which helps with the treatment and other

65 medical care. The Asraya beneficiary‟s daughter is mentally and physically challenged. She also faces problems of high blood pressure, diabetes, heart ailments, vision problems etc. Her other daughter is severely anaemic and suffers from memory loss at intervals due to anaemia. Although the Asraya beneficiary doesn‟t face any mental health issues, her daughter has 50% mental disability. The Asraya beneficiary is taken care of by her youngest daughter. They also have support from the neighbours and community members. All the three members of the family have some health issue and it might be difficult if they all face illness at the same time. Similarly since their diet is not protein rich, it might cause malnutrition for the members in future, adding to their difficulties. The family is dependent on the youngest daughter, who is severely anaemic. If she falls ill, the family will have to find alternatives and will have to face severe difficulty. Housing/Water/Health/Education/etc.The main requirements, as observed, are better housing facilities and health facilities. The house lacks essential and vital items, including a kitchen. They need a livelihood option to support the family. The family can be supported through membership at Kudumbashree and providing the family with trainings on making items which can be sold in small scale such as soaps, candles etc. They could also provide a loan for an electric (motor-run) tailoring machine which can be used by the daughter. The Panchayat can organise training sessions for small scale empowerment programmes. The Panchayat can also conduct regular monitoring and ensure that the people at risk meet their needs. The Panchayat can also look into providing nutrient rich food for the family by including them in the ICDS scheme or other schemes. Policies exist which are beneficial for the family members; but the problem is that the people are unaware of their rights. Schemes such as „Niramaya‟ are beneficial for mentally challenged school-going individuals but majority of the people are unaware of schemes like these.

CASE 2: Mrs. B

Mrs.B is Asraya beneficiary recently. The beneficiary is bedridden from late 2000s. Mrs.B is a 39 year old woman who remains bedridden due to physical illness. The family consists of Mrs Band her mother named Mrs. Z who is active in MGNREGA and it‟s the only source of income other than pension. The father of the family passed away few years back. The house is located 1.5km away from the main road

66 and a concrete road has been constructed in front of the beneficiary's house but only two-wheeler can pass through. Beneficiary s house is located in 27.5 cents of land. The house has been constructed under the IAY of 2009 - 2010. The house is 1.5 km away from man road and has a Panchayat road in front of their house but not wide enough for an auto or other vehicles to come through. The road has been constructed with the 10 cent land of the beneficiary too but not helpful for the beneficiary. Condition of the house good enough. The house is concreted and has 2 rooms . The house is partly tiled and the walls are being painted and also the walls are not damaged. The beneficiary has already received a disabled friendly scooter under the MP fund. Mrs.Z is the only bread winner of the family and has completed 100 days of employment under the MGNREGA. Mrs.B receives disability pension and mother receives old age pension. The family had taken a loan from the society for house construction purposes and has being repaid since 4 years with many helping hands. The mother is the only earning member and had received hundred days of employment under the MGNREGA programme. Both the family members also receives pension livelihood is managed with this pensions. The pension is received on regular basis. The disability pension for Mrs. Band old age pension for the mother. Mrs. B is eligible for pension of ₹1300 for 80 disabled but the same is not being received. Mrs.B goes through regular check-up at Sree Chithra Hospital Trivandrum and also takes medication. It‟s difficult for the beneficiary to reach hospital because of the auto charges and also the lack of direct vehicle faculty at door step of the beneficiary. Mrs.B doesn‟t consume water on days of medical check-up because of problems in urinating and change of diapers. As the beneficiary has loco motor disability someone‟s help is always necessary to do something. Mrs . B has remained bed ridden from the year 2000 and takes life as positive without repenting on what went wrong. Mrs.B finds happiness in all little things and is conscious enough about all matters of the household and people around her. Mrs.B finds happiness‟s in reading, writing blogs and talking with people. A huge effort is being put forward by the beneficiary in order to ensure mental happiness and a meaning in life. Mrs.B is also conscious on coordinating disabled people and to voice out their issues. The support system around Mrs.B plays a major role in her life. The mother of the family takes care of all things of Mrs.B from cleaning to everything. The relatives of the family also keeps an eye on every minute things of

67 Mrs.B and is ready to help her out even though some complaints occur in between. Friend circle of beneficiary plays a major role in Mrs.B is life they find time to talk with their and also provides financial help. The Residents Association of the community also provides books from nearby library. The beneficiary would face lots of difficulties in near future as she has locomotor issues; the life of Mrs B revolves around her mother. The life of Mrs.B after the death of her mother. So it‟s necessary to take up some care plans for the beneficiary. A modern wheel chair can be more helpful for the beneficiary to move around without someone‟s help. It‟s important to empower the care giver (mother) as she takes all these efforts taken for her daughter in a negative sense and is complaining about the same an importance of care giver counselling arises .It would be good enough if Mrs.B can move around the house with the help of wheelchair rather than being in bed all the time which may lead to bedsore in future course. To be engaged in vocational activities like candle making, handicraft, embroidery etc. which is also an income generating activity. The members must ensure whether the kit is made available on regular basis without much delay. To ensure regular happening of the Disabled‟s Gram Sabha and also to introduce interactive and entertainment groups for the specially able group. Panchayat can also introduce vocational training for the disabled group which can help them to earn and get involved in varied activities. The policy can extend their types of services other than monetary helps. A water bed for the bedridden would be much better service that can be provided. The policy must make sure the availability of kit on regular basis and without any break in between. The processes needs to be fasten as many applicants are still waiting for a helping hand. The policy must make sure that the Asraya beneficiary is provided other service once the situation is being improvised

CASE 3: Mrs. C

The beneficiary of the Asraya is Mrs. C who is 87 years old and is taken care by her son Mr. Y who has problems with spinal cord. The house is located at Kundevaram of Kalluvetty ward of Pothencode Panchayat. The house is 1.5kms away from the main road and doesn‟t have a pathway leading to their house. The pathway to the house is through others private properties . The house is very old one built almost 64 years before and has 2 rooms. The roofing has being recently changed to aluminium

68 sheet by the Panchayat as they don‟t have enough fund to build a new one or to modify existing one. The walls are not concreted or painted. The situation of the house is found miserable . The walls are also broken and has leakages. The level of hygiene indoor the house is not much an issue. But the clothes are found damp. As it‟s a totally damaged house. Cleanliness was not easy. Both the beneficiary and son were personally hygienic. The premises were also kept neat within its limitations. A minimum level of hygiene was maintained. The family cooks food with the ration received and a lunch packet is being provided under the Patheyam programme and both mother and son eat as lunch. The consumption pattern is like they buy vegetables .The only income of the family is the pension received. They previously had some loans to treat the father of the family and they took huge efforts to pay off the same. Few of their trees in 7 cents were sold to pay off debts. They don‟t take any loans as the repayabilty would be difficult. The pension is the only income of the family. Mrs C receives old age pension of 1500₹ and the. Son is enrolled into MGNREGA and had 75 days employment in previous year. Old age pension of ₹ 1500 is received and due to issues of locomotor the pension is directly given to Sarasamma. The beneficiary has Tuberculosis since 25 years and also high breathing trouble and also takes continuous medication. The son of the family Mrs. Y faces problems with spinal cord and was bedridden for long and can‟t work much due to illness. The family was very much worried about their condition and the eyes were filled with tears while explaining their problems. The mental health of the family is also at risk. The ward member is found very helpful to the family members in providing schemes and other helps. No Monterey help is received from any family member or any neighbours. From collateral contact it was understood that the neighbours are not much cooperative enough. The lives of mother and son is interdependent. Most of things of mother is done by son and the life of mother would be at risk once something happens to her son. And also Sons live would be miserable as he is sick too. Panchyat must take some efforts to look after the sick family members. It would be better to provide medicines for the family for free as they have regular medications. Also some measures to modify the walls under the Aasraya. The son is restricted from high risk jobs it would be good if Mrs. Y is provided some vocational training and generate income out of it. Mrs C situation is already miserable and not in a position to earn. It‟s also good if the land is being cultivated

69 crops or vegetable whether through MGNREGA or by themselves .It would be good enough if house visits are conducted. And also to provide some material help as food and also to conduct meeting at their premise in order to bring in inclusiveness. Already many of efforts are being taken for the family. It would be good if dress and medicine is provided for free. The beneficiary has only received 2 kits since 2 long years and not many needs of the beneficiary are being concentrated. Already the family faces lots of problems and other needs of the beneficiary is to be taken care and the processes is to be fastened.

CASE 4: Mrs. D

The Asraya beneficiary of the family is Mrs D of 54 years old and stays with sister in laws family in Mrs X. Mrs.D and family has 5 cent land in Vishnumangalam un Mangalapuram panchayat and they had started basement work of house construction under IAY with ₹38000 received 9 years before and work got stopped due to lack of money.As most of money was spent in wages of carrying construction materials because there were no road.. The house of the beneficiary‟s sister in law is in Mrs X of Kalluvetty Ward of the Pothencode Panchayat. The house is 2.5 km away from the main road of Thonackal and the family doesn‟t have a road or pathway leading to their house. The property of neighbour is being crossed to reach the beneficiary. Beneficiary doesn‟t have any house and the residing house is very much damaged and has heavy leakages from roof top. The rooftop is not converted and the walls too. The house has 2 rooms and it‟s occupied by 7 members. Walls are broken and leaking and also un floored. The general hygiene of the family is comparatively less. The rooms are congested with hanging clothes and it was found damp. The kitchen was kept neat and also the As the beneficiary doesn‟t have any ration card the be beneficiary is not into MGNREGA. Financial status of the family is very miserable as the beneficiary and her husband are sick they can‟t go for any work and also as they don‟t have a ration card they are not in MGNREGA too. The only earning member is the sister in law of the beneficiary. They had applied for a house in Panchayat 9 years before and had received ₹38000 and couldn‟t complete the basement work because they had no road and had to carry goods through that they had to pay lots of wages and now Panchayat asks to repay the amount. . The beneficiary and her husband are not into any works due to illness. Beneficiary‟s

70 family is listed in sister in laws ration card and only the sister in law is into MGNREGA. The beneficiary‟s husband Mrs X is 64 years old and while applying for ration card his age got wrong and was printed as 54 and not receiving any pension. It‟s been 2 years that beneficiary has submitted doctors letter showing Mr X age as 64 even though no proceedings had taken place . Health conditions of the beneficiary is not satisfactory. She has got knee and shoulder pain and can‟t get herselves into work. And is under medication. Saladin‟s health is very weak and he is in hospital for most of days due to breaching trouble. The family is very much worried about their condition as they don‟t even have a ration card. They had lots of miseries and stress thinking about all these. The mental health may go worse. Support networks are found good. The sister in law and her family is already in bad condition even though the beneficiary and family is taken care. The family is totally supported by sister in law and her family. The neighbours are not found supportive as they had lost some cents of their properties. No monetary help is received from anyone. The future care plan would be at risk. The children‟s education may continue as they are getting some sponsorship. But livelihood would be in trouble as they are depending on sister in law who‟s getting sick. The requirements of the beneficiary are a small house under the PMAY or Asraya. So that they can get a ration card and enrolled with. MGNREGA. Another requirement is old age pension as he is already sick and is 64 years old. It‟s suggested to the beneficiary to engage in vocational activities and through that income can be generated. As they can‟t engage in higher risk activities.

CASE 5: Mrs. E

The Asraya beneficiary is Mrs. E who is a widow. She has a son Mr.Q who stays with her. He is married but wife mostly stays in her own house. The house is located in ward 2 is Nethajipuram ward of Pothencode Panchayat. It is located to the the interior i.e. 350 m left to the Sreenarayanapuram road. It is located in a low land and is in the midst of land owned by other people. There is no proper road and the path is slippery during rainy season. The house is single storied with a terrace roof. It consists of a drawing room, 2 bedrooms, a kitchen and a toilet. It is made of cement bricks blocks. The house was constructed through Asraya Programme. There are no doors for any rooms except the main door. The rest of the rooms have curtains which

71 are shabby. Even the toilet doesn‟t have door and instead has curtain. One of the room‟s leaks during rainy season and vessels were kept in it to avoid further problems of leakage. The room is not usable and looks like a store room with other stuffs like coconut in it. The dresses are all piled up in a clothesline inside another room. Since the house is in the midst of a growing plants the family also faces problems due to reptiles. The family has loan amount of Rs.30,000/- in Ayiroorpara Co-operative Society Bank. Mrs.E's husband‟s death took place two years back due to cancer. The loan was taken for the treatment purpose and it is not repaid. Since Mrs. E is old and suffers from physical ailments, she cannot do heavy work. Her son also has health issues(refer health) which restricts him from doing jobs that has more earning. Mrs.E who is 60 now, works for MGNREGS and sometimes works in the nearby houses for livelihood. Her son Mr.Q works as a salesperson in a grocery shop. Mrs. E receives the widow pension. This is usually received as a lump sum and not on a monthly basis. Mrs. E suffers from diseases such as High blood pressure, An year back she couldn‟t talk. The right side of the body was paralysed. Now she is alright however the speech is still not very clear. She occasionally has ailments such as chest pain and the doctor has instructed her not to do heavy work. She takes treatment in Karunya hospital Pothencode, Govt. Medical College Trivandrum and sometime goes to the PHC in Vengode. She has a health card. Mr.Q has undergone a kidney operation 5 years back. He has been treated in Amritha Medical College, Ernakulum. He has only single kidney and therefore is restricted to do heavy work. The family is mentally fit however Mrs. E faces mental stress due to her physical .The family is not in a good relation with one of the neighbour. There are no other proper support network for family/friends. Mr.Q wife suffers from an ailment in stomach .Therefore she stays away from the family. The family has to find finance for this. The major requirement that was identified was House maintenance as it is difficult for them to stay in a house that leaks. They also need a cot and an LPG connection. ASHA worker should confirm that the family receives the nutrition that are necessary. It takes money to reach the PHC, which sometimes restricts them to get the medicine, therefore some mechanism should be done so that they receive the medicine at home. Kudumbashree shall help her in getting an LPG connection. House maintenance shall be forwarded immediately. Pension shall be given on a monthly basis instead of lump sum amount. Ensuring that the Asraya kits are given

72 regularly without any delay. The family had not consumed breakfast today. It is not sure if this happens every day or not. The diseases can be caused due to lack of nutrition and improper diet. The Social Work trainee felt that pictures of living condition can be taken but the pictures of the beneficiary shouldn‟t be taken due to confidentiality issues

CHAPTER – V

DATA ANALYSIS AND INTERPRETATION

74 DATA ANALYSIS

5. INTRODUCTION:

Qualitative data refers to non-numeric information such as interview transcripts, notes, video and audio recordings, images and text documents. Qualitative Data Analysis is the range of processes and procedures whereby we move from the qualitative data that have been collected, into some form of explanation, understanding or interpretation of the people and situations we are investigating.

5.1 RESEARCH QUESTION 1: What is the profile of Asraya beneficiaries and their families?

PROFILE OF CASES Case Age Sex Ward No. of Family Marital Status No. No. Members 1 – A 73 F 15 3 Widow 2 – B 39 F 17 2 Single 3 – C 87 F 17 2 Widow 4 – D 54 F 17 2 Single 5 – E 60 F 2 2 Widow

The profile of the respondents provides a basic outline about the social background of the respondents. The age of the respondents varies from 39 to 87. The researcher conducted five case studies in three wards of Pothencode Grama Panchayat. Out of the five, three were widows and two were single, both who are bed-ridden.

5.2 RESEARCH QUESTION 2: What makes the present beneficiaries eligible as Asraya families?

‘’ indicates the criteria which the Asraya family has and ‘’ indicates which is not applicable to them

Seria Criteria for Case 1 - Case 2 – Case 3 - Case 4 – Case 5 – l No. eligibility A B C D E

Land less/    1. people with   Less than Land less Less than less than 10 10 cents 10 cents

75 cents of land of land of land   Homeless/  Living in a  those living Living in Living in damaged 2. in damaged  a Homeles damaged house or decaying damaged s house which houses house belongs to D‟s sister

 Uses No drinking public water pipe 3. facility connectio     within 150 n which is metres 30 meters away from A‟s house

Lack of 4. sanitary      toilet facility

Family with not at least one employee 5.      (employmen t less than 10 days a month)

Family with 6. woman as      the head  Family with  One    physically or daughter D‟s mentally of A is B is C‟s son is husband E has 7. challenged physically physically physically is coronary or those and challenge challenge physically artery with chronic mentally d d challenge disease illness challenge d d and another is

76 severely anaemic

SC/ST category, family who  8. have SC     adopted category fishing as a profession

Families 9. with adult      illiterates

As per the Asraya guidelines, the beneficiaries are selected on the basis of these nine stress factors in rural areas (out of which families having any seven are considered eligible). For this family to be considered as destitute, one of the specific additional factors out of the eight, as mentioned in the review of literature, are required.

For Case A, the additional stress factors applicable include „Number 5: People suffering from chronic illness and incurable diseases and those with physical and mental illnesses‟ and „Number 6: Family with no one under 60 years of age who can afford to find provision for food‟. One daughter of Case A is physically and mentally challenged and the other daughter suffers from severe anaemia.

For Case B, the additional stress factor applicable includes „Number 4: Young widows with financial crisis, unmarried women who have crossed the age of marriage‟ and „Number 5: People suffering from chronic illness and incurable diseases and those with physical and mental illnesses‟. Case B‟s daughter is 39 years old and is unmarried. She is also physically challenged and bedridden.

Case C has the additional stress factors „Number 1: People with no land for housing‟, „Number 5: People suffering from chronic illness and incurable diseases and those with physical and mental illnesses‟ and „Number 6: Family with no one under 60 years of age who can afford to find provision for food‟. Case C‟s son has spinal cord injury and is physically challenged. Case C has to provide for the family by going for MGNREGA work even though she is 87 years old.

77 The additional factors applicable for Case D is „Number 5: People suffering from chronic illness and incurable diseases and those with physical and mental illnesses‟. Case D‟s husband is physically challenged.

The additional stress factor applicable to Case E include „Number 5: People suffering from chronic illness and incurable diseases and those with physical and mental illnesses‟ and „Number 6: Family with no one under 60 years of age who can afford to find provision for food‟. Case E has coronary artery disease.

5.3 RESEARCH QUESTION 3: What are the benefits received by the Asraya beneficiary? (Food, Clothing, Medical Facilities, Shelter, Drinking Water Facility and Education)

 Case A receives medical facilities. The family also receives widow pension and disability pension.  Case B receives medical facilities. The respondent had received a wheelchair through Asraya. The family receives widow pension and disability pension.  Case C receives medical facilities. The family has widow pension and disability pension.  Case D receives medical facilities and shelter. The family also receives disability pension.  Case E had received shelter. The family receives widow pension

All families receive Asraya kit worth Rs. 900/-.

5.4 RESEARCH QUESTION 4: What is the role of Kudumbashree (Community Development Society, Area Development Society and members of Neighbourhood groups) towards Asraya Families?

 Case A: Kudumbashree had provided a self-employment unit for the family through provision of loans. Kudumbashree had also let the case know about the challenge fund and benefits received through Asraya.  Case B: Kudumbashree let the case know about the challenge fund and receiving health care facilities through the fund.

78  Case C: Kudumbashree let the case know about the challenge fund and receiving health care facilities and also about Pallium India, where the health care staff visit their home and provide medical facilities to them.  Case D: Kudumbashree let the case know about the challenge fund and receiving health care facilities through the fund. The Kudumbashree made the case aware about receiving housing facilities from the Panchayat through the Asraya project and also the Indira Awaas Yojana (IAY).  Case E: Kudumbashree has helped the respondent with providing the Asraya kit.

CHAPTER – VI FINDINGS, SUGGESTIONS AND CONCLUSION

FINDINGS, SUGGESTIONS AND CONCLUSION

6.1 FINDINGS:

 Case A has 8 stress factors and two additional stress factors  Case B has 4 stress factors and two additional stress factors  Case C has 7 stress factors and three additional stress factor  Case D has 5 stress factors and One additional stress factors  Case E has 3 stress factors and two additional stress factors  Majority of the cases receive only medical and shelter facilities  The role Kudumbhashree plays awaring the beneficiaries about the challenge fund of Asraya and receiving health care facilities and also about Pallium India

6.2 SUGGESTIONS:

 The family can be supported through membership at Kudumbashree and providing the family with trainings on making items which can be sold in small scale such as soaps, candles etc. They could also provide a loan for an electric (motor-run) tailoring machine which can be used by the daughter.  The members must ensure whether the kit is made available on regular basis without much delay. To ensure regular happening of the Disabled‟s Gram Sabha and also to introduce interactive and entertainment groups for the specially able group.  It would be good enough if house visits are conducted. And also to provide some material help as food and also to conduct meeting at their premise in order to bring in inclusiveness.  It‟s suggested to provide vocational training and help them to earn out of it. And also to provide financial help at reduced interest rates. The Panchayat has to take an immediate action to solve their issues in pension and also to provide a house under PMAY. Mangalapuram Panchayat

81 must take action as their property lies under their jurisdiction. The condition of the family is worse. It‟s suggested to provide a shelter under the project as the PMAY cannot work with them anymore. As they already had to pay off an amount under IAY. So the policy must take measures to provide them a shelter and also to provide kit in every month without any delay and also to extend their services to meet their basic needs.  ASHA worker should confirm that the family receives the nutrition that is necessary. It takes money to reach the PHC, which sometimes restricts them to get the medicine; therefore some mechanism should be done so that they receive the medicine at home. Kudumbashree shall help her in getting an LPG connection. House maintenance shall be forwarded immediately.

6.3 CONCLUSION:

• Social auditing is a process by which an organization / government accounts for its social performance to its stakeholders and seeks to improve its future social performance. A social audit is a way of measuring, understanding, reporting and ultimately improving an organization‟s social and ethical performance. It helps to narrow gaps between vision/goal and reality, between efficiency and effectiveness. Social Audit values the voice of stakeholders, including marginalized/poor groups whose voices are rarely heard. It is taken up for the purpose of enhancing local governance, particularly for strengthening accountability and transparency in local bodies. Asraya is one of the flagship programmes of Government of Kerala initiated and designed by Kudumbashree Mission. Asraya or Destitute Identification Rehabilitation and Monitoring Project for the rehabilitation of destitute families. Destitute families are identified using a transparent risk index framed by the Mission. Individual needs of the family are identified through a participatory need assessment. The project envisaged to address lack of food, health problems including chronic illness, pension, educational facilities to children, land for home, shelter, drinking water, safe sanitation facilities, skill development, employment opportunities, etc. The choice of

82 beneficiaries for the Destitute Free Kerala Project is wholly based on nine stress factors. Of these, only those families affected by 7 factors can be considered. But for this family to be considered a destitute family, one of the specific stress factors must be applicable. Asraya follows a strict process to identify destitute families. But due time, these families may emerge out of the destitute situation and still receive Asraya benefits while some families remain unidentified suffer from poverty. Social audit is a tool to identify the genuine destitute families so as to lend a helping hand towards them. Social audit acts as a method to bring the truth of the social issues faced by the destitute families to the government‟s concern. The researcher seeks to learn how social audit helps in identifying genuine beneficiaries of the Asraya project and its importance in the performance of social projects. Social auditing is a process by which an organization / government accounts for its social performance to its stakeholders and seeks to improve its future social performance. It brings about transparency and accountability in government. According to central Government data, 2% of the population of Kerala is the most vulnerable among the poor who live in the back of an economy that has no right or ability to voice their rights, economically, socially and administratively. The Asraya Scheme is the first integrated action program to detect, rehabilitate, and monitor such activities of the destitute. In March 2003, the government approved the Asraya scheme submitted by Kudumbashree. The Kudumbashree Mission estimated that as of March 31, 2008, there were at least 57,985 destitute persons in 710 freehold institutions, including 22 urban self-governing institutions and 688 Panchayats. It is in Kerala that there are more than 22 lakhs below the poverty line. So, the study provides a path to understand how a government scheme is implemented and how it helps in empowering a community.

BIBLIOGRAPHY AND APPENDIX

BIBLIOGRAPHY

Asraya. (2019, March 25). Retrieved June 21, 2019, from yogapedia: https://www.yogapedia.com/definition/5919/asraya

Asraya kudumbasree. (2012, March 15). Retrieved June 21, 2019, from Asraya: https://aajeevika.gov.in/sites/default/files/nrlp_repository/2Asraya_kudumbashre e.pdf

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Kudumbasree. (2019). KUdumbasree. Retrieved June 21, 2019, from DESTITUTE FREE KERALA / ASRAYA: http://www.kudumbashree.org/pages/20

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85 APPENDIX

Social Audit of Asraya Project in Pothencode Panchayat

- Sunithakumari. M. S.

INTERVIEW GUIDE

1. Profile of the respondents:

i. Name ii. Age iii. Sex iv. Family Status v. Caste vi. No. of Family members

2. Eligibility as an Asraya beneficiary

i. Location of the house (ecological specificities of the location) ii. Distance from road and access to the house (nadapatha or road) and difficulties during rainy season iii. Condition of the House iv. Condition of the toilet and whether it is being regularly used, if not, reasons v. Drinking water and water for other purposes vi. Food Consumption vii. Financial Status viii. Livelihood ix. Pension x. Health and mental health issues xi. Support networks

3. Benefits received by the Asraya beneficiary:

i. Food ii. Clothing iii. Medical facilities iv. Shelter v. Drinking water facility vi. Education

4. Role of Kudumbashree:

i. Community Development Society ii. Area Development Society iii. Members of Neighbourhood Groups