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Final Report By Bhaskar Majumder Submitted to Planning Commission Government of India, New Delhi G. B. Pant Social Science Institute Allahabad – 211 019 Phone: (0532) 2569204, 2569206, Fax: (0532) 2569214, 2569039 (R) E-mail: majumderb@rediffmail.com April 2009 Contents Chapter Particular Page No. Chapter Contents ii-vi Research Team vii Preface viii Location Map ix List of Flow Charts x List of Tables xi-xvi List of Boxes xvii Executive Summary xviii-xxxvii One Rural Housing Scenario: An Overview 1-34 Two Objectives, Methodology, Coverage, Sample and Housing Programme 35-50 Three Housing Condition of Beneficiary Households 51-80 Four Performance and Impact of Housing Programmes on Beneficiary 81-114 Households Five Role and Suggestions of Functionaries under Housing Programmes 115-127 Six Micro Level Qualitative Assessment : Observations 128-155 Seven Conclusions and Recommendations 156-174 References 175 Appendix: Photographs 176 i Chapter Contents Chapter One : Rural Housing Scenario: An Review 1-34 1.1 Housing: A Basic Need 1-2 1.1.1 Housing: The Concept and the Components 2 1.1.2 Housing as a Physical Space 2 1.1.3 Housing as an Accommodation: Physical, Social, and Psychological 2-3 1.2 Housing Condition in India and Uttarakhand: Census 2001 & NSSO, 3 2004 1.2.1 Census 2001: A Review on Housing 3-14 1.2.2 National Sample Survey Report, 2004 : A Review on Housing 14-20 1.3 Poverty Scenario in the State: A Review of BPL Census 2002 21-24 1.4 Living Condition of People settled in Rural Regions as Linked with 24-25 Housing 1.5 Housing as a Policy Measure 25 1.5.1 Housing: Policy Evolution in India 25-26 1.5.1.1 National Housing Policy, 1994 26 1.5.1.2 National Housing and Habitat Policy, 1998 26 1.5.2 National Agenda for Governance 26 1.5.3 National Housing Bank 26 1.6 Housing Policies in India's Plans 26 1.6.1 Rural Housing in the First Five Year Plan (1951-56) 27 1.6.1.1 Objectives of Housing Policy 27 1.6.1.2 Follow Up Actions 27 1.6.2 Rural Housing in the Second Five Year Plan (1956-61) 27 1.6.2.1 Strategy of Rural Housing 27 1.6.2.2 Follow Up Actions 28 1.6.3 Rural Housing in the Third Five Year Plan (1961-66) 28 1.6.3.1 Strategy for Rural Housing 28 1.6.4 Rural Housing in the Fourth Five Year Plan (1969-74) 28 1.6.5 Rural Housing in the Fifth Five Year Plan (1974-79) 28 1.6.5.1 Follow Up Actions 28 1.6.6 Rural Housing in the Sixth Five Year Plan (1980-85) 29 1.6.6.1 Follow Up Actions 29 1.6.7 Rural Housing in the Seventh Five Year Plan (1985-90) 29 1.6.8 Rural Housing in the Eighth Five Year Plan (1992-97) 29 1.6.9 Rural Housing in the Ninth Five Year Plan (1997-2002) 30 1.6.9.1 Rural Housing as Evaluated by Mid Term Appraisal of Ninth Plan 30 (1997-2002) 1.6.10 Rural Housing in the Tenth Five Year Plan (2002-2007) 30 1.6.11 Rural Housing in the Eleventh Five Year Plan (2007-2012) 30 1.7 Constraints in Execution of Housing Schemes 30 1.7.1 Government Schemes for Rural Housing 30 1.7.1.1 Indira Awaas Yojana (IAY) 31-32 ii 1.7.1.2 Pradhan Mantri Gramodaya Yojana (Gramin Awaas) 32 1.7.1.3 Credit-cum-Subsidy Scheme (CCSS) 32 1.8 Estimated Poverty: Uttarakhand and India 32-33 1.9 Housing and Institutions: Role of Panchayati System 33 1.9.1 Panchayati Raj in Uttarakhand 33 1.9.2 Role of PRIs in Development Programmes 34 Chapter Two : Rural Housing: Policies and Practices in India 35-50 2.1 Objectives of the Study 35 2.2 Hypotheses 35-36 2.3 Methodology 36-39 2.4 Coverage of the Study 39 2.5 Characteristics of Selected Districts 42-44 2.5.1 District: Pithoragarh 42-43 2.5.2 District: Almora 43 2.5.3 District: Uttarkashi 43 2.5.4 District: Chamoli 44 2.6 Socio-Economic Profile: Selected Districts and Uttarakhand 44-45 2.7 Poverty and Houseless Households in Selected Districts 46 2.7.1 Poverty and Houseless Households in Selected Gram Panchayats 46-48 2.8 Housing Programmes in Selected Districts 48-49 2.8.1 Physical and Financial Progress of IAY in the State of Uttarakhand 49-50 2.8.2 Physical Progress of IAY in the Selected Districts 50 Chapter Three : Housing Condition of Beneficiary Households 51-80 3.1 Sample Beneficiary Households by Caste, Programme and Location 51-52 3.2 Availability of Basic Amenities for Human Settlement 52-53 3.3 Profile of Households as Respondents 53-55 3.4 Rootedness of Sample Households 55-56 3.5 Education, Occupation and Income of Beneficiary Households 56 3.5.1 Caste-wise Educational Standard of Population 57 3.5.1.1 Schooling of Children 57 3.5.2 Occupational Structure of Population from Sample Households 58-59 3.5.2.1 Occupational Support of the Households 59 3.5.3 Income of Population from Sample Households 60-62 3.6 Households Owning Land and Assets 62-63 3.7 Beneficiary Households Owning Assets 63-64 3.8 Migration and Income of Migrated Persons 64 3.8.1 Income of Migrated Persons 65 3.9 Borrowing by Beneficiary Households 65 3.9.1 Sources of Borrowing 65 3.9.2 Amount Borrowed by Households 66 3.9.3 Average Loan, Repayment and Outstanding Loan and Annual Income 66 of Households 3.9.4 Reasons for Borrowing 67 3.10 Current Housing Condition of Beneficiary Households 68 3.10.1 Residential Area by Income Per Annum of Households 68-71 3.10.2 Availability of Rooms by Types of Construction and Area 71 3.11 Housing Problems in Existence 72 3.12 Types, Uses and Ownership of Houses 72-73 3.12.1 Number of Married Couple and Availability of Rooms by Types of 74 Uses iii 3.13 Availability of Basic Facilities inside or Near the House 74-76 3.14 Types of Fuel Used by Households 76 3.15 Nature of Settlement of Households in Hill Region 77 3.15.1 Members of Family and Location by Distance from where Households 77-78 Move Out 3.15.2 Reasons for Double Settlement 78 3.15.3 Types of Houses and Ownership at Relocation 79 3.15.4 Occupation and Average Income of Moved-out Households 79 3.15.5 Location of Moved-out Place and Problems 80 Chapter Four : Performance and Impact of Housing Programmes on 81-114 Beneficiary Households 4.1 Households under Housing Programme 81 4.2 Households Selected by Priority Categories under Housing 81 Programme 4.2.1 Selection of Beneficiary Households by Housing Programme 82 4.2.2 Status of Selected Households under Permanent Waiting List 84 4.2.3 Exclusion of Eligible Households under Programme and their Reasons 85 4.2.4 Selection of Place and Construction of Houses by Location 86 4.2.5 Location of Constructed Houses by Habitation 87 4.3 Types of Construction and Using Status of Old and New Houses 87 4.3.1 Use Status of Houses 88 4.3.2 Reasons for Non-Completion or Non-Use of Houses 89 4.4 Formal Ownership of Houses under Housing Programme 90 4.5 Constructed Area of Houses under Housing Programme 90 4.5.1 Duration of Construction of Houses under Housing Programme 91 4.5.2 Construction of Rooms by Area 93 4.5.3 Constructing Agents of Houses 94 4.5.4 Board Displayed on Constructed Houses 94 4.5.5 Materials Used for Construction of Floor in Houses 95 4.5.6 Materials Used for Construction of Walls 95 4.5.7 Materials Used for Construction of Roof 96 4.6 Construction of Toilet and their Use 97 4.6.1 Using Status of Toilets 98 4.7 Receiving Status of Smoke-less Stove 99 4.8 Modes of Payment and Adequacy of Support Amount 99 4.8.1 Adequacy of Support Money for Housing 100 4.8.2 Sources of Support Money 100 4.9 Reasons for Final Installment not Received 102 4.10 Sanction, Receipt and Actual Cost for Construction of House 102 4.10.1 Average Cost of Construction Per House by Area 104 4.11 Weaknesses of Constructed Houses 104 4.12 Corruption in Housing Programme 105 4.13 Natural Calamities, Loss of Households and Government Relief 106 4.14 Linkages of Housing Programme with Other Development 109 Programmes 4.15 Impact of Housing Programme on Beneficiary Households 110 4.15.1 Impact on Beneficiary Households before and after Implementation of 112 Housing Programme by Indicators 4.16 Problems Faced by Beneficiary Households under Housing 113 Programme 4.17 Suggestions for Improvement of Housing Programmes 113 4.17.1 Requirement of Households after getting housing Benefits 114 iv Chapter Five : Role and Suggestions of Functionaries under Housing 115-127 Programmes 5.1 Role and Suggestions of Gram Panchayats 115 5.1.1 Sample Profile of Gram Panchayats 115 5.1.2 Status of BPL List of 2002 116 5.1. Selection of Households under Housing Programme 117 5.1.3.1 Households Selected against the Target: Number and Reasons 117 5.1.3.2 Difficulties Faced by Gram Panchayats 118 5.1.3.3 Norms that the Panchayat Representatives Like to Change 118 5.1.4 Households Proposed, Benefited, and Constructed Houses 119 5.1.4.1 Reasons for Non-Completion of Construction of Houses 119 5.1.5 Nature of Housing Problems and Requirement of Houses for Gram 120 Panchayats 5.1.6 Suggestions of Gram Panchayats for Safe Housing and Improvement 121 of Housing Programmes 5.1.7 Cost of Construction of a House as Estimated by Gram Panchayats 122 5.1.8 Role of Gram Panchayats under Housing Schemes 123 5.2 Role and Suggestions of Government Functionaries 123 5.2.1 Reasons for Delay in Implementation of BPL List 2002 124 5.2.2 Comments of Government Functionaries regarding BPL List 2002 124 5.2.3 Reasons for Non-construction of Sanitary Latrine and Installation of 124 the Smoke-Less Chulha 5.2.4 Problems of Government Functionaries for Implementation of Housing 125 Programme 5.2.5 Opinions and Suggestions of the Government Functionaries for better 126 Implementation of the Housing Programmes Chapter Six : Micro Level Qualitative Assessment : Observations 128-155 6.1 District Pithoragarh 128-135 6.2 District Almora 135-140 6.3 District