ASSESSEMENT OF PLANNED

PROVISION AND NATURE OF

HOUSING SUPPLY FOR LOW
INCOME GROUPS

PRESENTATION OF ACTIVITIES UNDER

HUDCO CHAIR FUNDING
26/05/2014

SCHOOL OF PLANNING AND ARCHITECTURE : NEW DELHI

 PART I

HUDCO CHAIR
ACTIVITIES UNDERTAKEN
PROJECT TEAM
 ACTIVITIES 2012-2013
a) Assessment of Planned Provisions and Nature of Housing Supply for low
income groups in Northern Region - Dehradun and Shimla.
(5.0 Lakhs)

a) Assessment of Planned Provisions and Nature of Housing Supply for low

income groups in Northern region- Chandigarh and Ludhiana.
(5.0 Lakhs)

Status of Expenditure
Total Amount 10.00 lakh
Expenditure 8.0 lakh
(Accounts for 6.0 lakh have been submitted)
Payments to be made 2.0 lakh
(to be released after submission of final report)
 PROJECT TEAM

Faculty

Dr.PoonamPrakash (Coordinator), Associate Professor

(Chandigarh, Dehradun and Shimla)
Ms. Taru Jain, Assistant Professor
(Ludhiana and Shimla)
Dr.MayankMathur, Associate Professor
(Finalisation of preliminary framework and Field Visit for Dehradun)

Project Associates
Ms. Gurpreet Kaur
Ms. Shaila Taku
 PART II
OBJECTIVES OF THE STUDY
BRIEF METHODOLOGY
FORMAL HOUSING TYPOLOGIES
MAJOR FINDINGS FROM THE STUDY
 OBJECTIVES
To systematically examine and compare the context of low income
housing provision, nature of planning interventions envisaged in existing
statutory plan documents, state and central level policies in selected
cities.
To identify existing institutions, and process of prioritization in delivery of low
income housing
To assess the extent and type of formal housing supply for economically
weaker sections and low income groups.
To assess the nature of housing supply for low income residents.
To identify issues related to adequacy of existing provisions and delivery
affecting housing supply for low income housing.
 WORK OUTLINE
Web Search
Organisational data and
Interviews with Officials,
Reconaissance Surveys of public Assessment of Housing supply
Field Visit Stage I and private sector projects

Analysis Conclusions
Case details of identified public
Field Visit Stage II and private Projects, Nature of Housing Supply
household surveys , developers
surveys
Project Characteristics General and
Household Characteristics, Economic
Profile and Level of Satisfaction related EWS Units Density, Facility Provsion,
to space provision, price, facilities and Open Space, Resident
location Characteristics
 FORMAL HOUSING

Housing developed by
Public Agency
General Housing (Plotted and
Group)
Private Developers
With prior layout approvals
Cooperatives
Employees Housing
Private Developers
Licensed Regularised Colonies
Public Agency
Slum Rehabilittion/Resettlement
Colonies
 HOUSING DEVELOPMENT
PROCESS
Policy Plan Project

Plan Provisions Project formulation

and approval

Residential land
Project Development
Allocation

Prioritization and Disposal

Housing Programme
Maintenance

monitoring
FROM POLICY TO PLAN .
 NATIONAL URBAN HOUSING AND
FOCUS ON MASTER PLANS HABITAT POLICY 2007
URBAN PLANNING - Encouraging State Governments, Urban Local Bodies,
Development Authorities to periodically update their Master Plans and Zoning
Plans which should, inter- alia adequately provide for housing and basic services
for the urban poor.

SPATIAL INCENTIVES - Innovative spatial incentives like relaxation of Floor Area Ratio
(FAR) for ensuring that 20-25 % of the FAR are reserved for EWS / LIG and issuance
of Transferable Development Rights

SPECIFIC ACTIONS
10 to 15 percent of land in every new public/private housing project or 20 to 25 percent of FAR /
Floor Space Index (FSI) which is greater will be reserved for EWS/LIG housing through appropriate
legal stipulations and spatial incentives.

States/UTs will be advised to develop 10 years perspective Housing Plans with

emphasis on EWS and LIG sectors.
 GENERAL PROFILE
DEHRADU SHIMLA LUDHIANA CHANDI-
N GARH Most of the case
study areas have
Population Census 0.54 (0.71) 0.17 1.61 1.05 projected almost
2011 (million)
doubling of
Decadal Growth 20% 17.2% 16% 17.1% population in the
Rate (34.7%) next 11-15 years

Municipal Area 6872 ha 2074 ha 11137.5 11400 ha

(ha)

Planning Area (ha) 35,867 ha 9949 127122 11400 ha

*In 2007 existing

Projected 1,53 .32 4.0* 1.5 population of planning
population (million) area is about 2 m.
 LEGAL AND POLICY CONTEXT

UTTARAKHAND PUNJAB U.T. H.P.

DEHRADUN LUDHIANA CHANDIGARH SHIMLA

Draft Uttarakhand State Punjab Housing and Habitat No separate policy

State Housing Policy In Process
Housing Policy Policy 2008 document

Legal Framework for
Uttar Pradesh Urban Planning
Master Plan
and Development Act 1973
Preparation
1981-2001
Status of Master Plan 2005-2025
Master Plan Review ongoing
Capital of
Punjab Regional and Town Himachal Pradesh
Punjab(Development
Planning and Development Town and Country
and Regulation) Act
Act 2006 Planning Act 1977
1952
Statute of Land and 1981-2001
1971-91
Zoning sheets Draft Development
2007-2021
Draft Master Plan 2031 Plan 2021

Himachal Pradesh
Ludhiana Improvement Trust
Major Public Sector Mussourie Dehradun Chandigarh Housing Urban
and Punjab Urban
Housing developer Development Authority Board Development
Development Authority
Authority
 STATE LEVEL HOUSING PROVISONS

UTTARAKHAND PUNJAB U.T. H.P.

DEHRADUN LUDHIANA CHANDIGARH SHIMLA

Notification for reservation

Specific Policy/ Notified guidelines for sub- for housing for financially
Provisions for EWS and cluster, cluster, weaker section in
N.A. In process
LIG in Private Developer neighborhood and Mega/Super Mega
Housing township development Housing Projects

15 percent units in all

Provisions for EWS in 5 percent of Land
15 percent of the FAR 10 percent of the Area housing projects for
Housing Projects Area
EWS

Land Pooling
Private land mechanism is
Land Purchasing and Land
Land Assembly Land Pooling Assembly not being considered
Pooling Policy
permitted but yet to be
notified
 STATUS OF CENTRAL AND STATE
PROGRAMMES AND SCHEMES
JnNURM (BSUP) RAY VAMBAY Except for Punjab no
other case study
areas have
LUDHIANA 66 Cr. Identified for Slum N.A. formulated the
(1200/4832 Units Free city housing policy.
completed but not yet Except for
allotted) Chandigarh (U.T.) all
other states have
CHANDI- 396 Cr. 6975 Units private sector
GARH 25728 Units involvement in land
assembly.
SHIMLA 23 Cr. 63.84 Lakh N.A. Provisions for
634 Units, allocated reservations for EWS
Constructed but not yet and LIG as given in
alotted the NUHHP 2007
have been reduced
DEHRADUN 63 Cr. 114.63 Lakh for 100 at the state level.
1269 units, At DPR stage three cities
Survey stage
MASTER PLAN PROVISONS
DEHRADUN
Income group wise area
allocation in Master Plan
2001

25 percent (342 ha) of the

net residential area
allocated for EWS and LIG
in earlier plan. (Land Area
occupied by slums is 277
ha)

Out of total stated

developed land of about
2500 ha the MDDA has
developed as part of its
housing schemes only
about 38 ha.
MASTER PLAN PROVISONS
SHIMLA
Provides and assessment of
existing housing situation
and proposes three new
satellite towns for
accommodation of
population.

Estimates a requirement of
2124 ha of residential land.

No provision for income

group wise allocation and
lacks monitoring targets.

Required rate of residential

rate 46ha per year against
current rate of 23ha per
year.
MASTER PLAN PROVISONS
CHANDIGARH

Chandigarh Msater Plan (draft)

has recently been put in public
domain.

Provides for detail housing

programme according to
typology and agency.

Provides for 15 percent of the units

to be built for EWS.

4400 ha of residential area is

allocated for residenital.
MASTER PLAN PROVISONS
LUDHIANA
Existing Residential Area has
increased five times from 1971 to
2007.

EWS, LIG and CSP -10 % of built up

units and 10% of total plotted area
of the scheme under residential use
(state notification is for 5% land
area reservation)

No specific provisions for Industrial

Housing

Primary responsibility of EWS housing

will be the responsibility of Public
Agency.
 MASTER PLAN PROVISONS
DEHRA-DUN SHIMLA LUDHIANA CHANDI-
GARH Supply of
Total Residential Land allocation 5306 2124 43395 4400 developed land
in the Master Plan (ha) (14.7%) (21.2%) (33.8%) (38.6%) for residential is
required at almost
Residential Land allocation for estimated 12- Not Detail area
3 to 5 times current
EWS and LIG (ha) 15 %* specified distribution under
different rate
typologies is
given

Available average current 118** 23 410 NA

Residential land development
rate per year as per master plan
(estimated)
ha/year
Required developed land rate
required as per the Master Plan
Ha/year
*Income wise FAR reservation
instead of land reservation in
Master Plan 2025.
25% of net residential land in
2001 now reduced to
estimated 12-15 %*
58 61 2394 NA **This figure is not supported by
the data available from the
organisations
 OBJECTIVE I
envisaged
To systematically in existing
examine and compareandthecentral level
context of low income housing
provision, nature of planning interventions, policies in selected cities
In almost all the case study cities population is expected to double in the next ten to fifteen years.

Current policy context emphsizes incentivized land and FAR reservations through private sector development (10-
15% and 20-25%). This approach is carried forward at state level. Punjab has its state housing policy, draft housing
policy is in place for Uttarakhand, and for H.P, .it is in process f being prepared. These reservations are reduced at
the state level (5% to 15%)

Dehradun and Ludhiana Master Plan have been notified whereas Shimla and Chandigarh draft master Plans have
been prepared. Review of the previous Master Plan in case of Dehradun, Shimla and Ludhiana provide no account
of status of land allocated and developed for housing in general and EWS and LIG housing in particular. Thereby
there is no systematic way of monitoring the previous plan shortfalls to ascertain priorities in the revised plan.

Except for Chandigarh, other cities have very limited intervention for provision of housing for EWS and LIG.
Except for Chandigarh all other cities have allowed private sector development and some form of regulations for
the same are in force.

Required rate of developed land for residential purpose is estimated at three to five times the current rate of
supply.
 OBJECTIVE II

To identify existing institutions, and process of prioritization in delivery of low income housing
Housing Board in Chandigarh and Urban development authority in other three states are
public sector institutions responsible for housing. In Himachal, housing board has been
merged in urban development authority.

Town planning department is responsible for plan making. However, in Shimla and
Ludhiana planning department and housing development organisations do not see much
role for themselves. Priorities and targets are not embedded in the statutory plan and lack
of land availability is seen as major constraint particularly in hill towns.

The connection between plan making organization and development organization is

weak and plan document is not detailed out in programme thereby ad-hoc projects are
developed without necessarily being part of priorities. Same is the situation in Punjab which
has one of the least detailed out plans as far as residential allocations are concerned.
LAND AND
HOUSING SUPPLY
Objective III and IV
 LAND SUPPLY
UTTARAKHAND H.P. Punjab U.T. Data on Land
DEHRADUN SHIMLA LUDHIANA CHANDIGARH
Allocation for
Total Land Developed 75.6 Data on units is EWS and LIG is
75.6 1898
by Public Sector* (ha) available but not area neither

Total Land Developed available at

by Private Sector as per 124.7 Nil 176 Not Applicable the plan level
approved layouts (ha) or at agency
Total Land Developed level.
as per regularised 424.09 2.54 742 None
layouts (ha) Post-Facto
Cooperatives (ha) 29.18 Nil 6.8 89.52 formalization
amongst the
Project Affected largest
906.8 Nil
Resettlement (ha)
contributor in
Upgraded and
Ludhiana and
Slum Rehousing (ha) Data not available 3.1* partially upgraded 165.6
slums Dehradun
 CURRENT AND REQUIRED HOUSING
SUPPLY

2000 30000
1775
27000
24000
1500
21000
18000
1000 15000
12000
400 440 9000
500
200 6000
3000
0
Dehradun Shimla Chandigarh Ludhiana 0
Dehradun Shimla Chandigarh Ludhiana
Current Supply (du/year)

Required Supply
Includes all the plots/flats developed by public, private, cooperatives, (du/year)
slum housing. Does not include the older housing stock Current Supply (du/year)
 INCOME CATEGORY WISE HOUSING
UNITS DEVELOPED BY PUBLIC AGENCIES

60 As a proportion of the
public housing provided
51 45 - 70 percent is in EWS
50 48
and LIG category.
However, this needs to
40 37 37 be seen in conjunction
with contribution of the
30
30 public housing to the
25
2221 22.5 total housing stock.
20 19 20
20 18
14
Majority of the units
10 6.5 constructed in ludhiana
were till 1995, No EWS
0 %age Units unit is constructed after
0
Dehradun Shimla Chandigarh Ludhiana
1995
EWS LIG
MIG HIG
 OBJECTIVE II

To assess the extent and type of formal housing supply for economically weaker sections and
low income groups.

Required housing supply rate per annum to accommodate the projected

population as per the master plan is twenty to fifty times the current supply of
formal housing units.
Public agencies continue to be major contributor to housing and regularised
developments are the next major contributor.
Current housing supply rate is the maximum in Chandigarh despite this being
only city which has only public sector housing development.
Public sector housing has provided forty five to sixty five units for the EWS and
LIG. However, except for Chandigarh, most of these units were developed in
the nineties. In case of Chandigarh too, many of these units are resettlement
housing rather than new housing for EWS and LIG.
FROM PLAN TO PROJECT ...

LUDHIANA
 PROJECT LOCATIONS

Public Private

Dehradun 2 3

Shimla 2

Ludhiana 4 2
Sector 38
Chandigarh 4 W
Ram
Darbar
PUBLIC SECTOR HOUSING

DEHRADUN
DEHRADUN
SHIMLA
LUDHIANA
CHANDIGARH
PRIVATE HOUSING
 NATURE OF HOUSING
DENSITY, FACILTIY PROVISIONS

Dehradun Shimla Ludhiana Chandigarh

Public Private

Density pph 400 -500, 730 370, 400 -900 516-980 (1200
1045 430 3400)

Facility per 1.5- 2.7, 0.17 0.3 0.12, 0.2 0.25 5.8 (0- 0.4)
person sq.m. 0.1 0.25

Open space 3-3.25 3-3.25 .08, 0.16 0.67 2.75 (.8-1.6)

per person 0.42
sq.m.
Figures in second line are from more recent projects and figures in brackets are for BSUP projects. More detailed table is
available in the report

Densities have almost doubled with time. Incase of BSUP projects these have increased to almost five to seven
times from the general low income housing projects. This increase in density has been achieved through reduction
in facility and open space provision generally.
 NATURE OF HOUSING
Retentions, housing cost, market value

Dehradun Shimla Ludhiana Chandigarh

Public Private

Area of EWS and LIG 14-36 58-60 35-40 35- 44 32-37 (12)
unit per plot

Allotment Price per 8843 44262 50000 26250 (21575)

sq.m.

Current Market 27000 44262 70000 10000-15000 87500 (21575)

Price/sq.m.

% Original Allottees 30-63 75, 25 - 85 40-65 (100)

in Surveyed Units 45

Housing units for EWS range on an average between 30 to 40 sq.m. Some of the projects showed high
number of original allottees in the surveyed units. Private units were bigger and were being sold as
one bedroom furnished apartments.
 NATURE OF HOUSING
Level of Satisfaction of Households

Dehradun* Shimla Ludhiana* Chandigarh

%age %age %age %age

Location 21-58 60 60 -90 10-20

Space 7-12 40-60 40-70 50- 60

Price 5-12 6 - 40 0-10 0

Facilities 8-18 73 - 90 75 90 35-53

*public sector projects only.

In Dehradun households are dissatisfied with projects amongst all parameters. Ludhiana shows the highest level of
satisfaction and more so with older projects. In Chandigarh Location is a source of dissatisfaction. Families are
dissatisfied with the price across all cities.
 OBJECTIVE III

To assess the nature of housing supply for low income residents.

There has been general reduction in housing standards over a period

of time.
Private sector housing provisions are built at higher end of the
spectrum of EWS and LIG and are being sold as furnished apartments
for segment with average monthly incomes between Rs. 25000 to
30000. It is unlikely that without state control private sector housing
provisions would reach the EWS groups.
Incase of BSUP programme, units sizes etc. are much lower than what
is being provided for general EWS family.
Level of satisfaction is higher in older projects.
 OBJECTIVE IV

To identify issues related to adequacy of existing planned provisions affecting housing supply
for low income housing.
Nature of Provisions for housing for the poor in Master Plans and Zonal Plans
Master Plans in all the cities provide for housing for the poor in some form. However, quantum of
allocations made need to be specific, review of previous provisions and allocations should form of part of
current master plan, monitoring targets and priorities to be clearly spelt out. Central and state level
programmes should be in conformity with the minimum standards set in the master plan. Trend towards
reduction in quality of life standards needs to be addressed.
Incentivised Land and or FAR reservations
Considering that in coming years private sector is likely to play a major role in land and housing
development, the approach of provision through Land and FAR reservations
a) will not be enough to provide for EWS and LIG housing without major public sector intervention
b) the beneficiaries of these reservations are unlikely to be the EWS and LIG as defined by HUDCO.
Lack of Monitoring and Feedback System
Lack of preparedness of formal housing system to accommodate projected population as per the master
plans
Housing provision for EWS and LIG is being given through reduced allocations and reduced quality
 TO WHAT EXTENT CURRENT POLICY DIRECTIONS (related with Urban Planning)
WILL ADDRESS THE HOUSING PROBLEM
DIRECTIONS
15 to 20 percent of land or FAR reservations (reduced in many cases at state
level) which is the major tool now for EWS and LIG provision will not be able to
cater to the housing requirement neither in terms of quantum of housing nor in
terms of nature of housing being provided for EWS and LIG.
RAY, JnNURM as programmes for housing provision need to be embedded in
the plan.
Approach to assessing housing shortage - to connect with plan provisions of
minimum standard.
IMPLICATIONS FOR HUDCO
Focus on development of housing programme and housing targets at master
plan and/or zonal plan level and prioritization of housing
Funding for developing of monitoring, information system and coordination.
PART III
ACTIVITIES
2013-14 and 2014-15
 ACTIVITIES 2013 -14

S.No. Activities Status Amount Likely to be

(Lakhs) completed

1. Exploring the idea of best practices Approved 5.0 January

through documentation of case studies 2015
in human settlement planning with
focus on low income groups
2. Two day workshop on exploring forms Approved 2.0 November
of participation in planning and 2014
development of cities
3. Three day workshop cum seminar on Approved 3.0 September
Planning and Development Law 2014
Background work on Activity two and three is ongoing. Project Associate has been selected and would be joining
from 1 June 2014.
 ACTIVITIES 2013-14

S.No. Activity Year Budget

1 Collaborative Capacity Building Approved
Initiative for Urban Local Bodies for 2013-14 5.00 Lakh

One Time preparation of training

material
2 Three Phases capacity building Approved 2.00 Lakh
programmes for each of 3-day for 2013-14
module delivery
The above two activities are on Project Management and revised proposal for the same have
been sent to HUDCO and reply is awaited. These two activities will be coordinated by
Professor V.K.Paul

Total Amount Approved for 2013 -14 17 Lakhs

 ACTIVITIES 2014-15

S.N Activities Status Amount Likely to be

(Lakhs) completed

1. Review of Green Building Efforts in India Proposed 5.0 September

(Project Coordinator Dr. Shweta Manchanda) 2014

2. Slum Free City Role of Rental Housing Delhi Proposed 5.0 January 2015
(Project Coordinator Dr. Vinita Yadav and Mr. Manu Mahajan)

3. Architectural Perspective on Slum Free City Proposed 5.0 March 2015

(Project Coordinator Dr. Ranjana Mittal and Ms Moulshri Joshi)

4. Planning and Heritage Interface Study of Historic Housing in Proposed 5.0 February 2015
Delhi
(Prof. Nalini Thakur)
 ACTIVITIES 2013-14

S.N Activities Status Amount Likely to be

(Lakhs) completed

1. Documentation - Resettlement Housing in Ladakh for disaster Proposed 1.5 September

affected families 2014
(Mr. Prabhjot Sugga)

2. Documentation In-situ Rehabilitation Projects in Delhi Proposed 1.5 February 2015

(Dr.Poonam Prakash)

Proposed for balance 3.0 lakh funds from the budget of 2013-14