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

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)

ACTIVITIES 2012-2013

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

PROJECT TEAM

PART II • OBJECTIVES OF THE STUDY

• BRIEF METHODOLOGY

• FORMAL HOUSING TYPOLOGIES

• MAJOR FINDINGS FROM THE STUDY

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.

OBJECTIVES

WORK OUTLINE

Assessment of Housing supply

Nature of Housing Supply

Field Visit – Stage I

Field Visit – Stage II

Organisational data and

Interviews with Officials,

Reconaissance Surveys of public

and private sector projects

Case details of identified public

and private Projects,

household surveys , developers

surveys

Household Characteristics, Economic Profile and Level of Satisfaction related to space provision, price, facilities and location

Web Search

Project Characteristics General and

EWS Units – Density, Facility Provsion,

Open Space, Resident

Characteristics

Analysis Conclusions

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

“FORMAL” HOUSING

HOUSING DEVELOPMENT PROCESS

Residential land Allocation

Prioritization and Housing Programme

Project Development

Project formulation and approval

Disposal

monitoring

Maintenance

Plan Provisions

Policy Plan Project

FROM POLICY TO PLAN ….

FOCUS ON MASTER PLANS 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.

NATIONAL URBAN HOUSING AND HABITAT POLICY 2007

DEHRADU

N

SHIMLA LUDHIANA CHANDI-

GARH

Population Census 2011 (million)

0.54 (0.71) 0.17 1.61 1.05

Decadal Growth Rate

20% (34.7%)

17.2% 16% 17.1%

Municipal Area

(ha)

6872 ha

2074 ha 11137.5 11400 ha

Planning Area (ha) 35,867 ha

9949 127122

11400 ha

Projected

population (million)

1,53 .32 4.0* 1.5 *In 2007 existing

population of planning

area is about 2 m.

Most of the case study areas have projected almost doubling of population in the

next 11-15 years

GENERAL PROFILE

UTTARAKHAND PUNJAB U.T. H.P.

DEHRADUN LUDHIANA CHANDIGARH SHIMLA

State Housing Policy Draft Uttarakhand State Housing Policy

Punjab Housing and Habitat Policy 2008

No separate policy document

In Process

Legal Framework for Master Plan Preparation

Uttar Pradesh Urban Planning and Development Act 1973

Punjab Regional and Town Planning and Development Act 2006

Capital of Punjab(Development and Regulation) Act

1952

Himachal Pradesh Town and Country Planning Act 1977

Status of Master Plan 1981-2001 2005-2025 Master Plan Review ongoing

1971-91 2007-2021

Statute of Land and Zoning sheets Draft Master Plan 2031

1981-2001 Draft Development Plan 2021

Major Public Sector Housing developer

Mussourie Dehradun Development Authority

Ludhiana Improvement Trust and Punjab Urban Development Authority

Chandigarh Housing Board

Himachal Pradesh Urban Development Authority

LEGAL AND POLICY CONTEXT

Specific Policy/ Provisions for EWS and LIG in Private Developer

Housing

Notified guidelines for sub-cluster, cluster, neighborhood and

township development

Notification for reservation for housing for financially weaker section in Mega/Super Mega

Housing Projects

N.A. In process

Provisions for EWS in Housing Projects

15 percent of the FAR 10 percent of the Area 15 percent units in all housing projects for EWS

5 percent of Land Area

Land Assembly Land Pooling Land Purchasing and Land Pooling Policy

Private land Assembly not permitted

Land Pooling mechanism is being considered but yet to be notified

UTTARAKHAND PUNJAB U.T. H.P.

DEHRADUN LUDHIANA CHANDIGARH SHIMLA

STATE LEVEL HOUSING PROVISONS

JnNURM (BSUP)

RAY

VAMBAY

LUDHIANA 66 Cr.

(1200/4832 Units

completed but not yet

allotted)

Identified for Slum

Free city

N.A.

CHANDI-

GARH

396 Cr.

25728 Units

6975 Units

SHIMLA 23 Cr.

634 Units,

Constructed but not yet

alotted

63.84 Lakh

allocated

N.A.

DEHRADUN 63 Cr.

1269 units, At DPR stage

114.63 Lakh for

three cities

Survey stage

100

STATUS OF CENTRAL AND STATE

PROGRAMMES AND SCHEMES

Except for Punjab no other case study areas have formulated the housing policy.

Except for Chandigarh (U.T.) all other states have private sector involvement in land assembly.

Provisions for reservations for EWS and LIG as given in the NUHHP 2007 have been reduced at the state level.

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

DEHRADUN

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.

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 CHANDIGARH

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 LUDHIANA

MASTER PLAN PROVISONS

DEHRA-DUN SHIMLA LUDHIANA CHANDI- GARH

Total Residential Land allocation in the Master Plan (ha)

5306 (14.7%)

2124 (21.2%)

43395 (33.8%)

4400 (38.6%)

Residential Land allocation for EWS and LIG (ha)

estimated 12-15 %*

Not specified

Detail area distribution under different typologies is given

Available average current Residential land development rate per year as per master plan (estimated) ha/year

118** 23 410 NA

Required developed land rate required as per the Master Plan Ha/year

58 61 2394 NA

*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 %*

**This figure is not supported by

the data available from the

organisations

Supply of

developed land

for residential is

required at almost

3 to 5 times current

rate

envisaged in existing and central level

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.

To systematically examine and compare the context of low income housing

provision, nature of planning interventions, policies in selected cities

OBJECTIVE I

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.

To identify existing institutions, and process of prioritization in delivery of low income housing

OBJECTIVE II

LAND AND

HOUSING SUPPLY Objective III and IV

UTTARAKHAND H.P. Punjab U.T.

DEHRADUN SHIMLA LUDHIANA CHANDIGARH

Total Land Developed

by Public Sector* (ha)

75.6

75.6 1898 Data on units is

available but not area

Total Land Developed

by Private Sector as per

approved layouts (ha)

124.7 Nil 176 Not Applicable

Total Land Developed as per regularised

layouts (ha)

424.09 2.54 742 None

Cooperatives (ha) 29.18 Nil 6.8 89.52

Project Affected

Resettlement (ha) 906.8 Nil

Slum Rehousing (ha) Data not available 3.1* Upgraded and

partially upgraded slums

165.6

LAND SUPPLY

Data on Land

Allocation for

EWS and LIG is

neither

available at

the plan level

or at agency

level.

Post-Facto

formalization

amongst the

largest

contributor in

Ludhiana and

Dehradun

400

200

1775

440

0

500

1000

1500

2000

Dehradun Shimla Chandigarh Ludhiana

Current Supply (du/year)

CURRENT AND REQUIRED HOUSING

SUPPLY

0

3000

6000

9000

12000

15000

18000

21000

24000

27000

30000

Dehradun Shimla Chandigarh Ludhiana

Required Supply

(du/year)

Current Supply (du/year)

Includes all the plots/flats developed by public, private, cooperatives, slum housing. Does not include the older housing stock

INCOME CATEGORY WISE HOUSING

UNITS DEVELOPED BY PUBLIC AGENCIES

48

25

14

51

22

37

30

20 21 20

37

22.5

0

18 19

6.5

0

10

20

30

40

50

60

Dehradun Shimla Chandigarh Ludhiana EWS LIG

MIG HIG

%age Units

Majority of the units

constructed in ludhiana

were till 1995, No EWS

unit is constructed after

1995

As a proportion of the

public housing provided

45 - 70 percent is in EWS

and LIG category.

However, this needs to

be seen in conjunction

with contribution of the

public housing to the

total housing stock.

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.

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

OBJECTIVE II

LUDHIANA

FROM PLAN TO PROJECT ...

Ram Darbar

Sector 38 W

Public Private

Dehradun 2 3

Shimla 2

Ludhiana 4 2

Chandigarh 4

PROJECT LOCATIONS

PUBLIC SECTOR HOUSING

DEHRADUN

DEHRADUN

SHIMLA

LUDHIANA

CHANDIGARH

PRIVATE HOUSING

Dehradun

Public Private

Shimla Ludhiana Chandigarh

Density pph 400 -500,

1045

730 370,

430

400 -900 516-980 (1200 –

3400)

Facility per

person sq.m.

1.5- 2.7,

0.1

0.17 – 0.3 0.12,

0.25

0.2 – 0.25 5.8 (0- 0.4)

Open space

per person

sq.m.

3-3.25 3-3.25

.08,

0.42

0.16 – 0.67 2.75 (.8-1.6)

NATURE OF HOUSING –

DENSITY, FACILTIY PROVISIONS

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.

Dehradun

Public Private

Shimla Ludhiana Chandigarh

Area of EWS and LIG

unit per plot

14-36 58-60 35-40 35- 44 32-37 (12)

Allotment Price per sq.m.

8843 44262 50000 26250 (21575)

Current Market

Price/sq.m.

27000 44262 70000 10000-15000 87500 (21575)

% Original Allottees in Surveyed Units

30-63 75, 45

25 - 85 40-65 (100)

NATURE OF HOUSING –

Retentions, housing cost, market value

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.

Dehradun* %age

Shimla %age

Ludhiana* %age

Chandigarh %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

NATURE OF HOUSING –

Level of Satisfaction of Households

*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.

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 III

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

OBJECTIVE IV

To identify issues related to adequacy of existing planned provisions affecting housing supply for low income housing.

DIRECTIONS

TO WHAT EXTENT CURRENT POLICY DIRECTIONS (related with Urban Planning) WILL ADDRESS THE HOUSING PROBLEM 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

S.No. Activities Status Amount (Lakhs)

Likely to be completed

1. Exploring the idea of ’best’ practices

through documentation of case studies in human settlement planning with focus on low income groups

Approved 5.0 January

2015

2. Two day workshop on exploring forms of participation in planning and development of cities

Approved 2.0 November 2014

3. Three day workshop cum seminar on

Planning and Development Law

Approved 3.0 September

2014

ACTIVITIES 2013 -14

Background work on Activity two and three is ongoing. Project Associate has been selected and would be joining

from 1 June 2014.

S.No. Activity Year Budget 1 Collaborative Capacity Building

Initiative for Urban Local Bodies

One Time preparation of training material

Approved

for 2013-14

5.00 Lakh

2 Three Phases capacity building

programmes for each of 3-day module delivery

Approved

for 2013-14

2.00 Lakh

ACTIVITIES 2013-14

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

S.N Activities Status Amount

(Lakhs)

Likely to be

completed

1. Review of Green Building Efforts in India (Project Coordinator – Dr. Shweta Manchanda)

Proposed 5.0 September

2014

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

Proposed 5.0 January 2015

3. Architectural Perspective on Slum Free City – (Project Coordinator – Dr. Ranjana Mittal and Ms Moulshri Joshi)

Proposed 5.0 March 2015

4. Planning and Heritage Interface – Study of Historic Housing in

Delhi (Prof. Nalini Thakur)

Proposed 5.0 February 2015

ACTIVITIES 2014-15

S.N Activities Status Amount

(Lakhs)

Likely to be

completed

1. Documentation - Resettlement Housing in Ladakh for disaster affected families (Mr. Prabhjot Sugga)

Proposed 1.5 September 2014

2. Documentation – In-situ Rehabilitation Projects in Delhi

(Dr.Poonam Prakash)

Proposed 1.5 February 2015

ACTIVITIES 2013-14

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