housing

A.K. Jain

Housing for All

Will the economically weaker sections of the society
continue to live in slums and squatter settlements? Is
it possible to redevelop existing areas and open up
new avenues for social housing?

T
he Government of India, recently unveiled the
National Declaration on Urban Governance and
Housing for all. It has committed to provide
housing to all by the year 2022, along with toilets,
electricity, drinking water and other amenities.
According to the Ministry of Housing and Urban Poverty
Alleviation, the total housing shortage in India in the year 2011
was about 18.78 million dwelling units (DUs), out of which
95% related to social housing, i.e. housing for the economically
weaker sections and low income group.
About one-third to one-half of the population of India’s
major metropolitan centres, like Delhi, Kolkata, Mumbai,
Bangalore and Chennai occupy various types of illegal,
informal, unplanned and slum settlements, which comprise
mainly the poor. The pavement dwellers/homeless form about
1 per cent of the total population. Traditional areas, villages and
old city house about one-third of population and unauthorised
colonies have about one-sixth of the population. Public sector
housing and site and services provide housing to about one-
third of the population. The role of the private sector in EWS/
LIG housing has been almost negligible. The current schemes of
affordable housing by the private sector also cater mostly to the

38 ARCHITECTURE - Time Space & People December 2014

middle income groups. The experience
of EWS/LIG housing is that these do
not reach the intended group, unless
land cost is discounted, construction
cost is subsidized, rental facility is
offered and loan is made available at
low interest.
In the absence of access to public
and private sector housing, the poor
continue to live in unauthorised
colonies within unapproved build-
ings. Slums and jhuggi jhompri/squat-
ter clusters and illegal colonies exist
on public land, except rarely on few
private tracts of land. These illegal Figure 2: A dense and compact illegal colony without any open space or community facilities
colonies have an average plot size of and utilities
60-200 sqm, largely catering to the
MIG. The average size of a jhuggi in a poor. Most of the poor live in the un- deserve shelter and city services.
slum cluster is a meagre 8 to 12 sqm, planned areas, such as the slums, old The Ministry of Housing and Urban
which caters to EWS. The increasing city, villages and illegal colonies, which Poverty Alleviation guidelines define
number of homeless, squatters and tend to remain ignored, as the authori- affordable housing with dwelling
slum dwellers reflects the inadequacy ties are focus on developing green- units between 21 to 60 sq. m. carpet
of delivery of social housing by public field areas. The informal, illegal and area for EWS and LIG categories. The
housing programmes. The informal so- squatter settlements continue to face household income ceiling for these
lutions to the deficiencies of housing the threat of demolition, and hence, categories for eligibility has been fixed
and urban development programmes, present great opportunities for gener- at Rs 8000 and Rs 16,000 per month
which openly defy planning legisla- ating corruption. The people in these respectively, in 2012, which is now
tion, illustrate the extent to which settlements provide essential services 16,000 and 25, 000 respectively (2014).
popular measures regulate the process to the city without demanding much. Housing is intimately connected with
of change and provide shelter to the They have the right to the city and land policy, infrastructure develop-
ment, concepts of planning, land use,
tenure and building regulations. There
is a need to adopt innovative systems
of land pooling and to harness com-
munity and private sector resources in
services, housing and development.

Land
According to the Town and Coun-
try Planning Organization (TCPO)
estimates, at least 84,724 hectares
to 1,20,882 hectares of additional
land would be required, to meet the
current housing shortage in the form
group housing, on average density
Fig. 1: Evolution of an unauthorized colony norms. Land is the basic platform for

December 2014 ARCHITECTURE - Time Space & People 39

housing

all human activities and housing. It is

the starting point of urban develop-
ment, infrastructure services, utilities,
public facilities, transportation and
corridors. With the changing times,
the acquisition of private lands has be-
come extremely difficult. The recently
notified Right to Fair Compensation
and Transparency in Land Acquisi-
tion, Rehabilitation and Resettlement
Act, 2013 necessitates minimizing the
need for land acquisition and control-
ling the urban sprawl by optimum
densities, intensive development and
redevelopment of existing urban ar-
eas. This is also essential for equitable
distribution of the land resource and
to minimize the infrastructure cost
and carbon footprints of urbanization.
Such an approach is visible in Singa-
pore, Hong Kong, Shanghai, Tokyo and
even Dubai, which otherwise has vast
tracts of land. It may be suggested
that owners of large land parcels con-
tribute proportionate land for public
purpose (transport corridors, parking,
social facilities, social housing and
public greens) against grant of incen-
tive FAR/FSI . Fig. 3: Skeleton Prefab Social Housing, Architect. A. K. Jain

Planning and Design

Planning norms, land use, zoning,
density, Floor Area Ratio (FAR), and
building controls have direct implica-
tions on the costs and affordability of
housing. There is a need to frame or
review them so that these open up a
new avenue for social housing and the
redevelopment of existing areas. It is
essential to optimize the utilization
of land by rationalizing the FAR and
residential density. A fixed density and
FAR could lead to under-utilization
of land potential and imposition of
artificial limits to optimal use of scarce
urban land. This is necessary to make Fig. 4: FSI, Density and Housing Form

40 ARCHITECTURE - Time Space & People December 2014

in-situ slum rehabilitation feasible and land, differential residential density Inclusive Housing
to retrieve the encroached land, part norms should be adopted. A fixed Development
of which can be used for public facili- density could result in under-utilisa- Inclusive housing development
ties, utilities and green reservations. tion of land and FAR or imposition of aims at:
The myth of low-rise slum artificial limits to optimal use of land. i) Providing education, healthcare/
rehabilitation has to be abandoned, The following density norms, with cor- social infrastructure, utilities,
as it usually leads to illegal transfer of responding category of dwelling units services and transport
the subsidised plots and creation of (DU) have been stipulated in the Delhi ii) Attaining self-containment,
new slums and squatter areas. Also, Master Plan-2021: viability and integrity
walk-ups with four to five storeys • Slum/EWS housing (to 30 sq.m) The organization of urban space,
pose a problem for the elderly, - 600 to 900DUs/Ha which allows the formation of ‘commu-
sick, and physically challenged. It • Category I (above 30 to 40 sq.m) nities’ and ‘neighbourhoods’ is a key to
is incorrect to presume that the - 500 DUs/Ha cross - sectoral commitments and spa-
poor cannot handle elevators/lifts • Category II (above 40 to 80 sq.m) - tial coalition of social, economic, en-
or afford their maintenance. It is an 250 DUs/Ha vironmental and governance systems.
impressionistic view that high rise • Category III (above 80 sq.m) Social housing projects need to focus
buildings are not energy efficient, -175 DUs/Ha on environmental footprints as well as
or environmentally less sustainable. In-situ slum rehabilitation pilots, community development and health
Higher FAR and densities result in Tekhand Project and Kathputhli package, covering the following:
several environmental benefits. They Slum Rehabilitation Project in Delhi • Improvement of infrastructure
not only, reduce travel distances and envisage PPP in social housing, which (roads, drains, water, sanitation,
transmission losses but also reduce is based upon: (a) using land as a street lighting and community
the pressure on land, public transport resource, (b) market sale component halls)
and services. According to the Twelfth of housing to subsidise social housing • Health (promotional and
Five Year Plan (2013), a World Bank (maximum one-third of total FAR preventive, via maternal and child
study explains how Floor Space Index and land), (c) part commercial use health clinics, health awareness
or FSI and ground coverage can (FAR 10%) (d) optimum FAR (400) and and health volunteers)
be combined to increase densities. density pattern (500 to 600 Dwelling • Education (pre-school, non-formal
However, in high rise housing, due Units per Ha). education, literacy and adult
care has to be taken to provide According to the National Urban literacy)
flexibility in the use of space, creating Housing and Habitat Policy (2007), in • Housing with basic services
‘streets’ on upper floors, small shops, every housing scheme, at least 15 per • Community-based participatory
and social spaces, especially for cent of the saleable net residential planning facilities
women and children and integrated land and FAR should be reserved for • Community development,
facilities, utilities and work places. By social housing and pooled on a zonal institution building, gender
making vertical gardens, roof gardens, basis. This will ensure that they are awareness, vocational training and
high-rise urban farming, sky terraces evenly spread out in different parts economic support
and solar panels an integral part of it, of the city and not concentrated • Encouragement of small home-
the high density housing design can in one place. In all areas, sufficient based occupations
be made sustainable. land should be reserved for housing • Promotion of micro-credit
The norms of mixed land use, zon- low income and weaker sections. facilities; and
ing, density, FAR, and building controls Incentive FSI/FAR, ground coverage • Networking among slum
should encourage and open up new and liberal density norms have been communities.
areas for social housing and for the recommended to create more housing A GIS-based inventory and total
redevelopment of existing areas. To stock, while reducing the cost of land station survey of all potential lands
optimise utilisation of scarce urban component in housing. suitable for social housing, redevelop-

December 2014 ARCHITECTURE - Time Space & People 41

housing

ment and resettlement should be pre- ii). Mandatory adoption of waste into account land cost. With the
pared. After identification of potential water recycling, dual piping, Central Government’s contribution
sites, it is necessary to assign suitable natural lighting and ventilation, through various schemes, and
land use for such sites, and provide renewable energy, water matching contribution of the State
proper services and linkages. The plans conservation, energy efficiency as Governments, local bodies and
of housing development, regularisa- per ECBC and Green Building Code, beneficiaries, the social housing and
tion and resettlement should be based which can save 10 to 15 % of water slum rehabilitation schemes have
on the assessment of ground realities, and energy. become viable and affordable.
existing land use, land ownership, land iii). Checking of leakages, thefts and The cost of land for EWS and LIG
values, socio-economic characteristics transmission losses which can housing can be met by cross-subsidy,
and physical conditions of the settle- save about 15 to 20 % of water compulsory reservation, land pooling
ment, reflected by updated digitised and power and reconstitution, TDR and similar
maps and data. Based on the land and iv). Enhancement of organisational instruments. In view of the recently
housing inventory, the community can efficiency. notified Right to Fair Compensation
access the land and housing fund for and Transparency in Land Acquisition,
infrastructure development and con- Finance Resettlement and Rehabilitation Act,
struction of dwelling units. The criteria To meet the total shortage of 18.78 2013, the acquisition of land is going
for selection of a specific strategy of million houses in the country (10.55 to be more costly and difficult. As
relocation or in-situ upgradation have million houses needed for EWS and such, cities should explore the option
to be based on certain indicators, and 7.41 million houses for LIG category) of redevelopment and recycling
a database. The site selection should an investment of about 18 lakh existing urban areas, including
consider employment generation and crore is required, without taking slum and squatter settlements and
community welfare as the most impor-
tant elements.
The community development plan
should address specific local issues
and provide flexible choices of in-situ
upgradation, relocation, land shar-
ing or re-blocking. The local area plan
should network all the settlements,
where the local stakeholders plan
together.

Water and Power

Critical concerns in redevelopment,
redensification, slum rehabilitation,
regularisation and infill development
(unauthorised colonies) are water sup-
ply and power. Both are under severe
stress.
These require strategic interven-
tions, as follows:
i). Preparation of services plan
of redevelopment, slum
rehabilitation, social housing and Fig. 5: JNNURM Slum Rehabilitation (Thane) Financial Contribution: Central Govt.: 50%, State
regularisation projects Govt.: 25%, Local Body & Development Rights: 9% and Slum Dwellers 16%

42 ARCHITECTURE - Time Space & People December 2014

Fig. 6: Slum rehabilitation under JNNURM (Chandigarh)

encroached lands. Land is the most implies mandatory reservation of land could be as much as 80 to 90 percent
expensive component of housing. If for EWS/LIG in all housing projects/ of total house cost).
land cost is excluded, social housing layouts, the cost of which is excluded Financing of social housing or slum
becomes affordable and viable. This from the cost of the house (which redevelopment need not be the sole
responsibility of the government. To
make such schemes self-financing,
incentives like additional FAR, develop-
ment rights, commercial component,
etc. can be very helpful. To make social
housing schemes bankable, it is neces-
sary to take advantage of manda-
tory reservations, optimise utilisation
of land by higher density and FAR,
besides reducing the cost and time in
land development, construction and
infrastructure provision. The Twelfth
Five Year Plan and Union Budget
(2014-15) suggest a set of instruments
to finance affordable housing. A new
proposal is Home Owners Mortgage
Equity Subvention Scheme (HOMES)
under which the loan limit has been
raised from Rs 5 lakh to Rs. 10 lakh for
EWS and Rs 8 lakh to 15 lakh for LIG
category, along with 5.5% interest
subsidy on these loans.

Security of Tenure
‘Tenure’ is a pre-requisite to enable
and empower the poor to transform
their lives and climb up in the socio-
economic ladder. Without legal right,
the poor cannot use their property
Fig. 7: An Unauthorised Colony as collateral or get a loan. As such,

December 2014 ARCHITECTURE - Time Space & People 43

housing

granting ownership rights is essential review the tenure and design options toring on short-term, mid-term, and
in all slum resettlement and low- of the dwelling clusters with a view to: long-term bases. Effective involve-
income housing schemes. A common • Reducing the cost and enhancing ment of the community organisations
fear is that the formal housing of the affordability; at the grass root level will help in
poor changes hands and is bought • Providing toilets, common space, the process of motivation. It will also
over and the poor remain homeless. etc. in a manner, which would help the beneficiaries to sustain and
To overcome this problem, it may be dissuade the beneficiaries from manage day-to-day issues, such as
suggested that such housing may selling their houses; drainage, solid waste management,
be leased out to the cooperatives • Licencing shelter units initially on water supply, electricity, public health,
or in the name of joint family rental basis, convertible into tenure sanitation, education, security and skill
members at nominal rents, instead after 10 years, or so. Alternatively, development.
of selling them. Here, it becomes the land tenure can be given jointly
A.K. Jain as Commissioner (Planning),
necessary to redefine the concept of to husband and wife/parents, worked on Master Plan for Delhi-2021,
shelter which should include transit or to the co-operatives/resident National Urban Housing and Habitat
Policy, National Urban Transport Policy,
accommodation, dormitory, hostel, associations; protocols for green Commonwealth
camp, paying guest, etc. The industry, • Encouraging an evolutionary Games, New Delhi 2010, plans for
Dwarka and five Sub-cities for Delhi
educational institutions, offices pattern of dwelling, which can be
2021. He was a member of the Advisory
and other establishments may be expanded according to the needs Board of the UN-Habitat and contributed
encouraged to provide residential and resources. in its reports- Sustainable Cities (2009),
Climate Change and Cities (2011) and
accommodation to the workers. For coordinated maintenance, it is Sustainable Urban Mobility (2013).
To curb the resale of social housing necessary to work out an accountable Photographs and illustrations:
Courtesy the Author.
and its speculation, it is necessary to structure and take up regular moni-

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