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by Uma Adusumilli
May 2001
The Background
Andhra Pradesh is the fifth largest state in India. Hyderabad, the capital of Andhra Pradesh, is the
fifth largest city in India. The state shot into fame twice in the last two decades. First with a new
political party reflecting the local aspirations of Andhra people
1
in 1983 and recently (in 1999) with
a new leadership in the same party.
The present government, elected to power in 1999, is today the most well known in the country.
Information technology savvy
2
and self-professed to be governing on the principles of simplicity,
transparency, and result-driven, the government is most popular because of its dynamic Chief
Minister. The government started functioning by working towards “Vision 2020” for the state. The
vision has 19 major engines of focus. Out of these, managing urban growth and infrastructure
development are two thrust areas. The challenge for the Government today is in playing the role
of facilitator, enabler and catalyst of economic change. The current policy environment and
extensive use of information technology for improving public services have made AP a favoured
destination for new investments
3
.
Janmabhoomi is a people centred development process launched in the State of Andhra
Pradesh in January 1997. This process has evolved out of the experience gained through the
implementation of Prajala Vaddaku Paalana (taking administration to the door steps of the
people) launched in November 1995 and Sramadanam (contribution of labour) launched in
January 1996. It aims at establishing an ideal society, which embodies and cherishes the
principles of people's participation, equality, transparency and accountability leading to sustained
economic development and excellence in all walks of life. The goal is, an enhanced quality of life
for every man, woman and child in the State.
The present study of housing scenario for the urban poor in Hyderabad and the impact of
regulatory mechanism are studied in the above specific context, particularly with reference to :
1. the UCD and land sharing experience in Hyderabad
2. the present policy and political environment in the state
3. the impact of IT on housing related services to the poor
4. Impact of the standards etc. on livelihoods of the poor
Housing the urban poor in Hyderabad : an overview
Hyderabad – the vital statistics
Hyderabad as a metropolitan area consists of the Municipal Corporation of Hyderabad (MCH),
nine surrounding smaller municipalities, the Secunderabad Cantonment and several villages
many of which are urbanised. The area under the Hyderabad Urban Development Authority
(HUDA) covers about 1534 sq.km. and had a population of 4.616 millions as per the 1991
census.
1
The Telugu Desam Party brought in landmark and very popular welfare measures covering the entire poor in the state
2
AP is now known as the Cyber state, its capital Cyberabad and its Chief Minister “Cyber Naidu”.
3
Both in the human resources sector and the financial sectors
1
The Municipal Corporation of Hyderabad (MCH) is the central city with an area of 169.31 sq.km.
and a population of 3.146 millions (in 1991). The nine smaller municipalities together cover an
area of 376.97 sq.km. and had a combined population of 963,000 in 1991. The rest of the area
under HUDA is in 242 villages constituted into 106 Gram Panchayats or rural local bodies, with a
population of 431,000 in 1991.
The growth rate in population during the decade 1981 – 1991 in the HUDA area was 70.33%. As
per the Draft Revised Master Plan–2011 for the Hyderabad Development Area prepared by the
HUDA in 1993, the population in 2001 was projected to be about 6.7 millions and in 2011 to be
8.6 millions.
The housing scenario
In 1991 there were 824,000 households in the HUDA area. 37% of the households were living in
one-room dwelling units and another 31% were in two-roomed dwelling units.
About 25-30% of the population in Hyderabad (MCH area) was estimated to be staying in slums.
In 1979, 455 slums were identified and by 1994 the number of slums identified and listed was
811. The following table shows the growth of slums in the MCH area .
Table showing the growth of slums and slum population in MCH
Year No. of slums Population
1962 106 120,000
1967 194 168,000
1972 282 300,000
1976 300 320,000
1977 Not given 380,000
1978 377 400,000
1979 455 408,000
1981 470 540,000
1986 662 859,000
1994 811 1,259,000
Source : ‘Urban Community Development : List of Identified Slums’, a report of the
MCH
4
.
e average density of population in
lum pockets is three times higher than the city’s average
6
.
The squatt
er settlements started in Hyderabad in early fifties when the Muslim elite fled the city
due to the police action
5
leaving behind their lands and properties. The Nehruvian era of
industrialisation and making Hyderabad the capital of AP state were the other events that trigged
sudden growth of population, particularly the poor. The river Musi divides Hyderabad into two
economic zones, with the old city situated towards the south, housing majority of the poor. Two
third of the squatter settlements are located on private lands. The average household size is 5.5
and the average household occupation size is about 16 m2. Th
s
4
A later modification to the list indicates that an estimated 1.259 million people stay in 792 slums
5
When India attained Independence from the British in 1947, a few areas remained outside the Union of India. The state
of Hyderabad is one such which was integrated with rest of India by police action by Govt. of India. It became capital of
AP state much later in 1956.
6
400 persons per hectare in 1987 as against the city’s average of 127 persons per hectare.
2
According to a brief note of the Urban Community Development (UCD), MCH published in 1996,
out of these, 387 slums were recommended to be deleted from the list as they were fully
developed in all respects under the (UCD) projects with ODA (Overseas Development
Agency)/MCH assistance. This deletion thus left only 424 slums on the notified list of slums,
many of which also are likely to be deleted from the list in the near future with the ongoing
evelopment measures in these slums also get completed.
263
lums outside the MCH in the nine municipalities within the Hyderabad metropolitan area
7
.
ousing types of the urban poor
val from
ds
rganizing the
to rehabilitate squatters or as part of
Shelter upgradation or as a ‘land sharing’ mechanism
.4 Formal Sector Supply of Housing for the Urban Poor
d for the urban poor, particularly aimed at
e existing occupants of the slums in Hyderabad are :
schemes for the Economically Weaker Sections
ng housing projects for rehabilitating/relocating/upgrading the slum/squatter
settlements
d
As per
the 1991 census about another 284,000 population (that is about 29.5 %) stays in the
s
H
The housing types of the urban poor in Hyderabad are :
- Village settlements surrounded/engulfed by expanding urban development
- Temporary, unauthorized hutments (land parcels rented out to ‘hutters’ without appro
the local authorities, usually to accommodate construction workers, etc, temporarily)
- Slums/squatter settlements with informal, temporary shelter units on public or private lan
- Illegal land sub-divisions where the layout and buildings constructed have no approval
8
- New sites and services schemes to either upgrade an existing slum by reo
layout, or, to rehabilitate squatters from ‘objectionable’ lands
9
on a different site.
- Apartments constructed by the public agencies either
1
The public agencies involved in supply of housing or lan
th
1) Andhra Pradesh State Housing Corporation Limited (APSHCL) undertaking the actual
formulation and implementation of the
(EWS), including financial management.
2) The two district collectorates within the city area which are responsible for the supply of land
for undertaki
Role of other public agencies
The two public sector agencies which were previously playing a significant role in the supply of
houses for all economic groups including the EWS (Economically Weaker Section) - Andhra
Pradesh State Housing Board and Hyderabad Urban Development Authority (HUDA) are now
limiting their activities to supplying developed land and auctioning the same in the open market.
Hence the developed plots they are auctioning are usually appropriate only for the higher income
groups or for the potential developers
who buy these sites and build apartments for the upper
7
Provisional figures from the 2001 census, still under processing obtained from informal sources suggest that the
population in the slums in the nine Municipalities reduced to 186,000 distributed over 240 slums. It is possible that this
data, since it is not yet cross-checked and ready for official release, is inaccurate
8
Generally where the land is not permitted to be sub-divided either due to urban land ceiling or due to violation of land-
use
9
The notified slums have been classified as either unobjectionable or objectionable. Objectionable slums are those,
which are in low-lying lands or where roads have been proposed or on non-residential zones as per the statutory
Masterplan
3
middle or higher income groups. Thus, the government has now designated APSHCL
responsible for all EWS housing in the state and limited the role of APSHB and HUDA to
supplying land and housing for the the middle and higher income groups. UCD wing of MCH will
now play only the role of community development and environmental improvement of slums in
yderabad.
r, MCH within t
he MCH area
nd by the Director, Municipal Administration, in the Municipalities.
and issue ‘pattas’ or tenure certificates of land holding/possession to
e identified beneficiaries.
tate Housing
orporation is the nodal agency responsible for implementation of this programme.
o studies to show whether this has actually
duced migration of rural poor to the urban areas.
the project is
xecuted by the District Manager, including disbursement and recovery of loans.
o components, land supply and the housing supply activities are
perationally integrated.
H
Allotment of land “pattas’ in slums of Hyderabad :
The slums are ‘notified’ in the official gazette by the Commissione
a
The first stage of the regularization of the slum settlements is that of giving land tenure to the
occupants in the notified slums. The district collectorates, which are the land revenue authorities
undertake the survey and identification of the potential beneficiaries (those living in the existing
slums), prepare a site plan from the point of view of land records for the purpose of issuing a land
clearance/alienation order,
th
AP State Housing Corporation Limited
The 1983, the government launched several popular measures across the state, a massive rural
housing programme being one of them. The programme was aimed at uplifting the socially and
economically backward landless agricultural labourers in rural Andhra Pradesh. Permanent
housing for this target group was seen as a nucleus around which income
augmenting/employment generation programmes of the government were tied up to make it an
integrated rural development project. There has always been a small component of urban
weaker section housing in this programme. The targets set are construction of 140,000 dwelling
units per year (mostly rural) and are mostly met. The institutional and financial mechanisms
required to achieve this were established and are still continuing. Andhra Pradesh S
C
Throughout its implementation period, the programme is seen as a welfare measure
10
. Though it
is generally acknowledged that the anticipated socio-economic improvement of the socially
backward rural poor has been achieved, there are n
re
The actual supply of housing
The District Manager of the APSHCL prepares the project and layout plan for the housing
scheme
11
. After obtaining the necessary planning approvals and building permissions from the
MCH, sends the project report to the head office of the Andhra Pradesh State Housing
Corporation Limited. After obtaining the necessary financial sanctions and loans,
e
The office of the District Manager (Housing) is within the premises of the office of the District
Collector so that the tw
o
APSHCL has so far built about 18,000 units for slum upgradation in Hyderabad. The norms of
the Andhra Pradesh State Housing Corporation Limited specify a cost ceiling of Rs. 30,000 per
10
The programme was initially placed under the Social Welfare ministry, but later changed to housing & municipal
administration ministry.
11
in the existing slum on a reorganized layout or on a new site to rehabilitate occupants from an ‘objectionable’ slum
4
house in Hyderabad for the EWS category considering a subsidy of Rs.3,000, a loan of
Rs.25,000, and a beneficiary’s contribution of Rs.2,000. The upper limit of income for an
individual to be registered as a beneficiary was stipulated as Rs. 18,000 per annum. Where the
existing densities do not permit all ground floor structures, the buildings are constructed in two or
more floors. The cost ceiling enables only the grant of land tenure and the building of the RCC
frame structure for the multi-level tenements. The beneficiaries are then expected to build the
walls/envelope on their own. In such cases, the experience shows that the beneficiaries, for
various reasons do not complete the dwellings and therefore, they remain unoccupied. The local
ody is expected to develop the infrastructure networks and provide the other services.
he schemes in operation in Hyderabad by the APSHCL are :
Category
s.)
Unit Cost
n. (Rs.)
Lo ( Subsidy
s.)
b
T
Income
Limit( R ( Rs.)
Beneficiary’s
Contb
an
Rs.) ( R
EWS 18,000 30,000 2,000 25,000 3,000
Township houses 30,000 100.000 2,000 95,000 3,000
The current approach to housing being evolved by the APSHCL is to take over the ownership of
a piece of government land through official transfer, develop the infrastructure networks, build the
tenements, and sell the units. This would make the project integrated and ready for occupation.
The cost ceiling for such ‘Township Houses’ was initially specified as Rs.50, 000. Due to the
increase in the cost of land, infrastructure development and construction, the cost ceiling of such
‘Township Houses’ has been proposed to be increased to Rs.100,000. The net cost of a 24 sq.m.
(plinth area) tenement completed in all respects, in a multi-storeyed building is thus estimated at
about Rs. 100,000 at current prices. This includes the cost of land, development of on-site
frastructure and construction of floor space.
s of the housing agencies–namely, to locate these houses
close proximity to their workplaces.
and increased coverage of the programme, the following recent actions
riteria is now permitted. The response
ral component
htly better off lower income
groups on total cost recovery basis (as described above).
in
At present
norms of HUDCO loans for the EWS a maximum of 25% of the household’s
disposable income is considered in calculating the credit eligibility of a household. At the cost of
Rs.100,000 per house, the monthly income required for being eligible for a housing loan from the
HUDCO is about Rs.4,500 which is nearly twice the income limit specified for the ‘Township
House’ category. The only other alternative is to supply developed land at the peripheries of the
city, which does not fulfill the guideline
in
For better performance
are initiated :
a. One time repayment of outstanding loans is announced by the Corporation. Transfer of
unit to another household fulfilling the eligibility c
has been tremendous in view of this concession.
b. So far the state government has been standing guarantee for the loan raised from
HUDCO. Since the recovery position was very poor, budgetary allocation is made
annually for extension of loan to the Directorate of weaker section housing programme,
which draws the money from the government and passes on to the Corporation. With a
view to improve the performance of the corporation in terms of loan recovery, starting
from the current year, the government decided to only extend letter of credit and not
stand guarantee. However, there is thinking in the
Corporation that the ru
caters to the very poor and hence may be viewed as a welfare measure.
c. Integrated projects in Hyderabad will be taken up for slig
5
Urban Community Development (UCD) Programme of MCH
es for the urban poor. The project delivered about
visages urban poverty alleviation as a legitimate function to be undertaken by the local
odies.
eing on private
nds. It was for this reason, that the land-sharing concept evolved in Hyderabad.
and Sharing : The case of Gandhikuteer
build permanent houses, an
sset for future generations and most importantly, improved social status.
Government initiatives to upgrade slums in Hyderabad have met with varied degree of success.
The major schemes were Slum Clearance Scheme, Slum Improvement Programme,
Environmental Improvement Scheme, Housing Scheme for urban poor, Integrated Urban
Development Programme, Hyderabad Slum Improvement Project and the Urban Community
Development Programme. Out of these, the most effective is the UCD. Municipal Corporation of
Hyderabad (MCH) undertakes overall community development including health, women and
child welfare, employment generation, environmental improvement, etc. in the slums under the
Urban Community Development (UCD) Scheme. The project aims at motivation, organisation
and convergence of development programm
20,000 pattas and upgraded 12,000 houses.
Started in 1967, the project was initially funded by the central, state and municipal bodies; then
shifted to state & municipal funding. UNICEF and the ODA of UK part funded the project until mid
nineties. Presently the project is entirely funded by the municipal budgets. As already mentioned,
the role of this programme is now confined to environmental improvement of slums. The funding
for the schemes of the UCD Cell has recently gained statutory provision (as UCD and Services
Fund) and is constituted of 10 % of the total property tax collection of the MCH and 30 % of the
per capita grants received from the State and Central Governments. This statutory provision has
been made in pursuance of the 12
th
Schedule of the 74
th
amendment to the Constitution, 1994,
which en
b
There was an increased rate of public participation and self-help component when the
programme was implemented through UCD. The communities not only did self-help but helped
one another as well. UCD used an integrated approach wherein various means are adopted to
bring about social changes, the provision of housing being just one of the means. However, the
rate of slum upgradation was not appreciable due to a majority of the slums b
la
L
Interesting examples of “Land Sharing” between the slum dwellers and the private land owners
exist in Hyderabad. The process by which this concept was tried makes an interesting study.
Land Sharing in the context of Hyderabad is the process by means of which the piece of land in
private ownership, sqatted upon for considerable number of years, is shared by the landlords and
the squatters, according to the conditions agreeable to both the parties. The advantages to the
landlords are immediate possession of part land with increased value
12
, special incentives
offered by the local body for agreeing to share the land and the advantage to the slum dwellers
are security of land tenure, no further eviction threats, incentive to
a
Gandhikuteer was a settlement situated at a busy junction in the city. 240 families lived on 12000
m2 land since early thirties. Since 40s court cases were fought both between various claimants of
the land ownership as well as the landlords and the slum dwellers. In 70s a negotiation took
place to acquire the land by paying compensation to the landlords by the slum dwellers, but did
not finally materialise. UCD declared Gandhikuteer as a slum in 1981 on the strength of which
12
the land now is litigation free and unencumbered
6
the slum dwellers tried to obtain land pattas. But the UCD officers felt that it was unfair to deprive
the owners of the total land and hence initiated the land sharing exercise. The settlement had
three distinct social groups and the stronger two connived to evict the third one in consideration of
enefits offered by the landlords.
000 in 1984-85 as a support by the landlords to the poorer
milies to speedup the rehabilitation work.
nd sharing and subsequently while
onstruction of the housing scheme, ensured unity in future.
hird floors are added incrementally and the shelter size now makes
above lower income-level.
gr
ams/Schemes Related to housing
r the Urban Poor in Hyderabad
egislation
Act, 1956. The provisions of the Act were enforced in the State with effect
om August, 1962.
s
ere located so as to undertake public works in these areas designed to improve these areas.
b
The UCD director was very dynamic a
nd applied micro planning tools to increase the strength
and reduce the threat against land sharing solution. At community level, the misguiding
leadership was broken and at household level the younger generation was separated from the
elders and taken into confidence. A settlement was finally reached whereby the land sharing
would be equal
13
and the slum dwellers to vacate the landlord’s part of the land in 6 months
time. It was agreed to pay Rs. 1
fa
The shelter upgradation work started soon after. The community decided to allot different sized
plots (24 to 47 m2) wherein the largest size was offered to the families who stayed the longest.
Due to reduced land component for housing, G+1 structure were decided to be constructed
where related families were allotted ground and first floors of the same building. 80% cost came
as a loan from HUDCO at 7% interest with repayment over 20 years period, and the rest as
beneficiaries’ contribution and state subsidy. The beneficiaries’ contribution could be labour,
cash, or recycled material from the old house. The houses were constructed with all services.
The families together had the option of building up another floor and divide equally, after
repayment of loan component. Present of large groups of construction workers among the
community helped fast and quality construction. The youth took up the leadership now and the
strong community bond established during negotiation for la
c
The scheme was built in 1985 and is studied in 1987 as well as in 2001. It was found that the
community ties are still very strong. There was hardly any encroachment onto common roads or
conversion of building use in the last decade and a half. Some of the youngsters are not aware
that it was a slum before. The education levels have remarkably gone up and the community
feels that this is due to the elevation of status due to shelter upgradation. Over 50% of the
present occupants are original owners and among the rest are rented units. In all over 60% have
retained the ownership. The t
it
Legislation, Regulations, and Pro
fo
L
The only Act enacted in the State related to slums is the Andhra Pradesh Slum Improvement
(Acquisition of Land)
fr
The Act was primarily aimed at facilitating the government to acquire the land on which slum
w
13
The landlords received the parcel of land fronting the main road with high commercial potential on which MCH permitted extra FSI.
7
Under section 3(1) of this Act the government may by notification in the Andhra Pradesh Gazette
declare an area to be a slum area if it is satisfied that such area is or may be a source of danger
to public health, safety or convenience of its neighbourhood by reason of it being low lying,
nsanitary, squalid or otherwise.
sh Gazette a notice to the effect that they have decided to acquire
in pursuance of this section.
menting agencies of the Slum Improvement Scheme as per the Act were nominated as
llows :
) In the Municipal Corporation Area : Commissioner of Municipal Corporation of Hyderabad
rograms and Schemes
1961 : b s of the
its of MCH. ( G.O. Ms. No.1122, Revenue dept., dated 29-6-1961)
1967 : ioned as a
, State and the MCH respectively. ( G.O. Ms. No.583,
A., dated 20-9-1967)
1969 : T ding and the funding
as contributed half by the State and half by the MCH.
974 : Two more UCD projects sanctioned under State funding.
976 : UNICEF funding for UCD schemes ( along with the State and MCH funds ).
1976 : S ,
. Ms. No.88, Housing, dated 26-10-1976 and G.O. Ms. No.526,
A, dated 18-11-1976)
1979 :
te and execute housing
schemes for the weaker sections of the society in the State.
1980 : 5
inimum infrastructure was to be provided and building of houses be facilitated.
u
Under sect
ion 3 (2) of the Act the government may acquire the land in such ‘notified slums by
publishing in the Andhra Prade
it
The imple
fo
1) In the Municipal Areas : Director of Municipal Administration
2
P
anned - granting of pattas
14
for government land within 10 miles radiu
lim
The Urban Community Development ( UCD ) Project in MCH was sanct
Government of India ( GOI )Centrally Sponsored Scheme in one ward with a
population of 50,000. The contribution of fund for the project was in the ratio
of 2 : 1 : 1 by the Centre
M
he UCD Scheme was transferred to the State sector fun
w
1
1
lum improvement and slum housing were included as part of the UCD program
with a view to improve their living conditions and help them to construct pucca
houses with loans from banks/HUDCO on plots / land holdings when pattas were
assigned to them. ( G.O
M
‘Weaker Sections Housing Scheme’ was started. The Andhra Pradesh State Housing
Corporation Limited was established to formulate, promo
0 slums were listed as ‘objectionable’ – to be shifted to new locations where
m
14
Pattas are leasehold rights granted for utilisation of a parcel of land for a specific purpose and period.
8
The ban on granting pattas as per the 1961 G.O. was removed .
ttas if
an 50 sq. m. the market value was to be collected for the
G.O. Ms. No.3250, Revenue (L) dept., dated 24-7-1980 )
1981 : O
bjectionable’. ( G.O. Ms. No.1520, Revenue (L) dept., dated 01-10-1981 )
1981 : U
oard with a State Government guarantee. ( G.O. Ms. No.268, MA., dated 01-
0-1981 )
1981 –’
nities could be taken
up in 156 slums at about a fourth of the budget originally proposed.
1981 –’
plans ). The scheme envisaged the involvement and participation of the local
eople.
1983 –
nced due to the
assistance from the Overseas Development Agency, United Kingdom.
1983 :
the ‘hutment’s’ scheme being implemented in the ‘sites and services’ programs until then.
1989 –
ncial
sanction and assistance from the Overseas Development Agency, United Kingdom
1989 : E
e Government’s programs of
providing shelter to the weaker sections of the society, viz. :
2) ing (SHASU )
G.O. Ms. No.98, MA., dated 03-3-1989 )
All eligible squatters / encroachers on government land were to be given pa
in unobjectionable slums and were to allotted alternative sites if occupying
objectionable slums. Each encroacher was to be given upto 50 sq. m. of land and if
occupation of land was more th
portion in excess of 50 sq. m.
(
f the 50 slums classified as ‘objectionable’, 30 were reclassified as
‘unobjectionable’ and one previously ‘unobjectionable’ slum was reclassified as
‘o
CD proposed to construct ( under the Habitat Slum Housing Program ) 10,000
houses in slum areas by obtaining loans from HUDCO. In the first phase it was proposed
to build 3955 houses in 26 schemes by taking a loan through the Andhra Pradesh State
Housing B
1
83 : The Hyderabad Slum Improvement Project Phase –I was initiated by the
MCH with a proposal to develop 228 of the slums in two years with its own funds.
However due to paucity of funds, only sporadic development of ame
83 : Out of 455 notified slums, 142 were covered under the ( EIS ) Environmental
Improvement Scheme ( a five year plan activity, that is - budgeted and funded under the
five year
p
1989 : The Hyderabad Slum Improvement Project Phase –II was taken up for the
improvement of 210 slums. This time the financial outlay was enha
Under the Permanent Housing Program, permanent houses were to be built in place of
1996 : The Hyderabad Slum Improvement Project Phase –III was taken up for the
improvement of 300 slums. The per family expenditure norm adopted under this phase
was Rs.4000/- and in addition to physical infrastructure the development programs
covered socio-economic as well as health activities. This phase also received fina
stablishment of the Andhra Pradesh State Urban Development and Housing Corporation
( APSUDHC ) to cater to the development of urban areas with a special emphasis on
housing in the slums and other areas occupied by the poorer sections of the society. The
APSUDHC was to implement in the urban areas, the Stat
1) Urban Permanent Housing Program ( UPHP ) and
Shelter Upgradation and Scheme for Hous
(
9
nder the EWS housing scheme ( started in 1981 ) undertaken by the MCH, 13,128 units
were grounded in 95 slum areas, of which 10,000 houses were completed in all aspects.
This housing program was transfered to the Collectorate, Hyderabad. The District
Collector who is the Executive Director of the district level office of the Andhra Pradesh
State Urban Development and Housing Corporation was made incharge of the
implement
1993 : U
ation of the program including planning, execution and monitoring of the
program.
1997 :
nt and Housing Corporation’s activities and programs are transferred to the
APSHCL.
1998 :
d, and the floor space including common
facilities such as the staircase and the corridor.
1998 :
s in the respective districts in such a manner
so as to overcome the identified problems.
1999 :
ble. Also the layout open spaces may be reduced to 5% instead of the stipulated
10%.
2001 : 3
. This figure excludes the 13,128 dwelling units built by
e UCD, before the APSHCL.
are being allotted in the name of woman
beneficiaries, wherever feasible.
The
Andhra Pradesh State Housing Corporation Limited ( APSHCL ) becomes the apex
agency for all public schemes for the weaker sections. The Andhra Pradesh State Urban
Developme
A new category of dwelling unit named ‘Township House’ is introduced by the
APSHCL.The cost ceiling for such ‘Township Houses’ is specified as Rs.50,000. This
represents the net cost of a 24 sq.m.(plinth area ) tenement completed in all respects, in
a multi-storeyed building including the cost of lan
‘Policy Guidelines for Weaker Sections Housing in Urban Areas’ identified certain
problems such as selection of genuine beneficiaries; unnecessary interference by middle
men; frequent sale of assigned house sites: low level of beneficiary participation; scarcity
of funds to provide civic amenities; inadequate unit cost specifications for purposes of
grant of loan; etc. and established an ‘Empowered Committees’ at the district level which
shall co-ordinate and monitor all the scheme
Relaxation of norms to expedite housing scheme in Hyderabad City. Wherever shelter
upgradation programs are taken up in existing slums, to enable such schemes,
particularly where reorganization of plots is resisted, the modified minimum plot size of
24 sq.m. has been permitted. The width of the internal roads also may be modified to the
extent necessary instead of the otherwise minimum specified ( 6 m. ) as long as it is
motora
,30,050 houses have been constructed by the Andhra Pradesh State Housing
Corporation Limited so far under the urban housing program. Out of these 18,025
houses were built in Hyderabad
th
As per revised guidelines, houses
10
Planning Regulations and Standards
In the case of development of new layout upgradation/regularization of housing for the poor, all
formal development is undertaken only by public agencies and hence are technically made as
per the specific regulations applicable to the EWS housing programs. These housing schemes
are at the most limited to 4 – storeyed walk up apartments and hence need not consider height
zoning. There are no density regulations in the city and FAR specifications do not apply to these
public programs.
Land Use and Zoning Regulations
In the case of development/ upgradation / regularization of housing for the poor, the location of
the existing squatter / slum settlement is checked by the MCH / Muncipality and the Directorate of
Town and Country Planning for conformity to the existing statutory plan and zoning regulations
and technical approval for regularization accorded as long as these locations are not
‘objectionable’ which implies tank beds and other low lying areas, margins of major thoroughfares
and proposed roads, and non residential use zone as per the Statutory Masterplan.
Layout and Building Regulations
The minimum road width in newly planned schemes may be 6 metres. only.
At least 10 % of the layout area has to be alloted for open spaces.
A minimum plot size of 50 sq.m. is specified.
Plot coverage of 75 % is permitted
In the case of reorganization of existing slum settlements where proposals for
multistoried tenements are resisted, the open spaces may be only 5 % of the total area, and
the minimum plot size may be 24 sq.m. The issue of coverage does not arise since the
existing ‘hutments’ are regularized.
Table Showing Comparitive Summary Of Procedures Related To Housing In Hyderabad
Formal Sector
Equivalent Procedure
A
pplicable only for the
Poor in the Slum Settlements
For Administrative Procedures /
Changes in Regulation during last 10
years
For Administrative Procedures
Registring a
plot/land
All transactions to be compulsorily
registered as per the Transfer of Property
Act, 1892
Since 1996 Even Sale Agreements &
General Power of Attorney deeds are
required to be compulsorily registered
Getting a Patta Application to Collector
Revenue deptt. issues orders & patta
issued by RDO / MRO
Urban Land
Ceiling
Clearance
Vendors and vendees have to get a No
Objection Certificate from the concerned
authority / submit an affidavit for any
transfer of land
Not applicable or necessary
11
Layout
Approval
Any owner/developer before intending to
subdivide land & disposing into building
plots is required to obtain layout approval
from Planning Authority – in MCH area as
per HUDA ZRs 1981; in areas outside the
MCH. layout approval is given after 25%
of the area is mortgaged as surety for
compliance of layout development rules
and other conditions
- applies to all new developments; plot
subdivisions -basically looks at road
pattern, existing facility & proposed
building activity for density regulation, etc.
Layout
Approval
Is taken by the public agency undertaking
the scheme (APSHCL) and given by the
Commissioner of the Muncp. / Muncp.
Corp.
Development Owner/Developer is obliged to carry out
all layout development works before
disposing plots
Outside MCH, all layout roads are to be
BT, Water Supply & Underground
Sewerage System is obligatory.
Development Undertaken only by public agency (
APSHCL) or the local authority
Construction Building Permission from HUDA/ Local
Authority mandatory.
GOMs 423 MA dt 31-7-98 allows
constructions on sites upto 300 sq.m.
area without approval from local body ,
but approval from licensed technical
personnel is adequate
Construction Constructions by individuals may be
undertaken without prior approval from
local body. For construction of houses
undertaken by public agency ( APSHCL)
the agency obtains the necessary building
permissions.
Credit (Loan) From financial agencies like
HDFC/LIC/Dewan Housing/CANFIN
Homes,etc; Housing Federation
Loans,etc
Credit (Loan) From HUDCO and other financial
institutions on surety from the State Govt.
APSHCL in turn retains the ‘pattas’ as
mortgage against the loans. The monthly
installments are collected by the APSCHL
in the slum settlements.
Water Supply
Connection
Facilitated either collectively by Housing
Society/Developer,etc or individually from
HMWSSB or Municipality
Water Supply
Connection
Facilitated either collectively by the
agency ( sometimes supported by funds
allotted by the MLA / MP as part of the
Constituency Fund or individually from
HMWSSB or from Municipality
Sewer
Connection
Same as above Sewer
Connection
Same as above
In addition may be provided under the
GOI’s Low Cost Sanitation Scheme
Power
Connection
Facilitated either collectively by Housing
Society/Developer, etc or individually from
APTRANSCO
Power
Connection
Facilitated either collectively by Housing
Society/Developer, etc or individually from
APTRANSCO. Alternatively given as part
of the ‘regularization’ drives or as part of
the ‘Janmabhoomi’ program
Municipal
Tax
Assessment/
Door No.
Assessment made by MCH/Municipality
after one year of construction
Municipal Tax
Assessment/D
oor No.
Assessment made by MCH/Municipality
after one year of construction
12
The comparative summary shows that the procedures for various stages in accessing land,
shelter and services are relatively easier and in fact taken care of by the public agencies in the
case of the urban poor. In a democratic context where the absolute number of urban poor is
significant enough to represent major vote banks, this situation is easy to understand and
appreciate. The policies and actions are all the more pro-poor where the poor have become
politically mature enough to articulate their demands appropriately and effectively.
Costs and Impact of the Regulations
EWS Layouts
EWS layouts are usually taken up as part of Government Programs for facilitating housing for the
economically weaker sections of society. The economic criteria, viz., income, are taken as the
basis of allotment of houses/house sites. Usually these are all from the socially and economically
backward classes of society.
The house sites are given by the Rural Development Officer (RDO) or Mandal Revenue Officer
(MRO) who undertakes a survey based on requirements in a particular area, identifies the land
for EWS Housing (usually Government land; however where Government lands are not
available, compulsory land acquisition is also undertaken). The papers related to tenural rights
over the house sites (called pattas) are given under the Land Revenue Act and a ‘patta’ is as
good as an ownership document and a legal tender. However, the beneficiary/allottee cannot
dispose of the site for 10 years. Thereafter it can be sold/transferred like any other property. In
reality, sites are transferred/sold through a “Notarised Deed” or even executed on “Bond Paper”
(which is a judicial stamp paper of nominal value). There are allegations that allotment of sites is
a matter of political fiefdom. In many areas where there are encroachers/squatters, the ‘dadas’ or
local musclemen/ local leaders regulate the allotment/rentals/transactions. In the case of
Hyderabad in the suburban Jagadgirigutta area, the going rate is about Rs.25,000/- per site of 60
sq yards. No deed is executed and the beneficiary can stay /build on his own free will. The
transfer /selling is done again through the dada. The Government does undertake regularization
of such encroachments due to political exigencies under the Revenue department orders and on
payment of nominal charges.
The facilities like roads, water supply, drainage, street lighting etc, are subsidized and done
incrementally /stage-wise mostly with funding from the MLA’s / MP’s Constituency Fund and
executed through the Municipality as ‘deposit work’.
Housing loans are facilitated institutionally by HUDCO and other financial institutions at nominal
rates of interest with the State Government as surety. Property taxes (average comes to Rs.20-
30 per half-year) are willingly paid by the individuals as it gives the individuals a perception of
legitimacy of tenure.
Feedback from the communities
The main impact of the regulations and procedures seem to be more discernable in the case of
services. For example a slum occupant without a patta is said to be paying about Rs. 3,700/- for
a electrical connection which would have cost him only Rs. 1,260/- if he had a patta. However a
special drive to regularise illegal connections has given many of the slum occupants irrespective
13
14
of the tenure status, an individual metered connection for only Rs.450/- which is far cheaper than
an electrical connection established by a normal, formal application to the department.
In many cases where tenure has been granted and housing with all services has been
completed, the value of the dwelling unit as an asset is estimated to fetch a market value of
Rs.150,000 to 200,000 in the case of the multi-storeyed tenements. Some of the original allottees
are reported to have sold their tenements and gone back to squatting / encroaching.
In surveys undertaken, in the illegal and also in the regularized, upgraded settlements the water
supply even in the case of community stand posts was perceived as satisfactory and adequate
except in the summers. The average time taken for collecting water was given as 15 to 20
minutes in both type of settlements. Few of the households had individual water connections and
they let the neighbours collect water on a payment of Rs 40 per month.
In most of the cases the community toilets were in a state of disuse and repair. Individual toilets
were observed in few of the households and they were reportedly used by the women folk only
because of the problem of water required for flushing and maintenance.
Conclusions
The planning standards, regulations and procedures for the urban poor are unique in the sense
that they do not apply to any schemes undertaken by either individuals or by the private sector
‘market forces’ and they apply to the schemes and programs undertaken only by the public
agencies like the APSHCL and the UCD. Hence they have been formulated and constantly
modified by the authorities to assist them in their pro-poor action programmes.
The absence of private sector in the formal supply of land, shelter and services for the urban poor
is primarily because the market prices are beyond the ‘willingness-to-pay’ of the poor, and not
due to the standards or regulations. The usual argument about non-sustainability of the state
subsidised/poor recovery schemes for the poor did not hold good in the case of AP. APSHCL
has been able to sustain its scale of operation without loan recoveries for almost two decades.
Rather than differences in direct financial costs, the most striking difference that may be observed
between the legal/regularized/formal settlements and the few illegal settlements that still remain
within the city is the one related to the residents’ perception of their own social status and their
resultant attitudes to life in general.
In the case of the regularized settlements, the residents apparently have joined the mainstream
of urban economic, social and political life as can be discerned by their attitudes while conversing
with them. This characteristic is more particularly highlighted where the regularization has
happened more than a decade ago and the present teenaged residents do not have any memory
of their colony ever having been a slum In contrast, the residents of the few illegal settlements
seem to be less ‘forward looking’ than their counterparts in the regularized settlements, both in
the sense of being economically less enterprising and also socially or politically marginalized or
less integrated with the mainstream of urban life.
The few settlements, which have remained illegal, are primarily due to certain site-specific legal
complications and/or the attitude/political affiliation of the local community leaders, rather than the
regulations or procedures.
