1

Housing and Urban Development Policy of Punjab (India):

A Survey of Residential Owners

Abstract

Despite government claims acute shortage of housing stock, housing sector ranks among the top five

sectors in Indian economy because it’s still a dream to own a house for the majority of people.

However, just owning a house does not matter alone but availability and access to urban facilities such

as medical, educational, electricity, sanitation etc. can defend urbanisation. Enshrined with urban

development, Punjab Urban Planning and Development Authority (PUDA) is entrusted by the

Government of Punjab to provide affordable housing to all sections of the society. The present study

reviews the housing and urban development policy in the state of Punjab with regard to the role of

PUDA in abridging the housing gap along with investigating the clientele perception on various facets

of housing and related matters. Data was collected with written questionnaires from the owners,

selected randomly, in two Urban Estates developed by PUDA and housing projects approved by PUDA

from two cities: Patiala (a princely state) and Ludhiana (an industrial city). The sample comprises four

categories of built up houses together with different sizes of residential plots, hence, stratification was

done on the basis of number of houses / plots as per various income groups: Economically Weaker

Section (EWS); Lower Income Group (LIG); Middle Income Group (MIG); and Higher Income Group

(HIG) in addition to plot owners. Results may not reflect a brighter side of the picture.

I. Introduction

Development is often discussed in relation to ‘developing countries’ but in

fact, it is the concept which relates to all parts of the world at every level, from the

individual to global transformation. Development is, therefore, something to which

we all aspire. Hence, it had been opined that environment is where one lives, and

development is what one does to improve it.1 Mechanism of Development / Master

Plan has been adopted by planners to provide a framework within which city must

grow to ensure appropriate quality of life to its inhabitants.2 The broad categories of

key actors who are involved in the planning process can be identified as the State, the

professionals (planners, architects and contractors), the interest groups (economic

development agencies and community representatives etc.), the development industry

(the land, property and construction sectors), the wider stakeholders (citizens,

business and cities). The interaction between these actors, and between them and the

context within which they operate, shape the highly political process of planning.3

A comprehensive scheme for city development /improvement requires well

planned and structures designing. The design of the cities is so important that it is

often treated as a separate profession /discipline called urban design.4 Throwing light

on the importance of the design, it had been suggested that one should be concerned

with the design of the built- environment, as it affects people and the lives they live.

But it had become a matter of concern that due to politics, private interest and

1 Kumar, Ashesh (2000).Urban Environment In Crisis, p.1. New Delhi: Maitra Publishers- New Age

International (P) Limited. 2 Vagale, L.R.(1995). Conceptual and Opertional Inadequacies of the Master Plan Approach to Urban

Development : Alternative Methodologies. A Policy Proposal presented at Workshop,p.10 New Delhi :

Government of India. 3 Geddes,P.(1949). Cities in Evolution, p.15. London : Williams and Norgate.

4 Moughtin, J.C.(1992). Urban Design: Street and Square,p.22. Oxford : Butterworth-Heinemann.

2

commercial greed, urban planning and architectural design clash leading to gross

violation of the regulations in building the houses.5

An ad-hoc group of World Bank on social programming of housing in urban

areas described the role of housing both direct and indirect as decisive in fulfilling

social needs. The group asserted that in its direct role, housing serves as the area

where the individual becomes capable of experiencing community and privacy, social

well being, shelter and protection against hostile and physical forces and disturbances

and in its indirect role, housing serves as the area where an abundant supply of social

relationships and services are accessible, such as places for social intercourse,

education, recreation, sports, social welfare and health protection services, shopping

and transportation.6

Present Global strategy defines housing as having adequate privacy, space,

security and basic facilities all at a reasonable cost.7 Housing Census in India,

however, defined housing as a building or part of a building used or recognized as a

separate unit because of having a separate main entrance from the road or common

courtyard or staircase etc. It may be occupied or vacant. It may be used for a

residential or non-residential purpose or both.8

An analysis of the various shades of opinion indicate that with slightly

different connotation the underlying basic approach is that housing is not merely a

physical shell but it engulfs the complete range of ancillary and community facilities

which are necessary for the human well-being and his growth.9 Hence, the present

study has been based on the perception of housing as a safe, hygienic, spacious place

having adequate basic facilities and services with a congenial habitat necessary for a

quality life.

II. In India - At National level

Under the Concurrent List of Indian Constitution’s seventh schedule, National

Parliament and State Legislatures both have the authority to enact town planning

legislations and Development Acts.

The beginning of governmental interest in housing legislations can be traced

back to the 19th

century sanitation and housing were regarded as twin problems which

oppressed the homeless poor and poor sanitation was considered to be the direct

consequence of poor housing. Therefore, the earliest legislation on housing was

concerned with sanitation conditions. Since then many legislations were framed

touching upon various issues related to housing. But till 1994 no exclusive housing

policy was framed.

In 1994, National Urban Housing Policy was framed by Government of India,

which was renamed and revised in 1998 as National Urban Housing and Habitat

5 Prince Charles(1989). Vision of Britain, p.12. Garden City: Doubleday.

6 Cohen,M.A.(1983). The Challenges of Replicability- Towards a New Paradigm for Urban Shelter in

Developing Countries. Regional Development Dialogue 4, no.287, p.93. World Bank Reprint Series. 7 Global Report on Human Settlements(2001). Cities In A Globalizing World, p.13.. London : Earthscan

Publications Ltd.. 8Census of India( 2001). Housing Series, p. Preface. New Delhi : Government of India.

9 Ministry of Housing and Urban Poverty Alleviation(1998). National Urban Housing and Habitat policy,p.5.

New Delhi : Government of India.

3

Policy. The policy was improved upon in 2005 and then in 2007. It redefined the role

of the government as that of a facilitator and regulator. It stressed on promoting

sustainable cost effective and quality habitat in the country with a regional planning

approach in order to ensure equitable supply of land, shelter and services at affordable

prices to all the sections of the society. But it also recommended the government to

retain its role in providing social housing in order to provide affordable housing to

EWS and LIG groups as these sections of the society lack affordability. Under this

policy, the state governments have also been encouraged to prepare their own Urban

Housing and Habitat Policy as well as the Action Plans as they are considered to be in

better position to visualize the spatial dimensions of planning and development. The

initiative has also been taken to promote public-private partnership in both rural and

urban housing sectors with emphasis on enlarging the role of private sector. 10

III. At the State Level - Position in Punjab

India became independent in 1947 with the partitioning of the country and

another country namely Pakistan emerged, which mainly comprised of the land

carved out of Punjab State. Thus, after partition of 1947, thirteen out of thirty districts

remained in Punjab and seventeen districts were given to Pakistan. An area of about

9,956 square miles with over 34.93 lakhs of people of PEPSU was added to Punjab on

1st November, 1956. On 1st November 1966, on the recommendation of Shah

Commission, the new Haryana State was carved out of the existing Punjab while

some area was transferred to Himachal Pradesh. 11

Presently, the total area of the State is of 50,362 sq. kms., out of which 2097

sq.km. i.e four percent is urban area and 48265 sq. km. comes under rural area.

Covering 1.54 percent of India’s total area, Punjab had 2.4 percent of India’s

population. Comparatively a small state, it is more thickly populated with 551 persons

per sq. km. than the country as a whole which has 382 (264 in 2001) persons per sq.

km. It has five Divisions and twenty two Districts, 143 towns, 74 cities and 12581

villages. At the time of its reorganization, it had a population of 1,11,35,069 crores,

which reached to 2,77,43,000 crores in 2015, showing 59.8 percent increase.

103,99,000 crores (37.48 percent) of the State’s population is residing in urban areas.

12

Urban occupied households have been calculated at 21,41,873 out of State’s

total occupied households i.e. 54,86,851 (four members per household on an

average).13

The housing shortage in Punjab has been calculated at 4,57,877 lakhs

during the 2012-17 plan period. Out of this, 0.39 million (3,90,000 lakhs) i.e. 85% of

the shortage of houses belongs to EWS and 14% to LIG sections of the society.14

10

Ministry of Housing and Urban Poverty Alleviation ( 1998). National Housing and Habitat Policy. p.13-20.

New Delhi: Government of India. It was revised in 2005 and re- revised in 2007. 11

Punjab State Gazetteer(2014-15). - In altitude the State extends between 29.30` N to 32’N and in terms of

longitude it extends from 74’ E to 77’ E. 12

Economic Adviser (2015).Statistical Abstract of Punjab. Chandigarh : Economic and Statistical Organization,

Chandigarh : PunjabGovernment. 13

www.censusindia.gov.in/2011census/hh-series- The Registrar General & Census Commissioner, India,

Ministry of Home Affairs, New Delhi : Government of India. 14

nbo.nic.in- Report of the Technical Group on Urban Housing Shortage(2001) & (TG-12) (2012-17) New

Delhi : Government of India .

4

Table 1 : Housing Shortage for EWS & LIG Category in Punjab State

(India)

Census

Year

Plan Period Housing Shortage

2001 (1998 – 2002) 4.9 lakhs

2001 & 2010 (2002-2007 & 2007 -2012) 6.9 lakhs

2010 2012 -2017 3.9 lakhs Source: Report of Technical Group on Urban Housing Shortage, Govt. of India, New Delhi

Above table shows that in 2001, the housing shortage was calculated to be 4.9

lakhs which increased to 6.9 lakhs till 2010 but for the current period it has decreased to

3.9 lakhs.

a. Role of Government and Autonomous Bodies

The basic idea of carving out agencies out of government department was to carry

out specific executive functions by a chief executive with considerable operating

freedom within a mandate and a framework of policy and resources provided by the

relevant ministry. The attempt was to separate policy making from implementation

and to bring in professional management for implementation15

. ‘Agencification’

means an extensive use of executive agencies in conducting an extremely wide range

of functions of the administration. It has become the cornerstone of public service

reforms around the world16

.

Since reorganisation of the State, Government Departments, autonomous local

bodies and Improvement Trusts were entrusted with the task of improving the housing

stock. But they were found lacking in ensuring continuing construction activities and

spare adequate funds for housing in their budget. Thus, to streamline these activities,

Punjab Housing Development Board (PHDB) was established in May,1973 under the

Punjab Housing Development Board Act,1972.”17

The major task of the Board was to

construct houses in urban areas especially for weaker sections of the society and in

order to promote private construction, allotted residential plots at reserve price. In

twenty two years of its functioning, the Punjab Housing Development Board failed in

bringing about a substantial increase in the housing stock especially for the

Economically Weaker Sections (EWS) of the society.18

In 1976, a comprehensive legislation ‘The Punjab Town and Country Planning

Ordinance, 1976’ had been promulgated which proposed to repeal the Punjab

Scheduled Roads and Controlled Areas (Restriction of Unregulated Development)

Act, 1963. The Ordinance lapsed as the State Government did not get the life of the

Ordinance extended beyond six months. Accordingly urban development was being

carried out by the different State Government Departments/bodies in a piece-meal

manner resulting sometimes into gaps and sometime into overlapping of functions.

15

Second Administrative Reforms Commission (2009,April). Organizational Structure of Government of

India,13th

Report, Chapter 2.p.41-42. New Delhi : Government of India. 16

Second Administrative Reforms Commission (2009,April). Organizational Structure of Government of India,

13th

Report, Chapter 5. p.109-110. New Delhi : Government of India. 17

Conference Proceedings (1979). One of the major recommendations made at Conference of Ministers of

Housing, Urban development and Town and Country Planning, Bangalore : Government of India. 18

Punjab Gazetteer (Extra) (1995, Feb.22). Punjab Regional and Town Planning and Development Act. p. 314.

Chandigarh : Government of Punjab.

5

Moreover, for generating the required funds for a massive house building programme,

it was felt there had to be a close interlink between land development and house

construction so as to facilitate optimum exploitation of the valuable asset of urban

land. Thus, the need was felt for creating a central agency to guide and direct

planning and development to make urban planning and development to run as a

unified ‘single business’ so that a planned development of urbanization in the State

could be ensured. 19

Initially, the State Government attempted to frame a comprehensive Town and

Country Planning Bill in 1994. Ultimately, the Punjab Regional and Town Planning

and Development Act was passed in 1995. This comprehensive Act took into its fold

all relevant aspects like consolidation of different laws dealing with the different

aspects of planning and urban development, for guiding and directing PUDA and

other special urban planning / New Township Authorities provided for, therein so as

to ensure regional, area- wise and city- wise better planning and development of the

State of Punjab. 20

In accordance with the provisions of the Act, the Punjab Regional

and Town Planning and Development Board21

and Punjab Urban Planning and

Development Authority (PUDA) were established with effect from Ist July, 1995.

PUDA, a state level authority for bringing about planned urban development, has

been entrusted with the responsibility of constructing houses for Economically

Weaker Sections of Society along with the general category houses 22

The present paper is an attempt to find out how far PUDA was successful in

making an idealistic housing policy aiming at providing adequate and affordable

housing to all with specific emphasis on Economically Weaker Sections of Society

turned into a visible ground-reality in Punjab.

b. Objectives

a) To analyse the housing policy as pursued by Punjab Urban Planning and

Development Authority (PUDA).

b) To study PUDA’s role in bringing about an increase in the housing stock.

c) To analyse the progress of housing projects initiated under public- private

partnership (PPP).

d) To assess PUDA’s clientele i.e residents perceptions.

c. Hypotheses

i. There is a gap between intent and implementation of housing policy of PUDA.

ii. PUDA has not been able to provide adequate housing stock in the State.

19

Report of National Commission on Urbanization, vol. II, P.50.( 1988). New Delhi :Government Of India. 20

Punjab Gazetteer (Extra) (1995, Feb.22). Statement of Reasons and Objects, Punjab Regional and Town

Planning and Development Act. p. 2. Chandigarh : Government of Punjab. 21

Ibid. section 3, p.3. 22

Ibid. section 17, p.9.

.

6

iii. Housing projects initiated under Public- Private Partnership having failed to gain

momentum.

iv. Most of the residents (clientele) are dissatisfied by the services being provided by

PUDA.

d. Scope of the Study

The period of study covered nineteen years [nearly two decades] from July

1995 to June 2014. Whole area has been divided into six zones but it was not possible

to physically visit all the zones due to time and financial constraints. As such two out

of six zones i.e. Patiala and Ludhiana had been studied. The reasons behind selection

of these two particular zones had been that Patiala is a former princely state and is

witnessing considerable expansion activities continuously and Ludhiana is an

important industrial city of Punjab representing people from all walks of life.

Moreover, people belonging to all the four income groups and an adequate number of

houses constructed for these categories were available for collection of data.

Limitations of the Study

The constructed houses/ residential plots allotted by other organizations like

Municipal Corporations and Improvement Trusts are not covered as they fall outside

the jurisdiction of PUDA and hence, from the purview of this study.

e. Research Design

i. Sampling

The population in the present study consisted of total population of HIG, MIG, LIG,

EWS houses and plots of urban estates of Ludhiana and Patiala. The sample was

selected by using random stratified sampling technique at five levels in each Urban

Estate for the present investigation :

High Income Group(HIG) sample

Middle Income Group(MIG) sample

Low Income Group(LIG) sample

Economically Weaker Section(EWS) sample

Plots (various sizes) sample

Random sampling was then applied to select the samples of the respondents.

Sample Distribution

Sampling was done in both Urban Estates after calculating the total number of

houses allotted in each category including plots. For the purpose of the study, a total

of 300 houses/plots (150 each from the urban estates of Ludhiana and Patiala) were

sampled at random so as to make the sample truly representative. In Urban Estate of

Patiala, out of the sample of 150, allotment of plots being maximum in number, their

representation was 102 i.e. 74.7 percent. Construction of HIG houses being very less

as compared to other categories, so their representation was only

3 (2.8 percent). 13 (8.7 percent) MIG houses, 17 (7.8 percent) LIG houses and 15 (6.0

percent) EWS houses were selected at random. Similarly, in the Urban Estate of

Ludhiana, out of the sample of 150, 81(54.0) plots, 5 (3.33 percent) HIG houses, 19

7

(12.66 percent) MIG houses, 26 (17.35 percent) LIG houses and 19 (12.66 percent)

EWS houses were selected at random. Table 2 shows the distribution of the Sample in

two urban estates namely Patiala and Ludhiana.

TABLE 2

Sample Distribution of Various Categories of Houses/Residential Plots*in Urban

Estates of Patiala and Ludhiana

Categories

PATIALA

n=150

LUDHIANA

n=150

TOTAL

n = 300

PLOTS 102(74.7) 81(54.0) 183(61)

HIG HOUSES 03(2.8) 05(3.33) 08(2.7)

MIG HOUSES 13(8.7) 19(12.66) 32(10.7)

LIG HOUSES 17(7.8) 26(17.35) 43(14.3)

EWS HOUSES 15(6.0) 19( 12.66) 34(11.3)

TOTAL 150(100.0) 150(100.0) 300(100.0)

Note : Figures in brackets indicate the percentage

*-- Constructed at the time of survey

ii. Data Collection Process

Both primary and secondary data had been collected for the study purposes.

Primary Data

Primary data was collected by administering questionnaire to samples of selected

houses/plots. Informal interviews and discussions were held with the concerned

officials and staff and personal observations were also made by the researcher herself.

On the basis of the data obtained through these methods, it was subjected to thorough

and up to-date rigorous statistical techniques and the results were examined so as to

find out the clientele perception regarding housing and allied services provided by

PUDA.

Secondary Data

The secondary data was collected from principal published documents like Census of

India including Housing; Household Amenities and Assets, relating to different

periods; Reports of the Ministry of Urban Development & Poverty Alleviation;

Report of Planning Commission(up to eleventh plan); National Housing & Habitat

Policy, 1998, revised policy 2005 and 2007; Smarpan; Five Year Plans; relevant

material of HUDCO; Punjab State Gazetteer, Punjab Statistical Abstracts for various

years; Relevant Acts and Rules & Regulations made there under; Annual

Administrative Reports and Annual Accounts Statements of PUDA; Reports of

various commissions and committees appointed from time to time by Govt. etc. had

8

also been consulted. The principal source of study had been Punjab Regional and

Town Planning and Development Act, 1995 (amended in 2006 & 2013) and various

rules and regulations made there under.

iii. Data Processing

The present study had been conducted by employing analytical tools such as

frequencies, percentages etc. on the variables identified and information collected

from primary data and secondary sources. The tools of analysis employed focused on

the various target groups mentioned above. Once all the data was coded and grouped,

analysis was done.

As overall development of the concerned area was the responsibility of PUDA, all the

allottees were taken to be dealing with PUDA’s local/Head Quarter office. The

intention was to make certain judgements regarding the perception of the residents of

different categories of houses/ plots towards the services provided by PUDA.

f. Housing Policy and Housing Stock

1. Punjab Regional and Town Regional Planning and Development Act, 1995 and

Punjab Urban Planning and Development (Building) Rules,1996:

Till 1995, Houses were constructed by Punjab Housing Development Board(PHDB)

as per the guidelines given in Punjab Housing Development Board Act, 1972. The Act

was repealed and replaced by Punjab Regional and Town Planning and Development

Act, 1995 and Punjab Urban Planning and Development (Building) Rules,1996.23

Thus, PUDA replaced PHDB and became the authority for carrying out the

construction and allotment of houses for EWS & LIG section , allotment of plots and

approving the plans of private builders/construction companies in the urban estates.

i. Housing Stock under Various Housing Schemes:

a) Own Schemes

b) Government Schemes

c) Deposit Schemes

d) Development of Urban Estates

e) OUVGAL Scheme

a) Own /Social Housing Schemes :

i. Social housing being its major objective, PUDA undertakes and fully finance the

housing activities. Social Housing includes houses for the following categories:

Economically Weaker Sections (EWS)- upto Rs. 3300/- per month

income earner

Lower Income Group (LIG)- Rs. 3301/- to Rs. 7300/- per month

income earner

23

Department of Housing and Urban Development(1996).Notification Rules framed under section 180 and

section 42(2). Punjab Government Gazetteer (Extra), L.S. Part III. Chandigarh : Government of Punjab.

9

Middle Income Group (MIG) – Rs. 7301/- to 14500/- per month

income earner

High Income Group (HIG)- Above Rs. 14501/- per month income

earner The above categorization has been based on the income criteria fixed by HUDCO on

the Directions (notified from time to time) of erstwhile Planning Commission,

Government of India. It has also fixed norms for accommodation and plinth / covered

area in the above mentioned categories of houses constructed under Social Housing

Schemes. All residential plots in Urban Estates are allotted by Draw of Lots except

the allotment to Oustees category. An Oustee is allotted a plot for his bonafide

residence. 24

Following Table 3 shows the number of different categories of

constructed houses/ plots alloted from 1995-96 to 2013-14.

Table 3 : Position of Houses/Plots of Various Categories from 1995 – 2014

EWS LIG MIG HIG Total

houses

Plots Grand Total

6391

(22.7%)

3370

(12.1%)

3359

(11.9%)

1914

(6.7%)

15034

(53.4%)

13102

(46.6%)

28136

(100%)

Source : PUDA Annual Reports of the years 1995-96 to 2013-14

Table 3 reveals a dismal picture of housing stock over period of nineteen years. Total

of 28136 houses cum plots have been provided. PUDA could construct only 15034 houses

and allotted 13102 plots of various sizes. Out of 15034 houses, only 6391(22.7%) are for

EWS and 3370 (12.1%) for LIG category people. Whereas 3359 (11.9%) MIG and 1914

(6.7%) HIG houses have been constructed.

ii. Apart from housing, PUDA allots sites / buildings available in any Urban Estate

to the institutions which are directly serving the interest of the residents of the area in

which the site or the building is situated and are generally conducive to the planned

development of the area. These can be societies registered under the Societies

Registration Act, 1860 or institutions owned or controlled by the State Government or

constituted or established under any enforced law. Such institutions must be having

sufficient funds to meet with the cost of land and construction of building. The total

area allotted to such institutions in each case is subject to the land use restrictions and

zoning plans.

So far 35 such projects have been initiated/ completed in both Patiala and Ludhiana

urban estates. These include green parks, shopping / commercial complexes,

swimming pool, community centres/ clubs etc.

b) Government Schemes:

These are housing schemes entrusted to PUDA by the State Government.

Under these schemes, State Government contributes 40 percent of the total estimated

cost in the shape of seed money and the remaining 60 percent of the estimated cost is

raised from HUDCO as loan against seed money. These schemes are prepared and

24

PUDA(2008-09). Annual Report, p-11-14. S.A.S. Nagar(Mohali) : Punjab Urban Planning and Development

Authority.

10

processed by PUDA. The houses constructed under these schemes after completion

are handed over to the Government for allotment to the beneficiaries.

No scheme whether Police Housing or Rural Housing or any other such scheme

has been assigned by the Punjab Government to PUDA from 1996-97 to 2013-14.

c) Deposit Works:

Under these schemes PUDA executes the projects on the behalf of the client

department. It does not contribute any finance and client department has to deposit

money with PUDA in advance to get the work done. Administrative charges at a rate

indicated in the agreement with the client department are collected by PUDA.

Form 1995-96 to 2013-14, approximately 12 schemes under the deposit works

have been undertaken.25

d) Development of Urban Estates

Till 2010, it developed 11 urban estates and proposed to develop 13 more

urban estates.

But since 2010, six Regional Development Authorities namely Amritsar

Development Authority Bathinda Development Authority, Greater Mohali

Development Authority, and Greater Ludhiana Development Authority, Jallandhar

Development Authority, Patiala Development Authority have been established, which

led to reduction in the area and jurisdiction of PUDA. The urban estates developed by

PUDA have become part of their respective regional authority.26

e) Optimum Utilization of Vacant Government Land (OUVGAL) Scheme:

The Optimum Utilization of Vacant Government Land Scheme was

formulated by Government of Punjab in 1997. Under this scheme, vacant,

unencumbered and surplus lands of various Government Departments are transferred

to PUDA, a nodal agency, for commercial exploitation of such lands. The aim of the

scheme is to generate additional financial resources for the State Government for

infrastructure development projects. An Empowered Committee headed by the Chief

Secretary makes policy decisions regarding identification, approval and sale of

government lands as well as review and monitor the scheme from time to time. The

Council of Ministers has also authorized the Chief Minister to transfer such

government lands as deemed fit to PUDA under this scheme. Till 2013 -14, 5532

residential , 1425 commercial and 25 (for miscellaneous purposes) other sites/ plots

had already been sold. Out of these, 326 residential, 405 commercial sites/ plots & 1

residential, 175 commercial & 2 (for miscellaneous purposes) other sites/plots had

been sold. Further, 5205 residential , 3942 commercial and 57 other sites/plots had

been carved out . Out of these , 337 residential, 611 commercial sites/plots in Patiala

and 1 residential, 332 commercial & 2 other sites/ plots in Ludhiana had been carved

out for future development and sale. 27

25

PUDA(2013-14). Annual Report,p.10. S.A.S. Nagar (Mohali) : Punjab Urban Planning and Development

Authority. 26

Ibid. p.5 27

Ibid. p.6-9.

11

2. Punjab Apartment and Property Regulations Act, 1995

Vertical housing activity in the form of multi-storey apartments had been encouraged as it

had become impossible to meet the housing demand by horizontal expansion only. It is aimed

at promoting private participation by way of issuing licenses to private colonizers/ builders

for establishing private colonies. But, in some cases, it had been found out that some of the

private colonizers are operating solely with the motive of profits with scant regard to the

interest and rights of the individual buyers of plots/ flats. 28

This led to the formulation of Punjab Apartment and Property Regulation Act, 199529

. It was

enforced in October, 1995 and contains provisions with regard to development of

Coloniesand regulations of Apartment Buildings. The Act aims at regulating the promotion of

the construction, sale, transfer and management of apartments on ownership basis, regulating

colonies and property transactions and provides for registration of promoters and estate

agents and enforcement of obligations on promoters and estate agents and for matters

connected therewith or incidental thereto. The Act contains regulatory provisions with regard

to dealings between the promoter and the buyer so as to bring about transparency and protect

the interests of the buyer. 30

Table 4 shows Zone - wise number of licensed Promoters, Estate Agents and detection and penalization of Unauthorised Colonies upto year 201431.

Table 4

Information Regarding Number of Licensed Promoters, Estate Agents and

Detection of Unauthorised Colonies till 2014

Name of the

Zone

Promoters License

Receipt/Issued/Pending

Estate Agents

Receipt/Issued/ Pending

Unauthorised Colonies

Detected

668

1791

2459

Patiala 4 1 3 79 79 0

Ludhiana 1 1 0 292 292 0

Total 5 2 3 371 371 0

Source : PUDA website as on June 25, 2016. Punjab Urban Planning and Development Authority, SAS

Nagar (Mohali).

28

Department of Housing and Urban Development (1995). Punjab Regional and Town Planning and

Development Act.p.165. Chandigarh : Government of Punjab. 29

Department of Housing and Urban Development (1995, August). Punjab Apartment and Property Regulation

Act and Punjab Apartment and Property Regulation Rules.(1995, November). Replaced the repealed Punjab

regulation of Colonies Act, 1975. Chandigarh : Government of Punjab. 30

Ibid. p.289.For the purpose of this Act, a colony is defined as an area of more than 1000 square meters(sq.

mts.), which is divided or proposed to be developed into plots for residential, commercial or industrial

purpose. Sub division of plots longer than 1000 sq. mts., therefore, need a license. Apartment building comes

under the purview of this Act if the number of apartments is eleven or more. 31

puda.nic.in -PUDA, Punjab, India website (june 25, 2016).

12

.

3. Punjab Apartment Ownership Act, 199532

This Act was framed aiming at securing the interests of apartment owners and also

prescribes a simplified procedure for settlement of disputes between promoters and apartment

owners.

Since powers to implement the provisions of this Act had not been delegated thus, it

was not enforced till 2005 . It became operational in June 2005, which reveals sorry state of

affairs i.e. it took ten years for the Government to operationalise the Act framed in 1995.33

4. PUDA has been encouraging people to form Co-operative Societies for undertaking multi

storied housing projects. Land under such projects is provided at subsidized rates. Army,

IAS, IPS , Judicial Officers, Teachers cooperative societies in various urban estates had

been established.

5. In December 2006, Guidelines for Planning of Mega Residential Township Projects have

also been made operational. Approx. 28 projects have been approved and 4 are already

under process till 2013 -14.

6. Till 2008, there was no comprehensive housing and habitat policy. Housing and Habitat

Policy 2008 was framed aiming at providing houses to EWS and LIG of the society at

subsidized rates. It was revised in 2016 and renamed as Affordable Housing Policy 2016 .

It has been notified in March 2016 by Govt. of Punjab. It is aimed at providing houses to

lower middle income group in the Group Housing Projects.34

g. Residential Owners Perception

It has been aptly pointed out that in a democratic set-up citizen’s satisfaction is the most

important indicator of the effectiveness of administration but in building a better rapport with

the community public relations in public enterprises have a positive role to play. It is this

understanding that helps to create a climate of opinion where the public itself has a better

appreciation of the difficulties of administration.35

But it has been witnessed quite often that

the perceptional worlds of the officials and citizens generally differ markedly from each

other. Moreover, both of them may diverge substantially from reality.36

32

Department of Housing and Urban Development (1995). Punjab Apartment Ownership Act. Punjab

Apartment Ownership Rules,1995 were framed there under and was enforced with effect from October

15,1995. Chandigarh : Government of Punjab. 33

PUDA(2013-14).Annual Report, SAS Nagar (Mohali) : Punjab Urban Development Authority. 34

Department of Housing and Urban Development (2016). Affordable Housing Policy 2016. Chandigarh :

Government of Punjab. 35

Chaturvedi, T.N. (1975, July – September). Citizen and Administration. Indian Journal of Public

Administration, Volume 16, No. 3, p. v. New Delhi : Indian Institute of Public Administration. 36

Dwivedi, R.S. (1979). Human Relations and Organizational Behaviour, p.169. Bombay : Oxford & IBH

Publishers.

13

Residents of both Patiala and Ludhiana Urban Estates were surveyed to elicit information about policies and procedures adopted by PUDA,

knowledge about various aspects of the schemes (methods, time taken and price of allotment etc.); behavioural aspect of the officials; designing

& quality of the dwelling units; availability of infrastructural and other facilities within/nearby the area.

i. Income bracket of the Purchasers of residential houses/plots in Patiala and Ludhiana:

The following data in Table 5 shows the monthly income of the owners of houses/ residential plots and enabled the researcher in

analyzing their compatibility with the buying criteria fixed by PUDA37

.

Table 5 : Income Bracket of the Purchaser of Residential House / Plot

Income

Bracket

Upto Rs. 3300/- per month Rs. 3301/- to Rs. 7300/- per

month

Rs. 7301/- to Rs. 14500/- per

month

Above Rs. 14501/- per month

Categories

of DU

P L T P L T P L T P L T

PLOT 0 0 0 0 0 0 0 1(1.2) 1(0.5) 102

(100)

80(98.8) 182

(99.5)

HIG 0 0 0 0 0 0 0 1(20) 1(12.5) 3(100) 4(80) 7(87.5)

MIG 0 0 0 0 0 0 12

(92.3)

19(100) 31(97) 1 (7.7) 0 1(3.1)

LIG 0 0 0 17(39.5) 26(60.5) 43(100) 0 0 0 0 0 0

EWS 6 (40) 11 (57.9) 17(50) 9(60.0) 8(42.1) 17(50) 0 0 0 0 0 0

Note : Figures in brackets indicate the percentage

P- Patiala L- Ludhiana T – Total DU- Dwelling Unit

37

PUDA(2005-06 and 2008-09). Annual Reports. S.A.S.Nagar : Punjab Urban Planning and Development Authority. As per the income criteria for categorization of houses prescribed by PUDA(Annexure –I).

14

An analysis of the Table 5 brings out that in case of residential plot allottees- 99.5%(100% in Patiala and 98.8% in Ludhiana) and

in case of HIG allottees-87.5% (100% in Patiala and 80% in Ludhiana) were in the category of Rs. 14501 & above, thus, ascertaining

their compatibility with the income criteria fixed by PUDA. As per the data, 97% of the MIG allottees (92.3% in Patiala &100% in

Ludhiana) fell in the prescribed income bracket and only 7.7% exceeded the prescribed income limit in Patiala. In case of LIG, 100% of

both Patiala and Ludhiana allottees fulfilled the prescribed income criteria for this category. In case of EWS house, 50% (40% in Patiala

& 57.9% in Ludhiana) of the allottees fulfilled the prescribed income criteria whereas 50% (60% and 42.1 % of the allottees in Patiala

and Ludhiana erespectively) exceeded the prescribed income limit.

On inquiry, it was found out that at the time of allotment , they met the prescribed income bracket conditions and increase in their

income was mainly due to the increase in the number of their earning members later on. Thus, it can be deduced that in most of the

categories of residential plots and houses the prescribed income criteria had been observed at the time of making allotments in both the

cities.

ii. Allotment to Reserved Categories38

:

The data given in Table 6 shows the general/ reserved category- wise representation in the allotment of the residential plots and houses of

various categories by PUDA.

38

PUDA(2013-14). Annual Report, p.11. S.A.S.Nagar : Punjab Urban Planning and Development Authority.

15

Table 6: Category-Wise Representation in the Allotment of Residential Houses/ Plots

Category

of

Allottees

Category

of DU

1

(SC/ST)

2

(BC)

3

(General)

4

(Others)

P L T P L T P L T P L T

PLOTS 22

(21.6)

5

(6.2) 27

(14.7)

21

(20.6)

21

(25.9) 42(23) 59

(57.8)

55

(67.9) 114

(62.3)

0 0 0

HIG 0 0 0 0 0 0 3

(100.0)

5

(100.0) 8(100) 0 0 0

MIG 2

(15.4)

1(5.3) 3(9.3) 0 6(31.6) 6(18.8) 11

(84.6)

12

(63.2) 23

(71.9)

0 0 0

LIG 4

(23.5)

4

(15.4) 8

(18.6)

2(11.8) 5(19.2) 7(16.3) 11

(64.7)

17

(65.4) 28

(65.1)

0 0 0

EWS 3

(20.0)

7

(36.8) 10

(29.4)

1(6.7) 1(5.3) 2

(5.9)

11

(73.3)

11

(57.9) 22

(64.7)

0 0 0

Note : Figures in brackets indicate the percentage

P- Patiala L- Ludhiana DU- Dwelling Unit

This is revealed by the data given in Table 6 that PUDA, being a public sector undertaking, is committed to serve the interests of

all the sections of society. The above data reveals that 14.7% (21.6% in Patiala & 6.2% in Ludhiana) of Scheduled Category, 23%

(20.6% in Patiala & 25.9% in Ludhiana) of Backward classes and 62.3% ( 57.8% in Patiala & 67.9% in Ludhiana) of General category

got the plots. However, in case of HIG houses 100 percent allotment had been made to the general category. The above data further

shows that while 9.3% (15.4% in Patiala & 5.3% in Ludhiana) of the MIG houses had been allotted to scheduled category and 18.8% to

Backward classes, and 71.9% (84.6% in Patiala & 63.2% in Ludhiana) to general category. 18.6% (23.5% in Patiala & 15.4% in

Ludhiana) of scheduled category, 16.3% (11.8% in Patiala & 19.2% in Ludhiana) of backward classes and 65.1% ( 64.7% in Patiala &

65.4% in Ludhiana) of general category had been allotted LIG Houses. 29.4% ( 20% in Patiala & 36.8% in Ludhiana) of scheduled

category, 5.9% ( 6.7% in Patiala & 5.3% in Ludhiana) of backward class persons and 64.7% ( 73.3% in Patiala & 57.9% in Ludhiana) of

general category had been allotted EWS Houses.

16

Only in the case of HIG houses, general category clients had purchased all the houses sold so far. These houses were not

attracting many buyers as they were highly priced as per the general opinion. Moreover, these were located in under- developed area

having no market or other essential facilities within the approach of the residents.

The above data shows that in both the cities except in the case of HIG category of houses, in all the other categories of residential

plots/ houses, reserved categories had got their due share. Absence of reserved category buyers in the case of HIG houses could be

attributed to their high cost and less demand.

iii. Information about Policies, Procedures and Various Aspects of the Schemes Related to Housing:

Table 7 provides an insight into the level and interest of residents to gain information about housing policies, price fixing

procedures, and time taken for allotment and allotment criterion adopted.

Table 7 : Knowledge About Policies, Procedures and Various Aspects of the Schemes Related to Housing

Categories of

DU

P L T P L T

Yes Yes Yes No No No

Plot 22 (21.6)

21(26)

43 (23.5) 80 (78.4) 60 (74) 140 (76.5)

HIG 1(33.3) 1(20) 2(25)

2(66.7)

4(80)

6(75)

MIG 0(0)

2(40)

2 (25)

13 (100)

17 (89.5)

30 (93.8)

LIG 0(0) 0 (0) 0 (0) 17 (100)

26 (100)

43 (100)

EWS 0 (0) 0 (0) 0 (0) 15 (100)

19(100)

34(100)

Note: Figures in brackets indicate the percentage. P- Patiala. L – Ludhiana. DU – Dwelling Unit.

17

Data given in the above Table 7 reveals that only 23.5% (21.6% in Patiala & 26% in Ludhiana) of resident plot allottees, 25% (33.3% in Patiala

& 20% in Ludhiana) of HIG allottees, 25% ( none in Patiala & 40% in Ludhiana) of MIG allottees, none among LIG and EWS allottees

showed keenness to know or already had the knowledge. But majority i.e. 76.5% (78.4% in Patiala & 74% in Ludhiana) of resident plot

allottees, 75% ( 66.7% in Patiala & 80% in Ludhiana) of HIG allottees, 93.8%(100% in Patiala & 89.5% in Ludhiana) of MIG allottees, 100% of

LIG and EWS allottees had no knowledge about the PUDA’s policies, procedures and other aspects of the schemes related to housing. On

further probing, majority regarded it as time wastage activity and never bothered about it. Information being incomprehensible, cumbersome

procedures and apathetic attitude of the staff are the some of the other reasons quoted.

iv. Response of the Residents towards Accessibility and Behaviour of the officials during dealings:

The following data in Table 8 indicates the perception of the residents of houses/ plot regarding accessibility and behaviour of PUDA officials

during dealings with regard to matters like getting ‘No Due Certificate’ (NDC), Possession letter; registration of the house /Plot and other related

matters.

Table 8 : Response of the Residents towards Behaviour of the Puda officials while dealing with their Clients

Categories of

DU

Good Fair Poor

P L T P L T P L T

Plot 5 (4.9) 11 (13.6) 16(8.7) 15(14.7) 24(29.6) 39(21.3) 82 (80.39) 46(56.8) 128(70)

HIG 0 1(20.0) 1(12.5) 2(60) 1(20.0) 3(37.5) 1(40) 3(60) 4(50)

MIG 0 2(10.5) 2(6.4) 3(30) 6(31.6) 9(28) 10(70) 11(57.9) 21(65.6)

LIG 0 4(15.4) 4(9.3) 7(41.0) 3(11.5) 10(23.2) 10(59) 19(73.1) 29(67.5)

EWS 0 2(10.6) 2(5.9) 6(40.0) 4(21.0) 10 (29.4) 9(60) 13(68.4) 22(64.7)

Note : Figures in brackets indicate the percentage. P- Patiala L- Ludhiana DU - Dwelling Unit

18

Data given in Table 8 attempts to put forth the perception of residents towards behaviour of PUDA officials. An analysis of the

data reveals that of only 8.7% (4.9% of Patiala & 13.6% of Ludhiana) residential plot buyers, 12.5% (none in Patiala & 20 % of

Ludhiana) HIG residents, 6.4% ( none of Patiala & 10.5% of Ludhiana) MIG residents, 9.3% ( none in Patiala & 15.4% of Ludhiana)

LIG residents and 5.9% (none in Patiala & 10.6% of Ludhiana) EWS residents found their behaviour to be good. Similarly, 21.3% of plot

residents (14.7% of Patiala & 29.6% of Ludhiana); 37.5% of HIG residents (60% of Patiala & 20% of Ludhiana); 28% of MIG residents (

30 of Patiala & 31.6% of Ludhiana); 23.2% of LIG residents ( 41% of Patiala & 11.5% of Ludhiana) and 29.4% of EWS residents ( 40%

of Patiala & 21% of Ludhiana) found it fair. Majority i.e. 70% of plot residents ( 80.39% of Patiala & 56.8% of Ludhiana); 50% of HIG

residents ( 40% of Patiala & 60% of Ludhiana) ; 65.6% of MIG residents ( 70% of Patiala & 57.9% of Ludhiana) ; 67.5% of LIG

residents ( 59% of Patiala & 73.1% of Ludhiana); 64.7% of EWS residents ( 60% of Patiala & 68.4% of Ludhiana) have rated it to be

poor.

Majority of the clientele of all the categories of the houses and residential plots held the opinion that officials are not at all helpful

whenever approached. They either don’t give time for appointment or don’t pay heed to the pleas of the clients.

On the other hand, most of the officials maintained that clients are served with a helpful attitude and are provided the relevant

information at the earliest. They avoid/ refuse to comply with the clients demands only when either irrelevant information is asked for or

without fulfilling the necessary formalities, they want information or work done on unofficial basis. To streamline the functioning and

speedy disposal of the cases, Single Window System had been introduced. But on observation for continuously six months it was found

out that it was virtually non functional and failed to serve the purpose as there was constant breakdown of either the hardware or the

software. Due to this reason complainant was unable to register the complaint or failed to know the status of it.

On the basis of the above data, it can be deduced that in all the categories of plots/houses in both the cities as revealed by Table 9

majority perceived the behaviour of the PUDA officials as poor i.e. impolite, unfriendly attitude, unnecessary delay in clearing the files,

finding faults in following the cumbersome procedures etc.

v. Response of the Residents towards Designing and Quality of Construction of Houses/ Residential Plots:

Following data reveals the perception of the residents of various categories of houses and residential plots towards various aspects like

total & covered area (in sq. meters), design of the unit, number of rooms, toilets/baths etc. and quality of construction of the Dwelling

Unit and availability of infrastructure in the area.

19

Table 9 : Response of the Clientele Towards Designing and Quality of Construction of Houses/ Residential Plots

Categories of

DU

GOOD FAIR POOR

P L T P L T P L T

Plots 3(2.9) 0 3(1.6) 68(66.7) 7(8.6) 75(41) 31(30.4) 74(91.4) 105(57.4)

HIG 0 0 0 2(66.7) 5(100.0) 7(87.5) 1(33.3) 0 1(12.5)

MIG 0 0 0 5(38.5) 10(52.6) 15(46.9) 8(61.5) 9(47.4) 17(53.1)

LIG 1(5.9) 0 1(2.3) 10(58.8) 7(26.9) 17(39.6) 6(35.3) 19(73.1) 25(58.1)

EWS 0 0 0 11(73.3) 2(10.5) 13(38.2) 4(26.7) 17(89.5) 21(61.8)

Note : Figures in brackets indicate the percentage. - Patiala L- Ludhiana DU – Dwelling Unit

Data given in Table 9 reveals that only 1.6% of plot residents ( 2.9% of Patiala & 0% in Ludhiana); 2.3% LIG allot tees (5.9% of Patiala and 0%

in Ludhian) rated the designing and quality of construction as good. 41% plot residents (66.7% of Patiala & 8.6% of Ludhiana) ; 87.5% HIG

allot tees ( 66.7% & 100% of Patiala & Ludhiana respectively); 46.9% MIG allot tees ( 38.5% of Patiala 7 52.6% of Ludhiana) ; 39.6% LIG allot

tees ( 58.8% of Patiala & 26.9% of Ludhiana) and 38.2% EWS allottees (73.3% & 10.5% respectively of Patiala & Ludhiana) rate as fair. 57.4%

plot residents ( 30.4% & 91.4% of Patiala & Ludhiana respectively); 12.5% HIG allot tees (33.3% of Patiala & 0% of Ludhiana); 53.1% MIG

allot tees ( 61.5% of Patiala & 47.4% of Ludhiana); 58.1% LIG allot tees (35.3% of Patiala & 73.1% of Ludhiana) and 61.8% EWS allot tees (

26.7% of Patiala & 89.5% of Ludhiana) rated as poor.

Hence, it can be deduced from Table 9 that majority of the clientele rated various aspects like design, quality of construction and the material

used (in case of HIG, MIG, LIG AND EWS houses) and quality of infrastructure like water supply, electricity, sewerage, drainage, seepage,

roads, parking facilities, street light, parks, safety and security, garbage disposal and collection etc. as poor except HIG residents who termed it

as fair. On the other hand, officials maintained that designs are approved and quality checks are regularly conducted both at the site as well as of

the stock lying at the godowns. The provisions are made according to specifications fixed by the government as prescribed by the High Powered

Board.

vi. Response of the Residents towards availability of / approachability to various facilities:

20

The following data indicates the perception of the clientele of various categories of houses/ residential plots towards availability

of other facilities like market, educational institutions like school/college, residents welfare associations/clubs, qualified medical

practitioner/hospital/dispensary, religious places like Mandir/ Gurudwara/ Masjid, bank, ATM, STD/ISD/cyber café/courier service,

means of public transport etc :

Table 10 : Response of the Residents Towards Availability of / Approachability to Various Facilities

Categories

of DU

YES NO

P L T P L T

Plot 22(21.6) 34(42.0) 56(30.6) 80(78.4) 47(58.0) 127(69.4)

HIG 1(33.3) 1(20.0) 2(25) 2(66.7) 4(80.0) 6(75)

MIG 4(30.8) 5(26.3) 9(28.1) 9(69.2) 14(73.7) 23(71.9)

LIG 4(23.5) 8(31.0) 12(28) 13(76.5) 18(69.0) 31(72)

EWS 2(13.33) 2(11.0) 4(11.8) 13(86.7) 17(89.0) 30(88.2) Note: Figures in brackets indicate the percentage. P- Patiala L- Ludhiana DU – Dwelling Unit

Above Table 10 reveals that 30.6% plot residents ( 21.6% of Patiala & 42% of Ludhiana); 25% HIG allot tees ( 33.3% of Patiala & 20%

of Ludhiana); 28.1% MIG allot tees ( 30.8% of Patiala& 26.3% of Ludhiana); 28% LIG allot tees ( 23.5% of Patiala & 31% of Ludhiana)

and 11.8% EWS allot tees ( 13.33% of Patiala & 11% of Ludhiana) responded positively. But majority i.e. 69.4% plot residents ( 78.4%

of Patiala and 58% of Ludhiana taken separately) ; 75% HIG allot tees ( 66.7% of Patiala & 80% of Ludhiana taken separately); 71.9%

MIG allot tees ( 69.2% of Patiala & 73.7% of Ludhiana taken separately); 72% LIG allot tees ( 76.5% of Patiala & 69% of Ludhiana

taken separately) and 88.2% EWS allot tees ( 86.7% of Patiala & 89% of Ludhiana taken separately) have responded negatively.

Residents were asked about the facilities like market, social entertainment/clubs, educational institutions like school/college, religious

places, hospital/dispensary, ATM, cyber cafe etc. The major deficiencies felt by the residents were absence of the means public transport

and hospital / qualified medical practitioner. In case of women, old and children, lack of public transport rendered them immobile and

also at the time of emergencies they had to face lot of difficulties. Thus, the above

PUDA officials told the researcher that pockets had been reserved for such sites. The major cause of the delay in developing the areas

since 1996 had been long gestation period involving huge capital investments. Efforts are being made so as to ensure the overall

development and beautification of the areas.

21

Analysis

To tackle the problem of shortage of housing particularly for Economically Weaker

Section & Lower Income Group of the society, various policies have been framed and

execution bodies have been established.

As per the central government directions to frame state’s own housing policy, it failed

to do so till 2008. This policy has been revised in March 2016 itself. Its guidelines are

yet to be followed.

Punjab Regional and Town Planning and Development Act, 1995 and Punjab Urban

Planning and Development (Building) Rules,1996 had been framed to ensure

construction and allotment of houses, allotment of plots and all around and

sustainable development of urban areas. It initiated various housing schemes but

could construct/ allot approx. 28136 houses of various categories and plots of various

sizes. It reveals a very dismal performance.

Punjab Apartment and Property Regulations Act, 1995 and Punjab Apartments

Ownership Act, 1995 aimed at enhancing and encouraging private partnership in the

housing sector and contains provisions with regard to development of Colonies,

Group Housing, Multi storeyed flats and regulations of Apartment Buildings. Under

PAPRA, 1995, certain norms and standards concerning colony layouts for issue of

license were revised in 2004. It aimed at regulating the promotion of construction,

sale, transfer and management of Apartments, Plots and Properties. 5 Colonizers and

371 Estate Agents have been issued licenses by PUDA for building colonies in the

State but the progress shown by these colonizers is almost negligible as no colony has

been completed till date. Moreover, 2459 colonies had been declared unauthorised

and action is being taken against them.

Punjab Apartment Ownership Act, 1995 and Punjab Apartment Ownership

Rules,1995 were not made operational for ten years till 2005 because the powers had

not been delegated.

Moreover, the guidelines for Planning Mega Residential Township Projects have been

framed in 2006 much after the date of issuing the licenses to such Colonizers and

Estate Agents. The guidelines stress on demarcating the land for EWS houses in the

Residential Development Projects. The promoters or colonizers never paid heed to

these conditions. Either there was no provision for EWS houses or if land was

demarcated then no construction was undertaken and in case such houses were

constructed then they failed to attract the common man. It has been mainly because

of the exorbitant prices of the house/ flat. Most of these projects are facing resource

crunch and are seem to be running into losses. Some of the colonies and societies had

been able to attract the clients and are inhabited but lack sewerage and other facilities

as no developmental work has been carried out and the areas become virtual hell

during rainy seasons. Thus, the real success of this experimentation will be known

only after few years.

The power to plan was with the High Powered Board ( 2006 amendment to the main

Act gave it to the State government department) and enforcement function is of the

PUDA which makes it over dependent upon the Board/ govt. for want of directions

and guidance. Moreover, within PUDA, all the powers are vested with the top

functionaries and the staff is to carry out the decisions as per directions. Higher

22

officials are mainly bureaucrats on deputation thus they lack absolute sense of

commitment towards the Authority. There tenure is highly uncertain and often very

short. During their short tenure they are unable to understand the functioning of such

highly technical organization dealing with planning and development of urban areas

in the State. Moreover, these officials lack technical know how and skill to meet the

professional challenges of the job. This often leads to conflict between generalists

administrators and technocrats manning various positions in PUDA. Dearth of

adequate staff particularly at the lower level has further aggravated the problem as the

government is reluctant to fill up the posts vacated by the employees after their

retirement.

It shows apathy on the part of PUDA towards implementation of the Acts

effectively and hence, the above analysis leads to proving that there is a gap

between intent and implementation of housing policy of PUDA.

Till 2014, only 15034 houses constructed and allotted and 13102 plots allotted by

PUDA. officials lamented that land bank is depleting and also the demand for houses

constructed by PUDA has lessened over the years as more people are preferring the

plots over the built houses. But the above reasons quoted are contradictory as the

private sector is allowed to develop housing colonies on the land, which in most of the

cases were the agricultural land and the change was allowed under Change of Land

Use(CLU) rules. Till 2006, no attention was paid to construct houses for socially and

economically weaker sections of the society. It is only in 2006 that the guidelines

have been framed and circulated which carries the clause of providing at least 10

percent of houses of EWS Category.

Thus it proves that PUDA has not been able to provide adequate housing stock

in the State and housing projects initiated under Public- Private Partnership

having also failed to gain momentum.

It has been proved that in most of the categories of residential plots and houses the

prescribed income criteria had been observed at the time of making allotments .Some

variations were due to the rise in their income was mainly due to the increase in the

number of their earning members later on.

Data shows that Scheduled Castes have got 14.7%, 0%, 9.3%, 18.6% & 29.4% ;

Backward Classes have got 23%, 0%, 18.8%, 16.3%,& 5.9% and general category

has got 62,3%, 100%, 71.9%, 65.1% & 64.7% of plots, HIG, MIG, LIG & EWS

Houses. Each category has got its due share except in case of HIG. Absence of

reserved category buyers in the case of HIG houses could be attributed to their high

cost and less demand.

Regarding information about policies, procedures etc., 23.5% of plot residents, 25%

of both HIG & MIG and 0% of both LIG & EWS allot tees said yes but majority i.e.

76.5% of plot residents, 75%, 93.8% and 100%, 100% of HIG, MIG, LIG & EWS

allot tees said no.

Majority i.e. 70% of plot residents, 50% HIG, 65.6% of MIG, 67.5% of LIG and

64.7% of EWS allot tees lamented that the level of accessibility and behaviour of

PUDA officials is poor.

23

The reasons as have been already mentioned are that most of the clients were annoyed

and felt harassed as they were made to run from pillar to post for fulfilling the tedious

and cumbersome procedure of getting through the registration process and were also

unable to shell out money liberally. Majority of the residents of all the categories of

the houses and residential plots held the opinion that officials are not at all helpful

whenever approached. They either don’t give time for appointment or don’t pay heed

to the pleas of the clients. Majority of the clientele of plots, HIG and MIG house feel

that corruption had been prevailing among officials at all the levels. They lamented

that there had been a nexus among them. Majority of EWS buyers and LIG residents

opined that it was more among the lower level staff. On inquiry, they quoted that they

had access only to lower level staff as the higher level officials were either not

available or the clients themselves felt afraid or shy of meeting them. Moreover, most

of the paper work was initiated at this level and they being the one who presented the

case to the higher level officials, many times didn’t allow or discouraged majority of

the clients to meet directly or personally the officials at the higher levels.

57.4% of plot residents, 53.1 % of MIG, 58.1% of LIG and 61.8% of EWS have rated

the designing and quality of houses to be poor only 87.5% of HIG allot tees have

rated it to be fair.

69.4%, 75%, 71.9%, 72% and 88.2% in case of plot, HIG, MIG, LIG and EWS allot

tees have said that the level of availability of / approachability to various facilities is

poor.

The faulty designing of the house, substandard quality of cement, wires, sewerage

pipes near the kitchen which most of the time remain choked, no provision for cross

ventilation etc. The areas are out of the city and are highly undeveloped or

underdeveloped and have no proper roads, sewerage systems, security provisions etc.

LIG houses in Ludhiana have no toilets, as such, ladies/ children and old all had to go

out at some distance to avail this facility.

It can be observed from the above analysis that the majority of the residents of

residential plots, HIG, MIG, LIG and EWS are dissatisfied by the services being

provided by PUDA . Inferences drawn on this account can be equally applied on

the overall perception of the clients of Punjab towards houses and related

services provided by PUDA.

Suggestions

With the major shift in economic policy of Indian government in 1991 from socialism

to capitalism, guidelines under various Five Year Plans; 74th

Constitutional Amendment and

consequential legislative changes in the State Municipal and Town Planning Acts, the

relationship between the Urban Development Authorities and the local bodies needs to be re-

defined as the role and duties of these organizations requires a fresh examination.

It is suggested that housing policy be made an integral part of the overall urban development

so as to evolve a multidimensional approach aiming at providing affordable houses to all,

particularly for the economically and socially weaker sections of the society as has been

mentioned in the housing policy of the government of India.

24

In the Punjab Regional and Town Planning and Development Act, 1995 stress has been laid

on better planning which is value loaded. There cannot be better planning at all places in the

state because at some places it may be better while at others it may not be so. Similarly, at the

same place, planning which is better to-day may go worse tomorrow as per the well known

saying that change is the law of the nature. It is ,therefore, suggested that the word ‘better

planning’ be substituted with some appropriate word like’ need based planning’ , keeping in

view its context and impact.

Many legislations have been framed by the Housing and Urban Development Department,

Government of Punjab but either these have not been strictly implemented or still waiting

government’s approval. Such a delay on the part of the government is seriously hampering

the successful completion of many projects aimed at triggering urban development in the

State. Thus, measures for the strict adherence to such policies, acts and rules-regulations

made there under should be evolved. Similarly, provision has been made to consolidate laws

dealing with different aspects of development. However, consolidation is not codification, it

is a process whereby the provisions of many statutes dealing with one branch of the law are

reduced into the compass of one statutory enactment of law. Efforts are, therefore, needed to

process the laws dealing with different aspects of development accordingly. The laws which

could not be enforced so far due to one or the other reason also need to be made operative in

the process.

Under section 3 of the Act, Punjab Regional and Town Planning and Development Board has

been established as a permanent body and was accorded ample powers to perform its

functions but with the amendment in the Act in 2006, most of its powers had been taken over

by the State Government thus leaving it toothless. It should be given ample powers to carry

out the technical functions involving planning and preparation of various plans for bringing

about planned urban development in the State.

In the changed circumstances, the composition should consist of more professionals and

technocrats like architects, planners, engineers etc. having ample experience and knowledge

of performing the functions of the Authority. Moreover, civil servants manning it should be

imparted requisite technical skills, especially in the field of designing, construction, financial,

marketing management etc. If possible, appropriate amendments be made in the Act so as to

avoid the involvement of politicians in managing it as the functions being technical in nature

requires professional and expert handling as well as demand in depth involvement which is

not possible for a political head as they lack time and technical know-how.

PUDA should evolve measures to weed out the non-serious applicants and also those who

apply with a commercial mindset i.e. buying not for the residential purposes so as to instil

faith of the genuine client and make the allotments to the really needy client. PUDA should

bring in more transparency in conducting free and fair draw of lots. Moreover, method of

Auction should be used restrictively and with caution. It should not encourage unscrupulous

element to create dearth of land by paying exorbitantly for the residential and commercial

plots through auction.

In order to become a truly people friendly and result oriented organization, it is required to

bring qualitative improvements in its performance, its departments, branches and committees

be held accountable for achieving quantified targets, professional be appointed as heads on

contract basis, system of performance incentives be introduced. Efforts should also be made

to instil a culture of cost consciousness by having regular feedback for the services it

provides. PUDA should monitor customer satisfaction by involving various agencies such as

25

citizens’ groups, welfare associations and other professional organizations in performing

certain functions, checking violations and reducing corruption to some extent. A good

initiative has been taken whereby, the procedure of grant of building permissions has been

simplified and registered architects have been authorized to certify the building plans of

houses. More such initiatives need to be taken through innovative ideas.

In India, and particularly in Punjab, the last few years had witnessed constant and continuous

rise in the land prices , thus, making it difficult to afford a house by the middle and lower

strata of the society. Moreover, the increasing role of the private builders and colonizers is

adding to the woes of the people. As such, privatization should not be viewed as a panacea

for improved governance performance. Rather, the situation demands government’s

intervention so as to protect the common man from being cheated and harassed by the private

agencies. Comprehensive guidelines be published by the governmental agencies describing

complete details of the private colonizers/builders so that people can ascertain their

genuineness.

PUDA, for the last ten years, had hardly undertaken any construction activity, particularly

building houses for the economically weaker strata of the society. This being one of its basic

objective, thus, demands immediate attention. It becomes all the more important as the lower

strata tends to live in unhygienic slums posing health threats to themselves and had also

become breeding ground for the diseases unheard of in the past.

Single Window System needs to be made fully functional. In the advent of Information

technology, it should be accessible to the clients through user-friendly e-governance

techniques. All the relevant information, application performa, fees, fines, procedural routes

and processes etc. be provided on the website and websites be regularly updated so as to

make it really meaningful. Customer grievances collection and redressal mechanism needs to

be restrenghtend to develop the trust of common man towards the organisation and its

personnel.

To make it achieve its mission with excellence, PUDA needs to be made a truly effective

body for bringing about overall planned urban development in the State, hence, requires an

active inter -linkages between the government, the clients and private sector organizations.