AN URBAN RENEWAL PROGRAM
FQR-T WEST PAKISTAN

Thesis fool the Dawn of M. U. D,
MICEEGM STRTE UNIVERSETY
Muhammad Asian“: Mughal
1966

 

WESIS

 

LIBRARY

Michigan State
University

 

 

 

ABSTRACT

AN URBAN RENEWAL PROGRAM FOR WEST PAKISTAN

by Muhammad Aslam Mughal

Man is engaged in a continuing struggle of improving his living environ-
ment to meet the needs and desires of the time. Cities exist to satisfy human
needs; but over time their functions become obsolete for which there must be
continual readjustment in physical patterns and facilities to the dynamics of
changing social characteristics. The objective of deliberately changing the phys-
ical form of a city to meet the requirements of its people as affected by advances
in technology has a long history. However, all these efforts have been focused
on a particular aspect of city structure without relating to the total urban area.
Recently, there has been a greater recognition of urban problems because of
their ever—increasing complexity and negative effect on living environment. Ur-
ban renewal, as a comprehensive process, suggests an overall attack on the de-
teriorating conditions of urban structures and their environment.

This thesis study presents some of the critical problems being faced by the
cities of West Pakistan today. The large numbers of immigrants in 1947 and the
rapid urbanization thereafter have resulted in overcrowded facilities. This sit-
uation is presenting many administrative, economic, social and physical pro-
blems. An attempt has been made to analyze this situation and to establish the

need for an effective urban renewal program.

Muhammad Aslam Mughal

The significant political, social and economic characteristics of the people
of West Pakistan have been examined as they relate to any planning activity; par-
ticularly urban renewal. An effort has been made to recognize the national lim-
itations and constraints in terms of available resources and their allocationwith-
out going into the details of economic feasibility of renewal projects which is be-
yond the scope of this study.

Many countries of the world have embarked on national programs recently
and some selected programs have been examined in the light of their experiences.
This evaluation presents diversity of approaches to the same problem which has
been used as a basis for suggesting some important features of any such pro-
gram in West Pakistan suitable to the local circumstances.

This study has been undertaken with limited data available; therefore, spe-
cific details of the program have not been spelled out. However, a general
framework has been suggested with all the critical steps involved which could
provide a starting point in the direction of a comprehensive urban general pro-
gram. This thesis presents three -fold recommendations aiming at an overall
attack on the city problems.

- A "Study Commission" should be appointed by the government to probe the
total approach to urban development and suggest a long-range detailed ur-
ban renewal program. On the basis of the available data, the following
significant features are recommended:

Adoption of the comprehensive process of urban renewal including
conservation, rehabilitation and redevelopment.

Relating urban renewal to the total city structure through integration

with the physical development plan.

Muhammad Aslam Mughal

Establishing administrative agencies at the federal, provincial and
local levels.

. Enactment of urban renewal legislation at the federal, provincial and
local levels.
Advancing loans and grants by the federal and provincial governments.
Relating relocation to the new housing schemes being undertaken by
the government.

For the interim period, an effort can be started on carefully planned and

executed project bases.

A vigorous public relations program should be launched by all levels of

government to enlist the support of general public and private organizations.

AN URBAN RENEWAL PROGRAM

FOR WEST PAKISTAN

By

Muhammad Aslam Mughal

A THESIS

Submitted to
Michigan State University
in partial fulfillment of the requirements
for the degree of

MASTER IN URBAN PLANNING

School of Urban Planning and Landscape Architecture

1966

ACKNOWLEDGEMENTS

The author wishes to express his sincere gratitude to Professor Myles G.
Boylan whose encouragement, guidance and invaluable criticism made possible
the realization of this study. He is also indebted to all the other faculty mem-
bers of the School of Urban Planning and Landscape Architecture, particularly
to Professor Charles W. Barr, who was always willing to help and guide through—
out the stay at Michigan State University.

The author extends his appreciation to the Ford Foundation, the Govern—
ment of West Pakistan Department of Communication & Works, and the Institute
for International Education for their assistance. He is especially grateful tohis
parents and other family members whose patience, understanding, and encour-

agement was always inspiring.

ii

TABLE OF CONTENTS

Page
ACKNOWLEDGEMENTS . . . . . . . . . . . . . . . . . . . . . . ii
LISTOFTABLES v
LISTOFFIGURES........................ vi
CHAPTER
(Q THE CONCEPT . . . . . . . . . . . . . . . . . . . . . . 1
II. THE LAND AND THE PEOPLE . . . . . . . . . . . . . . . 9

TheLand
Geographicallocation................. 9
Topography...................... 11
Climate........................ 11

The People
GovernmentStructure................. 12
Social Characteristics . . . . . . . . . . . . . . . . . 13
Economic Characteristics. . . . . . . . . . . . . . . . 19

./
\/Conclusions........................ 24

IH. THENEED 25
SlumFormationandCauses................. 26

AdditionalFactors..................... 33
LandLimitations.................... 33
Housing Conditions . . . . . . . . . . . . . . . . . . . 35
Traffic Problems. . . . . . . . . . . . . . . . . . . . 36
Recreational and Educational Facilities. . . . . . . . . . 37
PropertyValues.................... 38

,/Conclusions......................... 39

if!) SELECTED EXAMPLES OF URBAN RENEWAL PROGRAMS

INOTHERCOUNTRIES.................. 42
TheUnitedStates...................... 42

iii

CHAPTER
Canada .
France .
Conclusions .
V. POLICIES AND PROGRAM FOR WEST PAKISTAN
Objectives
Program . .
Organization and Financing .
Legislation . .
Effectuation . .
VI. SUMMARY AND RECOMMENDATIONS .
Long Range Program. .
Short Range Program

Public Relations .

Page

51

60
63
63
66
74
81
83
86
89
92

92

APPENDIX: Criteria Used in Appraising the Quality of Dwellings in

Selected Countries .

BIBLIOGRAPHY . .

iv

...... . 94

102

Table

LIST OF TABLES

Population Characteristics of West Pakistan . .
The Family Size in Urban Areas of West Pakistan
Literate Persons in Selected Cities .

Growth of National and Per Capita Income .
Employment Characteristics for Selected Cities .

Consumer's Price Index for Government and Commercial
Employees at Karachi .

General Cost-Of-Living Indices for Industrial Workers of
TwoLargestCities. . . . . . . . . . . . .

Percentage of World Population Living in Cities

Population Increase in Cities of 100, 000 or More
Population 1951—61 .

Page
14
15
18
20

22

23

24

28

31

Figure

LIST OF FIGURES

Pakistan Map .
Major Cities of West Pakistan

Federal Administrative Organization for Urban Renewal
in the United States . . .

Suggest Urban Renewal Organization

vi

Page

10

32

50

80

CHAPTER I

THE CONCEPT

Shelter is one of the basic needs of the human being, along with food and
clothing. It has been the focus of his attention ever since the beginning of civil-
ization. History reveals how the man of early periods used to wander in the
forests before he felt the need for shelter from wild animals, enemies, heat,
cold and other hazards. As he realized the need and invented the necessary
tools, he improved the physical structure of the shelter. In time, man dis-
covered the advantages of living in groups. He saw in communal living defense
from enemies and predators, economic advantages and many cultural benefits.
"The city dweller of our age can hardly imagine a world without cities. Cities
seem to him as inevitable as life itself, and as eternal. Cities, however, ap—
peared relatively late in man's long history, and they emerged only after a
long struggle with the forces of nature on which man depends and of which he

1
is also a part. "

The formation of cities introduced new dimensions to the problem of
shelter and its related environment when efforts became directed toward a
collective approach. As the biologists declare, man's life is a struggle with
his environment and truly he has been accepting this challenge throughout his-

tory. "The human settlements of all ages are an expression of the societies

 

1L. Hilberseimer. The Nature of Cities, Paul Theobald & Co. , Chicago,
1955, p. 15.

 

1

2

which created them. An expression of spiritual aspirations and of material re-
quirements. Social organization, political intention, economic means, artistic
and technical ability, forms of production and consumption, means of transpor-
tation - all these are factors which determine the form and nature of man's settle—
ments. The interaction of these forces, everywhere present, varies as one force
or another tends to predominate. "1

A city is always in transition unless it has ceased to have other functions
than to serve the purposes of archaeology. So long as people live in it and use
it, a city can never be completed. Because of this there can be no final, once—
and-for-all answer to the city's problems. The goal is always advancing, con-
stantly shifting, altering and usually enlarging to cope with the demands of time
and the people. Therefore, the city, in general, and its component parts, in
particular, may become obsolete functionally or structurally if something is not

done. Miles Colean summarizes this process as:

Changing ideas and changing needs from generation to gen-
eration dictate corresponding changes in the urban form. The
amounts, direction and speed of change in the structure of the
city depend upon the intensity of the new desires of its people,
the opportunities they seize in effecting change, the physical and
financial difficulties they have to cope with, and vigor they can
put into the job. Like Baghdad, a city may endure for ages yet
change very slowly so long as the requirements of its people re-
main relatively the same; or it may change with the rapidity of
Chicago, Detroit or Los Angeles. The rate of change is not so
important as the fact that whether slowly or rapidly change takes
place when the needs of its inhabitants change. 2

There are two significant phenomena which occur in the urban structure
which, over a period of time, tend to reduce the usefulness, attractiveness,

value or vitality of small and large elements of this structure, namely, "age"

 

1Ibid., p. 15.

2Miles L. Colean. Renewing Our Cities, The Twentieth Century Fund,
New York, 1953, p. 5.

 

3
and obsolescence which inevitably go hand in hand. Unless there is persistent
public and private vigilance to revitalize the structure and overcome these two
negative effects, deterioration usually follows which, in itself, leads toward a
downward spiral and eventually reaches a condition of blight and then of a termin-
al slum. Growth, surge, decay and recuperation have characterized most of the
world's urban centers from their beginning so we see that urban renewal — as a
process of city development that takes place without conscious direction - has a
long history. Examples of urban renewal can be seen in ancient, medieval, ren-
aissance and post renaissance periods in European cities. The most significant
among these examples was the replacement of defense walls around cities by ma-
jor roads or boulevards as in the case of Paris in the Mg. These renewal ac-
tivities, however have been taking place on the basis of certain needs without any
significant relationship to the urban structure in totality. At the same time, this
process of piecemeal renewal of cities went on without using any formal termin-
ology like urban renewal or redevelopment.

In some instances disasters have been the motives behind redevelopment,
as the London Fire or Cholera epidemics. Because of the great Fire of London
in 1666, Londoners were able to get rid of their worst slums and were able to
considerably improve the physical structure of the affected area. Similarly in
1848 an epidemic of cholera, mostly in Europe, prompted Britain to come up
with the Public Health Act of 1848 which became one of the foundation stones of
modern social and economic planning.

In the United States, the problems of housing quality began in the early

1800's. America became a land of promise thereby attracting a large number of

4
immigrants from Europe. As a result of these migrations, the housing accom-
modations became overcrowded in all the cities. However the maximum impetus
of overcrowding was felt along the eastern coast, particularly in New York City.
This stimulated the enactment of the first legislation for slum clearance, in New
York, as early as 1791. The rapid urbanization of the country, in the 1830's,
resulted in an acute lack of bare shelter and created slum conditions. So, along
with physical, social and economic problems, concern was manifested about the
housing reforms. Efforts were started privately as in the case of Jacob Riis
who played an important role in housing reforms in New York City. In 1867 New
York adopted the first tenement law which was not quite effective. In the 1890's
a slum condition survey was organized by the U. S. Commissioner of Labor which
emphasized a comprehensive approach to housing problems of American cities.
However the Tenement Law of 1901, enacted by New York City was the most sig-
nificant step in improving the living conditions. Later on successive pieces of
legislation built up the stage for a comprehensive renewal program which will be
discussed in Chapter IV.

Need for official public concern and action for city renewal in Western
countries was recognized early in the 20th century by Patrick Geddes, a Scottish
naturalist turned planner, who recommended "conservative surgery" to cure the
decay in cities. He actually organized a company which undertook renewal of
rundown structures in Edinburgh, and thus set an example of urban renewal for
the rest of the world. This effort was the first organized realization of the im-
portance of urban renewal. At later stages, many countries initiated redevelop-

ment programs to get rid of slums which if unchecked, would continue to spread

and smother community vitality.

Examples are available from many countries whereby small projects were
undertaken, over a long period, to replace the slums with better structures and
to increase the economic value of an area. However, the effort was limited to
private initiative with some help from the governments. Even at later stages,
the formal entry of state or national governments did not change the concept of
piecemeal slum clearance. The Housing Act of 1937 in the United States is a
good example of the provision of grants for the construction of public housing on
the condition that an equal number of slum houses will be demolished. This ap-
proach meant that attention was, mainly, focused on an area after it had become
completely deteriorated.

So far the concept of renewal had been to clear run-down areas on a pro-
ject basis without relating it to the rest of the urban area. Such an effort would
fall under redevelopment in present day terminology. The shift from pure rede-
velopment to the more comprehensive process of urban renewal is of very recent
origin. The term urban renewal is a broad one which includes not only redevel-
opment but other areas of action too. This new approach, which is now widely
accepted and used in many countries, has a broader scope. There are three es-
sential elements of urban renewal which were clearly defined by the International
Federation for Housing and Planning Seminar on urban renewal held in the Hague
in 1958. The essence of the definitions is as follows:

1) REDEVELOPMENT is applicable to areas in which buildings are gener-

ally in serious deteriorated condition, or in which arrangement of build-
ings and general layout of the area are such that the area does not, and

cannot, provide satisfactory living conditions or opportunity for sound

economic activity, as the case may be. Redevelopment operates on a
project basis, that is, it is undertaken in a specifically designated area;
but the plan is related to other areas and the city in totality.

2) REHABILITATION is applicable to areas in which buildings are gener-
ally sound in structural condition but have deteriorated because of neg-
lect of maintenance (including repair and necessary periodic replace—
ments, such as of roofing and installations having useful lines of less
duration than that of the buildings to which they are appurtenant), or in
which there are conditions that are likely to cause such deterioration.
As with redevelopment, rehabilitation is operated on a project basis,
that is, the measures of the rehabilitation are undertaken within a lim-
ited and specifically designated area.

3) CONSERVATION is applicable to areas of sound quality in which build-
ings are kept in good physical condition by means of proper maintenance.
It consists, in general, of the protection of the quality of such areas by
preventing the occurrence therein of all kinds of conditions that have re-
sulted in deterioration and obsolescence in redevelopment and rehabili-
tation areas. The protective measures should be a part of the normal
operations of competent municipal administration, and should be in use
throughout the city - including areas that have been redeveloped or re-

habilitated. 1
All the three components constitute the present concept of urban renewal

under which attack is made on a city-wide basis and effort is directed at arresting

 

1Marshall J. Miller (ed. ), New Life for Cities Around the World , Books
International, New York, 1959, p. 11.

 

7
the various degrees of blight without further deterioration.

More divergence of opinion appears to exist on the question of the relative
importance and roles of each of these three urban renewal measures. The im-
portance of conservation is rather obvious and causes little disagreement though
this aspect of renewal receives least attention. An important role for redevelop-
ment is generally also agreed on. Even when the legacy of bad or obsolescent
development inherited from a past age with different standards is eradicated, the
forces producing obsolescence in urban areas today will make redevelopment a
continuous necessity. There is less agreement on the role to be accorded to re-
habilitation. In some countries, as for example Belgium and Czechoslavakia, it
is held that any appreciable improvement in urban conditions can be achieved
only through redevelopment. As a corollary to this, it is thought by a substantial
body of opinion that rehabilitation is actually a hindrance to redevelopment. In-
vestment in repairs and modernization of considerable amounts of capital which
must be amortized may delay redevelopment, and the presence of isolated new
structures may make comprehensive redevelopment difficult at a later stage.

On the other hand, the scale of the renewal problem in some countries and the
tendency for the rate of social, economic and technical development to increase
may make the redevelopment in the near future of every obsolescent or deter—
iorated area economically or physically impossible. Some improvement may,
however, be desirable in the meantime to bring living and working conditions to
a reasonable level. Rehabilitation, therefore, is an essential element of the
overall process of urban renewal. All the three elements have a definite bearing
on the overall structure of the community and must be carried out simultaneous-

ly for effective results.

'With the broadened renewal approach and strong official support many
countries of the world are now engaged in massive urban renewal activity. The
United States has the most comprehensive program whereas of June 30, 1963, a
grand total of 1, 556 projects of various types of urban renewal had been approved
in 743 cities, involving federal grants at slightly more than 3, 705 million dollars.
It is in this country that, in addition to the removal of physical blight, efforts
are being made to attack the social problems of the slum dwellers which is of-
ficially referred to as "Social renewal. " Studies of various kinds have indicated
that this aspect is quite important in improving the living conditions of the peo—
ple of deteriorated areas. The result is that renewal plans are prepared on the
basis of physical, social, and economic problems and their implications. The
considerable importance being given to the social problems has further broad-
ened the total concept of urban renewal.

Every society or country has some peculiar circumstances which must be
carefully considered before applying any solutions, but the fundamental concepts
remain the same. The concept of urban renewal defined by the International
Seminar at the Hague has general applicability, but, of course, means to achieve
such goals will differ from country to country. West Pakistan is no exception in
this regard. Some small scale redevelopment schemes have been undertaken
here, but the attempt of this study is to emphasize the importance of a broader
approach to urban renewal as described earlier and to suggest possible means of
effectuation. To do so, a thorough understanding of the social, political and

economic characteristics of the people of West Pakistan is necessary.

CHAPTER [I

THE LAND AND THE PEOPLE

Owing to the persistent demands of the Muslims for a separate homeland
in areas where they were in majority, the Indian sub-continent was divided into
two states. From this partition Pakistan emerged on the world map as an inde-
pendent sovereign state on August 14, 1947. Pakistan consists of two parts,
East Pakistan and West Pakistan, which are separated from each other by about
1, 000 miles of Indian territory. For administrative purposes, these two parts
also form two provinces which are, in turn, governed by a federal government.
The two provinces are quite different from each other as regards landscape,
geography, climate and some other important aspects. Because of these differ-
ences, these two territories should be studied in different frameworks, for so—
cial and economic development. For this reason, this study is confined to West
Pakistan.

The Land
1. Geographical Location:*

West Pakistan has an area of 310, 403 square miles which is 84. 9 percent
of the total area of the country. It touches the Himalayan foothills and the Hin-
dukush mountains in the north. It is separated from Russia by a narrow stretch

of mountain ranges, and extends from the Pamirs down to the Arabian Sea. To

 

*See map on page 11.

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the West are Afganistan and Iran, while in the South and East it is bounded by
India.

2 - Topography:

 

West Pakistan presents a variety of topographical features. The north and
northwestern areas are rugged and mountainous. The central part consists of
plains and fertile fields with an extensive network of irrigation systems. This
is the most heavily populated part of West Pakistan. South and Southwestern
Pakistan is mostly desert and barren land with few scattered plains where culti-
vation or habitation is possible.

3- Climate:

In West Pakistan the climate is continental. On a summer's day the tem-
perature may go as high as 1200F. and may not fall below 90°F. at night. Dur-
ing the cold weather, while the maximum temperature on a calm and clear day
may touch 75°F. , it falls almost to the freezing point at night. Along the sea
coast the climate is fairly hot in summer and mild in winter. There are four
well defined seasons, but autumn and spring are of exceptionally short duration.
Most of the rainfall occurs during the latter half of summer, and the winter sea-
son is generally dry with short and infrequent spells of rain during December

and January.

The People

 

Since planning is directly concerned with people, their characteristics
must be taken into account in dealing with any considerations of development.
The understanding of the political structure of a country provides the framework

in which the planner has to fit his plans for successful implementation.

12

1 . Government Structure:

 

The structure of government in Pakistan consists of the following three

levels.

(a) Federal: Has a strong, presidential system of government. The
President is elected by an electoral college consisting of 80, 000 members (basic
democrats) who represent the whole country. They also elect the members of
the National Assembly which is the Supreme body for enacting laws. The Presi-
dent is assisted by a council of Ministers who head the different departments.
Planning of all kinds in the country is guided by the National Planning Commis-
sion which allocates the resources and formulates policies and plans. This body
is headed by the President and is composed of experts in every aspect of econ-
omic, social and physical development.

(b) Provincial: The chief executive of the Province is the Governor
who is appointed by the President. The power to enact rests with the Provincial
Assembly which is an elected body. The Governor is also assisted by a Council
of Ministers who supervise the different departments. Policy formulation is us-
ually done by the permanent staff of the department concerned which is headed
by a secretary. In the present set up, the Planning function comes under Com-
munication and Works Department in We st Pakistan.

(c) E9111; All the cities and towns have some sort of home rule.
The legislative body consists of elected members whose authority is limited by
provincial enabling acts. These local bodies do not have wide powers of taxa-
tion and in many cases the final approval of the plans must be obtained from Pro-

vincial Government which maintains a separate department of local bodies.

13

The local governments are offered grants and loans by provincial and fed-
eral governments for the execution of their projects. With the exception of Ka-
rachi and Lahore, no other municipality has a separate department of planning.
The Provincial Department of Planning assists in this respect. The land is us-
ually owned by private persons, and any level of government can acquire land
through purchase. No information is available regarding the purchase of raw
land for future development or other land policies.

2. Social Characteristics:

 

West Pakistan inherited one of the oldest civilizations in the world . There
were cities and towns even in 2500 B. C. , as for example Harappa. The follow-
ing are some of the social characteristics which relate directly or indirectly to
planning activity of any kind.

(a) Population: "The population of West Pakistan in February 1961
was assessed at 42. 9 millions, or 45. 7 percent of the total population of Paki-
stan. "1 There has been a growth of 27 percent since 1951 as indicated by Table 1.
It is also clear from the table that most of the population is rural, but the urban
population is concentrated in big cities thus posing many problems for admini-
strators, engineers and planners. The gross density for West Pakistan is 138
persons per square mile which is higher than the density in many of the countries
of the world.

Today, West Pakistan is predominantly an agricultural land and for this
reason the large share of its population is rural. However, there is a rapid

trend toward urbanization which will have increasing significance in the years

ahead.

 

1Pakistan Census Commission, Population Census of Pakistan: 1961, p. 18.

 

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15
(b) Size of the Family: Generally speaking, there is an extended
family system prevailing in West Pakistan whereby even more than three gener-
ations might be living in the same house. The following table shows the number
of persons in families of West Pakistan.

This joint family system provides economic security for its members be-
cause many of the family functions have not been transferred to other institutions,
as in the West. This family structure is under change and, with the wave of in-
dustrialization, the nuclear family is emerging, but it will take a long time be-

fore an even pattern of this type can be seen throughout Pakistani society.

TABLE 2

The Family Size in Urban Areas of West Pakistan

 

 

 

 

Families by Number of Persons/ Family
Total 10 and Ave.
Families 1—3 4-6 7—9 over Family

West Paki-
stan (urban
area) 1, 632, 590 589, 551 657, 803 314,120 71,116 4. 6
Lahore 211, 252 70, 419 84, 023 45, 728 11, 082 4. 9
Karachi 333, 781 132, 546 130,617 57, 721 12, 897 4. 4
Lyallpur 75, 794 26, 343 31, 777 14,384 3, 290 4. 7

 

 

 

 

 

 

 

Source: Census of Pakistan - Housing 1960, Vol. 10.

 

The consideration of family size is important for many phases of planning
activity. Overcrowding is considered a contributing factor toward slum condi-
tions, and overcrowding therefore, is directly related to the family size. In
most of the cases, perhaps, a standard of the average family has to be used for

any planning purposes.

16

(c) Family Interrelationship: Most of the families still have old tra-

 

ditional ties which produce many kinds of behavior in everyday life. There are
strong ties among the members of the family, and strong respect for parents by
children. The father is usually the strong leader and master of his family. Edu-
cation of children, their feeding and lodging is considered the sole responsibility
of the parents. In many cases, the father may be the only income earning mem-
ber of the family with all others dependent on his earnings. The reason for this
being that most of the women are simply housewives.

Contrary to western societies, it is not necessary that a new householdwill
be created with every marriage. The newly-wed couple usually resides with the
husband's parents for a reasonably long time. This extended family structure
has serious implications for improving housing conditions.

This family structure which forms a single cohesive unit, cooperating and
sharing the output which comes from the work of the father and sometimes mother,
and children, creates frustration and conflict between the children and parents.
Because of this conflict there is an emerging trend toward the separation of new-
ly wed young people at an earlier stage. This new trend will bring a demand for
housing accommodations of a different kind.

((1) Religion: Religion is a 'key ingredient' of the motivational and the
value content of any culture. It also has its conceptual aspects which usually are
embedded in the people. Almost all religions influence their members to behave
in certain ways, ethically and morally. The people of West Pakistan are gener-
ally more religious-minded than the people of many other countries, so the in-

fluence of religion on their lives is more marked, a factor which must be taken

into consideration for any effective social development.

17

The majority of Pakistani people are Muslims although the followers of
Christianity, Hinduism and Bhudism are also present. As observed by the author,
there is a tendency for these religious minorities to group themselves in certain
sections of big cities, but there is no concrete information available on this pat-
tern. Islam, the religion of the majority, prescribes a complete code of ethics
for its followers. Its influence on the way of living is so distinctly marked that
it cannot be ignored in dealing with the planning problems of these people. The
strong advocacy for privacy, particularly for women, is a significant factor in-
fluencing, among many others, the layout of housing units and their relationship
to the neighborhood in which they are located. Such a consideration can entirely
change the design concept regarding any development scheme.

(e) Literacy: The people of West Pakistan have a high rate of illit-
eracy. It is much higher in the rural areas as compared to urban areas, but,
even in big cities, the situation, as of today, is not very encouraging. Table 3
gives the figures for some selected cities of West Pakistan.

This high rate of illiteracy, obviously, poses a difficult problem of com-
munication because ahnost all the modern media require some level of formal
education for effective comprehension of communication. Even an understanding
of the commonest problems can be difficult for illiterate people so their indiffer-
ent reaction toward planning process, in general, or toward urban renewal, in
particular, can be well imagined. In such a case citizen involvement and parti-
cipation which is necessary for effective undertaking of renewal activites is very
difficult. Although illiteracy can be an obstacle to effective citizen participation

in the planning process, the progress is advancing educational achievement in

TABLE 3

Literate Persons in Selected Cities

 

 

 

City Population 1961 Literate Persons Percent
of pop.
1. Lahore 1, 296, 477 423, 863 32. 69
2. Karachi 1,912,598 636, 296 33. 30
3. Lyallpur 425, 248 109,551 25. 76
4. Multan 358, 201 76, 666 21. 40
5. Hydrabad 434, 537 91, 918 21.20

 

 

 

 

Source: Population Census of Pakistan: 1961, District Census Reports.

 

Pakistan as a result of high priority governmental programs and offers great pro-
mise for removing this obstacle. An important target set for 1985 is "the achieve-
ment of literacy for the entire population of the country. "1

(f) Languages: There are many languages spoken in different regions
of West Pakistan. Though most of the people understand and speak the national
language, Urdu, yet the regional languages have a serious impact from a plan—
ning point of View. In major cities there might be a tendency of the people speak—
ing the same regional language to group together. This grouping, again, presents
a problem of communication whereby a barrier can be perpetuated between com—
munal groups. The implications of this social characteristic is important while
carrying out detailed social studies, particularly investigations involving inter-

views.

 

1Harvard Advisory Group, Long-Term Perspective for the Pakistan Econ-
omy 1965-1985, p. 8.

 

19

3. Economic Characteristics:

 

Pakistan came into existence in the face of many enormous political, so-
cial, and economic problems. Its economy at the time of independence was pre-
dominantly agricultural and there were very few organized industries. The non-
availability of capital and technical know-how were among the main obstacles.

In today's world, a reasonable pace of industrialization has to be maintained for
achieving a sound economy. The government of Pakistan paid attention to this
aspect in the very beginning and the industrial output has increased six times.
Considerable progress has been made in other areas of the economy, too, but
still the general picture is not very good in comparison to other countries around
the globe.

"The national income and per capita income of Pakistan are one of the low-
est in the world. "1 As indicated by Table 4 the per capita income in 1962-63was
Rs.2592which is only Rs. 19 more than the figure in 1949-50. This nominal in—
crease in per capita income has been due to the rapid increase in population and
a slow rate of economic growth. However, with significant changes in admini-
stration, the rate of economic and social development has been accelerated con-
siderably. It is expected that "if the current rate of development is maintained,

3

the per capita income will be doubled by 1985. "

(a) Income Distribution: The per capita income is, understandably,

 

higher in the cities as compared to the rural areas because of the differences in

 

1Govermnent of Pakistan, Pakistan—Basic Facts, p. 104.

 

2Rs.4. 79 = $1. 00
Rupees , = Rs.

3Harvard Advisory Group, gp. 9113., p. 7.

20

TABLE 4

Growth of National and Per Capita Income

 

 

 

(Year) National Income Population Per Capita
(M11110n Rs. ) (Millions) Income Rs.
1949-50 17,909 7, 465 240
1950—51 18, 623 7, 645 244
1951-52 18,488 7, 898 234
1952—53 19,023 8, 083 235
1953-54 20, 177 8, 232 245
1954—55 20,343 8, 379 243
1955—56 20, 086 8, 524 236
1956-57 21, 375 8, 677 246
1957-58 21,471 8, 842 243
1958-59 21,858 9, 013 243
1959-60 22, 738 9, 190 243
1960-61 23, 559 9, 372 251
1961-62 24, 956 9, 561 261
1962-63 25, 231 9, 757 259

 

 

 

 

Source: Government of Pakistan, Pakistan - Basic Facts, p. 105.

opportunities available .

 

Government

Industry

Commercial Establishments

And a variety of others

The large employers in big cities are typically;

21
Table 5 presents the distribution of population by economic categories for
West Pakistan as a whole and some selected cities within it.
The central statistical office in Karachi collects data on industrial workers
of some urban centers in West Pakistan. This is discussed under the following
section on "expenditure distribution."

(b) Expenditure Distribution: On the basis of retail prices, the cen—

 

tral statistical office of the Government periodically computes cost of living in-
dices. The following table gives the average family income of workers surveyed

and the group weights.

 

 

 

 

GROUP WEIGHTS
Average .
. Fuel & House Clothing .
C 1ty Monthly Food Lighting Rent Wear M1 sc .
Income
Karachi Rs. 103/- 57.96 5.06 5.44 7.71 23.83
Lahore Rs. 83/- 59.41 9.61 5.64 10.55 14.79

 

 

 

 

 

 

 

For comparison of cost of living over the last 13 years, Tables 6 and 7 give
figures for industrial workers and government and commercial employees.

It is clear from the data that the cost of living has been rising while there
has not been a significant increase in per capita income. This means that the
contribution by people toward any development work is not possible because of
their poor economic condition. Therefore, it is almost entirely up to the govern-

ment to finance and undertake any renewal projects.

22

 

 

 

.9... 532.5 .mofimfipflomnwno owaoeoom .33 ”emumgmm Ho .3950 sowamfismom ”monsom

m. .3 8.2. S .. mm .3 8. a.
«ma .3... OS .2... wow .m @832 as .3... .02 .3333
E .8 mo .2 mm... 2......“ 8. as
m... as... .. a... .wa mam ... as 63 was .44.. .. 82 £023.
.2: was... 3 .. so .m... 8. as
New .mmm SN 4.... mm... .mm a... .8... 5.. .33 .. .oz 82.3
S .3 .5 .m. 2 .2 mm .3 so. as
So 63.3 «3...... .m o... .8...» .3... .43 .m. 3.13.13 .oz 535.... .83
mmmwmcwwflwv 233039.. on 52% $3 .3. no

mWohuO. :oz 3. . < 130m. sofiflsqom A QH

 

 

moEO @3028 no“ moflmzoaowpano ueofizoaam

m Manda.

23

TABLE 6

Consumer's Price Index for Government and

Commercial Employees at Karachi
Base 1956 == 100

 

 

 

Clothing Housing

Year General Food & and

Footwear Operation Misc .
1950 90 92 77 91 90
1951 91 94 80 91 92
1952 96 103 79 93 92
1953 98 102 97 95 94
1954 98 100 96 95 96
1955 97 97 93 96 97
1956 100 100 100 100 100
1957 107 109 119 103 100
1958 110 114 130 100 102
1959 106 114 107 98 98
1960 115 125 125 101 99
1961 116 131 122 102 96
1962 116 131 121 102 97
1963 121 140 121 102 100

 

Source: Pakistan-Basic Facts, p. 53.

 

24

TABLE 7

General Cost-Of-Living Indices
For Industrial Workers of Two Large st Cities
(Base: April 1948-March 1949:100)

 

 

 

Center
Year Karachi Lahore
1948—50 average 97 90
1950-51 96 82
52 100 93
53 107 99
54 111 101
55 107 96
56 107 94
57 113 102
58 123 111
59 118 103
60 125 111
61 127 118
62 130 124
63 128 120

 

Source: Pakistan-Basic Facts, p. 53.

 

Conclusions

 

The presentation of this chapter has been focused on an examination of some

of the political, social and economic problems as they might relate to the develop-
ment of any urban renewal policies and program. There seem to be national limi-
tations of considerable nature, but the need for such a program cannot be denied.
The economic or other factors do influence the scope of any such program and,

accordingly, a compromise can be made.

CHAPTER III

THE NEED
Man has made unprecedented progress in industry, education, and the sci-
ences, but the simple refuge affording privacy and protection against the elements
is still beyond the reach of most members of the human race. "From the ear-
liest days of civilization, man had been able to create a home with his own hands.
Now, for the first time, this is no longer within his competence. The hovels he
lives in are worse than those he built when he emerged from the cave. Indeed,
the caves still in use are often sounder shelters with better roofs and more pri-
1
vacy than the slums of some Asian cities. "
There cannot be any universal definition for a slum because of the many
local considerations which must be taken into account. The noted planner, C. A.
Doxiadis, has developed three categories of homeless people who create the need
for slum clearance in underdeveloped countries:
(a) "The virtually homeless people - the ones who
are squatting in the cities without even a tem-
porary roof over their heads. These people
are living and are very often dying, right in
the streets of major urban centers.
(b) Inhabitants of shacks - temporary houses
known as "jugis. " The conditions in these
areas have grown up without any plan, with-
out any support for the people, who have used
temporary materials in temporary small con—
structions without any community facilities,

water supply, sewerage and quite often on
land which is not owned by them.

 

1Charles Abrams. Man's Struggle for Shelter in An Urbanizing World, M. I. .T.
Press, Cambridge, Mass. , 1964, p. 8. ,

 

25

26
(c) Inhabitants of old, decaying houses usually in
the oldest parts of the cities, quite often in the
ancient historic cities of the world. This third
category is the one which corresponds most
the American notion of slum dwellers. "1

InWest Pakistan this classification presents a picture most representative
of the present general condition of housing in major cities with the exception of
some new developments. In addition to sound shelter, there are such necessary
elements of life as pure water supply, sanitary sewage disposal system, electri-
city, an effective transportation system, adequate educational and recreational
facilities, open spaces, and general, overall, environmental amenities. The ab-
sence or lack. of any of these facilities is considered a contributing factor toward
slum conditions.

Commercial and industrial areas also can become blighted functionally and
structurally, or both. It is possible for major industries to take care of them-
selves because of the resources at their disposal, but the quality of commercial
areas must be considered along with that of residential environment. This joint
consideration is particularly important in West Pakistan where there is exten-
sive commercial ribbon development and complex mixtures of land uses. Since
all the physical elements of a city are interdependent, so there must be a com-

prehensive approach to overall community structure, integrating residential,

commercial, industrial, and circulation land uses.

Slum Formation and Causes
Slum conditions typically develop from a combination of many possible fac-
tors. It is usually thought that the low economic plight of slum inhabitants is the

only cause, but while economic problems are ever present, they are more often

 

10. A. Doxides. "Slum Clearance and Housing in Underdeveloped Coun-
tries," Ekistics, Vol. 16, p. 64.

27
symptoms of poor environment rather than causes. In West Pakistan, the follow-
ing additional factors are responsible for the deterioration of the living environ-
ment.
1. Partition: In 1947, when the subcontinent of India was divided into two inde—
pendent sovereign states of Pakistan and India, millions of people migrated. The
Muslims in India headed toward Pakistan and, conversely, Hindus migrated to
India. This was one of the mass migrations unprecedented in human history.
The vast movement of population created social frictions which sometimes ex-
ploded into violence, and a substantial amount of damage to housing units resul-
ted from this turmoil. The housing inventory was reduced to a great extent,
thereby increasing an already acute shortage. Most of the refugees poured into
the large urban centers in the hope of better opportunities. Such sudden concen-
tration of masses of people inevitably resulted in hopelessly overcrowded condi—
tions. For a young nation like Pakistan which was faced with many problems
requiring immediate attention, this state of affairs was impossible to cope with,
and the rapid development of slums was seen in almost every city of West Paki-
stan.

2. Rapid urbanization: There has been a growing trend of urbanization in the

 

world, particularly in the twentieth century. Every country is faced with a host
of problems as a result of this phenomenon, but they become more acute when
the pace of industrialization does not keep up with urbanization. "At compar-
able levels of urbanization, the developed countries of today had a correspond-
ingly greater proportion of their labor force in non-agricultural occupations. In

that sense, Asia can be said to be relatively over urbanized. The pace of

28
TABLE 8

Percentage of World Population
Living in Cities

 

 

 

Year Cities of Cities of
20, 000 or more 1004 000 or more
1800 2. 4 1. 7
1850 4. 3 2. 3
1900 9. 2 5. 5
1950 20. 9 13. 1
2050 90. 0 (estimated)

 

 

 

Source: Kingsley, Davis. "The Origin and Growth Urbanization in the World, "

American Journal of Sociology, Vol. LX, March 1955, pp. 429-437.
urbanization, especially in the last decade, has far exceeded the growth rate of
economies of Asia. "1 Although the turmoil caused by the partition of India has
subsided, the forces of urbanization are perpetuating and extending the original
chaos in living conditions in the cities of West Pakistan. Actually there are two
principal factors which are contributing to the rapid rate of urbanization; namely,
rural to urban migration and natural increase.

(a) Rural to Urban Migration is increasing at a rapid rate. The

 

main causes are the "push" factors and the "pull" factors. As agriculture can
no longer support the ever increasing population, the surplus population has to
move to urban areas to seek means of living. The pull factors include relative-

ly better opportunities of employment in government, business, and industries,

 

1 .
"Urbanization in Asia and the Far East, " Joint UN/UNESCO Seminar 8-19
August, 1956, p. 9.

29

improved facilities of education, health and recreation and other factors of city
life. As the majority of people of West Pakistan are still dependent on land, the
push factor plays a greater role. "The immigration from the country to cities,
in most cases, is without any plan, the primary cause being just to secure any
means of livelihood to keep the body and soul together. "1 This rural-urban mi-
gration, which is progressing at a high rate, has tremendous impact on the lim-
ited facilities available in the cities, which cannot keep up with the demand, thus
resulting in increasingly overcrowded conditions.

Rural versus urban way of life: Another dimension to this migration isthe

 

significant difference existing between the urban and rural way of life. The pace
of life is changing fast in the cities, and people in the villages are left behind.
As always, it is the city which is "the initiator, the innovator, the source of so-
cial and cultural change; whereas the country is the preserver, the conservator
part of the nation which clings tenaciously to the customary ways of doing things."
This observation is true about every country, but is very significant in the
case of Pakistani society which is under rapid change from a traditionally agri-
cultural society to an industrial one.

The recognition of this gap in the way of life of an urbanite and villager is
very necessary because this has a direct impact on slum behavior. The recently-
arrived rural migrant does not perceive the urban artifacts the way an urbanite

does because he has not been exposed to them. This attitude becomes still

 

1
Anwar Jafri. "Problems of Urbanization in Pakistan, " A Case for City
and Rmflmal Planning, p. 9.

2Lynn Smith. "The City and Social Change, " The Sociology of Urban Life,

Smith and McMahon, p. 780.

 

 

30
aggravated in the case of a high illiteracy rate as in West Pakistan. The rural
migrant who has been brought up in a different social environment with a very
close relationship with the family becomes a misfit in the urban culture. This
cultural shock disrupts his behavior, at least in the beginning, and while strug-
gling for economic opportunity, he fights this social change. In this different
set up, his perception of objects cannot be the same as that of an urbanite. This
social behavior contributes to social blight which in turn contributes to environ-
mental blight - a sequence which the planners must take into account.

(b) Natural Increase: The second factor responsible for rapid ur-

 

banization in West Pakistan is the natural increase of population because of higher
birth rates and the decrease in the mortality rates as a result of the technologi-
cal progress made in arresting epidemics, controlling diseases, and minimiz-
ing other health hazards. Despite the efforts on the part of the government to
introduce family planning, this trend is continued. A strong belief in religion
is considered opposed to family planning; however, with increased literacy and
better methods available for birth control, there will be an increased acceptance
on the part of the people. However, even on the basis of a controlled birth rate,
it has been estimated that "the population of West Pakistan will increase from
46.20 millions in 1960 to 84. 50 millions in 1985. "1

"The urban population of Pakistan recorded an increase of 430 percent
over the last sixty years when it increased from 2. 3 millions (5. 1 percent of the
total) in 1901 to 12. 29 millions (13. 1 percent) in 1961. While the country's pop-

ulation increased by 2. 3 percent per year (from 75. 8 millions in 1951 to 93. 8

 

1Harvard Advisory Group, £99. git, p. 58.

31
1
millions in 1961), the urban population increased by 5. 7 percent. " The popula-
tion of cities of 100, 000 or more (which contain more than half of the urban pop-

ulation) increased more than 7 percent per year. Of the nation's 16 cities with

TABLE 9

Population Increase in Cities of 100, 000
or more population 1951-61

 

 

 

 

1951-61
Karachi 1, 064,557 1, 912,598 79.9
Lahore 849, 333 1,296,477 52.6
Lyallpur 179, 127 425, 248 137. 4
Multan 190, 122 358,205 88.4
Rawalpindi 236, 877 340, 195 43. 4
Hyderabad 241, 801 434, 537 79. 7
Gujrauwala 120, 852 196, 154 62. 3
Sialkot 167, 506 164, 346 1. 9
Peshawar 151, 434 218, 691 44. 4
Queta 83, 892 106, 633 27. l
Sangodha 78, 447 129, 291 64. 8
Sukker 77, 026 103,216 34.0

 

* Excluding suburbs.

Source: Pakistan Census Commission "Population Census of Pakistan 1961,
Final Tables of Population - Sex - Urban - Rural - Religion, Karachi,

1961, p. 18.

 

1Amwar Jafri, Loc. g, p. 11.

IRAN

32

MAJOR CITIES OF WEST PAKISTAN
Population More Than 100, 000

 

ARABIAN SEA

(1961 Census)

0 Quetta

Sukkur O

O Hyderabad
0 Karachi

Fig. 2

J UMMUN
&
KASHMIR
O Peshawar
Rawalpindi O
Sialkot 0
Guj ranwalaO
Sargodha O Lahore
Lyallpur o
O Multan
INDIA

33

100, 000 or more people, 12 are in West Pakistan. According to certain esti-
mates, "urban population of We st Pakistan is likely to increase from the exist-
ing 22 percent to 52 percent of the total population of the Province by 1981. "1

It is clear from Table 8 that some of the cities have experienced a tremen-
dous population increase in the decade of 1961—61. When translated into the fa—
cilities required such as housing, jobs, schools, hospitals, parks and open
spaces, this rate of urbanization becomes gigantic. Using all the resources
available to it, no city can keep up with the mounting requirements. It has al-
ready been pointed out that the economic level of the people is very low, which
adds new dimensions to the total problem. In such a situation, overcrowding of
facilities is very likely to result in slums. The 52 percent of the total popula-
tion which will be living in urban areas by 1981 means that a large number of
persons will be pouring into existing urban centers along with new centers which
will be developed. So this urbanization dimension will have to be handled in a

logical, systematic manner, and the existing cities will, inevitably, have tomrn

to renewal activities.

Additional Factors

 

In addition to the factors just cited, there are others which contribute sig-
nificantly to the need for urban renewal action. Principal among these are the
following:

Land Limitations:

 

Nature has provided man with a vast resource heritage, but the gifts of

nature are not scattered evenly. Often as not, they have limitations which tax

 

1West Pakistan, "Transportation Survey of West Pakistan, " Report by the
Department of Army, Office of the Chief EngineerL 1962, Washington, Vol. II,
p. 42.

 

 

34

the ingenuity of man. In his age—old effort to find, develop, and utilize new land
resources, man has often found that he must cope with the problems of uneven
resource distribution and unfavorable climate, topography, and location. These
limitations definitely restrict the area suited for particular uses. "Fortunately,
however, man has found that the purposes for which he uses land vary almost
as much in their need for particular land characteristics as do the characteris-
tics of the resource base with which he works. Thanks to these happy circum-
stances, most of the earth's surface has potential value for some use or group
of uses, although the total area suited for any one use is often quite limited. "1

With the particular development problems of a given society, there is com-
petition among different land uses, but the most talked of competition comes
with the encroachment of residential, recreational, and other land consumption
uses on areas used for production purposes . Much of the sprawling outward
growth of cities comes at the expense of areas once used for agriculture. In
West Pakistan this problem becomes more acute where the food production is al-
ready low and increases in population demand higher agricultural output. Even
the countries with vast resources available to them are concerned with this en-
croachment. "Exploitive policies and the encroachment of consumption uses on
lands that could be held for long-run production purposes are often tolerated by
society, particularly when it enjoys a plentiful supply of land re sources. But as
society faces the problem of increasing competition for the use of its limited re-

sources, it sometimes finds it necessary to assign higher priorities to some

 

1Raleigh Barlowe. Land Resource Economics, Prentice-Hall, Inc. ,
Englewood Cliffs, N. J., p. 23.

35

uses than to others. "1

In the light of these observations, it is necessary that, on the one hand,
the Government of West Pakistan take the necessary measures to preserve the
precious agricultural land and on the other hand, the land already in urban areas
must be utilized to its maximum potential. This might mean higher densities
and compactness of the total urban development. One tool of achieving this ob-
jective will be through urban renewal activity whereby a healthy environment can
be created. The land limitations may also force cities to expand in vertical di—

mensions along with the limited horizontal expansion.

Housing Condition:

 

With the population explosion andlow purchasing power, the majority of
the people in urban areas has to live in substandard housing. The excessive
pressure from urbanization has also resulted in the breakdown of an adequate
level of municipal services. In certain sections of the city there might not be
any municipal service available at all. This situation provokes health problems
and a need for establishing minimum housing requirements. The lack of ade-
quate housing and building codes has allowed deteriorated structures to accumu-
late without any limitations.

The problems of utilities and housing are more acute and complicated in
the case of temporary shelters called "jugis. " These developments have taken
place sometimes in the central parts of the cities without any plan. There is
every possibility that, by undertaking redevelopment, the same number of peo-

ple might be accommodated within the same space, but with better living

 

1Ibid., p. 81.

36
environment. Some such schemes have already been tried in Karachi and La-
hore. So it means that urban renewal is inevitable if housing conditions are to

be improved on a city-wide approach.

Traffic Problems:

 

The cities of West Pakistan are very old as compared to American cities
and in terms of circulation functions, they developed on a pedestrian scale. With-
in a short period, the cities in the United States have experienced inadequate
transportation facilities because of urbanization and technological inventions,
particularly the automobile. The increased ownership of the car in the United
States has resulted in many advantages to the public, but it has posed tremen-
dous problems to planners and administrators. In an effort to accommodate an
increasing number of automobiles, more and more highway construction has been
completed in recent years. Many urban renewal projects have been undertaken
as a direct impact of automobiles. Even in the European countries, a prime
reason for urban renewal is cited as the traffic problem.

The streets of cities in West Pakistan which were designed for cart, bicy-
cle and pedestrian have become scenes of increasing congestion. This situation
not only results in the waste of time, but also becomes a major cause of acci-
dents. To complicate the problems of traffic congestion further, the automo—
bile has "sneaked" into this slow-moving mixture of traffic. The streets are not
adequate to permit even the movement of automobiles in many circumstances.
The recent trend indicates that car ownership in West Pakistan is on the increase

which means that certain traffic management measures will have to be adopted.

Apart from the usual measures to alleviate traffic congestion such as one-

way streets and parking meters, there will have to be substantial changes in

37
street patterns which will require construction and reconstruction. The changes
may include many familiar measures such as widening existing city streets, lay-
ing out parallel streets, enlarging plazas, installing traffic circles and other
channelling devices, and building urban highways. In addition to movement of
automobiles, arrangement has to be made for the storage, particularly in the
central parts where land is not easily available. This problem of parking is tied
in with the Central Business Districts which have to be maintained by providing
all the necessary facilities.

It is desirable to separate the slow—moving and the fast—moving traffic; but
separation cannot be achieved everywhere because of economic reasons. Al—
though the automobile is increasing in usage, it will never be the means of trans-
portation for the majority of the people for a long time. Accordingly, each city
in West Pakistan must have an effective mass transit system. The whole de-
mand for moving people and goods with a circulation system requires a compre—
hensive approach whereby a proper balance will be maintained for provisions of

facilities to handle all types of movement.

Recreational and Educational Facilities:

 

Cities are built for the fulfillment of people's needs and desires as far as
it is possible. Education of children and provision of recreation places are es-
sential in any community. In a country like Pakistan where an educational revo-
lution is underway, the provision of educational facilities becomes particularly
important. Even the mere provision of these facilities is not sufficient because
their location has to be related to housing development. It is important to rec-

ognize the time or distance involved in reaching these facilities. Certain standards

38
can be established on the basis of type of facility, density and economic limita-
tions.

Recreation facilities and other open spaces are also essential for the resi-
dents of a city, irrespective of age. ”It has been increasingly recognized that
recreation is necessary for physical, mental, emotional, and moral health and
well-being not only of the individual but of society. "1 Recreation is also one of
the important factors that can help to reduce some of the causes of social malad-
justment and to prevent anti—social action before it occurs because recreation
provides a constructive, healthy outlet for emotions that might otherwise be de-
structive. Thus to help decrease juvenile delinquency, crime, or other anti-
social behavior, the provision of adequate recreation areas is essential.

The cities of West Pakistan have a serious lack of such facilities, particu—
larly in older parts. In central sections where land is in critical supply, urban
renewal is the only answer for achieving an adequate distribution of essential ed—

ucational and recreational areas.

Property Values:

 

Extensive evidence reveals that structural, functional or environmental
blight tends to reduce the value of properties located within a specified area. In
the United States, the diminishing property value has been an important factor
justifying renewal programs. Before the initiation of national urban renewal
programs, many private efforts in renewal were undertaken because of the fact

of deteriorating property values. In the present day active program, market

 

1
Mary McClean (ed. ). Local Planning Administration, The International
City Managers' Association, Chicago, 1959, p. 251.

 

39
analysis is made to determine the effect on property values.

There is no specific data available regarding the effect of blight on proper-
ty value about any city in West Pakistan, but the existence of this fact is obvious.
Redevelopment, rehabilitation or conservation are bound to increase land values.
This economic result becomes particularly important in the areas occupied by
refugees which commonly are located in cores of the cities of West Pakistan. If
proper relocation of displaced people can be arranged, the same areas can be
used for much higher economic return probably by changing the land use to com-
merce or industry. Even a better residential development will bring about in-

crease in property values.

Conclusions

 

West Pakistan is going through a phase of rapid urbanization at a rate which
is much more than the rate of industrialization. This rate will be accelerated,
or at least maintained, for quite a long time into the future. The changing econ-
omy from predominantly agricultural to industrial is the prime reason. New
mechanized agricultural processes will make the rural to urban population move—
ment more rapid in amount and rate. The problem is more complicated because
of this migration trend toward urban centers which are already too large for ef-
fective management. Despite the Government's efforts to take some of the pop-
ulation pressure from such centers as Lahore and Karachi by controlling the lo-
cation of major industries through a comprehensive licensing system, this trend
will continue. Similar attempts in the case of London and Tokyo are good ex-
amples. This endless growth means the straining of facilities which are already

inadequate .

40

Rapid urbanization poses problems which are physical, social and admin-
istrative in nature. Some of the physical development problems of cities of
West Pakistan have been discussed under the sections of housing condition, traf-
fic problems, and educational and recreational facilities. The presence of inten-
sive mixed land uses adds to the complication of physical problems. There are
all the social problems usually characteristic of over-urbanization anywhere -
slums, gangs of hoodlums, juvenile delinquency, prostitution, vice, crime and
beggary which are but a few of the serious ones. These physical and social char-
acteristics contribute toward administrative problems for different units of gov—
ernment at the local, provincial and federal level.

The problems of larger urban centers are so complicated that greater rec—
ognition will have to be given to them. Policies for urban development will have
to be formulated which would translate recognition into positive actions within a
comprehensive approach. Urban renewal is one aspect of this total approach for
improving the living environment of cities in West Pakistan. At the present
stage it might not be possible to undertake major urban renewal projects because
of limited economic capabilities of the nation, but this limitation should not ob-
struct the way for the establishment of a basic program which can serve as an
effective beginning for a large—scale, continuing program. The country is on its
way to a better economic future so there is no reason why an urban renewal pro-
gram cannot be initiated. The main thing is that. instead of a piecemeal approach,
the whole program should be comprehensive, systematic and carefully timed.

West Pakistan is in a distinct position because many countries have devel-

oped and tried different urban renewal programs over the past twenty years.

41
Their experience can be utilized with careful evaluation to help develop a pro-
gram which can be more meaningful and useful. This consideration is the basis
of the next chapter where selected features of programs in some other countries

will be presented and analyzed.

CHAPTER IV
SELECTED EXAMPLES OF URBAN RENEWAL PROGRAMS
IN OTHER COUNTRIES

In the progress of human knowledge it is normal to share one another's ex—
periences to achieve a common objective. Man's progress in different fields is
like a chain process which is built one link after another. Every society might
be of some help to any other, and this role is particularly true for those which
have been left behind because of political constraints, economic limitations and
lack of other critical resources. For exactly the same purpose an effort will be
made to examine some important aspects of urban renewal programs as admin-
istered in countries which can provide experience for any possible program for
West Pakistan.

The choice of the countries is very limited because not very many have ef-
fective urban renewal programs. On the basis of scope, nature, and, to some

extent, the achievements so far of the programs,of the United States, Canada and

France will be so examined.

United States

 

The United States has, at present, the most extensive urban renewal pro-
gram in terms of the scale and amount of money spent. "Of the various govern-
mental programs which are directed toward or contribute in some degree to the

improvement of city environments, urban renewal is the one in which is focused

the U. S. official effort to eradicate slums and the conditions which produce them.

42

43

Other governmental programs have, of course, strong influences on renewal
planning and operations. These programs include, not only the complementary
activities, such as the provision of housing for displaced families specifically
devised to supplement and facilitate the treatment of blight with the instruments
of the urban renewal program proper, but also such vast scale operations as the
government supports for highway construction and the development of new resi-
dential subdivisions and supporting facilities. "1 The important features of ur-
ban renewal in the United States are:

The rapid population growth and urbanization forced the cities and the fed-
eral government to adopt certain measures to improve the living environment.

1. Early Federal Legislation Bearing on Slum Elimination:

 

"The federal government interest in the slum problems goes back to 1892
when it was manifested by a congressional appropriation of $20, 000 for investi-
gation of slums in cities of 20, 000 or more. "2 Federal legislative action on
slums, however, was insignificant until the great depression of the 1930's brought
federal assistance to housing. During this decade, the principal legislative
events specifically concerning slum questions were:

a. The Emergency Relief and Reconstruction Act of 1932 authorized loans
to corporations for construction of housing for low—income families,
or for reconstruction of slum areas.

b. The National Industrial Recovery Act of June '33 directed a compre-
hensive program of public works, including "construction, reconstruc-

tion, alteration, or repair under public regulation or control of low-

 

1Richard L. Steiner, "United States of America, " in New Life for Cities
Around the World , p. 177.

2Miles Colean, Loc. _c_it.

 

 

44
cost housing and slum clearance projects. "1
The United States Housing Act of 1937 which was intended "to provide
financial assistance to the states and political subdivisions thereof for
the elimination of unsafe and unsanitary housing conditions, for the
eradication of slums, for the provision of decent, safe, and sanitary
dwellings for families of low income, and for the reduction of unem-
ployment and the stimulation of business activity. "2 A prerequisite
for the federal loans was that substandard housing units would be elim-
inated in a quantity equivalent to the number of new subsidized units

provided.

2. Formulation of the Urban Renewal Concept in Law:

 

The first urban renewal laws were enacted by state representatives rather

than by the federal government. These statutes fell into one or more of three

categories:

a.

Encouragement of private enterprise through grant of certain public
powers to private corporations for land assembly, clearance and re-
development.

Placement of responsibility on municipal bodies for land assembly and
clearance.

Same as "b" except responsibility was given to local housing authori—

ties specifically as the agencies for clearance and land assembly.

The postwar period saw emphasis on a national housing effort to meet the

shortage of housing. The Housing Act of 1949 was the first legislation to combine

 

1Ibid., p. 177.

2The United States Congress, Housing Act of 1937.

 

45
public and private enterprise on a large scale in a national campaign specifically
directed at eliminating and replacing slums and blight. The law authorized fed-
eral aid amounting to $1 billion for loans and $500 million for capital grants to
communities for slum clearance projects, and its paramount emphasis was on
encouragement of redevelopment by private enterprise. The objective of the 1949
Act was spelled out as "a suitable living environment for every American family. "
A requirement was included that a redevelopment plan must fit in with a general
plan for the whole community.

The Housing Act of 1954 still broadened the perspective of urban renewal.
The major features added over the 1949 Act were:

i. The "workable" program requirement which was established as a pre-
requisite to federal financial existence for specific urban renewal projects. The
Workable Program is a community's own plan of action to eliminate existing
blight and to check the development of slums.1 The following seven elements all
must be fulfilled:

- Adoption of adequate minimum standards of health, sanitation, and
safety through a comprehensive system of codes and ordinances effec-
tively enforced.

- Formulation of a "comprehensive community plan" or a "general plan"
implying long-range concepts and including land use, thoroughfare,
and community facilities plans; a public improvement program, and

zoning and subdivision regulations.

 

1Housing and Home Finance Agency, How Localities Can Develop A Work-
able Program (Washington, D.C.: Government Printing Office, 1957).

 

46
- Identification of blighted neighborhoods and analysis for extent and in-
tensity of blight and causes of deterioration, to aid in delineation for
clearance or other remedial measure.

- Setting up an adequate administrative organization, including legal au-

thority, to carry on the urban renewal program.

- Development of means for meeting the financial obligations and re—

quirements for carrying out the program.

— Provision of decent, sanitary housing for all families displaced by ur-

ban renewal or other governmental activities.

- Development of active citizen support and understanding of the renewal

program.

The federal statute requires that localities submit their workable programs
to the Housing and Home Finance Administrator for approval and to seek period-
ic review and recertification because of the changes over the period of project
initiation to completion.

ii. Introduction of the broad, generic term "urban renewal" which changed
the emphasis from urban redevelopment only to redevelopment, rehabilitation
and conservation. This recognition brought new dimensions to the total concept.

iii. Government insurance of mortgage loans on new or rehabilitated dwell-
ings in renewal areas.

iv. Demonstration grants for experimental undertakings in urban renewal.

Proggam:

The United States conducts a vigorous urban renewal program under which

cities, in partnership with private enterprise and the Federal Government (financial

47
support), carry out urban renewal projects. "Urban renewal project" is a term
used for specific activities undertaken by a local public body in an urban renewal
area to prevent and eliminate slums and blight. Such a project may involve slum
clearance and redevelopment, or rehabilitation and conservation, or a combin-
ation thereof. In accordance with the type of project involved, it may include
acquisition of land, demolition of structures, installation of streets, parks and
other improvements and disposition of acquired land for uses specified in an ur-
ban renewal plan.

"The financial losses incurredin the process of acquiring property, de-
molishing buildings, and preparation of the land for new uses are met with pub—
lic funds. Usually one—third of such loss is borne by the locality and two-thirds
by the Federal Government, although an alternative formula is available, if the
community elects to assume full responsibility for certain costs, which permits
the Federal Government to contribute as much as three-fourths of the other costs
of the project. "1

Urban renewal, which formally was started with main emphasis on housing
only, now encompasses commercial and industrial blight which have also become

eligible for federal grants-in-aids.

Administrative Organization:

The complexities involved in the process of urban renewal demand close

cooperation of federal, state and local agencies.

 

1Steiner, g: 93., p. 177.

48
1. Federal:

The "Housing and Home Finance Agency"1 (HHFA) headed by an "Admini-
strator" has congressional authorization to carry out the major responsibilities
of the Federal Government in the urban renewal program. The approval of the
Workable Program is given by the Administrator while all the other functions
have been delegated to the Urban Renewal Administration (URA) of HHFA. There
are many other federal agencies, as shown in Fig. 1, which are indirectly in-
volved in urban renewal, but URA makes the grants for planning assistance and
helps localities prepare their programs where requested. Urban renewal per-
sonnel in HHFA regional offices advise the local public agencies and act as liai-
son between them and the Federal Government.

2. §_t_a;t_e:

The main functions performed by the state governments are authorizing local
units (1) to acquire private property through eminent domain and then sell it to
private developers, (2) to establish administrative agencies to plan and manage
urban renewal projects, and (3) to accept gifts and grants from private and other
public sources. In effect, local units are authorized to deal directly with the fed-
eral agencies, bypassing the state in all administrative and financial arrange-
ments. However, every state has some agency which is involved in an advisory
role. Some states offer financial help to the communities, as in Pennsylvania,
where the Housing and Redevelopment Division is located in the Bureau of Com-

munity' Deve10pment, Department of Commerce.

 

lUnder new legislation of 1965, this has been incorporated into Department
of Housing and Urban Development which has started functioning, effective J an—
uary 1, 1966. This new Cabinet-level Department is expected to become the cen-
tral administrative focus for a greatly expanded attack on problems of urban de—
velopment.

49
3. £03311;

"In setting up an urban renewal operation, cities are not always free to de-
cide on the type of agency to do the job. State enabling laws may specify a single
type, or there may be a choice among two or three: (1) Separate agencies, legal-
1y distinct from city administration; (11) Combined public-housing-redevelop-
ment or urban renewal agencies, legally distinct from the municipal corporation;
and (111) Municipal corporations. "1 All these arrangements can be seen in the
different cities of the United States. There are arguments in favor of and against
each of these types, but it is very difficult to make any reliable, critical evalu—
ations because the experience in most cities with urban renewal programs has
been too short, and each city has its own peculiar administrative, legal, and
policy characteristics.

All effort toward any urban renewal has to be initiated by the local agency;
therefore, it assumes an important role in the overall process. In effect, the
Federal and state governments provide administrative guidance, a critical por-
tion of the financial aid and basic legal authority to help renovate worn—out urban
areas. Local governments must provide the leadership, initiation, and follow

through for each urban renewal action.

Financing;
The sources of financing of slum clearance and urban renewal projects are
loans and subsidy payments by Federal Government and shared contributions by

local governments to defray the net losses involved in acquiring, clearing and

preparing land for new development by private enterprise.

 

1McLean, Loc. 9_i_t. p. 159.

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51

1. Federal Financial Aid:

 

The following federal monetary aids are available to localities undertaking
urban renewal:

i. for planning specific projects.

ii. as working capital to acquire and clear slum properties for redevelop-
ment or rehabilitation; and as capital grants and loans to cover two—
thirds or three-fourths of the redevelopment or renewal project costs.

iii. for developing low—rent public housing to aid in relocating displaced
families.

iv. for experimenting and developing new techniques of urban renewal op-
erations.

There are no loans or grants available for actual construction except for
public housing, but special mortgage insurance is available to encourage private
investment in relocation housing and in the provision of other housing, particu-
larly low-cost housing, in urban renewal areas.

2. State Financial Aid:

 

As mentioned earlier, the major share of financial aid comes from the
Federal Government but some states offer minimal monetary aid to the locali-
ties. The states which have this kind of arrangement include Connecticut, Illi-
nois, Minnesota, New York, New Jersey, Pennsylvania, and Rhode Island.
Sometimes, instead of financial assistance, technical, advisory assistance is

made available to the localities.

Canada

Canada has an active renewal program which is supported by all the three

levels of government. The problems encountered by this nation are not very

52
different from those of the United States, but the different political framework of

Canadian government requires solutions suitable to the local circumstances.

Origin:

Canada is a country which has received a large number of immigrants since
1900, and interest in renewal has been increasing accordingly. "The influx of
people into urban areas at such times has directed attention to the social and
health dangers attendant upon overcrowding and bad housing. Concern was first
expressed in reports to the Commission on Conservation made in 1911-14. The
average annual rate of immigration from 1910 to 1954 was 101, 357. These re-
ports led indirectly to the first remedial measures, the enactment of habitability
codes in Winnipeg and Toronto. "1 Even this early recognition of concern did not
lead to any concrete steps, and there was no headway achieved between the two
World Wars.

The country experienced a sharp increase in immigration after 1945 which
necessitated some sort of urgent legislation. Consequently, aids to redevelop-
ment were contained in the revision of the National Housing Act of 1944. The
first use of that legislation was in Regent Park North, Toronto, a large slum
clearance and housing redevelopment project started in 1947. Now Canada has

a comprehensive national urban renewal program.

Program:

The immediate objectives of Canadian urban renewal are the elimination of

slum housing and encouragement of modern commercial development. Recently,

 

1Stanley H. Picket. "Canada, " New Life for Cities Around the World, p. 74.

 

53

industrial development has also been included in the renewal program. Progres—

sively Canada has developed a program encompassing all the three major land

uses and their relationships with each other.

In determining renewal action in any area, the principal factors considered
are the provision of the master plan; the degree of obsolescence of (a) the envi-
ronment, (b) the structures, and (c) the degree of overcrowding. Generally, the
criteria for assessing obsolete structure vary from region to region, while those
for assessing environmental obsolescence are national in their application. How—
ever, factors considered in determining the degree of obsolescence in any area
include incompatible uses of land, degree of intermixture of land use, age and
condition of structures, adequacy of street pattern, adequacy of land subdivision
designs, provision of utilities, provision of social facilities, and the patterns of
building occupancy.

There are four major steps required in any urban renewal project in Can-
ada.

1. An urban renewal study of the whole municipality which must be initiated by
the local unit of government and financed jointly by the municipality and fed-
eral government.

2. Urban redevelopment study which deals with the specific areas only requir-
ing renewal action. This is also jointly financed by two levels of government.

3. Acquiring and clearing land for redevelopment for which approval, in prin—
ciple, is to be obtained from the Federal Government. The municipality has

to make an application with all the necessary data to the Federal Government.
4. Formal application for a federal contribution for acquiring and clearing land

for redevelopment. This should be accompanied by (a) social and physical

54
data of the area, (b) the rehousing plan, (0) the redevelopment plan, (d) land

disposal plan, and (e) analysis of cost.

Legi slation:

The Canadian program requires the participation of all three levels of gov-
ernment, namely, federal, provincial and municipal. The federal legislation is
spelled out in the National Housing Act of 1954, as amended in 1956. This com-
prehensive statute lays down the criteria for financial aid and the procedures in—
volved in obtaining it. Then there is legislation at the provincial level which us-
ually authorizes cities to enter renewal programs.

Legislation has to be available at a local level, under which a municipality
has power to acquire and clear real property, to dispose of land for redevelop-
ment and to enter into agreements with the provincial and federal governments
for the joint undertakingof projects. "Some aspects of municipal participation
are governed by city charters which are acts of provincial legislatures. Through-
out Canada, local government is legally subordinated to the provinces by provi-
sions of the federal constitution. "1 Cities which do not have their own charters

operate within the framework of provincial municipal acts.

Administrative Organization:

 

The three levels of government contribute to the administration of renewal

programs and the different phases involved.
1. Federal:

Any renewal with financial assistance under the National Housing Act re-

quires appraisal by the federal agency - the Central Mortgage and Housing

 

1Ibid., p. 74.

55
Corporation which is a Crown Corporation charged with the administration of
that Act. The Corporation, therefore, determines the policies and standards
used throughout Canada in appraising areas for possible renewal. The Corpor-
ation represents the Minister of Housing with whom a municipality has to enter
into a contract for obtaining any assistance.
2. Provincial:

In the Province of Ontario the provincial government may officially designate
redevelopment areas. The planning agency of the Province then determines poli-
cies and standards for area appraisal. In practice, standards employed by the
Province must be similar to those of the crown corporation, as designation by
the Province is frequently a prelude to municipal application for federal financial
assistance. Here the procedure is different from the United States because each
application has to be approved by the provincial government before submitting to
the Crown Corporation.

3. 14.29.15

The municipal council is the primary planning agency, although in the major-
ity of the larger cities, there is a secondary advisory agency known variously as
the town planning commission, planning board or planning advisory commission.
The renewal projects are initiated by the municipal council on the recommenda-
tion of the advisory agency or the technical staff. There is no single department
or agency at the local level responsible for the initiation and completion of the
projects, but all the municipal departments cooperate. For example, in Toronto
after the adoption of the renewal plans by the Council, designated officials, usual-

ly the City Solicitor, Treasurer, Real Estate Director and Commissioner of Plan—

ning, negotiate agreements with provincial and federal governments. The Real

56
Estate Division negotiates the purchases, and relocation of displaced persons is

handled by the Housing Authority.

Financ ing:

Acquisition and clearance of land are financed by the federal and municipal
governments. The federal government provides up to 50 percent of the costs,
and shares in the revenue from sale, lease or other disposal of land in the same
proportion as its contribution to the cost. The National Housing Act allows any
province to share the municipal portion of the cost. So far, only British Colum-
bia has legislated to share these costs. Under its Housing Act that Province can

grant up to one—half of the amount of the federal contribution to the municipality.

Binge

In the previous two examples, the impact of heavy migration has been one of
the prime reasons for initiation of programs resulting in better living conditions.
For health reasons, the renewal programs in these two countries developed into
the total concept of urban renewal as used today. France is one of the early
countries which presented examples of renewal about a century back. Baron
Haussmann, who was Prefect of Paris under Napolean III in the 1850's, came up
with redevelopment schemes for Paris which basically aimed at improving the
circulation pattern, installing sanitary sewers and imparting a new aesthetic
character to the city. His drastic measures were criticized, but this kind of ap-
proach for renewing cities swept first over France and then over Europe from
1855 until after the first World War. Examples of this style of renewal, or mere-
ly of general style of physical design characteristic of Paris can be found in cities

as far apart as Brussels, Rome and Warsaw, not to mention many illustrations

outside Europe .

57
From 1850 to 1938 France tried rehabilitation, repairing and remodeling of
the urban structure under the supervision of the Ministry of Health. With the
passage of the 1950 Act, the National Fund for the improvement of Housing was
created and, finally, formal entry of the government came in 1955 when redevel—
opment of blighted areas was given due attention. Now France has an active pro-
gram aiming at the objectives of renewing cities with grants available from the

government.

Program:

The French program is based on a number of decrees issued in late 1958 and
in 1959 although legislation seeking to broaden the earlier, small-scale slum-
clearance program dates back to 1953. Concurrently with the decrees of 1958-
59, an urban renewal unit was established in the Ministry of Construction. "The
program confers on urban renewal projects the status of public-utility operations,
requires their integration with general city plans, and provides for national aid
in the form of loans and subsidies. "1 By vesting urban renewal projects with
public-utility status, the program makes it possible to use condemnation. Most
of the projects that are now visible owe their origin to earlier slum—clearance
legislation and are usually limited in scope, or they are rebuilding schemes in
war damaged cities. "The most remarkable genuine renewal project currently
under way is redevelopment of the Defense de La Region area in Paris which was

started preceding the national program. This was initiated with a decree which
established a public utility-type corporation and an urban-renewal district cutting
across three local government units. "2 Now many other projects have been

started recently.

1Leo Grebler. Urban Renewal in European Countries, University of Penn-

sylvania Press, Philadelphia, 1964, p. 53.
ZIbid ., pp. 55-56.

 

 

58

Administrative Organization:

 

The administration of urban renewal is not very clearly defined and there is
no single agency charged with this job.
1. Federal:

As already mentioned an urban renewal unit has been established in the
Ministry of Construction which is under the Minister of Housing and Reconstruc-
tion. "Advances (financial) are available to the local units and the grants, the
conditions of organization, and functioning are fixed by the public administration
regulation. This regulation is determined on a report of the Minister of Recon—
struction and Housing, the Minister of the Interior, and the Minister of Finance
and Economic Affairs. "1 The principal role, however, is played by the Minister
of Reconstruction and Housing.

2. _Lgc_a_l:

A great deal of innovation is apparent in the regulations pertaining to the
sponsorship of urban renewal projects. These provide for four types of spon-
sors: (1) "Mixed-economy" corporations with capital furnished by cities or other
public agencies, chambers of commerce and similar organizations, savings
banks and so forth - a type of enterprise that seems to have precedents in other
sectors of the French economy; (2) real estate companies meeting certain mini—
mum capital requirements; (3) Social housing associations; and (4) syndicates of
property owners in an urban renewal area. Land assembly, including the exer-
cise of the power of eminent domain and site clearance may be undertaken either

by the city or by the sponsor. This means that in addition to the local unit of

 

1Supplement No. 1 (France) Excerpts from the Code of Urbanism and
Housing in New Life for Cities Around The World, p. 92.

59
government, there can be other organizations undertaking renewal projects for

which government support is available.

Financi
1. Federal:

Advances can be offered to communities by the "National Fund for Urban-
ism" upon certain conditions being met and with the approval of the Minister of
Reconstruction and Housing, the Minister of the Interior, and the Minister of Fi-
nance and Economic Affairs. From the resources of the "National Fund for Re-
gional Planning" and under its rules of functioning, the Minister of Reconstruc-
tion and Housing can consent to the participation of this fund. Syndicated asso-
ciations of owners and of certain other public and private organizations are eli-
gible to benefit from the said fund. The contribution of the Federal Government
to renewal projects can even be 100 percent.

2. Provincial:

The departments (administrative districts) and the communities have the
right to guarantee the loans contracted by the syndicated associations and cer-
tain other organizations. A decree of the Minister of the Interior and of the Min-
ister of Finance fixes the conditions of application for loans.

3. M:

The departments, the communities, the syndicates of communities and
other organizations have the right to participate in the associations constituted
for the objective of promoting better utilization of urban areas. The participa-
tion of local groups in such associations can exceed, if necessary, the maximum

percentage foreseen by the actual legislation.

60

Conclusions

 

The programs existing in the countries discussed obviously differ from
each other in many respects because of local circumstances, but there are very
significant similarities. Perhaps the most important among these is the increas-
ing participation of all levels of government, particularly the national govern-
ment. The necessity of using public powers is frequently the cause of public ac-
tion in these countries. Land ownership or right to use the land is usually divi-
ded among numerous individuals, private businesses or public authorities. A
good deal of redevelopment, particularly in central areas, implies a rearrange-
ment of property boundaries. It is not possible to convince all individuals con-
cerned to reach an agreement on a voluntary basis so the government, which has
the authority to take possession of private property in the public interest, has to
step in. Also, the acquisition of properties and clearing land involves financial
risks which cannot be borne by private organizations or even local units of gov-
ernment on their own, so grants from federal and/or provincial governments in-
evitably become necessary. In all the three countries, it is the Federal Govern—
ment which shares the major portion of the cost required for clearing land in re—
development schemes. However, the sharing of expenses by local and state gov-
ernments depends upon the tax structure of the country. In France, where local
units do not have wide taxation powers, they are eligible for federal grants up to
even 100 percent of the total cost of the project.

All three countries have national legislation which spells out the objectives,
organizational matters, financing and other details. It is basic to any national

program because the legal framework sets the foundation. The development of

61
legislation varies from country to country because of the basic political philoso-
phy and rights of individuals. In the United States, the individual is given all
possible recognition because such sovereignty is basic to the national constitution,
while in Canada and France, governments have increased powers, vis—a-vis in-
dividual rights.

It is clear from these examples that the complexities of urban renewal de-
mand the cooperation of all three levels of government. The contributions of each
level depends upon the political structure of the country. In the United States,

. local governments deal directly with the Federal Government while in Canada,
each plan or project has to be approved by the respective provincial government
before submitting it to the Central Government. The organizational units at the
federal level vary in nature from the United States where a major agency (Depart-
ment of Housing and Urban Development) is charged with administration, to
France, where different ministries have to grant approval for each project. The
role of the local unit is also different everywhere, but all the programs recog-
nize the need for the local unit to play an active part. Most commonly, the in—
itiation of renewal efforts is started at the local level which is quite significant
because ultimately it is a local problem which can best be analyzed and solved at
the local level.

All the renewal programs emphasize the need for a comprehensive approach
and for integration with the overall city plans. This recognition is the most sig-
nificant development of the new approach which eliminates the dangers of piece—
meal treatment. Also there is an increasing recognition of the value of conser-

vation and rehabilitation measures before an area reaches the condition requir-

ing redevelopment. This trend has grown steadily and is bearing fruit in some

62
countries, particularly in the United States. Official support for actions requir-
ing less than complete redevelopment is of very recent origin, but it is growing
in recognition and strength steadily.

This chapter has attempted to explore some of the important aspects of ur-
ban renewal programs in three countries which have had some of the earliest ex-
perience in urban renewal and have realized some of the more significant achieve-
ments in recent years. Their experiences also illustrate some important var—
iations in administrative and financing processes. This diversity of approaches
could be beneficial in laying down policies for West Pakistan. These examples
indicate some of the critical issues which have to be considered carefully so that
a meaningful program could be developed. Precisely the same is attempted in

the following chapter which deals specifically with West Pakistan.

CHAPTER V
POLICIES AND PROGRAM FOR
WEST PAKISTAN

Up to this point the material presented has been related to providing back-
ground for formulating a possible renewal program. Manifestly, West Pakistan
needs a fundamental approach to the total problem. The lack of reliable data, in
depth, prevents the development of a detailed program for urban renewal action
in West Pakistan. However, with the information available, it is possible to out-
line the basic policies and general framework for an effective program. A great
deal of research, analysis and deliberation is required before any national or
provincial program can be proposed. Many countries of the world, which are
also on the verge of initiating national urban renewal programs, are faced with
the same kinds of problems. Every country has been involved in some aspect of
urban renewal, and that experience can be of great help. Even in West Pakistan,
small scale redevelopment projects have been undertaken recently for slum clear-
ance; and lessons learned from those experiences can be utilized for a more com-

prehensive program.

Objectives

Irrespective of scale or scope, any program must be directed at achieving
certain coals which ought to be clearly defined. The successful completion of
goal formulation can lead essentially to the steps for possible action programs.

63

64
Each community has to formulate its own particular goals, suited to its own unique
requirements. However, there are certain objectives which can be formulated
for all communities and, therefore, must be generalized.
The extremely acute housing shortage in West Pakistan has provokedwide—
1 spread squatting throughout the larger cities. As a result large-scale redevelop-
ment projects involving demolition of a large number of dwelling units is not prac-
tical at this stage. The critical questions are, how long can cities allow the sub—
standard areas to remain in slum condition? Who should get the top priority?
And what should be the scale of the projects? Linked with these questions is
that of the allocation of personnel, financial, and material resources which are
already inadequate. Financing and technical personnel particularly stand out in
this category. Butthe se problems should not affect laying down the goals for an
overall urban renewal program. Considering all these elements, the following
objectives should be adopted as the bases for developing an urban renewal pro-
gram.
1. "To provide an adequate dwelling unit for every family. " This standard
means a living space for every family which should be physically sound and
equipped with all the essential services like pure water, adequate waste dis-
posal and electricity. This provision takes into consideration the factors
which are directly related to the health of human beings and which have been
one of the prime reasons for the initiation of urban renewal programs else-
where.
2. ”To provide a decent environment for every dwelling unit. " Every dwelling unit

is a part of a larger socio-physical unit, called a neighborhood, or "mohallah. "

65
Soundness of individual structures, alone, is not sufficient to satisfy the
shelter needs of its occupants, because the neighborhood environment has
a definite effect. The negative effect is termed "environmental blight" which
is a major factor for consideration in the delineation of slum areas in the
United States.
"To provide an adequate level of community services for every resident. "
Essential services for the individual dwelling unit have already been includ—
ed in the first objective, but in addition to those mentioned are community
services like hospitals, schools, recreational facilities and open spaces.
The provision of these kinds of services is basic to any balanced community,
but mere provision is not enough, for the distribution in terms of availabil-
ity is very critical. The relationship of these amenities to the dwelling unit
in terms of distance or time must be established carefully.
"To improve the circulation pattern and accommodate the invading automo—
bile to a reasonable extent. " Car ownership is increasing rapidly in West
Pakistan and has a great impact on the traffic situation of the cities result-
ing in congestion. The problem of traffic congestion is particularly true in
the central older parts of the cities which cannot solve these problems with-
out urban renewal. The improvement of traffic facilities or even a step in
that direction can enlist the support of businessmen because of the resulting
economic benefits.
"To achieve a more compatible land use arrangement. “ Cities of West Paki-
stan are faced with an intensive mixture of land uses which result in many

additional problems. There is no easy solution for this problem; but urban

66
renewal is being used effectively in many other countries to achieve this ob-
jective.
Although these objectives focus on different segments of a city struc-
ture, they are based on a comprehensive approach with the ultimate goal of mak-
ing the life of residents better. The improvement of living conditions is a con-

tinuing struggle which requires the cooperation of all concerned.

Program

The transition of objectives into a program should be accomplished accord-
ing to pre-established principles. The following general principles are proposed
as guidelines for a program in urban renewal for West Pakistan.

General Principles

 

1. Urban renewal should incorporate the three dimensions of renewal,
namely, redevelopment, rehabilitation and conservation, as already defined in
the first chapter. Acceptance of this concept will mean a departure from tradi-
tional slum clearance. The use of rehabilitation and conservation measures is
relatively new; but the results achieved, in some countries, require an increased
emphasis. In West Pakistan, large-scale redevelopment efforts probably will
not be possible in the early stages. However conservation and rehabilitation
measures could be implemented at the outset whereby sound structures can be
rehabilitated, deteriorating neighborhoods can be conserved, and a minimum ex-
penditure of capital will be needed.

2. Urban renewal should be conceived as a comprehensive process de-
signed to counteract functional obsolescence and deterioration of the urban struc-

ture, as a whole, and of parts and elements of it, and to revitalize continually,

67
all elements and components of the urban environment. As a process, urban re-
newal should utilize the full range of public powers. In the exercise of these pow-
ers, it should incorporate, by legislation and other formal means, safeguards
for the public welfare and private interests that do not conflict with the greater
public interests.

3. Urban renewal is a part of a larger process by which the human envi-
ronment is continually transformed as a natural progression. Though it is in-
herent in this process that renewal has a predominantly urban application, its
context is a larger one because its applications affect suburban and non-urban
areas and can be applied effectively to such areas. This consideration requires
coordination of all planning operations because a renewal plan alone cannot a-
chieve the underlying objectives. For this purpose the following three—fold pro-
cess is suggested:

a. Urban renewal should develop within the framework of the general
city plan for physical development.

b. Each general city plan should be devised in the larger framework
of the general plan for physical development of the region of which
the city is a part.

0. Both the general city plan and the general plan for physical devel-
opment of the urban region should be formulated in the context of
the internal economy, the political traditions, and the values to

which the people affected adhere.

Relation of Renewal to General City Planning

As part of the larger planning process urban renewal should respond ap-

propriately to the symbiotic relationship between it and the overall city planning

68
process. Renewal must be undertaken within the framework of the general plan,
and, in turn, the plan must recognize the effects of renewal action. While each
reacts on the other, renewal should, in general, be regarded basically as one of
the processes of implementing the general plan. As a major tool for guiding ur-
ban renewal, the general city plan should be comprehensive, taking into consid—
eration all the major factors having to do with the physical community as land
use and population distribution, circulation facilities, and systems of facilities
to serve land development.

This integration is an important prerequisite, and, as most of the cities of
West Pakistan do not have even development plans, it would not be wise to start
thinking in terms of embarking on urban renewal projects of a significant scale.
Those cities which do have general plans should evaluate them before taking any
concrete steps in this direction. Because of this consideration in many countries
with long experience in urban renewal, the requirement of a comprehensive gen-
eral plan is one of the prerequisites for any national grants or loans.

While it is essential that urban renewal should be undertaken within the
framework of a general city plan for physical development, there are cities, as
mentioned earlier, where a general city plan does not exist and is not likely to
exist in the near future. Nevertheless, the process of urban transformation -
growth, change and decay - will continue, and certain areas will require some
form of renewal action. Under such circumstances, the renewal processes,
while desirably subject to the provisions of a general city plan, can proceed on
a project basis. This approach requires, initially, a definition of areas requir-

ing renewal and, subsequently, the preparation of a project plan including design

69
programs for land use, circulation routes, and other community facilities in the
renewal area. However, this kind of approach to renewal activity can become a
haphazard, piecemeal process and should, therefore, be discouraged for any
more than initial steps in embarking on a proper urban renewal program.

Criteria and Methods for Appraising Urban Areas

 

The first step in an active program of urban renewal is an appraisal of phys-
ical condition of components of the urban area. Existing appraisal methods in
many countries are designed predominantly for application to residential areas
for slum clearance procedures rather than a program for urban renewal. In a
few countries, appraisal methods based on uniform criteria have been introduced
for national use. The purpose of this step is to provide an objective appraisal
method for the identification of deteriorated or obsolete buildings, for the deter-
mination of the kinds of renewal measures to be applied, and for drawing up pro-
gram priorities. The appraisal systems generally make an assessment of the
quality of buildings (structure, maintenance, facilities) expressed in penalty
points. In some Eastern European countries, the appraisal systems in use aim
not only to identify, but to provide an objective measure of renewal needs. They
also are expressed in monetary terms in order to show the cost of the renewal
measure in absolute terms, particularly in comparison with the cost of a new
dwelling, and to assure the continuity of the supply of resources necessary for
renewal.

It is possible to develop a uniform, general criteria for the whole of West
Pakistan which could be adopted by cities with suitable modifications. The ef—

fort should be focused on an appraisal method for urban renewal and not slum

7 O

clearance only. It should take into account the condition and age of all types of
structure, including the aspects of ”economic life" and "service value. " The in-
vestigation of the quality of dwellings should be expanded to include criteria re-
garding the situation of the dwelling in its environment and the adequacy of cer-
tain environmental features. Such environmental deficiencies as bad layout and
poor access, the need for road improvements, deficiencies in open spaces and
other amenities, and improper location of land uses should be taken into account.
In essence, it is meant that the criteria should take into consideration both struc-
tural and environmental blight. The health aspect of the structures should form
the prime basis for consideration of any renewal activity. The criteria should
be developed to aim at absolute minimum from health considerations within the
physical, social and economic framework of the Province. A great deal of re-
search, analysis and pre-testing should be done before adopting any final system.
Appendix presents outlines of appraisal methods used by some selected coun-
tries.
Property Acquisition and Clearance

In redevelopment and, to some extent, in rehabilitation projects, whole
areas of structures ought to be cleared. The land ownership in such project
areas might be held by a number of individuals, thereby creating legal and fi-
nancial problems. There are many ways of acquiring these properties; but con-
demnation is the most widely practiced process by which the government can ac-
quire an individual's property in the public interest by paying a fair compensation.
The power of condemnation is always vested in government which can delegate

the authority to any' public or private agency. The use of this power necessitates

governments' participation in urban renewal process. A detailed study of land

71
ownership patterns and political processes should be made before procedures
for acquiring properties can be proposed.

Although housing is the major land use of any city, urban renewal should
not be limited to this use only. In West Pakistan, where the mixture of land uses
is so extensive, exclusive residential renewal will not yield workable and mean-
ingful results. All land uses should be included in renewal action while govern-
mental assistance in terms of grants can vary according to the priorities estab-
lished.

Sometimes it might be possible for a private organization to undertake a

small—scale redevelopment project. In such a case, the acquisition of private

properties must be thoroughly investigated by some governmental agency respon
sible. Such a measure will eliminate the danger of direct benefit to certain in-
dividuals at the cost of others. The condemnation power must be utilized with
extreme care to prevent any distortions or inequities in the use of this instru-
ment. In West Pakistan where private enterprise is not yet very dominant, pri-
vate renewal activity will be limited. However, if done, the planning processes,
programming, and the related phases should be approved by the government in
advance. This precaution is important so that such a project could be related to
overall city plan, and, at the same time, the rights of private property owners

and the public welfare may be protected.

Relocation
Redevelopment and, to a more limited extent, rehabilitation involve the
displacement of businesses or people from a project area. In all countries there

is a legal and social obligation to relocate them either in the area itself after re—

building or elsewhere with suitable arrangements.

72

The problem of relocation is critical in every country where urban renewal
is underway. However, it becomes particularly critical in West Pakistan where
the housing supply is already inadequate. This situation is most evident because
of the problem of squatters faced by many cities. In starting any urban renewal
program of any significant scale, relocation should be one of the prime factors
considered. The principal financial problem is the provision of alternative ac-
commodations at prices or rents which the families from clearance areas can af-
ford to pay; for the economic rents of new dwellings are invariably higher than
those in the clearance area.

In almost every country, relocation is given a special consideration where
the local, provincial and national governments subsidize the housing for displaced
persons in one way or another. In Belgium, for example, the Central Govern-
ment makes its loans to the two national low-cost housing societies conditional
upon their undertaking, as a first priority, to use part of these loans to construct
or buy homes for displaced slum occupants. In the United States, low-income
families displaced from urban renewal areas have a first priority for new or ex—
isting low-rent public housing constructed with federal subsidies. Federal legis-
lation, with the U. S. Housing Act of 1937, made available development loans
and annual subsidies to cover operating deficits to local housing authorities for
low-rent housing under their jurisdiction. ”In Ireland, the Central Government
pays two-thirds of the loan charges on dwellings built by local authorities for
families displaced by clearance, as opposed to the normal one-third for public
housing in general, and gives loans and grants to displaced families for the pur-

chase and building of homes. "1

 

1United Nations Report of the Urban Renewal Symposium Organized By The
Housig Committee of the U. N. , p. 55.

 

73

Because of the acute housing shortage and the predominantly low economic

condition of families in West Pakistan, the following policies should be adopted.

1.

The squatters should be restricted to designated areas of the city from
which they could be relocated in new housing projects.

There should be a minimum of demolition of structures so that the re-
location problem does not add to the number of already shelterless
people.

The relocation from slum areas should be linked to the new develop-
ment projects like colonies, new towns or town extension schemes be—
ing undertaken by the government. Priority should be given to these
displaced families in the new housing projects.

Relocation must form an integral part of any renewal project to insure
the welfare of displaced people. A satisfactory relocation plan must
be a prerequisite for any governmental assistance.

Particular social characteristics of the people affected should be con-

sidered when making any relocation plans.

Development of Cleared Sites

 

Urban renewal is an expensive and complicated process which must be

planned, programmed, and administered with more care and skill than most pub-

lic works projects. One of the steps in the overall process which needs thorough

consideration is the ultimate development of sites after they have been cleared

and reduced to raw land. There are many component features of this stage, such

as the type of land use to be permitted, the overall and detailed design and the

density of development. Among these elements, the concept of density has been

74
a central one around which the planning profession attempts to measure and gen-
eralize about types of urban development with wide differences of opinion. Inas-
much as each urban area and sub-area may have special factors affecting densi-
ties, no universal formula is available which has any real validity. The needs
and desires of individuals, families, and groups of people vary in time and place;
and land use plans and regulations should be adjusted accordingly.

There is a general trend toward decreased density in various countries;
but increased density is not undesirable in itself. In areas of higher density the
important considerations are how the density is resolved in terms of building
pattern on the land, whether or not adequate open space and amenities are avail-
able, and whether or not the general quality of the living environment is satis-
factory. The critical shortage of developable land for urban areas in West Paki-
stan demands constant and serious attention whereby increased density of devel-

opment could be adopted and successfully utilized as a workable policy.

Organization and Financing

 

The implementation of an urban renewal operation is difficult and complex
because urban renewal, by its very nature, is a relatively costly and complicated
process requiring cooperation between different public authorities and agencies
on the one hand and different professions and private interests on the other. As
examined in the last chapter, there are varying organizational structures being
used in different countries; but, even in the least complicated administrative pat-
tern, close cooperation and liaison among all the agencies involved is essential.
Pakistan is a nation with limited re sources which must be carefully supervised

and pooled. The utilization of all resources is authorized by allocating priorities

75
on the basis of requirements through 5-year national plans prepared by the Cen-
tral Government.

This element of central planning should be directly linked to the total ur-
ban renewal process. The structure of government vests considerable authority
in the Central Government which requires that this level will have to play the
leadership role in the overall process of urban renewal. However, the provin-
cial and local governments have to c00perate closely to make the total process
a success. Each of the three levels of government should play the following com-
plementary roles:

1. Federal:

To provide leadership, financing and control, there has to be an agency or
department at the federal level which will be entrusted with the principal respon-
sibility for administration. There are two alternatives for the creation of such
an organizational agency. One is an independent agency acting as the top author-
ity like the "Housing and Home Finance Agency, "1 in the United States, or the
Central Housing and Mortgage Corporation in Canada. The creation of such an
agency can be a big step in strengthening the role of Federal Government; how-
ever, the feasibility aspect must be given thorough consideration.

The second possibility is the creation of an "urban renewal cell" in an ex—
isting ministry which should program the total needs and supervise the function-
ing of urban renewal programs. The Ministry of Works, in the absence of a sep-

arate ministry of Housing, might be the logical choice as a beginning. Every

 

1Effective January 1, 1966, this agency has been placed under newly cre-
ated Department of Housing and Urban Development (HUD).

76

effort should be made to eliminate direct involvement of many ministers, as
practiced in the French system. However, a close link will have to be main-
tained with the Central Flaming Commission which prepares the national econ-
omic development plans in conjunction with provincial and local authorities for
the country as a whole. This integration is quite important because the timing
and scope of urban renewal projects and the allocation of funds and other resources
have to be laid down in these plans. The ministries of Finance, and Health and
Social Welfare should be linked with the "Urban Renewal Cell. "

In general, the cost of acquisition of land and buildings in redevelopment
; schemes will have to be shared by the Central and the Provincial Governments.
Even in the case of the development of cleared sites, assistance should be avail-
able to. local authorities because private enterprise is not sufficiently developed
and strong enough to provide sufficient financing for development projects. How-
ever, all efforts on the part of private organizations to become involved in urban
renewal schemes should be encouraged by all levels of government. Such an en-
couragement can generate interest, thereby strengthening and stimulating the
economy of the country. The obvious area of choice for private enterprise will
be the development of cleared sites. The land can be leased or sold to private
individuals or organizations; however, it can also be retained by some public
agency. The policies can be laid down after detailed study of land ownership pat-
ternand the consideration of related legal and financial aspects.

The principal financial components in urban renewal projects are:
1. Planning Stage

a. Hiring of staff and establishment of offices

77

b. Carrying out of appropriate studies

c. , Preparation of plans
2. Acquisition of Properties

a. Appraisal of property values

b. Payment of compensation

c. Court review processes

d. Demolition of structures
3. Relocation

a. Relocation of public services like sewers, electric lines, water mains

b. Relocation of community facilities like school, health clinics

0. Financial losses to individuals in moving their properties particularly

small businesses

(1. , Provision of alternate accommodation to displaced families
4. Development of cleared sites

a. Preparation of engineering, architectural and site development work-

ing drawings and allied documents

b. Site preparation

c. Construction of new structures
In all the above mentioned steps, acquisition and relocation are critical ones for
which a major share will have to be paid by the Central and the Provincial Gov—
ernments. The detailed procedural matters can be laid down after a thorough

investigation of financial structure and interaction of various governmental units.

2 . Provincial:

The provincial level of government must play an important central role in

the overall process for which there has to be an administrative agency or

78
department. There are many possibilities which can be considered before reach-
ing the final decision. The first possibility is to create an "urban renewal divi-
sion" in the existing department of Town Planning under the Minister of Commun-
ication and Works. Location of an urban renewal division within the Planning De-
partment will help coordinate the activities with overall provincial, regional and
local plans. However, this department has to render planning services to those
cities which do not have competent staff in which case the review of plans for any
grants cannot be entrusted to this division.

An alternative will be to create a new independent urban renewal or urban
development agency which must be charged with the important responsibility of
conducting research, gathering relevant information, laying down criteria and
guiding communities in carrying out different projects. A similar arrangement
can be to entrust the same responsibilities to the West Pakistan Housing and
Settlement Agency which can initiate the program until an appropriate administra-
tive framework is evolved. In this arrangement the Provincial Department of
Town Planning, through its regional offices, can render planning services to the
cities which can be in the role of consultants. These services will be necessary
in the absence of competent consultant firms. However, the cities must be en-
couraged to undertake the initiation and planning at the local level.

Unlike the role of states in the United States, the Provincial Government
of West Pakistan will have to offer financial assistance which, in partnership
with the Central Government, will help the local communities to undertake ur-
ban renewal projects. Explicit criteria should be developed to form a basis for
any such assistance. It is strongly felt that various departments and agencies of

the Provincial Government will have to coordinate their roles and participation

79
in urban renewal programs. It is not possible to recommend any percentage of
the cost which should be borne by the Provincial Government, but sharing ratios
can be worked out based upon detailed studies of the tax structure and the capa-

bility of the individual cities to collect revenues.

3. M:

In most of the countries studied, the initiation and direction of redevelop-
ment projects is in the hands of local governmental authorities. The local units
are also responsible for the provision of housing and public services. This ar-
rangement seems quite logical, but it is essential that a local government must
be competent enough to undertake such a project. With the exception of Karachi
and Lahore, no other city in West Pakistan has a well established planning de—
partment, so certainly in West Pakistan, the emphasis of the role of the city can
not be as great as that in many other countries.

The most workable role for local units appears to be that of initiating the
request for a project while the technical advice and financial assistance should
be given by the Provincial and Federal Government. In the absence of a plan—
ning department, and until one can be established in each city, the standard de-—
partment of engineering might be entrusted with the responsibility for managing
urban renewal projects. Another arrangement can be to create an independent
agency like a housing or development authority as the present Karachi Develop-
ment Authority. Some experience in this area will help a great deal to suggest
the most effective kind of organization at the local level.

Although most of the project costs will have to be borne by the Central and

Provincial Governments, local governments should be required to put in a share

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81
which can vary according to the nature of the project and the financial ability of
the city. Such participation, which may be even a small percentage of the total
cost, will help involve the communities in the process. The small scale projects
might be undertaken by private organizations; but the local and the Provincial
governments can be helpful in providing technical advice and even financial as-
sistance to a certain extent. Any effective integration of urban renewal with the
city development plan can best be achieved by local government in its role of re-
viewing the planning and execution of projects. The critical problems of relocat-
ing displaced families and activities satisfactorily can best be supervised by 10—

cal governments because of its direct, daily involvement in local affairs.

Legislation

 

The implementation of urban renewal at a local level involves the use of a
wide variety and range of powers by public renewal authorities and supervising
agencies. The most important powers for conservation and rehabilitation are
those permitting the legal prescription and enforcement of standards in relation
to building maintenance and occupancy and the control of the use of land and build-
ings. For this purpose, the Provincial Government has to authorize these powers
through appropriate enabling legislation which will delegate such authority. Among
the most important legal issues relating to redevelopment are the purposes for
which renewal authorities are authorized to acquire land through appropriation
powers and the expenditure of public funds. Although it is desirable to acquire
private properties by agreement and direct sale transactions, the success of re-
development is to a large degree dependent upon the ease and success of bypass-

ing obstacles of indeterminate ownership, clouded titles of ownership, tax and

82
other financial and legal impediments to acquisition. These obstacles are alto-
gether too common and can only be surmounted by compulsory acquisition or
condemnation. . All legislation relating to this problem needs to be reviewed and
strengthened, including careful provision for adequate compensation to the affec-
ted property owners.

The use of the condemnation power must be made with extreme care be-
cause of the ethical and moral factors involved where a big number of people
have only temporary shelters and whose economic condition is below a level of
adequacy. However, the legislation must clearly mention the justification and
use of any such public powers and must define the limits. In many cases where
the land is owned by a public agency, the acquisition for any redevelopment pro-
ject may not be difficult from a legal point of view; but even then there are poli-
tical and social implications which cannot be ignored. The most important a-
mong these issues might be the eviction from such areas and for that purpose
satisfactory relocation arrangements must. be available .

There are many issues regarding the compensation paid toithe private; land
owner. What should be the basis for determining a fair price? Who is going to
appraise values and make the final decision? How is compensation going to be
paid and who is going to be responsible for any loss in moving, particularly for
business? All these questions demand an extremely careful study and should be
handled, through laws, on a basis of justice for all persons and agencies involved.
There is considerable experience in this area which can be evaluated as a basis
for policies and statutes which will conform to constitutional limits. Also, the

more abundant experience gained in some of the small scale slum clearance

83
projects in Karachi and Lahore should provide valuable evidence and precedents.

All these provisions dealing with legal powers, organization and financial
features have to be spelled out through legislation at all the three levels. With-
out this step, no significant progress can be made. The federal legislation should
deal with the policy matters of the overall process, laying down objectives and
the essential framework. Provincial legislation should deal with the delegation
of authority to local communities for undertaking renewal projects, laying down
the procedures for the initiation of projects, processing and the final authoriza-
tion. It should also establish the criteria for any financial assistance and fix the
ceiling of the share to be paid by the Provincial Government. The local govern-
ments should pass the local laws within the authority delegated to them. The
most important consideration for local units will be the adoption of adequate
housing and building codes directly related to conservation and rehabilitation,
which must be backed by periodic inspection for effective enforcement. However,
zoning and development regulations which have an effect on the total urban devel-
opment must be adopted as well.

The framing of appropriate legislation at national and provincial levels is
not an easy task. This undertaking should be entrusted to a task force of com-
petent persons. The newly-formed professional organization of Town Planners,
along with the Provincial Bar Association, can be of great help. Once basic and
effective legislation is achieved, a start on a significant scale can be made to im-

prove the living conditions throughout West Paldstan.

Effectuation

 

A thoroughly arranged composite of legal and financial provisions making

energetic renewal possible is to be conSidered as a prerequisite for the effectuation

84
of any renewal programs in West Pakistan. In renewal, more than in other fields
of planning, inadequate measures are almost certain to entail undesirable conse-
quences in the long run, resulting in further deterioration of the urban structure,
or in excessive additional costs. Such inadequacies may prove to be even worse
than abstaining from any renewal action at all. Statutory provisions concerning
urban renewal should adequately express public policy relating to:
the general plan for physical development
specific renewal plans
condemnation of substandard buildings
compulsory purchase
. consideration of objections by affected property owners
compensation for damages as a result of removal
restrictions on land ownership
relocation of displaced persons and activities
financial aid
* An important factor in the effectuation of renewal programs consists in the
proper timing of the announcement of renewal proposals in relation to the execu—
tion of plans. There is a relationship between the announcement of proposals on
one hand, and land acquisition and land use in the interim, on the other. The
timing of different phases must be given due consideration to facilitate the execu—
tion of renewal plans.
An effective combination of public and private enterprise, even on a small
scale, can help a great deal in undertaking some projects. This kind of small—

scale cooperative enterprise can be important because, as a capital—using pro-

cess, urban renewal demands a flow of investment which may be stimulated by

85

opportunities for private enterprise in renewal action. Another important factor
in renewal action is the city's capacity to relocate households and firms to be dis-
placed; for estimates of the amount of subsidy required for relocating; for re—
housing may determine the scale, pace, and timing of a given renewal under-
taking. Therefore, relocation should be coordinated with the proposed develop-
ment schemes being undertaken by the government to provide shelter to refugees
and other shelterless people.

In addition to strong official support, active participation on the part of
the public is necessary. The success of renewal measures depends, to a large
extent, on the comprehension and acceptance of the purpose and the suitability of
these measures by the people. With a high rate of illiteracy, public relations
might be a difficult job, but at the same time, government-owned radio and tele-
vision can be easily used. Private and semi-public organizations, like chambers
of commerce and other community organizations, can be of great help in intro-
ducing the urban renewal concept to the people. The different tiers of "basic
democracies"1 can be used in enlisting public support for urban renewal pro-
grams. It all means that the successful effectuation of renewal schemes cannot

be realized without a well conceived public relations program.

 

1A newly evolved system in Pakistan under which elected representatives
of people called basic democrates, take part in governmental projects both at
policy formulation and effectuation. This is done at village, city, district and
provincial level.

CHAPTER VI

SUMMARY AND RECOMMENDATIONS

Urban renewal is a costly and complex process which needs huge sums on
the one hand, and an efficient administrative framework on the other. However,
the proportions of scale and scope of any program are quite important. It is not
necessary to embark on huge projects. Instead, a systematic outgrowth of apro-
gram is more meaningful and effective. Allocation of financial resources for a
country like Pakistan is an enormously complicated job where assistance is re-
quired in every field. Allocation of priorities have to be established on the basis
of prime needs. Areas like agriculture and industry should be ranked high be-
cause of their relationship to the structure of the basic national economy. Estab-
lishing an urban renewal program in West Pakistan at this stage might be ques-
tioned because of other pressing problems, but a careful consideration of the
facts must be made prior to any judgments.

Pakistan's economy has been growing steadily since independence in 1947,
and remarkable achievements have been made in its growth. In 1947, Pakistan
was characterized by TIME magazine as "an economic wreck" because there
seemed to be no basis for significant development. Yet recently, when there is
pessimism about the growth of developing countries in general, Pakistan has
been cited as an example of rare success. "Its overall growth, estimated at 5. 5
percent is approaching the rate at which it will be twice that of pOpulation growth.

86

87
Gross investment is approaching 20 percent of Gross National Product and do-
mestic savings exceed 10 percent. "1 All these data suggest that Pakistan is
moving on a road of sustained prosperity and further economic development. Per
capita income at this stage is not very good as compared to many other countries,
but if the current rate of development is maintained, it is estimated that it will
double by 1985. With such an economic rate of progress, coupled with demon—
strated political stability in the country, attention can be diverted to other pro-
blems which are no less important.

With gigantic migrations in 1947 and with an increased birth rate, the cities
of West Pakistan have become overcrowded to a critical limit. The provision of
physical facilities like housing, utility, protective and educational services and
basic community facilities has not kept up with the net increases in city popula-
tions. The result is that the cities have been overcrowded thereby resulting in
the creation of slums and other unhealthy living conditions. The increasing trend
in individual car ownership has already resulted in too many automobiles on
streets which are not adequate even for pedestrians, bicycles and carts. Because
of this increased and complex mixture of traffic, the streets are choked, result-
ing in delays and frequent accidents. Cities are a reflection of a society's aspir-
ations and every effort is required to give such an image. The cities of West
Pakistan need a wide spread and elaborate attack and urban renewal can be an
important part of the logistics for improvement. The experience of other coun-
tries in this regard support expectations for definite and positive results, giving

hope to others for improving living environment.
The development of a comprehensive and successful urban renewal pro-

gram involves a thorough investigation of all related aspects. The program has

 

1{lé’apanek, Gustav F. , Pakistan: Growth in the Mixed Economy, p. 3.

 

88

to fit into the economic structure of the country; otherwise, effectuation meas-
ures may be discouraging. A look-at other countries points out that most of ur-
ban renewal programs are strongly supported by their national governments in
financing and legal provisions. Special circumstances and features ought to be
considered closely before final decisions are made. The social characteristics
of the people come into the picture because all the effort in urban renewal is di-
rected at improving the living conditions of the people. The orientation of re-
newal plans must be made to achieve the desired goals accordingly. However,
the resulting economic benefits provide greater interest and motivation for pri-
vate sector.

This study has been initiated and developed on a very thin base because of
inadequate information. In the first instance, there are no pertinent data avail-
able regarding any renewal schemes undertaken in West Pakistan along with other
economic and political data and secondly, whatever was available could not be
obtained because of its distant source and time limitations. The inadequate in—
formation is the prime reason for not suggesting an explicit and detailed pro-
gram, but an effort has been made to expose certain important and critical fea-
tures of a suggested program. However, it is hoped that this initial effort will
provide a starting point in the right direction resulting in greater recognition on
the part of government and all concerned.

Such programs need a great deal of research and deliberation, not only at
the initiation stage, but also during the process of programming and effectuation.
A continuedlinkage should be maintained whereby accumulated experiences could

be used, making each succeeding program more effective. The beginning, how

ever, must be made with utmost care because expensive experiments are beyond

89
the resources of a country like Pakistan. Taking all the previous points into con-
sideration, the following three-fold recommendations are made:
1. Long Range Program:

A "Study Commission" should be immediately appointed to probe the total
problem of housing and propose a detailed urban renewal program. This Com—
mission should consist of competent people from all related fields such as econ-
omics, political science, health and physical planning. Special task forces
should be created to help the commission in carrying out its responsibilities.

If needed, the services of consulting firms and universities should be used in
gathering information in addition to collating, codifying and analyzing available
data from different governmental agencies. Basic data should be available re-
garding:

- The overall housing needs for the present and reasonably correct esti—
mates for the future. Additional data on the quality of housing and ade-
quacy of community services are closely related.

— A detailed study of the tax structure of the country with particular ref-
erence to cities is quite important. This step will enable the Commis—
sion to recommend the proportions of project costs to be borne by cen-
tral, provincial and local levels.

- *A detailed study of the administrative framework, particularly that
which would relate to development projects. Experience with indepen-
dent agencies like Water and Power Development Authority and Paki-
stan Industrial Corporation must be evaluated to recommend a struc-

ture. Administrative machinery at the local level must be given a

90
special consideration.

- A thorough investigation of the legal provisions and planning laws
should be made to accommodate the total urban development objectives.
The adoption of specific legal instruments, after this stage, will be
the actual start of any meaningful program.

- The general social characteristics in slum areas of big cities should
be studied. Case studies on this subject by universities could be ini-
tiated to provide a data bank for continued reference.

- Health aspects of living in cities and minimum shelter requirements
should be worked out by a team of specialists. Such a step will help
a great deal in proposing any criteria for delineation of renewal areas.

[All this kind. bf information, coupled with experiences from other coun-
tries should form the basis for a detailed evaluation by the Commission in rec-
ommending the final program.

The specific features of the National or Provincial program will be spelled
out by the Commission; however, the limited insights provided by this study sug-
gest the following salient features:

- A comprehensive urban renewal program should be adopted encompass—
ing conservation, rehabilitation and redevelopment.
Any major urban renewal project should be preceded by the adoption
of the physical development plan of the city of which it must form an
integral part.

. Because of extreme shortage of housing, there must be a minimum

demolition of structures.

91
Special consideration should be given to relocation problems and the
total relocation should be closely related to new urban development
schemes.
General but uniform criteria should be developed at the provincial lev—
el which could be used by cities in delineating areas for urban renewal.
Special consideration should be given to the development of cleared
sites and redevelopment should be done on the basis of reasonably high
density because of land limitations.
A central agency or department should be created at the federal level.
A logical choice might be the creation of an "urban renewal cell" in
the Ministry of Works.
A provincial administrative organization should be evolved which might
be an independent agency or an "urban renewal division" in the depart-
ment of Town Planning. West Pakistan Housing and Settlement Agency
can be the most obvious choice.
At the local level the planning department, or in its absence, the en-
gineering department, should be entrusted with the planning and ad-
ministration. However, a separate housing agency or authority should
be given serious consideration.
A major share of the total urban renewal expenditures will have to be
provided by Central and provincial governments, but a small amount
on the part of cities should be made a requirement in order to gener-

ate a sense of involvement.
. A detailed and integrated legal structure at federal, provincial and lo-

cal levels must be established.

92

2. Short-Range Program:

 

All the suggestions and recommendations in the previous pages are direc-
ted at a province-wide urban renewal program which cannot be developed and
started immediately. However, the daily pressing problems of cities demand
that something should be done in the interim period. Waiting for the initiation
of a national program will mean further deterioration of existing conditions there—
by increasing the ultimate capital required for making necessary improvements.
Therefore, efforts should be started immediately on a project basis which can
help provide some experience along with producing some positive and definite
benefits. Such a project approach must be carried out with extreme care and
must be within an overall framework. The planners and engineers involved in
such projects will have to see into the future for reasonably long periods so that
they become part of a comprehensive urban renewal approach. The Provincial
Government should take some immediate steps to start this kind of short-range

program.

3. Public Relations:

A program of public relations must be started at the federal, provincial
and local level to acquaint the public with the problems of cities and to enlist
their support. The government-operated radio and television can be used effec-
tively. The newspapers can also be used by explaining significant features and
the resulting benefits of urban renewal to the publishers and editors. A series
of articles and other news features may be started in all the leading newspapers
and magazines. The system of "basic democracies" which establishes tiers of

elected representatives at different levels of administrative structure can be

93
used quite effectively. These tiers can help provide the information to even the
common man through this formal structure. An active interest on the part of
the public leaders can be a great help in the overall attack on city problems.
Support should also he enlisted from private and semi—private organizations
which can contribute a great deal in the direction of urban renewal.

This study has been treated somewhat as a reconnaissance basic explora-
tion in the direction of developing and initiating a comprehensive urban renewal
program. However, it is hoped that this study does not remain only an academic
exercise, but can stimulate an effort to recognize the problems of cities of West
Pakistan and the need to organize a meaningful beginning. The problems which
are here are not going to be solved automatically. The solutions will be expen-
sive and complicated, but the urgency of the need, which demands immediate

attention, is quite evident.

APPENDIX
Criteria Used in Appraising the Quality of
Dwellings in Selected Countries
1. BELGIUM
A method for the study of the quality of dwellings, developed by the Insti-
tute National du Logement ("Methodol‘ogie d' enquete sur La qualite' des Loge-
ments. ")

Items of Appraisal

 

A. Qialitative aspects of the dwellings

1. Construction of:

 

a. foundations
b. roof
0. outer walls
(1. inner walls
e. floors
f. staircases
g. plastering
2. Dampness:
a. accidental dampness
b. permanent dampness (caused by periodic flooding, high ground

water level, etc . )

94

95

Ventilation:

 

a. height of the rooms

b. window surfaces, among other things, in relation to width of
streets

0. area of gardens and inner courts

Exposure to direct sunlight:

Equipment:

a. water supply

b. electricity supply

c. sewerage

d. sanitary installations

Method of access to the dwelling:

B. Characteristics of the buildingsite

 

l.

Deterioration of district
Deterioration of the block

Situation in an area to be cleared
Situation in an area to be expropriated

Building out of alignment

C. Capacity of the dwelliry;

 

1.

Uninhabited dwelling

Maximum capacity

Number of inhabitants

Number of potential families (if a separate dwelling could be

placed at the disposal of the inhabitants)

96
II. FEDERAL REPUBLIC OF GERMANY
Study of the quality of dwellings, made by order of the Federal Government.

Items of Appraisal Points

 

A. Criteria for buildings

 

1. Properties of components

 

a. qualities of components (load capacity, stability and
durability of components) 4
b. humidity and fire resistance 3

2 . Operating facilities

 

a. utilities (electricity, gas, water supply) 3

b. sewerage 5
3. Open spaces of the premises

a. surface of open spaces 3-5

b. state of open spaces 4

4. General impairment of dwellings

 

a. sources of nuisance 6
b. situation of the premises 3

B. General descriptions of buildings and premises

 

(The following five data are not evaluated by points.)

1. Type of building

2. Appearance of the building as a whole with regard to
its state of repair, e.g. well maintained or neglected

3. Classification of buildings into five groups according to

age (pre-1850, 1850 to 1900, 1900-1914, 1914 to 1945

and post 1945)

97
4. Number of storeys of residential buildings Points
5. Index estimate of open spaces of premises

C. Criteria for dwellings

 

1. Structure of dwellings

 

a. orientation of rooms within the building 4
b. orientation of rooms within the dwelling unit 3

2. Living-rooms and bedrooms

 

a. dimensions and orientation of inhabited rooms 4
b. natural light 4—6
0. sunlight 3
d. ventilation 3
e. damp resistance 6
f. thermal insulation 4
g. sound insulation 5
h. condition of rooms 6

3. Secondary rooms and operating facilities in the dwelling

 

a. toilet
- outside the house 6
— outside the dwelling unit, for use by the occupants
of several buildings 5
- outside the dwelling, for use by the occupants
of the dwelling unit 4
b. secondary rooms

- no bathroom, no storage space 4

98

rains
c. heating facilities 5
(1. water supply
- water tap outside the dwelling unit 4
- water tap outside the building 5
e. equipment of the dwelling
- insufficient equipment of kitchen and bathroom 3

III. THE UNITED STATES
"An Appraisal Method for Measuring the Quality of Housing, " developed

by the American Health Association.

Part II: Appraisal of Dwelling Conditions

 

Items of Appraisal

 

A. For the dwelling Maximum Penalty Score

 

 

1. Facilities

buildings: a. main access 6
b. water supply (for the building) 25
c. sewer connection 25
d. daylight obstruction 20
e. stairs and fire escapes 30
f. public hall lighting 18
dwelling: g. location in structure 8
h. kitchen facilities 24
1. toilet 45
j. bath 20
k. water supply 15

1. washing facilities 8

99

Maximum Penalty Score

 

m. dual egress 30
n. electric lighting 15
0. central heating 3
p. rooms lacking installed heater 20
q. rooms lacking window . 30
r. rooms lacking closet 8
5. rooms of substandard area 10

t. combined room facilities

 

(p, q, r, and s combined) & 360
2. Maintenance
a. toilet condition index 12
b. deterioration index 50
c. infestation index 15
d. sanitary index 30
e. basement condition index _13_ 120
3. Occupancy
a. persons per room 30
b. persons per sleeping room 25
c. sleeping area per person 30
d. non—sleeping area per person 25
e. doubling of basic families fl liq
Maximum score per dwelling 600

Part III: Appraisal of Neighborhood Environment

Items of Appraisal

 

100

 

 

Land crowding Maximum Penalty Score
a. coverage by structures 24

b. residential building density 20

0. population density 10

d. frontage daylight obstruction 6 6O

Non-residential land uses

 

a. areas incidence of non—residential land use 13
b. linear incidence of non-residential land use 13
0. specific non-residential nuisances and hazards 30
d. hazards to morals and the public peace 10
e. smoke incidence 6 72

Hazards and nuisances from transportation system

 

 

 

a. street traffic 20

b. railroad and switch yards 24

c. airports 20 64
Hazards and nuisances from natural causes

a. surface flooding 20

b. swamps or marshes 24

c. topography __1_(_3_ 60
Inadequate utilities and sanitation

a. sanitary sewerage system 24

b. public water supply 20

c. streets and walks 10

101

Maximum Penalty Score

 

Inadequate basic community facilities

 

a. elementary public schools 10
b. public playgrounds 8
c. public playfields 4
d. other public parks 8
e. public transportation 6
f. good stores 4 40

Maximum score for environment 350

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Duggar, George, and Ford, Pamela. Urban Renewal Administration. University
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