International Conference on Sustainable Development in Civil Engineering, MUET, Pakistan (23th – 25th Nov, 2017)

Access of Low Income People to Housing: How Far

Khuda Ki Basti-4 Housing Project Kala Shah Kaku,
Lahore is Meeting Housing Need of Low Income
People?

Rizwan Hameed1, Obaidullah Nadeem1, Muhammad Adil2, and Muhammad Qasim Ashraf2
1
Department of City and Regional Planning, UET., Lahore
2
Graduate, Department of City and Regional Planning, UET., Lahore

Abstract. Like many other cities in the developing world, Lahore is also facing a severe housing problem. In this regard,
government has taken number of initiatives but these have proved to be inadequate and un-affordable to low income people due
to high land prices. Private sector has also taken initiatives to provide housing. In this context Saiban, an NGO has launched
Khuda-Ki-Basti-4 housing project at Kala Shah Kaku in Lahore with the view to replicate Khuda-Ki-Basti housing scheme
initiated at Hyderabad and which proved to be a successful project primarily due to incremental development approach. This
research attempts to assess that whether KKB-4 is serving its purpose and that land speculators have not jeopardize the access of
low income people to housing.

Results of interviews with residents show that the criteria necessitating stay in the reception area within 45 days is one of the key
factor ensuring that only low income people have access to plots. People are happily living there and proud to be part of Khuda-
Ki-Basti project despite some concerns relating to infrastructure and amenities. The project has the potential to be replicated by
the public sector agencies provided it gets conceptual acceptance of decision makers.

Key words: Khuda-Ki-Basti, Low Income People, Housing

I. INTRODUCTION

Housing has been observed and conceptualized in different ways in the literature. As a shelter it
is described as a social necessity recognized all over the world in terms of most important need
of the man, after food [1]. Housing as a basic necessity holds an important place in the general
strategy of development for its socio-economic characteristics [2].

Housing can be regarded as a fundamental right since it forms an indispensable part of human’s
life and ensures their dignity, protection and privacy. It fulfills social needs of basic gathering
and acts as an important source where relationships are forged and nurtured. The right of
adequate housing should be interpreted in a wider spectrum. It contains freedom and entitlements
such as protection against forced evictions, arbitrary destructions and demolition, security of
tenure, availability of facilities, affordability, habitability, non-discriminatory access, cultural
adequacy, restitution of housing, land and property along with participation in housing related
decision making at national and community level.

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In cities of developing countries, urbanization and arising pseudo-urban economy is giving birth
to immense poverty among rapidly growing urban population [3]. In most of the developing
countries, these urbanization processes have led to a massive shortage of housing and qualitative
deficiencies [4] and as a result vast majority of urban population cannot afford cost of
conventional housing. This puts a great pressure on existing housing supplies as national
governments and private developers in developing countries are unable to cope up with the ever
increasing demand. Different projects that were initiated to address the housing issues ended up
in a fiasco and many of them which were meant for urban poor ended up in middle class
housing. As a result, different modes of rental accommodations have been built in the developing
countries for vast majorities and majority of the poor live on rent [5]. Similarly, there are hardly
some developing countries which do not have any low income housing arrangement in the form
of slum or squatter settlement providing housing to the poor. In fact slums and squatter
settlements are a synopsis of poor quality houses and it is conventionally supposed that such
settlements exhibit a major housing problem and are clear indicator of housing shortages in the
cities of developing countries.

Pakistan is rapidly urbanizing country in South Asia and with the ever expanding cities, access to
affordable housing is a key issue for Pakistani middle and lower income class [6]. As per the
World Bank statistics, the 37% of the total population of Pakistan is now living in urban areas
and it is expected to grow further in the near future [7]. Like many other developing countries,
Pakistan is also facing severe problems of housing shortage and the situation is more precarious
in urban areas. Reference [6] highlights that the urban housing shortage is estimated at 3.5-4
million units, nearly all amongst the segments of population with low affordability. For instance,
in Lahore the second largest city in the country, households at the bottom 68% of the income
distribution can only afford 1% of the available housing stock, while households at the top 12%
of the distribution can afford 56% of available housing. Similarly, reference [8] note that in the
Punjab Province, a number of factors have been contributing to negatively affect urban land and
housing markets and thus forcing poor people to live in low quality housing. In particular, “The
supply of serviced land is constrained by widespread public ownership of land; inadequate trunk
infrastructure provision to developable sites; complicated property rights; land titling and
registration systems, and inappropriate and inefficient land use plans and regulations; rent
controls; and highly and distorting taxes. These impediments make it difficult for land and
housing markets to respond to housing demand and, as a result, land and housing prices are
expensive. Consequently, most households are priced out of the formal market and nearly 50
percent of housing is produced through informal procedures without infrastructure, titling, and
planning.” P. 14.

The Government of Pakistan has been trying to address the problem of housing shortage. The
national housing policy [9] suggested different strategies to improve the prevailing housing
conditions. These comprised of institutional development and capacity building by empowering
stakeholders, introduction of innovative approaches for screening of eligible households for

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incremental housing finance, endorsing new ideas such as reduce standards, regulating squatter
settlements, introducing incremental approach, and promoting community participation. Despite
the fact that state endeavored to provide housing but the efforts could not produce desired results
as expected owing to various reasons ranging from institutional and financial inadequacies,
inappropriate policies and regulations through to scarcity of developed land, hike in land prices
in the wake of land speculation and corruption [10], [11].

Nevertheless the incremental development approach adopted by the Hyderabad Development

Authority (HDA) in Sindh Province proved to be amongst few examples of successful initiatives
to meet the challenge of low income housing. With the help of local administration and
community building, the Khuda Ki Basti (KKB) housing project in Hyderabad commenced by
HDA in 1986 appropriately managed to fulfill the social, economic and cultural needs and
aspirations of targeted community Withstanding the incremental housing principles, the
conceptual and design framework of KKB allowed sufficient leverage and wider flexibility to
accommodate the changes in family structure and prevailing minimum housing standards [12].

Additionally project was facilitated at various levels including: social, financial and technical.
For instance, in regard to last mentioned element, residents and newly arrived inhabitants
received building and design assistance, orientation of public infrastructure and amenities,
designing of floor plans and received assistance in the provision of suitable building materials
from informal construction sector. All of the mentioned elements, as well as the provision of a
site and layout plan, which included the designation of 15% of the area for public amenities and
public spaces, contributed to the relatively fast consolidation of the KKB community.

Furthermore, the local authorities and KKB administration managed to eliminate land
speculations in the project area. In order to gain access to the plot, applicants had to present
themselves with the whole household and all household’s goods. They were¸ at the very first
instance, accommodated in a provisional camp, the ‘reception area’, where they had to live for
about a fortnight to prove themselves as deserving family. Secondly, the beneficiaries did not
receive allotment letters for their plots, immediately after access to plot. Instead, after a first,
modest down payment, a small monthly amount-easily payable and negotiated amount- had to be
deposited for infrastructure provision. ‘Only when the full costs of the plot and infrastructure
have been paid will allotment papers be issued. In this way, any long absence from the plot can
be punished by cancelling the application and, with it, the allocated plot’pp-86-7. [12].

The innovative approach of incremental development followed by HDA at KKB proved to be a

viable alternative to the public sector's attempts to provide housing for low income groups. It
represented a change in the traditional sites and services housing schemes by ensuring the service
provisions in increments according to the need and ability of plot holders to pay for such
services. The KKB as the first incremental housing scheme was developed at Gulshan-e-Shahbaz
housing scheme in Hyderabad but has since been followed by few similar schemes in the
country. This paper analyses the Khudaki Basti-4 (KKB-4) project launched by Saiban at Kala

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Shah Kaku in Lahore in 2006. The Saiban is an NGO headed by former Director General of
HDA who was the mastermind behind the successful implementation of incremental housing
approach at Gulshan-e-Shahbaz housing scheme at Hyderabad.

II. MATERIALS & METHODS

Since housing and shelter is one of the basic needs, it is required to be catered for with due
consideration and immediate measures. The housing backlog, especially for the low-income
people suggests that specific measures should be taken in the right direction so that the low-
income people also get a proper place to live. KKB-4 housing project at Kala Shah Kaku, Lahore
is a step in the right direction. Proper implementation of the incremental development approach
as adopted in KKB-4 can serve to guide as a model for replication in other cities with the view to
providing shelter to low income groups. This has been the main concern of this research and in
order to assess progress of KKB-4 in ensuring provision of housing to low income groups, the
methodology adopted to this end included literature review, structured interviews with officials
of Saiban, an NGO that look after all the structural and operational mechanisms of KKB-4, and
survey of present residents of the said project. Amongst the total residents at the time of survey
(in 2015), 50% of those occupying ordinary plots were selected for interview using systematic
sampling technique by interviewing every second resident thus bringing the total surveyed
residents to 90 out of total of 180.

III. RESULTS

A. Introduction to Khuda-Ki-Basti-4 Housing Project

Situated in the North West at a distance of around 20km from the Lahore city across the river
Ravi and within the metropolitan area at Kala Shah Kaku, KKB-4 is the fourth consecutive
project based on incremental housing development approach. It vows to institutionalize the
process of incremental housing by enhancing social, cultural and political acceptability. It
predominantly tends to address the failure of public housing for low income urban residents and
significantly enrich on the solutions provided by informal sector that have been widely practiced
across urban concentrations in developing countries. However, it varies in scale and political
support as compare to earlier projects, but its planning dynamics and financial framework
remains same.

The Khudaki Basti Schemes 1-3 have been launched on government sponsored land in Karachi.
However, due to lack of any support by any development authority, Saiban had to purchase the
land for the commencement of KKB-4 near Kala Shah Kaku in Lahore with the help of few
donors and investor at the rate of Rs. 10 lac per acre. The site is easily accessible from G.T road
and it stretches over an area of 191.52 kanal. It has been planned on equally divided 11 blocks

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ensuring compliance with planning and design standards and accompanied by park/open space in
the center to enhance livability. The KKB-4 administration obtained approval of the scheme
from TMA Ferozewala and it took almost one year due to lengthy and cumbersome procedure.

The scheme comprises of 460 plots having dimensions 24’ x 34’ with certain exceptions due to
geometrical constraints. By the time of survey (in 2015), two schools, a mosque and few shops,
electricity and sewerage at KKB-4 have been made available to meet the needs of the residents.
A communal hand pump is used by residents to get water for various needs. This appears to be
slight departure from original concept of providing all services incrementally as done in case of
KKB-1 at Hyderabad because of different target market in Lahore. However, other development
works including water supply, street lights, and parks are planned to be executed gradually. The
plots have been divided into two categories i.e. ordinary and prime. Ordinary plots are
exclusively meant for low income households on subsidized and affordable price following
procedural and validation requirements set by Saiban. On the other hand, prime plots-located on
central spine and periphery-are sold on market rate to cross subsidize infrastructural provision
and affordable housing. This, in turn, helps to contribute towards financial sustainability and
portrays an endeavor to set a precedent for self-sustained low income housing projects. The
ordinary and prime plots were available at the time of survey at the price of Rs. 1, 20,000 and Rs.
3, 90,000 respectively.

B. Procedure for Allotment of Plots at KKB-4

The prospective applicant comes to the reception area along with his family and the household
belongings. The Saiban field staff provides the applicant with temporary shelter after verifying
the household and household belongings. This serves as filtering process to weed out speculators
from buying plots at KKB-4. After the preliminary approval of the application, the applicant is
required to deposit a certain amount (typically around one-fourth of the price of plot) in the
prescribed bank and submit the receipt at site office. After verifying the continuous presence of
the family at the reception camp, the Saiban staff issue a provisional letter to the applicant upon
receiving another sum of money as prescribed as well as approval from the in-house allotment
committee. The remaining amount is to be paid in easy monthly installments. The applicant has
to ensure continuous presence at the allotted plot and have the responsibility of building his own
house. The allotment is going to be cancelled automatically in case of a continuous absence of 3
months from the plot without any reason. The allotment is provisional for the initial 5 years and
afterwards the plot ownership is transferred in the name of the applicant if s/he fulfills all the
terms and conditions.

C. Results of Interviews with selected residents of KKB-4

The results of interviews with selected residents of KKB-4 are presented in this section. Table I
presents data about income level of residents with respect to occupation of head of household. It
is clear that majority of the residents belonged to low income group and were either privately
employed or doing small business with income level ranging between Rs. 10, 000 to Rs. 20, 000

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per month. Further inquiry revealed that majority were either salaried workers (52%) or earning
from their small business (26%) whereas remaining were laborers/daily wagers (22%).

Table I: Monthly income of household head with respect to occupation

Occupation Income (in Rupees) Total
> 5000 5001-10000 10001- 15001- < 20001
15000 20000
Laborer 1 0 6 10 0 17
Govt. Job 0 0 1 10 1 12
Private Job 2 7 18 4 3 34
Entrepreneur 0 2 12 4 7 25
Others 1 0 1 0 0 2
Total 4 9 38 28 11 90

Table II provides information about distance of work location of head of household from KKB-
4. It is clear that majority (54%) has to travel more than 15 km daily to reach their work places
which mainly are located in the city. Moreover, most (78%) of them spend Rs. 1000 to Rs. 3000
per month in respect of travelling expenses (see table III). Further investigation revealed that as
many as 86% of interviewed residents uses either public transport or motorcycle as mode of
transport which also indicates that majority belongs to low income class.

Table II: Distance of work location of Table III: Cost incurred per month on transport
household head from KKB-4 Travel cost (Rs) Frequency Percentages
Distance Frequency Percentages
(km) > 1000 10 11.1
<5 4 4.4
1000-2000 47 52.2
5-10 22 24.4
2001-3000 23 25.6
11-15 15 16.7
>15 49 54.5 < 30001 10 11.1

Total 90 100.0 Total 90 100.0

Selected residents were asked also about the reasons for moving out from previous place of
residence to KKB-4 and the responses are presented in table IV. It is clear that most (60%) of
residents shifted to KKB-4 because they were living in rented houses and could not afford to
own a house somewhere else. Similarly, some (12%) left their previous residence due to family

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problems and for some (9%) KKB-4 offered ray of hope to turn the dream of owning a house
into reality.

Table IV: Reasons for moving to KKB-4

Reasons Frequency Percentages
Proximity to work place 5 5.5
Family problems 11 12.2
Wish for own house 8 8.9
Previously living in a rented house 54 60.0
Better living environment at KKB-4 6 6.7
Affordable installments to pay for purchasing the plot 6 6.7
Total 90 100.0

Under speculation phenomenon, a plot is sold several times through different owners at a much
higher price. In order to corroborate, residents were asked about from whom they bought the
plot. In reply all the selected residents reported that they bought their plots from KKB-4
management except one resident who bought the house from previous owner who sold it after
fulfilling the condition of five years of demonstrated presence at the plot as imposed by Saiban to
curb speculation. Moreover, sale and purchase of plot is restricted and can only be done through
KKB administration thus further lowering the chances of speculation.

It was equally important to confirm whether residents of KKB-4 have paid the price of plot in
installments. Out of 90 interviewed residents 62 had already paid all the installments. Table V
shows that of those 62 residents, majority (49 of them) paid installments over a period ranging
from 2 to 5 years which obviously is a reasonable timeframe for low income groups to pay the
price of plot at the rate of around Rs. 1000 to Rs. 2000 per month. When asked, majority (82%)
managed to pay monthly installment to buy the plot at KKB-4 through personal savings.

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Table V: Time taken to pay all installments from the year of purchase of plot
No of Year of purchase of plot Total
Years 2007 2008 2009 2010 2011 2012 2013 2014
1 1 1 0 0 5 0 0 2 9
2 2 0 0 3 4 3 2 1 15
3 2 0 6 1 1 2 0 0 12
4 1 0 5 4 1 0 0 0 11
5 1 0 3 7 0 0 0 0 11
6 1 1 0 0 0 0 0 0 2
7 0 1 0 0 0 0 0 0 1
8 1 0 0 0 0 0 0 0 1
Total 9 3 14 15 11 5 2 3 62

KKB4 offers incremental construction approach for the convenience of low income people
without any condition of completion period. In this regard, a question was asked from the
residents whether they agree with it or not. As many as 58% agreed with the incremental
approach, 33% disagree and opined that it’s easy to build the house in one go whereas 8%
remained indifferent to this question. Table VI presents data about construction status of house
with respect to year of occupation.

Table VI: Year of occupation of plot and status of house construction

Year of Construction Status Total
occupation
of plot Constructed house Partially constructed house
2007 2 2 4
2008 11 5 16
2009 5 7 12
2010 6 13 19
2011 10 6 16
2012 5 10 15
2013 2 2 4
2014 3 1 4
Total 44 46 90

It is clear that more than half of the interviewed residents were yet to complete the construction
of their house with some even after 7 or 8 years of plot occupation. This finding is in line with
the fact that generally low income people often find it difficult to construct the house in single

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phase primarily because of lack of adequate finance needed to do so. This argument was further
supported by the fact that vast majority of residents of constructed houses in KKB-4 proceeded
with the construction in phases as evident from table VII.

Table VII: Sequence of house construction

Sequence Frequency Percentages
Constructed in single phase 4 9.1
Room, compound wall, bath, kitchen 8 18.2
Room, bath, kitchen, compound wall 15 34.1
Room, kitchen, bath, compound wall 3 6.8
Room, bath, kitchen 3 6.8
Room, bath, kitchen, drawing room 7 15.9
Room, bath, kitchen, floor 4 9.1
Total 44 100

In response to a question regarding construction mechanism of the house, 50% of the

interviewed residents build their houses on self-help basis, 46% employed a contractor whereas
4% reported that they adopted both mechanisms at different phases of construction. When asked
whether approval of house plan from concerned planning agency has been obtained majority
(78%) replied no as opposed to only few (22%) who managed to get house plan approval. The
key reasons for lack of house plan approval included lack of awareness and capacity to fulfill
requirements of concerned planning agency regarding house plan approval.

The opinion of residents on condition of KKB-4 to demonstrate need of a plot by residing in the
reception area within 45 days of approval of application was also obtained. The analysis shows
that 52% agreed with this approach and the timeframe given since it help filter out speculators
while some 18% remained indifferent to this question. But another 30% didn’t agree and argued
that either it should not be mandatory or the time period to report to KKB-4 administration for
stay in reception area after approval of application should be enhanced since this involves
considerable time to leave old place of residence, bring all belongings and invest life savings at a
newer place.

The positive attitude of administration and efficient delivery is a key factor towards success of
any organization. Therefore, a question was also asked to judge satisfaction level of residents
with KKB 4 administration. While 7% remained indifferent, as many as 52% interviewed
residents were satisfied with the administration due to their cooperative behavior and efficient
response to issues and queries. Still 41% were not satisfied primarily due to inefficient provision
of infrastructure particularly roads and piped water in the wake of incremental approach adopted
by the KKB-4 administration to provide infrastructural facilities progressively using proceeds
from sale of prime plots and installments from occupants of ordinary plots. Nevertheless, on the
whole majority (65%) of interviewed residents had feeling to be proud of being part of KKB-4

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initiative as compared to small minority (18%) for not feeling so while 17% preferred not to
answer this question.

IV. CONCLUSIONS
The analysis of data presented here shows that the criteria necessitating stay in the reception area
is one of the key factors to weed out land speculators and ensuring that only low income people
have access to plot in KKB-4 housing project. The condition to permit sale and transfer of plot
ownership after five years of occupation and physical presence at the plot and that too through
KKB-4 administration further contributes to effectively control speculation. The KKB-4 has
been successful in offering a window of opportunity to low income people to build a home with
legal title for the first time in their lives since most of the people who have moved to KKB-4
were previously living in rented houses. Although some residents have concerns about pace of
infrastructure provision most of the residents feel proud to be part of KKB-4 due to the fact that
they got their own house. The study highlights that Saiban applied the incremental development
approach at KKB-4 with some adjustments in the original approach applied at KKB-1 which
points to the fact that the said approach is flexible and can be replicated by adapting to local
circumstances, a point already noted by reference [13].

V. RECOMMENDATIONS
The experience of KKB-4 indicates that housing at an affordable price can be delivered to meet
the need of low income people without burdening the state. In this context it offer great insight
and a viable option for public sector planning agencies to replicate such initiatives having
potential to ensure affordable housing development. But this obviously cannot be achieved
without conceptual acceptance by the decision makers and bringing changes in existing
regulations to accommodate incremental housing development. A detailed investigation to
understand the dynamics of successful development of KKB-4 will be necessary to come up with
lessons for better replicating such projects not only elsewhere in the country but also in other
developing countries to address the challenge of housing low income groups. Based on such an
assessment standard guidelines may be developed to facilitate the replication process while
keeping in view the local variations in conditions within which such a project is to be executed.
Similarly, while the layout plan of KKB-4 is according to official standards with reasonably
wide streets, equally divided blocks with a park in the center of each block. Furthermore, the
layout plan was approved by the local planning agency though after taking considerable period
of time. But this situation calls for a separate set of regulations both for low income housing
projects involving incremental development approach as well as house construction under such
projects so to ensure replicating this approach with minimal bureaucratic hurdles and more ease.

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ACKNOWLEDGEMENTS
The authors are grateful to Saiban officials and households for sparing valuable time and
providing the requisite information. This article is based on a research project undertaken at the
Department of City and Regional Planning (DCRP), University of Engineering and Technology
(UET), Lahore under the supervision of first author [14]. While no funds were obtained, a
conducive research environment provided by the DCRP is duly acknowledged.

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