CHAPTER 2

STANDARD HOUSING
NORMS AND HOUSING
SCENARIO IN NDIA VIS, A ,VIS
ASSAM
 15

CHAPTER-2

STANDARD HOUSING NORMS AND HOUSING SCENARIO IN INDIA VIS,

A,VIS, ASSAM

2.1 Introduction;

Residential housing is the basic need of the civilized living. Despite various efforts to

solve the housing problem, there is an increasing gap between the supply and the

demand for the housing. Millions of people o f our country, either have no place to live

or living under highly unhygienic,inhuman conditions and deprivations. Overcrowding,

lack o f privacy, total absence o f madequate & basic amenities, use o f substandard

building materials and unhygienic surroundings dominates the scene o f settlements.

This chapter includes the various issues relating to housing with reference to

standard housing norms. Standard housing means the adequate housing which is

defined as per the norms of “UNITED NATIONS CENTRE FOR HUMAN

SETTLEMENT” (UNCHS) in particular. The housing scenario in Assam vis-a vis

India shown and discussed in this chapter in general.

2.2 Various concepts on Housing;

The housing in different terms appears to be similar in meaning even though

there may be considerable differences among them. Therefore, it is relevant to define

these commonly used terms in today’s context;

HOUSE In the context of planning, ‘House’ means a building for human habitation.

It can take many forms from a mud-hut with single room to palace with 500 rooms.

For modem planning, the majority o f houses are either one, two or three storied

single family dwellings and are either detached, semi-detached or terraced.

 16

Except in housing statistics, the term ‘House’ is not usually applied to single family

dwellings in multi-storied buildings. These are rather called ‘Apartments' in USA and

most European Countries and ‘Flats’ in Great Britain, (Ref: Whittick A, - Encyclopedia

o f Urban Planning 1974j .1

HOUSING The term ‘Housing’ refers to a package o f services : land, public

facilities, access to employment and to other social services, as well as to the dwelling

structure itself.

Access, space, tenure, on-site services and shelter are the attributes which

combine to define housing.

Access refers to contact with employment and income generating opportunities,

with off-site services such as health and education and with the community.

Space determines agriculture, commercial and recreational activities as well as privacy.

The attributes o f tenure have two dimensions - security o f tenure and ownership rights.

Security o f tenure gives protection from being evicted. It encourages low income

households to maintain and improve their shelter. And ownership rights include such

benefits as the ability to let out all or part o f the lot or house, the right to carry out

commercial activities and to benefit from any increase in property value. On-site

services include water and energy supply, waste disposal drainage and protection from

fires and rains. Housing provides protection from the hazardous elements and offers

privacy, conveniences, domestic living space and aesthetic pleasure. It may also

provide an opportunity to earn an income by renting. (Ref: Richards P.J. and Thomson

A.M.-Basic Needs the Urban Poor: London)

HOME : It refers to a dwelling , a house or an apartment, that is the fixed residence of

a person and a family or household in an accustomed or familiar neighbourhood.

1 Khurana M L ., Organization and Management o f Housing Co- operative . page no 23.

 17

HOUSEHOLD: household refers to the group o f persons who dwell under the same

roof but they need not necessarily comprise a family. The persons who share a common

kitchen in a house represent one household according to the census definition.

DWELLING UNIT : In relation to a building or a portion of a building , a dwelling

unit means a unit o f accommodation, in such building or portion used solely for the

purpose of residence as defined in the urban Land (Ceiling and Regulations ) Act, 1976.

CONCEPT OF A HOUSE : The concept o f a house has never remained constant. Over

the times, it has been viewed and conceived in different ways. It is relevant to refer as

to how it has been looked at by Census Reports

Census Definition:

1881 The dwelling place of one or more families with their servants, having a

separate principal entrance from the Public way.

1891 The dwelling place o f one or more families with their resident servants, having

a separate principal entrance from the common way.

OR

1892 ‘House’ consists of the buildings, one or many, inhabited by one family

1901 The dwelling place o f one or more families having a separate principal entrance

from the common way.

OR
‘House’ consists of the buildings, one or many, inhabited by one family.

1911 The residence o f one or more families having a separate independent entrance

from the common way. OR

‘House’ is defined as consisting o f the buildings, one or many, inhabited by one

or many or inhabited by one family.

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1921 The residence of one or more families having a separate entrance from the

common way.

OR
‘House’ is the building or part of a building occupied by one family.

1931 ‘House’ is defined as consisting o f the building, one or many, inhabited by one

family.

OR
Every dwelling with a separate main entrance.
OR
‘Census House’ means the dwelling place o f single commercial family.

1951 ‘Census House’ is a dwelling house with a separate main entrance. Explanation:

A ‘House’ is structure while a ‘Household’ is a human group.

1961 ‘Census House’ is a structure or part o f structure inhabited or vacant or a

dwelling, a shop, a shop-cum-dwelling or a place o f business, workshop, school

etc. with a separate entrance.

If a building has a number o f flats or blocks having separate entrances o f their

own and independent of each other from the road or common staircase or a common

courtyard they are termed as separate census houses. If within and enclosed or open

compound there are separate buildings then each such building will also be separate

census house. If all the structures within an enclosed compound are together treated as

one building then each structure with a separate entrance should be treated as a separate

census house.

1971& 1981 Census : A ‘Census house’ is a building or a part o f a building having a

separate main entrance from the road or common courtyard or staircase etc. used or

recognized as separate unit. It may be inhabited, or vacant. It may be used for

residential or non-residential purpose or both.

 19

I f a b u i l d i n g h a s a n u m b e r o f f l a t s o r b l o c k s w h i c h a r e i n d e p e n d e n t f r o m o n e a n o t h e r

h a v i n g s e p a r a t e e n t r a n c e s o f t h e i r o w n f r o m t h e r o a d o r a c o m m o n s t a i r c a s e s o r a

c o m m o n c o u r t y a r d l e a d i n g t o a m a i n g a t e , t h e n t h e y w i l l b e c o n s i d e r e d a s s e p a r a t e

c e n s u s h o u s e s . I f w i t h i n a l a r g e e n c l o s e d a r e a , t h e r e a r e s e p a r a t e b u i l d i n g s , t h e n e a c h

s u c h b u i l d i n g s w i l l b e o n e o r m o r e s e p a r a t e c e n s u s h o u s e s . I f a l l t h e s t r u c t u r e s w i t h i n

a n e n c l o s e d c o m p o u n d a r e t o g e t h e r t r e a t e d a s o n e b u i l d i n g t h e n e a c h s t r u c t u r e w i t h a

V ty
s e p a r a t e e n t r a n c e s h o u l d b e t r e a t e d a s a s e p a r a t e c e n s u s h o u s e .

2.3 Housing realities and dimension;

A s a d e v e l o p i n g N a t i o n , t h e s t a n d a r d o f h o u s i n g i n I n d i a p o s e s c e r t a i n

c h a r a c t e r i s t i c s , w h i c h a r e i n t r i c a t e l y a s s o c i a t e d w i t h t h e s o c i o - e c o n o m i c b a c k g r o u n d o f

t h e p e o p l e . T h e s a m e c a n b e i n d i c a t e d a s u n d e r .

a ) H o u s i n g c o n n o t e s t h e t o t a l h o u s i n g e n v i r o n m e n t o f w h i c h h o u s e a n d s h e l t e r

i s m e r e l y a p a r t .

b ) T h e r e a r e c e r t a i n b a s i c d i f f e r e n c e s i n t h e h o u s i n g p r o b l e m i n t h e R u r a l a n d

U r b a n a r e a .

c ) I n R u r a l a r e a s , l a n d i s n o t m a j o r c o n s t r a i n t w h e r e a s c o n g e s t i o n o r h i g h

d e n s i t y o f p o p u l a t i o n i s a m a j o r p r o b l e m i n t h e U r b a n a r e a .

d ) H o u s i n g i n t h e U r b a n a r e a i s s u b j e c t e d t o c o n t r o l s a n d b u i l d i n g b y e l a w s

w h i l e i n R u r a l a r e a i t i s n o t .

e ) H o u s i n g i s r e l a t e d t o s o c i o - e c o n o m i c a s p e c t s , i . e . R u r a l f a m i l i e s u s e t h e i r

h o u s e s a s w o r k p l a c e . E c o n o m i c a c t i v i t i e s a r e c a r r i e d o u t i n a n d a r o u n d t h e

h o u s e .

2
' Khurana M L, Organization and Management o f Housing Co-operative, page no. 26 & census report,
Govt, of India.
 20

f) The poor give a fairly very low priority to housing, as they are not prepared

to invest in it.

g) There is need for housing but there is no effective demand for it.

2.4 Housing is a basic Human Right:

The right to adequate housing is one o f the economic, social and cultural rights

to have gained increasing attention and promotion among the human rights bodies.

For instance, Article 11(1) o f the International Covenant on Economic, Social

and Cultural Rights (CESCR) recognizes, the right o f everyone to “an adequate

standard of living for himself and his family, including food, clothing and housing, and

the continuous improvement of living conditions”.3

The United Nation Centre in Human Settlement (habitat) estimates that

throughout World, over one billion people live in inadequate housing, with an excess of

100 million people living in conditions classified as homelessness'.4

Millions o f people around the globe are made homeless by forced evictions

which adversely affect families and family life. The constant fear o f eviction also

negatively affects the emotional health o f the family.

The United Nations center for the human settlement has been actively

promoting the right to housing as basic human right. The process began with the

implementation o f Vancouver declaration on human settlement issued in 1976 followed

by the proclamation o f the International year o f shelter for the homeless 1987 and the

adoption o f the global strategy for shelter (GSS) to the year 2000 by the United Nations

General Assembly (UNGA) in 1988.

3' HSMI (HUDCO), Shelter News, published in October 1994, on occasion o f World Habitat Day, page

no. 10.

4 IISMI (HUDCO), Shelter News, published in October 1994, page no. 11.
 21

The right to adequate housing forms a “cornerstone o f the global strategy”. The right to

adequate housing is Universally recognized by the community o f Nations. All Nations,

without exception, have some form o f obligation in the shelter sector as exemplified by

their creation o f housing Ministries or housing agencies, by their allocation o f funds to

the Housing sector, and by their policies, programmes and projects. Citizens o f all

States, poor as they may be, have a right to expect their shelter needs, and to accept a

fundamental obligation to protect and improve houses and neighbourhoods, rather than

damage or destroy them.

2.5 Concept o f Adequate Housing:

Adequate housing refers to adequate privacy, adequate space, adequate

security, adequate lighting and ventilation, adequate basic infrastructure and adequate

location with regards to work and basic facilities all at reasonable cost.

It is an extremely difficult thing for a Government to make housing available to

all it’s citizens. 'The Centre for Housing Rights and Evictions, an affiliate o f Habitat

International Coalition (HIC), a Netherland based Centre has sought to address this

issue on the occasion o f the World Habitat Day (WHD) in 1994, by emphasizing that

housing rights have more to do with political will than with the logistics o f actually

providing housing to people",5

The Centre says that while the physical structure of the house, the infrastructural

facilities around it and security o f tenure are important issues, they are largely

dependent on some conditions, which has to be made possible by the Government.

It is true that economic factors play a large part in determining whether or not

housing rights are realized. Rates o f inflation, interest rates, structural readjustment

5’ HSMl (HUDCO), Shelter News, published in October 1994, page no. 11.
measures, income level and distribution, and system of taxation, all affect the degree to

which housing rights can become a reality. In this regards, the Government have to play

their part as well.

However, many Governments are still resident to the idea that the right to

housing is a right for everyone. Poor people think, investment in housing and

infrastructure as a waste o f scarce resources and believe that the problem o f adequate

housing and homeless will be solved as the country develops.

It is true that development is dependent on the physical and mental health of the

people. People who sleep on streets or who live in unhygienic and overcrowded houses

cannot fully develop emotionally, intellectually, economically, culturally or as a family.

In fact, inadequate and insecure shelter can lead to social and political instability which

eventually hampers economic development.

The right to housing must therefore be seen as a public policy priority issue and

adequate financial, physical, institutional o f human resources must be allocated so as to

never compromise this right.

2.6 Definition of Adequate Housing:

UNCHS (habitat) Nairobi has defined clearly about an adequate house. Further

Director, (Housing) Ministry o f Urban Development and Director, National Building

Organization has referred and explained the same on occasion o f World Habitat Day

(WHD) ini994. 6

6' Agarwala Pankaj. Director, Ministry o f Urban Development & Director. National Building

Organization, UNCHS (habitat) Nairobi, published in News Bulletin by 11UDCO, page no. 25.
 23

Accordingly it can be said that an adequate house is one which meets the

following criteria

Physical Structure:- An adequate house must give protection from all the element, it

must not be damp or unfit for habitation and must be culturally acceptable.

The site on which it is built:- A house must have guarantee o f the physical safety of its

occupants .It must be a secure and safe place to be. to live, to raise children and be

healthy.

The Infrastructure/Facilities required :- An adequate house must have certain

facilities essential for health, comfort and nutrition. These include safe and sufficient

supplies o f water, the provision of household and human waste removal, facilities for

washing, cooking and food storage and heating and also where needed drainage system

etc. It must have proper connective road to avail certain public service facilities such as

State emergency life saving e.g. fire fighting and ambulance etc.

Affordability An adequate house must be made available at such a cost that it does

not result in the threatened or actual deprivation o f other basic needs o f all sections in

society.

Location An adequate house must be in location which allows access to

employment, health services, schools and other facilities. This is true in cities and rural

areas since the cost in time and public transport to and from work is often a major

constraint on the budgets of poor households.

Legal Security of Tenure An adequate house must have security of tenure. This

pertains to owner- occupiers concerning their rights as property owners, their right to

privacy etc. and security o f tenure for those who “hire” space to live, i.e, the legal right

of renters and tenants. Legal security o f tenure must also be applicable to squatter as a

means to prevent forced evictions, and security to leave possessions in terms o f

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protection from landlords, Governments and others who might want to expropriate

property.

2.7 Housing Situation in India : India is engaged in the development o f natural and

human resources and provision of housing to the masses in order to translate the goal of

socio economic policy as prescribed in the directive principles o f the Constitution.

Huge development and housing projects have been undertaken in public, private and

co-operative sectors in last four/five decades but India is not keeping pace with demand

and the number of unemployed and under-employed are still very high and a substantial

percentage o f population lives below poverty line and their housing condition are not

up-to the minimum level o f quality o f life. However the housing situation in our

country differs from place to place, State to State and region to region. This is due to

some natural and geographical condition. India is surrounded on north by the icy

mountains, on the north-east by marshy land, cyclone-prone eastern coast, desert sand

areas on the north east west, monsoon swept southern and south-west. India has

extensive geographical diversities. Commensurate with the climatic and geographic

diversities, the housing condition o f the people is not similar in all the places o f our

country. These diversities are reflected in the quantitative and qualitative aspects of

housing o f many areas. While the housing problem in the rural areas, by and large is

qualitative in nature, and the problem in the urban areas is largely quantitative. The

uncontrolled growth of population in urban areas, due to migration and other factors

have created a very high magnitude o f housing and infrastructure problem. Trend of

urban population is in a increasing rate. Table 2.1 may be referred to show growth

scenario o f population in the Urban areas.

The urban population in percentage o f total population has increased from

17.29% in 1951 to 25.72% in 1991 and in 2001. It shows that the population nearly

doubles in every four decades.

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Table 2.1 showing Rural/ Urban population indicating the growth rate in

urban population & their variation in India.

Y ear Population (in million)

R ural Urban Total Grow th rate in
urban areas in
%
1 2 3 4 5 (3/4X100)
1901 212.54 25.85 238.39 10.84
1941 274.50 44.15 318.66 13.86
1951 298.64 62.44 361.08 17.29
1961 360.29 78.93 438.23 21.37
1971 439.04 109.11 548.15 19.91
1981 523.86 159.46 683.32 23.34
1991 628.69 217.61 846.30 25.72
2001 703.20 318.90 1022.01 31.20

(Source: Census o f India 1991 and 2001)

As a result, the commercial/ industrial and other economically potential areas

have debased into slums, which effect on the socio economic condition o f the people.

As estimated, 30 million o f people in India are below poverty line, who are not even

able to afford basic necessities like food and clothing. One may have to spend his entire

lifetime savings for his house. If the situation in respect o f ownership o f houses is bad,

then situation in respect o f rented accommodation is still worse. The market rent and

the rent paying capacity o f the individual is widely different. This gap is implied in the

case of people belonging to the lower income groups.

However, due to large- scale migration o f rural population to the cities, all

available vacant spaces in the urban areas are used up. Moreover, cost o f land in the

urban areas is increasing. People in the middle-income group even find it difficult to

acquire the land at the present prevailing cost. The Urban Land Ceiling and Regulations

Act. (ULCR) 1976, has put a seal on the land transactions in such a way that the

Government can neither acquire the surplus land available nor private transactions o f

sale or purchase are permitted.

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In this present situation Government intervention through suitable modification of

ULCR Act. 1976 is now essential for proper utilization of surplus land for the benefit of

common people and to make affordable for housing. 7

However, from Table 2.1 it can be assessed that shortage o f housing is basically

due to high rate o f population growth. Hence the housing activities are required to be

developed to such an extent, so that this shortage is reduced. There is a huge gap

between the demand and supply o f housing.

In spite o f the various estimations made by the different research organizations,

the National Building Organization (NBO) estimates the net shortage o f housing unit in

India about 31 million in the year 1991, with a break-up o f 20.6 million in rural areas

and 10.4 million in urban areas.

It is also estimated that there would be (projected) a shortage o f 41 million in

the year 2001with a break-up of 25.5 million in rural areas and 25.5 million in urban

areas. The said estimates have been worked out by the NBO after 1991 census .But

very recently 9th plan working group (in respect Housing &Urban Development) has

estimated shortage o f housing o f 19.40 million only. The figure come down to 19.40

million is basically owing to introductions o f various housing activities carried out by

the Govt.

Moreover, the supply o f standard and durable shelter units is inadequate.

Further there is also a need for equitable distribution of land resources, so that secured

tenure-ship is assured to the households. It is also needed to improve infrastructure and

amenities, including water supply, sanitation, health and education facilities, access for

employment opportunities etc., which are regarded as an important part of adequate

housing.Now the position of housing stock in India is further analyzed as under.

7l Khurana M L . “O rganization and M anagem ent o f I lousing C o-op erative", P age No. 3.
 27

2.8 Housing Stock in India: The housing stock in India in 1991 was 147 million

units. In the Rural areas, the stock was 107.9 million units, which was 42.7 million

units higher than the level obtaining in 1961. In the urban areas the stock increased by

25 million units during the same period, reaching a figure o f 39.1 million units by

1991.The total increase in housing stock o f 67.7 million units during the period 1961-

1991, fell just short of the increase in number o f households o f 68.5 million units. In

monetized terms the value o f National housing stock aggregate to Rs.32.58 billion with

rural housing accounting to 49.5% o f the total housing wealth in the country. Thus

during this period the total housing effort (private and public put together) just kept

pace with the increase in the number o f households and could not make a dent on the

backlog. As per the National report, the estimated housing stock was presented for

1971, 1981 and 1995 in three categories o f housing typology, namely Kutcha, Semi-

pucca and Pucca. The estimates for the rural and urban components of housing market

are presented and shown in the Table 2.2. It includes the physical inventory o f housing

stock and their financial value. The housing sector has, on the average, contributed 10-

12 P/c annual gross capital formation in the country and income from housing in GDP

has averaged 5 percent.

However, as per the report o f the Society for Development Studies (SDS), New-

Delhi, the housing stock has increased to 161 million units in 1995, with 115.6 million

units in Rural India (71.8 percent) and the total value o f the housing stock o f India now

aggregates to Rs.5,731 billion at 1995 prices. It also shows a distinct improvement over

the last two decades, in terms o f typology and materials used for wall and roof. More

market-sourced materials are in use both in urban and rural areas. There is a clear

indication of growing supply o f good building materials as well as improved

affordability of the people. Thus, Pucca units constitute 77.9 percent of Urban Housing

stock in 1995 as against 63.8 percent in 1971; the rural situation has improved to 35.0
 28

percent from 19.1 percent. Government Programme like the Indira Awas Yojana. and

Rural House Sites and Construction Assistance Schemes for rural landless workers and

artisans have contributed to this improved housing situation.

Table 2.2 showing the composition and value of housing stock, 1981,91 and 1995

(Units in Millions) ________________ _________ (Values in Billion Rupees)

Kutcha Semi- ^ c c a Pucca Total
Year No Values No Values No Values No Values
1971 32.7 21.0 27.6 50.8 14.2 93.8 74.5 165.6
Rural (43.89) (37.05) (19.06) (100.00)

Urban 2.4 2.1 4.3 7.6 11.8 127.4 18.5 137.1

(12.97 (23.24) (63.78) (100.00)
Total 35.1 23.1 31.9 58.4 26.0 221.2 93.0 302.7
(37.74) (34.31) (27.95) (100.00)
1981
Rural 36.6 39.6 33.3 100.8 18.8 201.9 88.7 342.3
(41.26) (37.54) (21.20) (100.00)
Urban 3.1 5.1 6.8 20.1 18.1 329.5 28.0 354.7
(11.07) (34.36) (31.62) (100.00)
Total 39.7 44.7 40.1 120.9 36.9 531.4 116.7 697.6
(34.02) (34.36) (31.61) (100.00)
1991
Rural 35.7 116.4 37.2 338.3 35.8 1158.6 108.7 1613.3
(32.84) (34.22) (39.94) (100.00)
Urban 3.3 15.7 6.2 53.4 29.8 1575.6 39.3 1644.7
(8.40) (15.77) (75.83) (100.00)
Total 39.0 132.1 43.4 391.7 65.6 2734.2 148.0 3258.0
(26.35) (29.33) (44.32) (100.00)
1995
Rural 37.5 182.4 37.6 524.29 40.5 2023.95 115.6 2730.64
(32.44) (32.56) (35.00) (100.00)
Urban 3.2 21.14 6.8 91.59 35.4 2887.93 45.4 3000.66
(7.06) (15.04) (77.90) (100.00)
Total 40.7 203.54 44.4 615.88 75.9 4911.88 161.0 5731.30
(25.28) (27.58) (47.14) (100.00)

Sources: 1. Government of India (1996) Second United National Conference of

Human Settlements: Habitat II. Indian National Report, page no. 30.

2. Estimates from census, 1971,1981,1991, National Building Organization

(NBO), Society for Development Studies (SDS) for 1995.

Notes: - 1. Numbers in million units. Value in Rs. Billion at market prices.

2. Figures in parentheses are percentage distribution.

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3. The housing stock estimates are from Census 1971, 1981, 1991 and 1995

estimates are by SDS.

4. The estimated value o f housing stock are on the basis o f NSSO 44th round

data on cost of construction and average floor area per building (1988-89).

adjusted by CSO data on building cost index at current prices.

5. Census o f India defines Kutcha, Semi-pucca and Pucca in terms of the

durability content of the materials used particularly in walls and roof.

2.9 Housing Shortage in India : According to the National report housing

shortage estimated in three different points o f time 1991, 1995 and 1997, table 2.3

shows the position in term o f the minimum housing requirement criteria ( 1 house for

one household) the shortage in 1991 situation is 5.2 million units and this has slightly

increased to 5.3 million units in 1995, and is anticipated to further increase to 5.6

million units in 1997.( See SI. No. 4(i) of the table 2.3. The level o f shortage of housing

in rural areas is marginally declined from 3.8 million units in 1991 to 3.6 units in 1997)

but increased significantly in urban areas (1.4 million units in 1991 to 2.0 million units

in 1997).

It is also presented in the National report that the more important concern is the

shortage in terms of replacement and up gradation, particularly with respect to the

Rural Housing Stock. The upgradation inputs are estimated to be required is 10.9

million rural housing units in 1991, 10.6 million rural units in 1995 and 11.2 million in

1997 8The estimates of housing shortage have been presented under three different

categories, namely Minimum need, Congestion and Replacement / Upgradation. The

position of shortage has been estimated 33.00 million in 1997.

g
Lall V. D., Document on National Housing Seminer dated 7-9-1996 in Vigyan Bhawan, New-Delhi.

Page No.20.
 30

Table 2.3 showing housing stock and housing shortage, 1991,1995, and 1997.

(million) units

1991 1995 1997

India Rural Urban India Rural Urban India Rural Urban

1.Population 846.3 628.7 217.6 905.7 656.0 249.7 937.7 670.2 267.5

2.Households 153.2 112.5 40.7 166.4 119.1 47.3 174.1 122.3 51.8

3.Housing Units 148.1 108.8 39.3 161.1 115.6 45.5 168.5 118.7 49.8
4.Housing 22.9 14.7 8.3 31.1 22.6 8.5 33.0 23.5 9.5
Shortage
i. Minimum 5.2 3.8 1.4 5.3 3.5 1.8 5.6 3.6 2.0
Need
ii. Congestion 1.9 - 1.9 10.9 8.5 2.4 11.4 8.7 2.7

iiiReplacement 15.8 10.9 4.9 14.9 10.6 4.3 16.0 11.2 4.8
Upgradation

(Source:- 1. Government o f India (1996) Second United National Conference o f

Human Settlements:

Habitat H, India National Report. Page no. 3.

2. Estimates from Census Final Household Tables, Census Primary

Abstract, 1991, NBO and SDS.

N o t e s 1. Minimum need is the difference between households and housing stock.

2. Congestion housing reflects households with more than one married

couple per room.

3. Upgradation demand represents the housing need o f households living in

unserviceable kutcha units in rural areas and kutcha units in urban areas.

4. Congestion factor is not included in rural areas in 1991 as the joint family

system is predominant. This factor is, however, included in 1995 and in

1997 estimates, to take into account the possible growth o f nuclear

families and new housing typologies.)

 31

Further the Ninth Plan Working Group in Housing aspect, Government o f India, has

estimated the housing shortage in 2001 ,y As already indicated, the housing shortage in

India is worked out to 19.40 million units. However, the position with comparison to

shortage in previous period, is shown in the table 2.4-a & b.

As per the table 2.3 and 2.4 it is observed that the shortage position varies from

22.9 million in 1991 to 31.10 million in 1995 and 33 million in the year 1997.

subsequently it has been varied from 33.00 million in 1997 to 20.41 million in 1999 and

then to 19.40 million in 2001. It shows declining trend of housing shortage from 1997

to 2001.

Table 2.4-a Housing Shortage o f India as per recent report.

(million units)

YEAR RURAL URBAN TOTAL

1991 14.67 8.23 22.90

1999 13.23 7.18 20.41

2001 12.76 6.64 19.40

(Source: Report o f the Ninth Five Year Plan Working Group.)

Table 2.4-b Showing year-wise projected Housing Shortage in India(milIion units)

YEAR RURAL URBAN TOTAL

1991 14.67 8.23 22.90
1992 14.53 8.01 22.54
1993 14.37 7.97 22.34
1994 14.21 7.91 22.12
1995 14.04 7.82 21.86
1996 13.85 7.71 21.56
1997 13.66 7.57 21.23
1998 13.45 7.36 20.81
1999 13.23 7.18 20.41
2000 13.00 6.93 19,93
2001 12.76 6.64 19.40
(Source: Publication Division, Ministry o f Information & Broadcasting, Government of
India, page no. 311.)

9
’ Publication Division, Ministry of information and Broadcasting Govt, of India, 50 years of India
Republic, page no. 309.
 32

2.10 Projected Housing Scenario 2001- 2021 (in India):

As per the projection of National Report the Housing scenario in terms o f unit

and investment requirement for the period, 2001- 2011 and 2011- 2021 shown in the

Table 2.5. The Table presented the estimates on the projected housing needs over the

next 20 years. An additional 32.3 million units would have to be brought into the

housing market during 2001 to 2011 and 90.7 million additional units during 2011 to

2021.

Table 2.5 Showing Housing Needs And Investment In India: 2001, 2011 And 2021

I. HOUSING
N lT lX m illion in 1997 -2 0 0 1 2001 -2011 2011 -202
numbers)
Total Rural Urban Total Rural Urban Total Rural 1 Jrban
1.Population 1022.1 703.2 318.9 1164.3 738.5 425.8 1545.4 927.2 618.2
2.1 leasing demand 191.2 30.2 61.2 223.5 140.5 83.0 314.2 185.4 128.8
3. Hoasing stock 174.1 122.3 51.8 191.2 130.0 61.2 223.5 140.5 83.0
4. New Hoasing 17.1 7.7 9.4 32.3 10.5 21.8 90.7 44.9 45.8
5. In adequate 11.4 8.7 2.7 - - - "
I loasing
6.Upgradation 16.0 11.2 4.8 - - - - - -
II. INVHSTMKNT
r k q u ir e m k n t
(Rs. billion at 1995
price)
1. New. 803.2 181.9 621.3 1688.8 248.0 1440.8 4087.7 1060.6 3027.1

2. Inadequate 116.5 104.4 62.1 - - - - - -

3.1 Jpgradation 244.8 34.4 110.4 - - - - -

_

(Source: SDS Estimates, Govt, of India (1996), Habitat II, India National Report).

Notes:-1. The population projections for 2001 and 2011 are as given in the Eighth

Five Year Plan and those for 2021 are ADS estimate based on past trends in

population growth rates. Urbanization rate is 31.2, 36.0 and 40.0 percent

during these three periods.

2. Housing demand represents the number o f households, estimated on the

basis o f household size.

3. Investment estimate at 1995 prices are based on NSSO 44th round data on

cost of construction adjusted for 1995 prices.

 33

4. Inadequate housing covers the congestion demand and upgradation includes

all replacement. These estimates are of estimated backlog as in 1995 - 1996

and the activity would be taken up in the next 5-10 Years.

5. Per unit cost at 1995 prices for new housing is Rs. 23,621 in rural areas and

Rs. 66,094 in urban areas. In adequate and upgradation o f housing estimates

are based on cost at 50 percent in rural areas and 35 percent in urban areas

(Rs. 12,000.00 and Rs.23,000.00 per u n it).

In effect the SDS estimates show that over the next 20 years the housing requirement in

terms o f new stock would be 123.00 million units, of which 55.4 million units or 45

percent would be in the rural areas and 67.60 million units in the urban areas. The past

production track record suggests that the projected housing need in terms o f new units,

can be met with appropriate policy initiative. An annual production o f 6.15 million

units will be required as against the actual attainment o f 3.4 million units per annum

during 1981- 1991, when the housing development environment and delivery system

was not as developed or conducive to housing activities as is likely to be over the next

20 years.

As per the above discussion, it can be said that the housing shortage problem

is basically due to increasing population in our country. The backlog o f the housing

shortage is much higher because o f the replacement requirement o f the existing housing

stock. For regulating the housing and planning activity, Government o f India,and many

International Agencies have launched programme o f housing. The growing

International concern for housing is adequately reflected in the objectives of the global

shelter strategy announced by “United Nation Centre for Human Settlement". As a

result, the fundamental policy changes in the problem of housing have taken place at

the National level. In keeping pace with the International trends as well as the National
 34

needs, housing agencies have been established at different levels for affordable shelter

to the masses. Consequently in order to achieve this objectives Government have

introduced various social housing schemes for the benefit o f all section of people.

But inspite o f concerted efforts at various level housing problem is not yet

solved to that extent o f requirement specially in North-east, Assam.

2.11 Pattern o f Housing in NE-Assam : The housing pattern o f the north-east

including Assam have living habits of such a kind that is different from other States o f

the Country. There is a general feeling in Assam that the basic problem in the State is

upgradation o f existing units and there is very little need to be done to provide a roof

for the utterly shelterless population as the category o f such households is negligible in

the State.

2.12 Assam’s Household Profile : An average Assamese household has 5.4

members, the size being higher in Rural Assam (6.3 members) as compared to Urban

Assam(5.0 members in UFS and 5.4 in UIFS ). The higher rural household size is partly

responsible for the Assamese tradition o f larger sized plots and built-up space in rural

area. The Assamese household is nuclear in type especially in urban areas. Even in

Rural Assam, more than four-fifth o f the household claims to be nuclear unit. This

evidence has significance for it suggests the demand for a large number o f dwelling

units as also the probability o f decisions concerning household budget, housing plans,

saving behaviour etc. being made by more individuals than in a situation one individual

would take such vital decisions, almost exclusively, for all the members o f a joint

family household. The head o f household in Assam is fairly educated, and thus

articulate enough to appreciate ideas and suggestion on saving for home loan and

housing programmes as well as reasoning out the possible benefits o f participating in

them.10

la I.all V.D., Human Settlement for Assam, page no. 13.

 35

2.13 Housing Stock Status in Assam :

‘'The 1971 census estimated housing stock in Assam was 2.7 million units (0.3

Million in Urban Assam and 2.4 million in Rural Assam) and 3.82million units as per

1991 census (0.48 million in Urban Assam and 3.34 million in Rural Assam). The

Government o f Assam has estimated that to provide each family with a permanent roof

and a Pucca area by 2000 AD, 2.0 lakhs units in Rural Assam and 1.0 lakh units in

Urban Assam will have to be constructed during the 10 years period, 1990- 2000 AD.

utilizing an annual investment o f Rs. 18.00 crores or Rs.6000.00 per dwelling units."

The typical Assam type house, built in local design with bamboo as wall

material and thatch/ backed clay tiles as roof materials is a prominent feature of the

housing scenario, especially in U1FS and Rural sectors. These units require some

upgradation in the physical structure, strengthening and increase in longevity. A more

important issue is upgradation o f essential utilities and public service, mainly Sewerage

and Sanitation facilities and access to potable water. Such an upgradation programme is

more urgent for ‘Kutcha' units which accounts for 46.0 percent of the dwelling units in

UIFS and 69.2 percent in rural sector. There does not seem to be an urgency to

immediately upgrade all Kutcha units into Pucca units. In terms o f assessed affordability

of the people o f Assam and financial and physical resources available in the State, the

top priority in the shelter strategy should be to upgrade the Kutcha units into Assam

type units. The average size o f a house and plot in Assam is much bigger than other

parts o f the country and this brings out the need to have distinct norms in areas like

Assam as compared to those in the plains and more developed parts o f the country.

The existing average plot size in Rural Assam is 16,595 sqft. and in Urban Assam

8,285 sqft. The size of an average dwelling units is 578 sqft.in Rural Assam and 590

1'. Lall V.D. “Human Settlement Strategy for Assam", page no. 45.
 36

sqft and 424 sqft. in Urban Assam (UFS and UIFS respectively). These sizes are

compatible with the size proposed by Assamese households for their future home. In

fact, the latter are slightly larger bringing out the aspiration of the household to a higher

socio-economic status. It is important to note that the larger size o f the rural plot, as

compared to urban plot, conforms to the stated principle of the National Housing Policy

and this is the result of the need to provide space for economic activities. The Housing

scenario in Assam, indicating the position in India are shown in the table 2.6.

Table 2.6, Housing Scenario showing Type-Wise Housing Stock, Shortage

and no of Household in Assam VIS A VIS India. (In Million)

Category Assam India

Rural Urban Total Rural Urban Total

Population 19.93 2.48 22.41 628.70 217.60 846.30

Nos. of 3.36 0.48 3.84 111.60 40.40 152.00

households
Housing 3.34 0.48 3.82 107.93 39.08 147.01
stock
O f which 0.41 0.23 0.64 35.72 29.65 65.47
Pucca
Semi-Pucca 0.55 0.13 0.68 36.80 6.20 43.00

Kutcha 0.13 0.01 0.14 24.50 2.13 26.63

serviceable

Unserviceable 2.25 0.11 2.36 10.90 1.12 12.02

Housing 2.27 0.16 2.43 14.67 8.23 22.90

shortage

(Source: Times Research Foundation New Delhi 1996 page no E-l & Census o f India.
1991)
 37

As per the above table, it is seen that in the rural sector there is a shortage of housing

figure of 14.70 million in India and 2.27 million in Assam. The housing shortage in

Rural Assam is the highest amongst the other State except Bihar. Accordingly the NBO

Hand book of housing statistic part-I 1996 for Rural Housing. Bihar is the State in

which highest shortage of housing was 4.09 million units in rural areas. Table 2.6

shows the housing position o f the State o f Assam and of our Country in both rural and

urban areas. However, housing shortage in urban areas of Assam is not so high

comparatively to other States of our country. There is(JIT0 million urban housing

shortage in Andhra Pradesh, which is the highest shortage amongst the other States and

against the total shortage of 8.23 million in urban areas o f the country.’12

The total shortage is already indicated both for urban and rural areas in India as

per latest report up to 2001, where assessment o f the shortage position o f Assam is yet

to be published . Hence, detailed shortage position of Assam up to 2001 is omitted in

the study.

2.14 Household with basic amenities:

As per the N E Conference report held at Shillong in 1995, the household

position with basic amenities in percentage shown in the Table 2.7 in Assam as well as

in India. The basic amenities include the households having Safe water. Electricity and

Toilet facility.

As per the Table 2.7, it can be said that household having toilet facilities in

Assam is better than overall country’s position. In other fields, such as water and

electricity facilities, the position is below than country’s overall position.

12' NBO, Hand Book o f Housing Statistics (Fart -1) 1996, page no. 67.
 38

Table 2.7 showing the position with basic amenities in percentage as per N E

Conference & census report.

In Assam
(In percentage )

SI. Amenities Rural Urban Total

1 . Safe drinking 43.28 64.04 45.86
water

2. Electricity 12.44 63.21 18.74

3. Toilet facility 30.53 86.06 37.43

In India

SI. Amenities Rural Urban Total

1. Safe drinking 55.4 81.40 62.30
water
n Electricity 30.5 75.80 42.4
3. Toilet facility 9.5 63.90 23.7
(Source: Census o f Assam. 1991)

Further the type-wise Residential houses shown in the table 2.8 in percentage

for both urban and rural areas in Assam and India as a whole as per 1991 census.

Table 2.8 showing type-wise Residential houses in percentage in Assam & India. 1991

census. In Assam

(In percentage)

Type o f Residential Rural Urban

houses
Pucca 12.41 47.36
Semi pucca 16.50 27.66
Serviceable Kutcha 3.85 1.48
Unserviceable Kutcha 67.24 23.50

In India

Type o f residential Rural Urban

houses
Pucca 33.10 75.87
Semi pucca 34.11 15.81
Serviceable kutcha 22.70 5.45
Unserviceable kutcha 10.09 2.87
(Source: NBO Hand Book on Housing Statistic 1996 and NSSO 44th round)
 39

As per the above, it is seen that the percentage of unserviceable Kutcha houses

in Rural Assam is 67.24, whereas all India percentage is 10.09 only. Similar situation is

also seen in urban areas. As a result the situation of Pucca residential houses in Assam

is worse than the all India figure.

The percentage distribution of households by ownership o f dwelling unit for

both rural and urban areas in India and in Assam are shown in the Table 2.9.

Table 2.9 showing the Percentage Distribution of Household by Ownership of Unit

In India Owned Hired Others Not reported Total

Rural 90.99 3.32 5.41 0.29 100
Urban 54.54 36.96 8.38 0.20 100

In Assam Owned Hired Others Not Total

reported
Rural 87.96 0.46 10.11 1.49 100
Urban 46.95 37.81 13.40 1.84 100

(Source: 44 round of NSSO, 1988-89 and NBO Hand Book 1996. Page No. 215. 221)

As per the table 2.9, it is seen that unreported figure in Assam is extremely

higher than the national figure. Similarly the percentage of hired household in Rural

Assam is also higher compared to India’s percentage in rural areas. But in urban areas

the position is considerably improved compared to the situation in India.

Moreover the percentage distribution o f household by approach road to building

as reported in the state o f Assam is shown in the table 2.10. As per the said table it can

be inferred that the position in urban area is better than rural areas.

Table 2.10 showing the Distribution of Households by Approach Road to Building in %

Approach Road Rural Urban

(a) No direct opening to road 34.5 16.98
(b) Direct opening to electrified Mortable road 9.83 60.33
(c) Non electrified Mortable road 28.88 7.94
(d) Electrified other road 4.26 4.85
(e) Non electrified other road 22.22 9.4
(f) Not reported 0.31 0.32

(Source: Census Report, 1991 & 44th round NSSO Report of N E.)
 40

Further the percentage-wise position on households, by flood, risk o f building in rural

and urban areas shown in the table 2.11 as per the NSSO 44th round 1988-89 report.

Table 2.11 showing the Distribution o f Households by Flood Risk o f Building in

Assam in percentage.

Flood risk Rural Urban

(a) Flood risk free area 50.89 74.18
(b) Water logging in monsoon with entering premises 7.10 8.27
(c) Flood risk by river, sea etc. 41.93 17.54
(d) Not reported 0.09 0

(Source: 44th round NSSO report of N E)

The table above shows that (NSSO 44th round reports) more areas are covered

under flood in rural areas in Assam. Similarly risk free area from flood in urban

location is more than rural areas in Assam. On the other hand water logging in

monsoon with entering premises in urban area is 8.27% wherein 7.10% in rural areas in

Assam.

2.15 Projected population &Households in Assam from 2001 to 2016:

As per the general practice followed by various organizations for assessment as

well as requirement of housing need, the projection o f Housing need in Assam from

2001 to 2016 is also worked out accordingly.

The Projected population in Assam as per the record indicated in the Statistical

Hand Book Assam 2000 is shown in the table 2.9. The figure shown as per Projected as

on 1st October (Revised).The minimum Housing requirement criteria is one house per

household , the situation of Housing in future is calculated & shown in the table 2.12.

[.all V. D„ Society lor Development Studies, Document prepared lor National 1lousing seminar
held on 7-9 Oct. 1996, New Delhi.
 41

Table 2.12 showing the Projected population and Household units in Assam

from 2001-2016. (Figures i n '000')

Year Population Household

2001 26638 5327
2002 26985 5397
2003 27356 5471
2004 27773 5554
2005 28229 5645
2006 28700 5740
2007 29150 5830
2008 29567 5913
2009 29955 5991
2010 30319 6063
2011 30686 6137
2012 31070 6214
2013 31470 6294
2014 31886 6377
2015 32318 6463
2016 32760 6552

(Source: Statistical Handbook, Assam 2000, Page no. 40)

The census 2001 has been already done, but information in details in respect of

Housing Scenario has yet to be published. Hence, considering the trend o f last census

report so far available, the Housing Scenario is assessed & shown under this chapter for

further analysis.

2.16 Conclusion: As per discussion, it may be concluded that the housing situation

is not only dependent upon the growth rate o f population but also based on the active

involvement of state housing agencies through implementation o f various housing

schemes. However, considering the projected population the household number is

 42

expected to be increased from 38.40 lakhs in 1991 to 60.63 lakhs in the year 2010. the

shortage of housing in Assam may increase. Hence, it may be suggested to take special

housing programme by the State Govt, with the continuation of ongoing schemes. It

may also be concluded that state like Assam has never been given any special attention

in regards to the standard norms of housing during the implementation of the schemes.

The state agency like ASHB has not made any provision of other facilities of housing

as required.

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