10. The Lines Area Resettlement Project, Karachi Yaumeen Lari Pakistan is nation of alow 84 millon peopl, and the population of is cides has been almost doubling very twenty yeas. The proportion of urban population Inreased Irom 23 percent in 1961 to aver 28 pereent in 1072, and, according to reent census figures, has now reach 28 perount. Ii estimated that of total popule tion of 120 milion nthe year 200, about 80 percent will be living in urban areas. The monthly income level of a sizable part of this population doesnot exseed Rs $0000 ($80) per month, "The prablem of hoasing therefore obviously emanates from the more general problem of poverty. This group sannotaffordto owns genuine house orevenrent one. A todest house with a minimum covered area of 4), 36 square meters would cost approximately Rs 45,000. und, assuming payback period of twenty years with nodown, Payonent and nointerest charge. the monthly installments work out to Rs 190,051, per month. No ouschold of the Kind we are concerned with can afford to devote more than about $9 per month, oF 18 percent of 1s come, t0 hovsing 1 is not surprising, then, that there hasbeen & general deterioration in household conditions, and that ‘the number of persons perhabitableroomasrisen 04.7 ‘nthe fowest income groups. Shoragesat the end of 1980 ‘were approximately 168,000 dwelling units forthe coun= tty asa whole. Ifthe population increase as projected, an additonal $20,000 will be needed. Inthe rteantine the onstruction industey has been able to produce only 40.000 dwellings pe: year and mos of those are destined for the middle- and upper-income people. Since litle Funding savailabletorlowineome housing, the backlog far low-income grovps can only grow larger and larger “According to a eset census, the metropolitan art of Karachi ts population of over 5 mlion people, or 2 percent of Pakistan's urban population. It plays & very ‘itl role inthe economic development of Pakistan, since Ie generates 38 pecent of employment in large-scale ‘manufacturing and according to one estimate, provides ‘pproximately 25 pircent ofall federal evenucs I isthe nation’s only major port, and its transport role will be strengthened by the development of the new port of under Qasim. Pasta’ fst and only ste! mill wil ‘art funetioning ths yea, drawing even move people into the ety (fig 1b "Thousands af ral migrants move in every year. Even ‘though most of them begin ia marginal oscopations—as domestic servants, hawkers, peons, or unskilled labores~the metrepolis probably does enable thet 10 ‘be more productivennd more prosperous thanthey could be inthe countrysie. Approximately 208,00 people, oF 35,000 hovscholds, are added othe metropolitan pope lation every year, perhaps as many as 90.000 of them unskilled and tre BY theend of the century the sity't population wil be etween IT and 1S milion Tig. 2). Needless to say, the services and infrastructure of Karach are oul nadequat or this fast-growing Pop Pe 1 Kart Meraphin Area ln 1974eo lation. Average water avalabiliy to households is only 24 to 29 gallons por eapta per day. Only 80 percent of households have an individual house connection. Install sewage treatment capacity ix ony 40 milion tallons per day, compared wit a water intake of 10010 "20 milion gallons per day. Only about 20 percent of the metropolitan ateass houschols have indivial sewer “Major employment centers are all concentrated in one place, while the people who workin themare seateredin {he oslying districts, Commuting for low-income groups is time consuming and costly, absorbing as rnuch 4 10 peteent of month incomes for thousands of workers in forthern and eastern Katachi From 80 to 40 percent of Karachi population lives under slum condone 20 pereentinsguatiersetlements ff kath aba the rest in what might be called "planned slums.” The fteraze considered better only Secase they have sett roads planned by local development au ‘hori they are otherwise equally deficient in physical tnd social ntastctare. The squatter settlements play a particulary vital and useful ole. They are usally a80- ated with welldeveloped social structure which peo ‘ides socurty in times of need, They are Trequently located near employment and ean themselves be substan tial generators of jobs. They also allow the low-income family to survive at prices Ht can afford Ts counties lke ours the magnitude ofthe problem of housing is <0 great thatthe quality ofthe individual structures theneves i relavely unimportans. People manage to ceatelvableshlters by using ther ingenuity With tin cans, old metal. sheets, Coca Cola crates, and discarded clay pitchers. To beter conditions there the ‘emphasis has 1a be om nimi lve of physical and Sowa infrastructure, eater than onthe nous itl. With Security of tenure and the nereasngearing power ofthe family, the quality of shelter automatically improves. “Therefore the important things toesablisha framework for participatory design in which the basic infrastructure is provided bythe sate and individuals do the rest. In this way, instead of bulding houses for the poor the state uses its money for providing the physical and scialintrax Structuse that wil Benefit a much larger number of familie, “The Lines Area covers 7,0 acresand houses approx smatly 100,000 people. Ii situated inthe heart ofthe eat Et doen 5 @ r00-100 NA @ one ‘iy of Karchi, within walking distance of Saddar, a fenler of ofl, businesses, shops, and pety trading, tnd ncar middle-income housingareas. Itisan important tnd valiable piece of land which was originally. amilary Cantonment, whose bazeacks were constructed duingthe First and Sesond World wars. ATter independence ia Io, the baracks were given over to house cental- sovernmentemplayeesand defense personnel. Alter ar- tition, betwen 1980 end 1960, many ofthe people who ‘migrated from India foundsheitr inthis pat of Karachi. ‘The spaces between the barrack gradually illed in wit hutments and jhugeie, resulting in one of Karachi’s worst shims But inspite of severe overeronding and Tack of baie amenities, very few of the residents ever Teave (os 12, For @ loag time the authorities ied to discourage ileal stslenent in hear imply by no providing ny facilis for them, As a result some water i available through community taps, but most of has to be pur hated from the water carrer, and itis difficult and {roubleson to get. The sewerage stem is inadequate fand ilmintained, and illegal connections have 3 ‘ated the rater, resung in blocking and flooding People have to rely om makeshift soakpits and sill drain to tate the waste water fom thehobse nd leaveit Ao stagnate ckewhere. There afe no proper arrangements for garbage disposal. o refuse is thrown into the streets and open ares. Some of iis collected by swerpers, bul most is burted bythe residents. Flcticiy is avilable in the barrack and tosome ofthe squatters, but most haveto rely on petrol lamps. Steet lighting is resected 1 8 few mainroads, Although ere are ight primary schools and two secondary school, the buldings are dilapidated Two dispensaries inadequately serve a population of 00.000 ips. 2) ‘The many shops and hawkers cater tothe needs ofthe ‘community. Small shops are tightly packed along the ads, and hawkers sell hee wares along nareow streets tnd winding footpaths, Most shops dealin groceries, but there are also barbers, Iaundrien, eating places, block makers, mechanics, and many small cottage industries. “Twenty-four percent ofthe fees siding inthe sea havean income of upto Rs 400.00 $40) per month, wile 29 percent earn mote tha Rs 600.00 (S60) The rest (47 peent) have a teal family income of between $40 and $60 per month “The studies conducted in 1976show tha only 5 peoent ‘ofthe household heads were totally unemployed. Flt four percent earned wages, no es than 39 petcet were sel-empioyed, most of hem as hawkers or shopkeepers When interviewed, $65 peteen of the families could not [ay more than Rs 30.0, or $3 per month as installments foward a house, 2 percent approximately 88 por month Only 125 percent could afford to pay $10 or ore per month. ‘Because of the central location and proximity’ to their place of work, 40 percet ofthe people interviewed had ho commuting expenses at all, n contrast to much of Karachi working population. Thinty percent pid only e110 2, oF 10 10.20 cents, per day Most of the dwelings (80S percent) in the survey sample were inhabited by only one household, though in 8 Tew caer (3.5 pervnt) more than sx fale lived in Single dueling. The average number of households pet “welling worked out to 125. Seventy-five percent ofthe hovseholds had eshan six members, which meant that relay Tile Hvingspace was reguired by each any The people have occupied plot ranging in size fom 3, to 14, fo 200 squire yards, depending on need and ‘opportunity. Average pio size worked out to 46 sure yards fora fly of six members and 63 square yerd for even or more members. Tn (972 directive by the then president was ised to ‘the Karachi Development Author to formulates som prchensve scheme to rehabilitate the Lines Avea. The uidlines that resulied included the following: 1. The people in the squater settlements ill be resettled in mulistrid flats in the sare neighborhood nd wil be even ownership at & nominal cox 2, Special empha will be given to constructing buldings of from fve to fourteen sores in order to provide housing forall income groups. 3 Densities will be increased by building fourteen. story towers and five-story walkups for squatters at ‘density of 125 to 200 dweling unite per acre, ‘Accordingly, in 1973 atenacre plot was cleared, Peo ple were moved out ofthe area, and construction besa fon SOOaguarefoot Tat for them. When a study Wes conducted in 197, i was found that although 473 hd been eonstructe, no masterplan forthe area hadhe ies en Rete Pct ari {er been put int elec, that no Farther ground could be cleared and a continuous construction program had become imposible ‘Only 800 fats had been completed by 1980, and none ‘of them could be ived in by the squatters they had been imtende for beeause of high cos. ll weresold 0 outsid- cs, thos making the whole exercise futile from the point fof view of relieving pressure on the Lines Area. The ajay of the people who had heen eioved out simply came back aguin to squat in the sucets outside. This happens again and again inthis part of the world. The ‘population ix moved out while the housing ste but then cannot aford to live i the buildings and simply returns to squst again, Once again the housing con- steacted bythe government had Failed to reach the target Income group. Tn the meantime the housing constructed, although it ‘vat inhabited by a higher income grou than orignaly envisaged, became another slum, with the atea in be- {seen the flat eft tnmatntained and vneated for This tor of evens, however, seems not to have been noticed, for ia mecing Held in September 1976, the chairman of the Karachi Development Authority: directed. tha, beeause of the prohibitive [land] prises in the area, the possibility of uliding high-rise apartmests shouldbe considered.” once apn forgetting the resus of combin- ing the limited rent resoures of the low-income groupe ‘ith the prohibitively high cos of multstored building. He also seid that planners should not hesitate 10 use elevators is eaible vo build higher than five stores, ‘ere imo eeason not to build higher. Beesus, inthe ast ten yeats, in Karachi particulary. apartment buildings have become rynonymows with progres. the develop ‘ment athories have done everything Io encourage the construction of high-rise apartment buildings, which in ‘many sist have then hecome nothing bat vertical sins. ‘When people move to the city is because they need jobs, The quality of shelter is very low on their Kt of Dovtes, and we should not impose upon them ouridess ff what is titable. The slr we provide has to be ‘ordable, and that means thatthe method of constr: tion must he Kept simple If hey cannot at itt aford to build the whole house. it should be posible to design one ‘hat can be complete bt by bitas exten mosey availa ble. Simple construction also allows for self-help, so people do not have to rely on a government agency to built their owe for them The projet should require ‘minimal or, even better, no subsidy sine subsidies have {way of drying up ater the frst phase. Resse the cost ff construction i highand thesize of amie aes are, inisimporantteleave es much courtyard space a pos. ble. Enclosed spaces ee and gives extralivableroomat no exra cot Privacy within the house mst he Bilt nto the plan; even when women do nt observe purdah, they prefer to keep avay fom outsiders. shor. thesolution Ist be appropriate forthe tenants socal and extra, 5 well as economic, requirements, and inthis aea that ‘means ground-based dwellings. ‘Walkups and high-rise apartment buildings areunsui able forthe low-income groups for cultural reasons, but there are powerful economie arguments against them ‘as well Where a twostory, oneanit house covering an tea of appecnimately 580 square feet can be built for Rs 45,00, oF $4800; an apartment in a five-story walke 1p 0f $00 agua fest cost atleast Rs 70.40, o 7,000. ‘This is beeaue simpler mnethods of constuction can be ‘sed for singe-and two-story houses. A fivestry walke Up requiresa turer construction andat est 5 pereent ‘more investment than a one-story dwelling. Uses is heavily subsidized its totally out ofthe each of low-in come groups Tae minute government subsidy becomes estentah as ‘mentioned, construction soon halts from lack of funds The itil investment has to be made forthe whole building and therefore high Since an ageney is com stevting the building the tenants cannot contrite their labor, and sinc itis usualy poorly constructed it cannot be propery maintained. Common staircases and hallsare rnoglected. Ma tenance and lites cost are normally higher in wallups. and this, too, adds to the tenants expense “Theat ef the proposals formulated bythe Karachi Development Authority and of the eight hundred fats that they did manage to buildin eight year ed them to hire meas consultant Iwas probably the fist time in Pakistan that a eossltant was appointed as much because the resident needed one as Because the govern- ‘ment did. So Istarted withthe advantage of good illon both sides stead of the more commen antagonism heeween people and government. ‘glance at previous ctforts made it ler that a pla had o be devted to make the projec sell-Financing and that confidence inthe plan on the part of the residents ‘would be diffeult because many promises had aleady boon made anc beoken, Nothing could he achieved unless the people agreed with the proposals. they refused 10 cooperate, the government would not risk confrontation. So the task wis fairly complex. There was no denying {hat the land was extemely valuable an was needed By the city itself it also housed the government employees living inthe barracks aswell a the squatters. From the oxtet I developad close contacts with the epresentatives of the area. I visited it frequently and encouraged people to visit my office. This rapport was ‘rmportant Belore recommending solutions, ane needs Enow what the problems are. Ialso gave mea tremen- dousadvantagsoverthe other planners, thought had the drawback of lading the residents to think of meas one of them and to ecpet ine to disregard all ater considera: tions, They saw me "daughter ofthe Lines Area." Isa ‘self as par polician, part social worker, and only pave architect and planner. The trick was to plana project that would fui the reeds of the people and atthe same time would not be Violently oppesed by the Development Authority. The Strategy’ consited of giving in just enough to the Devel fpment Authrity to have my way on what I considered to be the most crucial isshes. Beeause of the prestige associated with high-rise buildings and of course the higher densti thatthe authorities elt could beachioved by them, the problem was alvaysto convine peopleeven consider ther options. They were not swayed byie argument that i'meant ihe poor people would haveto move avay—t suspect that although it was never suid publi, clearing the centrality ofthese poor people wis Jct what they were afer ‘The design had to ensure that the dwelings would be within reach of every pocket and atthe same time not reduce population density substantially. The present ‘walloups built nthe area have density of $0 units per fcr, and densities close tot would have to be worked ‘out. One had frst to determine the size ofthe plot to achieve that desired density. Phad already warned the people living therethat everybody would havetoagreeto {he same plot sie, even those who had lager one at resent : “The minimum tot size in Karachi is 60 square yards, Which gives a deniy of 0 to 45 units per aere. The Apartments constructed inthe project had an area of 500 Sguare fet and consisted of three room, kitchen, Bath, And WC. Since they were acceptable tos higher income {group than ours we could consider lots of 40,43, and $0 square yards to be fesile, We fond that in 45 square yards we could conveniently provide built-up ares on two floors of 60 square feet "even more than the exis ing partments, not counting the added advantage of a Too.squarefoot courtyard. By rationalizing the street, system So that vehicles were kept atthe periphery, we could achieve densities of up to 75 units per aere, fairy lose tothe 80 that exits here now The units would be Single-family houses, designed for incremental growth oS A K\ Pe Pi bis Av pope ae ‘and the posibity cf self-help (i. 3) "The generation of funds Was « mest important sep without money the whole projeet would founder. We needed fords for laying down all the major inrastruce tore, sinor the Use available there was unsalvageable, sand for building nev schools, health czars and com ‘munity centers. Although logically the ater should have been the responsibilty of varios government agencies, they have no money, and few facilities ae actually ever bul. The backlog of demand for them is immense. We therefore considered it essential to prove them as part of our program (ig. The property we vere dealing with was inthe center of town and theelare extemey valuable; we therefore decided thatthe bes way to aise money was to saetfice ome of tht land: we would auction olf selected parels of H, and in that vay generate the funds needed to improve the rest. Tis promised to bring in quite sub- stantial sum-—the nineaere plot to be auctioned of fist is expected 10 procuce between nine and ten milion dollar. ‘Oraanizing the development process was almost as crucial as financing it. Fist of all, was clear that ‘ecntse ofthe failure of previouseffortsthe people would ‘hot age fo move end clear the area ess they were rian that they coud eventually return, They sunported that infact they were being cleared out so that the and ‘ould be sold to developers—they had seen it happen before, Then to, esause we did not want to destroy themass dislocation ad that would allow the people to resettle nal very close 10 the area they had trigially lived in. We finally decided to move people oot in shits. The incentive was to provide them with plot in ‘ther residential areas that were large than the plot they ould expert be given in the Lines Aven i they ‘returned. We also gave them the option of Keping those plots or surrendering them and eturing to the Lines ‘area when it was read. We also hoped to allow each Section wa fais andthe time they fad to return, so {hat they eovld complete the work on the house if before they hd to move. Asitturned out this di not proveto be posible in the ist phase, but we hope that ‘the total umber of process will probably take about ten years, though we foe todo ittaster (Hg 5).“The design ofeach sector wa o be worked out so that the walking distance to sevies and a veicuarstoet ‘would not exceed five minutes This was not so easy, because we had to work witha number of constraints that inmibted the cational laying out ofthe stecets. Fist “among them were the mosgues, schools, and other facili- Hes seutoed about the area. There were something ike thiry mosques, and none could be demolished. If they hd heen, the project would have come toa standstil ‘Though in theory the fatwa says ony that fa mosques tom down ithas to be replaced bya new oe, in practice ‘there is ret resirtance to destroying one. People become ‘ery attached to them. It was easier to realign the roads {han it was to isk a dispute ‘Yet enother problem Was presented by the Suns mosques the Sha imambarah that were next 0 each ther on the main thoroughfare, We felt twas a good ‘opporiity to separate them, because during Meherram tere ate always clashes between the two rival sect [Negotiations arc under way to provide an alternative ste forthe imamberah so that the two istutions willbe separated bya good distance. Because ofthe high valu of land, however, the hagling that has taken place about hhow mich should be given to them has been ens. “The schools, dispensaries and so forth we ha to pre~ serve fre dlferen reason, Although they rei a Nery oor sate of repair, we have no money 1 iavest at tis ‘tape, and they ae beter haa nothing. As funds Become Available the can be replaced. Eventually the site will have four new primary schools, three new secondary Schools, six new community centers anda bazaar ineach Setor, and a number of playgrounds, “The sector lnyouls were prepared with the soioeco- nomic and cultural spects ofthe community in mind. 1 ‘wanted to keep the mrow, pedestlan sects twelve est Wide with smal ope spaces to allow move human intr action, but the Development Authority insisted on four “Tho ot sie of 4S square yards provided thre rooms, veranda, a kitchen,» bath and WC, on 10 floors, and {additonal spcein the courtyard (ackingina Na), which ‘at also be used as awind-cateher(fig-6) Theaea ret ‘feats, 0 the sects canbe wed forall nds of activity ‘as well for hirento play in, or vendors oselithings, {or eldest sit out nthe evenings. Open spaces can also ‘he used bythe community as nighborbood playgrounds and for festivities and) marrage ceremonies, When resources are scutce, all elements must be designed to have multiple uses. ‘Ast mentioned te project i near the most important ‘ommerilatea of Keach, the Emperor's Market, We have planned a main artery that will conneet with the ‘market atone cndandanothermain road inthe ity athe ‘other. This should relieve the trai congestion some: What, Atthe momext, wae bas to detour al the way round the tea beeasethestret inside areinsch poor condition, We ate so planing bus terminal. ARo- futher about fourte acres ate earmarked for public buildings and commercial use. The esto the area willbe devoted tothe housing sectors, of which ther will even~ tual be eight. Fach of them will be laid out in the andard 4S-squareyard plots, with some land being Fetained forthe fivestorywalleups the government til insist on building They fel they want to invest their‘money in them, anid so we have provided the space for them to do 30. [Next we had to determine just which people were eligible forthe 4-sguare-yard plots Asyoucan imagine, fs s00n as news of a development gels about, there isa danger that poople wil erowd into the aca and squat. I ‘vas very important avoid that here Fortunately a 1973 rurvey war avaiable to give us something 1 g0 00, though even in that survey people had been mised of Some names had been entered of people who probably did aot ive thereat al, This always happens ts impossi- ble to controk We made alist ofthe people living there now, compared i wth the 1973 survey, and then taled 1e with ration cards, which show how ong people have been living nan area. The counsellors who had been lect inthe area @ Sear and a half earlier could also ‘ouch forthe people tvng there. In this way we elimie ated people who had no right Io plots, but again itis ‘possible have a watertight scheme, some outsiders were included and some bona fide residents let ont. To resi that we posed thelist we finally drew up foe the People to check, and an appellate board, consisting of three government officals and two public representi- ore hae poe dng 3 tives, heard complaints, At Teast forthe first subsector we feo that late and allotments have been handed out 10 people wth valid cain. “The organizational Sct-up forthe project consis ofa high-powered Lines Area Development Board, compris+ ing the hen fall government agencies, with he gover ‘nor of Sind asits chairman. All decisions in principleare {aken by the board, which meets every three Io four ‘ont. Then there isthe executive committe which Aeals with al dy-torday problems. Its made up of ‘representatives ofthe development authority. themaster- plan department. and the ares tnegotats with ilfcult fwners oer them alternative sts, aguin to avoid ‘confrontation that would lea to delay and involve the Suthortes. There is also a coordination commitec, ‘whichis voluntary body of representatives from the fares and plays avery active role Keping the residents informed! ofall decisions. ‘While in theory I 00, think i important to have tradiioninsp eed solutions I must confess that when f ‘wanted to dre on traditions for my desig fund L imply did no: know enough about them, Inthe sector layouts I hav red eo create the feling of traditionalInohallan, which was basically a eloster of avelings round eemi-puble open spaces, did so purely intui- tively after walking in the old cies of Thatta, Lahore, and Peshawar. Ver) litle work has been done onthe old towns in Pakistan that could have Been used asa source Df inspration, We el the gap so acutely that recently we farted some work of our own onthe systematie doet- ‘mentation of old towne in Pakistan, especialy Thatta ‘Pakistan isl of great historic cones, but unless we can manage to. compile sufficient information and ‘develop a deeper knowledge ofthe historic urban fabri the traltional house, and ater building ype, do not belive that we can expect architects and planners to produce any work that embodies continuity. Weneed the Information not only aa basi too for design butalsoas the foundation for arguments to coavigee decision mak> ‘rs, Often the most dificul! decision makes toconvinee fre our fellow professionals, engineers, atchitets, and planners who were trained twenttive to tity years ao. They are stil under the influence of modern planning ‘concepts learned at that time and cannot believe hata ood can come ot ofthe disorderly angle ofstrets that fre 30 typical of ur teaditional towns and cites. “Three howse types have been developed. (igs. 79) “They wil no need Further approval bythe Development Authority, though if people want any changes, they are {recto cometo ur that we could incorporatethem. The people are being encouraged to form cooperatives 10 ‘Which loans frm the House Building Finance Corpora- tion will be made avaiable, But what they really needare interest-free loam, and weareexploringthe possibilty of funding for them. The HBFC loans are givenat 9 percent interest, which is mc too high for the lowest income ‘rovps. “The construction ofthe houses sity simple, so that the people can doit themscves (fig 10). Load-bearing cement, eonerete-boek walls, ad simple precast slab panels ae Being proposed. Although people ae fect Construct a they Wi, we ate arranging for precast pa fk to be available on site "Ar you ca see, the emphasis inthis projets not so much on design as chetional and appropriate solutions to problems. Dsigsisimporant, but fits not provided in the proper framexork of exceution for total pois, Constant revision i necessary, 8s vatious problems are Alscovered and have to be esoved. We keep redesigning the sector lagouts-everything else for that mater ~as ‘ew eireumatances crop up. Atone point, forinstance, we fel that one ofthe schools onthe site was in sucha state of disrepair that it mad to be demolished and we decided tonite tina diferent place. Weaccordingly prepared the Iayout, Because of the delay in the auctioning of the prime commercial Lind, however, we covld not sit the {onstruction of the Yew school in ime to serve the pope Tation planned fori, s0 rather than delay further, we ‘ecidad to retain ths old shoo for the time being That meant the sector laut had to be reworked yet again. T must confess to you, finally, that | in under severe attck by the Development Auibority and planners in Karachi for this preec. The continve to be convinced ‘tha the land i too valuable o ulld anything but bigh- Fis apartments and other prestigious buildings on it But Teel the poor peopl who havelivedtherefortentysive ‘or tiny years havetfir ight, t0o—ertanly more ara ‘aim then some deteloper whose onlyintereststo make the most profit cut of i. To me, i is 4 moral question,