PHD Dissertation: University of Engineering and Technology Lahore

PhD Dissertation
Development Plan Practices to Manage Spatial Growth

in Major Cities of Pakistan
A Case Study of Peshawar City
Niaz Ahmad
2006-PhD-CRP-01
Department of City and Regional Planning

University of Engineering and Technology Lahore
2012
i
This thesis has been evaluated by the following external examiners:
From within country
Prof. Dr. Haq Nawaz Anwar

Chairman Department of Sociology,
Government College University,
Faisalabad
From Abroad
1- Dr. Mark Seasons

Associate Professor
School of Planning, Faculty of Environment
University of Waterloo,Canada
2- Dr. Awais Latif Piracha

Head of Environmental Program
University of Western Sydney, Australia.
3- Dr. Saim Muhammad

GIS Application Manager
Department of City Planning & Management
Municipality Capelle ann den Ijssel, The Netherlands
iii
Declaration
I declare that this dissertation is based on my own research work. It has not been submitted for
any degree or examination in any other university. The work cited in the thesis is properly
referenced and acknowledged.
____________
(Niaz Ahmad)
iv
This dissertation is
dedicated to all those
who worked sincerely
for the promotion of
planned development
in Pakistan
v
Acknowledgements
ALLAHO AKBAR, my all praises are to ALLAH JALLA JALALUHU Who bestowed upon me
myriad blessing by giving me the strength, courage and potential to carry out such a voluminous
and prestigious task to complete the research work related to the Degree of Doctor of Philosophy
in City and Regional Planning. Indeed it is a moment of rejoicing for me to recall and extend my
gratitude with due acknowledgement to all those who sincerely contributed to the efforts, while
undertaking this endeavor.
The efforts of my supervisor Prof. Dr Ghulam Abbas Anjum (Chairman City and Regional
Planning) are countless, who took my initiatives to the heights of success. I would always
remember his encouraging attitude, personal interest, professional viewpoint and very useful tips
for the completion of this study. He was always a reference point for me as a mentor and critic
for various tasks and had constantly persuaded me to work hard. His personal involvement and
enthusiasm in this topic greatly helped me to track my study in right direction whenever it got
slipped. His arrangement for my research discussion was quite unique in the midst of his
diversified responsibilities within the University. He was always available whenever I needed his
help even in other matters of the University. I thoroughly enjoyed participating in his classes. I
would never forget his cooperation with me in this long lasting struggle of my PhD.
I am also grateful to the worthy Vice Chancellor, University of Engineering and Technology
Lahore for approving a reasonable amount of research grant for the successful completion of my
study. Besides, I am really impressed by the constructive criticism and positive attitude of
members of Post Graduate Research Committee. Their valuable foresighted comments helped
me like a beam of light to go forward for the achievement of my goal.
I was impressed by the analytical ability of a civil servant, Dr. Nasir Javed, Project Director
Urban Unit, Planning and Development Department, Government of the Punjab for bringing
reforms in urban planning. He provided me a better chance to learn from his initiatives by
extending me an opportunity to visit their library. I am also thankful to all staff members of the
Urban Unit for their generous behavior and support.
vi
Prof. Dr. Rizwan Hameed and Dr. Obaidullah Nadeem, Department of City and Regional
Planning, who broadened my vision and helped me in developing the methodological framework
of my research. The moral help of other faculty members and staff of the Department of City and
Regional Planning are highly regarded.
The discussion on development plans with Tariq Mehmood General Manager Peshawar
Development Authority and Plnr. Mr. Salah ud Din Deputy Director Provincial Housing
Authority Khyber Pakhtunkhwa were too much beneficial and resourceful for me. Mohammad
Ayub town planner P&D section Peshawar Development Authority and other colleagues of the
Planning and Development particularly the librarian were the other sources for me to acquire
various development plans and other relevant material regarding Peshawar city. Simultaneously,
I accredit the cooperation of Secretary Local Government & Rural Development Department and
professional staffs of City District Government Peshawar & Town Municipal Administrations in
the collection of research data. I wish to express my gratitude to the Editor-in-chief of
International journal of urban policy and planning ‘Cities’ Prof. Dr Ali Modarres (Chair
Department of Urban Geography California State University, Los Angeles USA) for his editorial
support for my research article.
It would not be fair to sideline the generosity and support of my employer the University of
Peshawar for relieving me with full pay for my higher studies. The professional aids of my
sincere colleagues specially Prof. Dr. Fazular Rehman, Prof. Dr. Zulifiqar Ali, Mr Janas Khan
Khalil (GIS expert and my best friend) of the Institute of Geography, Urban and Regional
Planning, University of Peshawar were marvelous. I also greatly indebted to my dear students
who contributed in various surveys conducted for this study.
Finally, I must thank my whole family who put up with my absence but kept me going for my
studies with continuous encouragement. The prayers and moral support of my parents, brothers
and sisters, wife and children were always a source of courage and strength for me.
May ALLAH JALLA JALALUHU bless all those who extended their support during my studies
(Ameen).
The Author
vii
Abstract
The development plans for cities intend an important means of reaching physical, economical
and social goals, through their effects on public and private development. In developed countries
many researchers have confirmed that it has a powerful influence on the revitalization of existing
city for livability, future spatial expansion, quality and pattern of the cities. However, many
developing countries are facing impediments to implement such plans and Pakistan has no
exception. The literature exemplifies various reasons for the failure; prominent among those are
inadequate legal and regulatory support, incapacitated institutions, vicious political interference
and the plans quality itself.
This research proceeds to review the development plans of all major cities of Pakistan. This
review assesses the plans’ quality, planning process, subsequent implementation and the legal
support mechanism used for these plans. While various research works regarding these plans
were analyzed to assess the real causes of their poor implementation. Peshawar city is selected
for detailed study under this research. The reasons are manifolds: the foremost is its continuous
attempts of Development Plan efforts since 1965; the researcher’s familiarity with the city; a
provincial head quarter and the current trajectory of urban sprawl due to Afghan refugees and
Internally Displace Persons (IDPs). Besides, the provincial headquarters cities have enjoyed
preferential development initiatives (especially for mega projects) from central and provincial
government. More over provincial headquarter cities are different from other cities in their
economical potential to promote development and employment opportunities. Therefore, this
research work is framed to find out actual cause of the consecutive failures of urban development
plans in Peshawar city.
The methodology developed for this task is to assess development plan in a comprehensive
manner to incorporate all aspects which necessarily influenced the development plan. These
aspects are spread in its Pre-Preparation stage, Preparation stage and at Adoption/Implementation
stage. The relation of all these aspects is ascertained through various methodological approaches.
The Pre-Preparation stage entails that every time huge expenses are made for the preparation of
development plans for cities, but a lack of proper evaluation of the previous efforts or
understanding of the actual process involved in the city’s growth, diverges the plan making
viii
spirit/goal into unintended results. This not only causes the wastage of public money but its
consequences paralyze the livability of the cities for ever. The review of previous development
plans to contain sprawl and to promote planned development as well as to analyze the
development authority’s role during plans implementation is a necessary part of this stage to
learn a lesson. It helps to sort out viable option and practices for development authorities, to
effectively utilize city enclaves and to accommodate population growth in a planned manner.
Efforts are also made to draw attention to strengthen/strategize good governance of the city
district government for collective endeavor of the line agencies in public and private sectors to
effectively achieve the goals and to avoid further failure of planned development efforts in the
country.
The preparation stage deals with the quality of the development plan, its goals setting, data
analysis as well as projection and methods used for the development of proposals. Public
participation and the plan approval are the other necessary aspects studied.
While the implementation stage of the plan covers the appraisal of ground realities and that of
the plan. Three different techniques are used to verify the plan implementation. These are the
Development and Building Control aspects, the Annual Development Plan assessment and the
identification and selection of the plan’s deviated areas. Finally recommendations are made on
the basis of the finding being met through the process mentioned above.
The Author
ix
Table of Contents
Sr. No. Description Page No.

Title Page i
Certificate ii
List Examiners iii
Declaration iv
Dedication v
Acknowledgements vi
Abstract viii
Table of Contents x
List of Tables xiv
List of Figures xvi
List of Maps xvii
List of Boxes xvii
List of Photos xvii
List of Acronyms xviii
List of Appendices xix
Chapter 1 INTRODUCTION
1.1 Context to the Research 1

1.2 The Research Problem 3
1.3 Research Variables 5
1.4 Research Questions 5
1.5 Aims and Objectives of the Research 7
1.6 Study Area for the Research 7
1.7 An Over View of the Dissertation 10
Chapter 2 RESEARCH METHODOLOGY
2.1 Introduction 13
2.2 Selection of Topic 13
2.3 The Research Approach 14
2.3.1 Case study approach 17
2.3.2 Assessment of plans’ compliance/deviations 19
2.4 Methods Adopted for the Study 21
2.4.1 Literature review 22
2.4.2 Personal observation 23
2.4.3 Collection of information on institutional frameworks 23
2.4.4 Interview with key urban development practitioners 23
2.4.5 The development plans contents assessment and analysis 24
2.4.6 Survey of residents of selected localities 24
2.4.7 Development and building control assessment 25
2.4.8 Annual Development Plan assessment 25
2.4.9 Legal framework analysis 25
2.5 Objective versus Methods of Research 25
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Chapter 3 LITERATURE REVIEW
3.1 Introduction 30
3.2 Context to the Literature Review 30
3.3 The Evolution of Development Plans 31
3.4 Spatial Planning and Policy in the United Kingdom 34
3.4.1 Legal backing of the plans 34
3.4.2 Process of the plan making 35
3.4.3 Agencies for the plan preparation 37
3.4.4 Public participation in the plan making: 38
3.4.5 The plans implementation 40
3.4.6 Approval of the development plan 40
3.4.7 Monitoring of the development Plan 40
3.4.8 Review of the development plans 41
3.4.9 Lesson Learnt 42
3.6 Spatial Planning and Policy in Malaysia 43
3.6.1 Legal backing of the plan 44
3.6.2 Administrative set up for planning 45
3.6.3 Public participation 46
3.6.4 Type and level of Plans 47
3.6.5 Monitoring and evaluation 49
3.7 Spatial Planning and Policy in the People Republic of China 51
3.7.1 Legal backing 51
3.7.2 Process of plan making 52
3.7.3 Governance structure 52
3.7.4 Spatial planning framework 53
3.7.5 Public participation in the plan making 55
3.8 Spatial Planning and Policy in India 58
3.8.1 Regulatory reforms 60
3.8.2 Public participation 60
3.8.3 Institutional reforms 60
3.8.4 Planning reforms 61
3.9 Conclusion 66
Chapter 4 URBAN GROWTH MANAGEMENT IN PAKISTAN
4.1 Introduction 67
4.2 Urban Management in the Perspective of the Five Year Plans 67
4.2.1 First five year plan 67
4.2.2 Second five year plan 68
4.2.3 Third five year plan 68
4.2.4 Fourth five year plan 69
4.2.5 Fifth five year plan 71
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4.2.6 Sixth five year plan 72
4.2.7 Seventh five year plan 72
4.2.8 Eight five year plan 73
4.2.9 Tenth five year plan 73
4.3 Management of Cities Policy 1987 74
4.4 National Conservation Strategy 76
4.5 Role of Federal Government Institutions in Urban Management 77
4.5.1 Cantonments Boards 77
4.5.2 Defense Housing Authority 79
4.5.3 Capital Development Authority 80
4.5.4 National Reconstruction Bureau 80
4.6 Role of Local Level Institutions in Urban Management 81
4.6.1 Improvement Trusts 81
4.6.2 Development Authorities 82
4.6.3 Local Government Institutions 84
4.7 Legal Framework 85
4.8 Urban Development Plans 87
4.9 Conclusion 90
Chapter 5 SPATIAL GROWTH MANAGEMENT IN PESHAWAR
5.1 Introduction 91
5.2 Peshawar City 91
5.2.1 Population growth 92
5.2.2 Spatial growth 93
5.3 Institutions Responsible for Spatial Growth Management 95
5.3.1 Peshawar Development Authority 96
5.3.2 City District Government Peshawar 98
5.3.3 Peshawar Cantonment Board 101
5.4 Instruments for Guiding and Controlling Spatial Growth 103
5.4.1 Master Plan 1985 103
5.4.2 Structure Plan 2001 106
5.4.3 Urban Planning and Development Management Structure Plan 2020 111
5.5 Content Assessment of the Development Plans 114
5.5.1 Preliminary considerations 115
5.5.2 Sector coverage and analysis 116
5.5.3 Implementation mechanism 119
5.6 Conclusion 121
Chapter 6 ANALYSIS OF URBAN DEVELOPMENT PLAN PRACTICES

IN PESHAWAR
6.1 Introduction 122
6.2 Implementation Status of Development Plans 122
6.2.1 Achievements of Master Plan 1985 122
6.2.2 Achievements of Structure Plan 2001 124
6.2.3 Achievements of Urban Planning Development Management Structure 129
Plan 2020
xii
6.3 Usage of Tools for Development Plans’ Implementation 129
6.3.1 Development and building control 130
6.3.2 Financing of development plan proposals 136
6.4 Spatial Growth in the Context of Development Plans 140
6.5 Analysis of Selected Localities Emerged After 1965 143
6.5.1 Localities grew-up in compliance/deviation of development plan 143
6.5.2 Characteristics of the selected localities 144
6.5.3 Acquisition of houses in selected localities 146
6.5.4 Legal status of house building in selected localities 148
6.5.5 Availability of basic services in selected localities 148
6.5.6 Major problems related to the selected localities 150
6.6 Effectiveness of the Development Plans in Peshawar? 151
6.6.1 Comprehensiveness of the plans 151
6.6.2 Adequacy of coverage 152
6.6.3 Plan’s document as a mere formality 152
6.6.4 Ownership of the plans 153
6.6.5 Ambiguity of boundaries 154
6.6.6 Land management system 155
6.6.7 Building and land use control 155
6.6.8 Implementation mechanism 156
6.6.9 Monitoring of the plans 157
6.5 Conclusion 157
Chapter 7 CONCLUSIONS AND RECOMMENDATIONS
7.1 Introduction 159

7.2 General Conclusion 160
7.3 Specific Conclusions from the Case Study of Peshawar 165
7.4 Recommendations 169
7.5 Significance and Contribution of the Research 174
References 176
Appendices 185
xiii
List of Tables
No. Heading Page No.
2.1 Sampling procedure for the selected localities 20
2.2 Interview with urban development practitioners 24
2.3 Secondary data and its sources 27
3.1 Checklist of the development plan process in Britain 42
3.2 Current hierarchy of development plans in Malaysia 44
3.3 Checklist of the development plan process in Malaysia 50
3.4 Checklist of the development plan Process of the People's Republic of China 57
3.5 Reforms in Indian spatial planning 62
3.6 Progress and achievements of vision plan 63
3.7 Major highlights of the Delhi Master Plan 64
Legal provision empowering institutions to prepare development plans in
4.1 86
Pakistan
4.2 Development plan practices in major cities of Pakistan 88
Population density in various administrative units of CDG Peshawar
5.1 93
(Projected for 2010)
5.2 Boundary extension of Peshawar Municipal Corporation 94
5.3 Detail of professionals working in PDA 98
5.4 Professional capacity of BCA within TMAs Peshawar 100
5.5 Professional strength of Peshawar Cantonment Board 103
5.6 Development plans used for spatial growth management in Peshawar city 114
Status of parameters required for the preliminary consideration of the
5.7 116
development plans
5.8 Summary of sectorial coverage and analysis of development plans 118
Status of parameters required for the implementation of the development
5.9 120
plans
6.1 Achievements of Master plan 1985 in Peshawar city 124
6.2 Achievements of Structure Plan 2001 in Peshawar city 126
6.3 Structure Plan 2001: proposals versus implementation 128
6.4 Development control violation in University Town 131
6.5 Compliance with building regulations in Town-4 133
xiv
6.9 Financial allocation for development projects in district Peshawar 138
6.10 Urban development projects for 2011-2012 139
6.11 Growth of selected localities in compliance/deviation of development plans 144
6.12 Characteristics of selected areas emerged after 1965 145
6.13 Reasons for having a house in the selected localities 146
6.14 Year of occupation of houses in selected localities 147
6.15 Type of plots and their size in selected localities 147
6.16 Approval of building plans in selected localities 148
6.17 Agency for approval of building plans in selected localities 148
6.18 Availability of basic services in plans’ deviated area 149
6.19 Basic services provision in selected localities 150
6.20 Major problems being faced by the residents in selected localities 151
xv
List of Figures
Figure Description Page
2.1 The research process 16

2.2 The process of objective versus methods 26
3.1 The old system of physical planning in UK 36
3.2 The present system of physical planning in UK 36
3.3 Key themes in LDF preparation 38
3.4 National development planning framework 47
3.5 Local government system in China 52
3.6 Level and type of development plans in China 54
5.1 Expansion of Peshawar city in different periods 94
5.2 Organizational structure of the Peshawar Development Authority (PDA) 97
5.3 Administrative setup for TMAs as given in LGO 2001 99
5.4 Cantonment organizational structure 102
5.5 Proposed planning units for the Master Plan period 105
5.6 Proposed growth zones for Peshawar 108
5.7 Proposed areas to be developed in Phase-I of the Structure Plan 109
5.8 Proposed areas to be developed in Phase-II of the Structure Plan 109
5.9 Proposed areas to be developed in Phase-III of the Structure Plan 110
6.1 Structure Plan’s phase wise proposal for compact development 141
6.2 Proposed areas for preparation of Local Plans 141
7.1 Proposed guided land development in urban interface 170
7.2 Sectoral development and action plans 171
7.3 Triangular forces to support plan implementation 173
xvi
List of Map

1.1 The location map 9
2.1 Map showing the location of selected deviated areas 21
5.1 Peshawar district administrative units 99
5.2 Map showing built up areas and Master Plan boundary 106
5.3 Map showing built up areas and structure plan boundary 111
5.4 Map showing the city in context of district Peshawar 113
6.1 Urban development and the boundaries of Master Plan and Structure Plan 142
List of Boxes
A procedure for the statements of community involvement in development

3.1 plans preparation within UK 39
3.2 Factors that trigger need for a review 41

3.3 Short coming of Master Plan approach 58
6.1 Achievements of UPDMSP 2020 129
6.2 ADP preparation process in Khyber Pakhtunkhwa 137
List of Photos
1 Public exhibition of draft Kuala Lumpur structure plan 47

2 Information counter and the counter for selling draft KLSP report 47
xvii
Acronyms
ADP Annual Development Plan

BCA Building Control Agency
CB Cantonment Board
CDA Capital Development Authority
CDGP City District Government Peshawar
CDWP Central Development Working Party
DA Development Authority
DCO District Coordination Officers
DD Deputy Director
DDAC District Development Advisory Committee
DDWP Departmental Development Working Party
DHA Defiance Housing Authority
DPC District Planning Committee
GIS Geographic Information System
KPk Khyber Pakhtunkhwa
LG Local Government
LGO Local Government Ordinance
MP Master Plan
MPC Metropolitan Planning Committee
NCS National Conservation Strategy
NRB National Reconstruction Bureau
NWFP Former Name of Khyber Pakhtunkhwa Province
PCB Peshawar Cantonment Board
PDA Peshawar Development Authority
PE&DD Planning Environment and Development Department
PMC Peshawar Municipal Corporation
PSDP Public Sector Development Projects
SP Structure Plan
SUPARCO Space and Upper Atmosphere Research Commission
TMA Town Municipal Administration
UK United Kingdom
UPDMSP Urban Planning and Development Management Structure Plan
xviii
List of Appendices
Appendix-1a Synthesis of Master Plan (1965-85) for Peshawar City for 187
Measuring its Effectiveness and Achievements
Appendix-1b Assessment of the Structure Plan (1986-2001) Policies and 193
Proposals
Appendix-2 Province wise list of urban development plans and their period of 202
implementation in Pakistan
Appendix-3a Analytical Comparison among Urban Planning Acts and Ordinance 205
promulgated in NWFP
Appendix-3b Comparison of Urban Planning Acts/Ordinances with that of the 209
United Kingdom physical planning legislation
Appendix-3c Comparison of Urban Planning Acts/Ordinances with that of the 212
Malaysia physical planning legislation
Appendix-4 Assessment of 10 years Annual Development Plans (ADPs) of 216
District Peshawar
Appendix-5a Interview Schedule for the Plan Implementing Agency Official 241
Appendix-5b Questionnaire for Resident of Plan Deviated areas in Peshawar 245
Appendix-5c Interview Schedule for government officials of Building Control 247
Agency of (TMA)
Appendix-5d Interview Schedule for Building Control System of (TMA) 249
Appendix-6 Satellite images showing a general view of Peshawar city growth 252
xix
Chapter 1
INTRODUCTION
1.1- Context to the Research
Initially, ill effects of laissez-faire pattern of development persuaded for the creation of favorable
living environment in the developed world. Plan led development was started and it became a
focal point for the future growth and development of the communities. This process was
encapsulated by Geddes’ phrase i.e. ‘survey, analysis, and plan’ to produce development plans
(Poxon, 2000). Later on, ‘Town and Country Planning Act of 1947’ in the United Kingdom (UK)
introduced planning as an ongoing activity, rather than merely production of a plan documents.
This was widely embraced as the true purpose of the planning profession (Baer, 1997). This
activity demanded inquiry into every aspect of a city enclave, including the coordination of
various line agencies and a team of qualified planners, enlightened and enthusiastic citizens etc
(Eisner, 1994). The development plans were then one of the primary tools of town planners to
influence cities’ future growth and development (Dalton, 1989). However, the reality of urban
development in many countries has led physical planners to question the effectiveness of these
plans (Culling worth, 1997; Hull, and Vigar, 1998; Zhang, 2000; Wei and Li, 2002; Zhu, 2004;
Berke et al, 2006; Hague, 2007; Luo, and Shen, 2008; Gossop, 2008; Davoudi, Healey, Vigar,
and, Majale, 2009; Qian, 2012). Initially, in developed countries, plan led development remained
very complex and had faced failure to overcome the problems of cities. In the beginning,
methodological issues were considered for failure, although various scholars attempted to
investigate that planning policy is not linked to planning practice and have proved that the
planners have not yet developed insight ability to link plans and their implementation to produce
subsequent impacts (MacNamara and Healey, 1984; Mastop and Faludi, 1997; Pountney and
Kingsbury, 1983a; 1983b; Talent, 1997). Schaffer (1974) criticized that urban development plans
were most often bogged down in detail and red tapism. However, no such serious attention was
given to address these issues in other attempts.
Urban planning in many less developed countries was significantly shaped by colonialism
(Hague, 2007). Simultaneously, in these countries too it met with the same fate of failure and
caused severe challenges to the cities’ administration due to non availability of trained
manpower, resources and favorable environment etc (Connell, 2000; Zaman and Ara, 2002;
1
Potsiou, Kelly, Khouri, Mclaren, and Muller 2010). Lack of professional planners in cities
having rapid urbanization, have the difficult task to control infringements of the plan (Hague,
2007). Resultantly, faulty planning along with inadequate enforcement caused cities dilapidation
and has exerted excessive pressure on the available services.
McGee 1995 indicated that Asian cities are forming through the amalgamation of rural
settlements, for which he used the term “desakota” development by combining the “Bahasa”
terms desa (village) and kota (city) to describe its mixed development pattern. He described that
the cities of developing countries have formed an amorphous and amoeba-like shape, they have
no set boundaries or geographical limits. Most often, the cities proliferate along transportation
arteries (McGee, 1995) and ruthlessly add to environmental miseries instead of prosperity and
economic growth. There is general agreement that economic development could be better
achieved through planned urbanization, because the strength of urban entities is an indicator
towards the achievement of development status (Zaman and Ara, 2002).
In this context the traditional instrument for the achievement of these goals in our urban areas
have been the master and structure plans, which are always distantly designed to control and
guide the socio-economic and physical development. It is an admitted fact that in developing
countries there exists, great dearth of professional planners to effectively envisage economic,
social and environmental aspects in the formulation of urban development plans. The UN expert
committee is convinced that physical planning in Asia is in the hands of architects, engineers and
surveyors who are inadequately trained in comprehensive planning and often fail to incorporate
socio-economic development in it.
Another important aspect for consideration is the legal and institutional frameworks for local
governance in developing countries. In many countries urban areas suffered from the existence
of multifarious organizations in charge of various overlapping functions. These organizations are
hierarchically fragmented at various levels. Legal bindings, zoning and land use regulations of
these organizations are other aspects creating perplexities due to overlapping functions and are
rarely implemented within their jurisdictional areas (Ahmad and Anjum, 2011). It is obvious that
development authorities in Pakistan have not been able, even with the existence of development
plans, to check the uncontrolled urbanization process (Hameed and Nadeem, 2006). Most often
local planning agencies have adopted relatively passive role toward developers rather than an
2
active one, who most often over ride environmental and social concern for monetary gains.
Usually on site physical development often takes place before planning and infrastructure
provisions. Such growing trends in urbanization are resulting in a number of problems, such as
proliferation of slums, pollution and deterioration of the urban environment (Rahman, 2005).
This study attempts to investigate the perpetual failure of development plans in Peshawar a
metropolitan city of Khyber Pakhtunkhwa province in Pakistan. This failure is not only confined
to Peshawar city but all our attempts for large and small cities in Pakistan also met with the same
fate of failure due to various reasons. So far, no serious attempt has been made to work out these
causes comprehensively and to adopt the needful. Therefore, it is essential to compare and
analyze good practices of the development plans in the world in order to suggest an appropriate
and effective strategy for development plan practices in the country.
1.2- The Research Problem
There exists no correlation among growth pattern and management practices of cities in Pakistan.
Cities are sprawling further and further having no direction and destination. The process of cities
expansion is not designed but is emerging as a product of market forces. Development plans
were prepared for all major cities since 1960; various Acts and Ordinances were promulgated to
ensure planned development. Local planning authorities were created to manage growth of cities,
however, apparently haphazard growth of cities continued and various problems have engulfed
the cities. Regulatory bodies are striving to overcome the problems but all in vain.
The literature exemplifies that this failure has also been faced by the developed countries but
with the passage of time, these countries brought drastic changes into their planning system and
institutional framework. Worldwide, various researchers worked out different approaches to
assess failures, particularly, Satterthwaite, 1996; Gilbert, 1998 and Andam, 2004; concluded that
a lack of good governance in plan implementation causes failure to achieve planned urban
development. While Bernstein, 1993 and Ichimura, 2003 verified that urban problems emerged
as a result of poor planning, weak management and lack of logical policies rather than of
urbanization itself. In many cases, inadequacy of technical skill and planning expertise, poor
interagency coordination, fragmentation of power and functions at the local government level
remains as a basic cause of the plans failure. Corruption or intimate linkages of government
3
officials and land developers particularly in case of land use management measures also weaken
the effective enforcement of development plan policies in cities (Ichimura, 2003). A number of
authors highlighted various approaches, including the value of local communities and the
importance of public participation (Douglass and Friedmann 1997; Malbert 1998; Holston 1999),
a grassroots approach (Douglass 1995; Abers 1997 & 2001) and the decentralization and
democratization of planning decisions for the successful implementation of plan (Sandercock
2002). As enforcement is an important issue, evaluating the usefulness of these plans in terms of
achieving the stated goals is essential. Once the objectives are clear and measures are defined,
the planning process must be steered towards a more sustainable city. For this, the use of
sustainability indicators (Mitchell 2000; Keiner 2002), monitoring (El- Shakhs, 1997; Belkina,
2008) and controlling mechanisms (Keiner 2004) are indispensable.
It is reported that development plans in many United State (US) cities are not fully implemented,
mainly, due to lack of funds and time line of relevant laws and policies. But later, with the
introduction of new approaches in plan making, institutional and legal support, it became
possible to implement cities development plans (Sevensson, 2007). Urban planning in
developing countries is often adversely affected by serious governance problems caused by
political instability, and a sheer lack of social and fiscal capital, technical capacity and
institutional instability, among other complex and interconnected challenges (Seasons, 2009).
Indeed, some scholars have argued that neither the size of the city nor the speed of growth is the
most important in producing poor urban environments; the main culprit is lack of good
governance (Satterthwaite, 1996; Gilbert, 1998).
However, these measures are not sufficient to deepen our understanding regarding the reason
behind the ill-implementation of our cities’ development plans. Most of these researches are
single dimensional and are not in tune with our system. In our case the issue is not pertinent to a
single aspect, but to various factors. Therefore, neither the quality of development plans nor its
governance procedure could solely be made responsible. We need to check the whole practice,
necessary for the effective implementation of development plan rather than a single aspect to
find viable solution.
4
1.3- Research Variables
Determinants to elicit the failure of a development plan in Pakistan are manifold, which weaken
the implementation of city development plans. This research utilized both the qualitative and
quantitative techniques to ascertain facts. In this regard, a dependent variable was selected in
order to assess the relationship of various other factors with it. The dependent variable for the
study is “The influence of the development plan on the city growth”. In order to ascertain its
dependence on various other variables, a number of independent variables were identified to
study the effectiveness of the plan’s implementation. The exploration of these independent
variables leads to the attainment of the goals set forth for this research. This also helped to
concentrate the research on specific lines and to explore the actual causes in depth and voids
within the system. These independent variables are listed below:
i- Population growth rate of the city

ii- Housing accomplishment
iii- Spatial deviation from the city plan
iv- Financial allocation for the plan implementation
v- Professional capacity of the plan implementing agency
vi- Public involvement in plan making
vii- Plan dissemination amongst the public and line agencies
viii- Legislation and Legal support
ix- Political support and acceptability
1.4- Research Questions
The conversion of urban development plans into reality is a big challenge being faced by local
planning authorities in Pakistan. Various researches in the context of development plan failure in
Pakistan were reviewed. Hameed and Nadeem (2006), in their research highlighted certain
questions such as “Should we guide and manage our cities through master or structure planning
or the combination of the two approaches?” and “Should we endeavor to devise indigenous type
of development plans?” Therefore, the researcher strives to deeply analyze the successive failure
of development plan practices in Pakistan. In this regard the changing socio-economic conditions
and environmental degradation of our cities further prompted the researcher to question the
5
effectiveness of development plans practices in a comprehensive manner. This research proceeds
with some core questions which are:
i- What have been the development plan practices in Pakistan?
ii- Why development plan practices have not been effective to manage growth of
cities in Pakistan?
iii- How development plan could be made effective to address the issue of spatial
growth in urban areas?
In order to answer these questions, it conceptually further explores three distinct subsidiary
questions. These are:
Why the Development Authorities are unable to implement cities’ plans? i.e. how the
Local Planning Authorities affect the plans’ implementation, such as the capacity and
commitment of planning staff, as well as their power to work according to the plan for the city
development etc.
It is also important to know the degree to which general public and stake holders were involved
in the plan making and coordination among line agencies etc. Therefore, a subsidiary question
was raised i.e. Does the plan reflect the perceived needs of the users? This will cover deviations
from the plan. Finally, a question is raised that: Is implementation related to the qualityof plan?
This question has focused the entire structure of development plan that is to analyze the contents
of plans in order to decide whether good quality plans were better implemented than the weaker
ones?
The third question necessitates that it is obvious to explore various good practices of the
developed and developing countries in order to learn from their successes for the development
plan system in Pakistan. In order to find answers to these questions, it is established that the
answer to these questions are spread in three distinct phases of the development plan practices.
These are the pre-preparation stage, preparation stage and the implementation stage. Therefore
considering all these distinct phases of development plans and the entire set of questions raised
through the initial analysis of the problem, this research has set forth a set of explicit objectives
for the study. These are presented as under:
6
1.5- Aims and Objectives of the Research
The aims of this research were a) to understand the problems of implementation of urban
development plans b) to provide basis for formulation of policies related to the legal and
institutional framework for the preparation and implementation of development plans in
Pakistan.
i- To review various aspects (legal provisions, institutional framework, plan making

process and implementation mechanism) of development plans in Pakistan.
ii- To study good practice models of development plans of selected countries and to
draw lessons for Pakistan.
iii- To study the expansion process of Peshawar city and to identify the factors causing
growth in deviation of development plan proposals.
iv- To suggest appropriate measures for development plan practices in order to
effectively manage spatial growth in major cities of Pakistan.
1.6- Study Area for the Research
Failure of the development plan is a country wide problem in Pakistan. This research
incorporates to review the state of development plan practices in all major cities (Karachi,
Lahore, Faisalabad, Multan, Rawalpindi, Gujranwala and Quetta) in general and taking the case
study of Peshawar city in the province of Khyber Pakhtunkhwa, in particular for in-depth
analysis. Peshawar is the provincial headquarter and a metropolitan city, with a population of
about 2500 thousand (including Afghan refugees). The city is situated in the middle of province
and is bordered with the tribal areas in the west, the north eastern side is bounded by district
Charsaddah, district Nowshera lies towards eastern side and southern side is bounded by district
Kohat (see map 1.1). The city is at a distance of about 35 KM from the Afghan boarder.
Peshawar city being the first post for Afghan across an uncontrolled frontier, with a tranquil and
congenial socio-cultural environment, selected by many refugees who fled to Pakistan since
political destabilization and Soviet envision in 1979 (Hetland, 2006). This phenomenon had
greatly affected the land management system within the city and finally causes the continuous
sprawl of the city. This trend not only deteriorated the whole environment of the city but
clandestinely suppressed the institutional ability to act accordingly in a planned manner. So far,
7
three different types of urban development plans have been attempted continuously for the city
of Peshawar and all the three have met with the same fate of failure. These initiatives were:
- The Master Plan (1985) prepared by the Directorate of Town Planning in Lahore
(Punjab), Its time period was 20 years (1965-85).
- The Structure Plan 2001 prepared by a foreign consultant Gilmore Hankey Kirke Ltd
London UK in partnership with Roger Tym and partners Abdullah Jan. Its time period
was 15 years (1986-2001).
- The Urban Planning Development Management Structure Plan (UPDMSP) prepared
by Karachi based firm ‘Engineering Consultants International (Pvt.) Limited’ (ECIL).
Its time period is 18 years (2002-2020).
8
Map 1.1:
Source: Survey of Pakistan
9
1.7- An Overview of the Dissertation
This dissertation is presented in seven chapters. The introductory chapter deals with the
conceptual clearance regarding the research and its scope. It explicitly specifies the research
problem, aims and objectives and gives a brief account of the methodology adopted in this study.
Finally, an overview of the report is also given for readers.
Chapter 2 outlines methodology adopted to undertake this research. It highlights the analysis of
discussion on various types of methodologies that have been employed by various researchers in
different countries in order to find an appropriate methodological approach for this research. The
selected methodology has then been explained that specifies the step wise procedure to
investigate the whole system of development plans in Pakistan. It also specifies the procedure of
qualitative assessment and spatial sampling for the collection of quantitative data. Subsequently,
the chapter informs how the development plans have been assessed and analyzed.
Chapter 3 presents a literature review on good practice models regarding spatial planning in
selected countries. The development plan system of UK was considered first because it pioneers
this concept and has evolved the whole system of development planning since it was introduced.
The analysis of good practices from Asia is based on United Nation (UN) and World Bank (WB)
reports declaration for success stories. As a whole it gives comprehension regarding the levels of
urban development plan and its methodological procedures for these countries. It incorporates
urban governance structure, legal mechanism, monitoring and review to support the
implementation of urban development plans. This comparison provided a firm basis to develop a
checklist in order to evaluate the system of development plan practices in Pakistan.
Chapter 4 highlights the urban development initiatives in Pakistan. It gives a comprehensive

review of the country’s federal and provincial initiatives to support and practice planned urban
development within Pakistan. The analysis of national five year plans reflects that physical
planning had been felt since the very beginning. Besides five year plan, other plans and policies
at the national level are the National Conservation Strategy (NCS) and sectorial policies.
However, these efforts had almost faced negligible emphasis in the achievements of the stated
goals and had met with the fate of ill implementation. This chapter further describes the
provincial policies and role of Local Government (LG), Development Authorities (DAs),
Cantonment Boards (CBs), Defense Housing Authorities (DHAs) and other housing societies.
10
The objective was to identify how different planning policies (development plans) within each
city affect urban development and management. In this connection a comprehensive review of
the existing development plans, legal and regulatory framework and institutional capacities at the
local level is carried out to identify gaps and inconsistencies within the existing vision, policies,
acts, ordinances and bye laws. These analyses elaborate various voids and gaps that exist within
the system.
Chapter 5 explains the urbanization and spatial growth pattern of the case study city (Peshawar
city) in detail. It then analyses the institutional setup and its capacities mandated for the local
development particularly Peshawar Cantonment Board, Peshawar Development Authority (PDA)
and Local Government institutions in the city. It highlights the role of these organizations for the
growth management of the city. The assessment shows that these organizations are having
perplexed power and overlapping functions for the city development. Next it explains the
development plans prepared for the city. It is followed by the assessment of these instruments in
the context of its preliminary consideration, sectoral coverage and implementation mechanism.
Finally, conclusion is drawn to ascertain quality and effectiveness of the constituent parts of
development plans practices at local level.
Chapter 6 presents the analysis of urban development plan implementation in Peshawar city.
Various techniques were used to assess the implementation status of the development plans of
the city. First, it highlights the achievements of the plans that were derived through the analysis
of personal verification, professional interviews and departmental memories. Next, it attempts to
verify the implementation status of plans in light of development and building control,
assessment of financial allocation for development projects and spatial growth analysis. It gives
an account of the reasons for non compliance of the plans proposals derived through analysis of
selected localities emerged in deviation of development plans. It also outlines the causes for the
failure of development plans. Finally, conclusion is presented to determine the relationship
among various factors involved in violation of development plans is presented.
Chapter 7 presents key findings, recommendations and conclusions. This chapter begins with a
review of the findings and an assessment of how well the findings answer the research questions
set forth for the research in the first chapter. This chapter concludes the entire research findings
and gives recommendations on the insight gained from the examination of various factors
11
studied in this research to influence the development plan practices in Pakistan. It also helps in
identifying a viable option for a suitable urban development plan in the context of Pakistan.
12
Chapter 2
RESEARCH METHODOLOGY
2.1- Introduction
This chapter presents the research design and methodology used to carry out the research. It
starts with the selection of the research topic and then it explains the research approach adopted
for the study. Next, it illustrates how the necessary literature would be reviewed and explains the
selection of a case study approach. The final section presents the various methods and techniques
used for the accomplishment of the research objectives.
2.2- Selection of Topic
The challenges to control urban development pattern in Pakistan have been faced by cities
administration since the very beginning. So far, many attempts were made but did not prove to
be successful to direct the cities growth in a planned manner. This failure is more serious in
major cities faced with unprecedented urbanization. Looking at this phenomenon, it was decided
that a good attempt can be made to study the problem in depth in order to unearth its actual
causes. Therefore various aspects of the issue were discussed with different professionals and
practitioners. Finally the research supervisor and the researcher were able to finalize the topic for
this research. The initial study for the selection of topic exposes that the issue is not specifically
concerned solely with one aspect. Besides, the quality of development plans other aspects of the
problem relates to legal and institutional framework as well as institutional strength and
capacities. The political acceptance and allocation of funds for the timely completion of the
projects are the other constraints which need assessment. Furthermore, the planning norms, the
social and cultural features of the society, and the planning standards are equally important to be
ascertained for this problem. Therefore, this research incorporates all the parameters/elements
considered important for the effective implementation of development plans.
In-depth verification of the development plans was carried out for the practices of the case study
of Peshawar city only. Peshawar is a metropolitan city and the provincial capital; therefore it
attracts great extent of development funds in annual budget. Various organizations, including
Peshawar Development Authority, City District Government and Town Municipal
Administrations are comparatively well developed and capacitated up to great extent. This city
13
has a series of unsuccessful attempts for various types of development plans since 1965. The first
one was a Master Plan prepared for the period of 20 years (1965-85), the second one was a
Structure Plan developed through foreign consultants in 1986 for a period of 15 years and the
third attempt was of an indigenous type plan called Urban Planning and Development
Management System for Peshawar (UPDMSP) prepared for a period of 18 years (2002-2020).
These were long term plans, for almost 15-20 year period and none of these plans proved to be
successful in its implementation. The reasons for failure were not ascertained in any form before
this study.
2.3- The Research Approach
There exists a variety of research approaches for studying the challenges in the implementation
of urban development plans. It is mainly due to the fact that practices of development and
planning widely vary from country to country and there are hardly any definite criteria to assess
the usefulness of such plans. The literature from the developed world mostly focuses on
quantitative approach. However, such an approach can not prove to be successful in developing
countries to assess the effectiveness of the urban development plans. The relationship between
enforcement style and implementation greatly vary in developing countries (Lauriana, 2004).
Therefore, the researcher has developed the following methodology in order to first learn from
the best practices of development plan approaches within the selected countries. It also reviews
the national practices in general and the selected case study in depth analysis to find out causes
of ill implementations in the consecutive efforts of the Local Planning Authority. Both the
qualitative and quantitative approaches have been used to find out the causes of plans deviation
and effectiveness and to add useful insight into the development plan practices in Pakistan.
Therefore, the methodology used for this research comprises the general assessment of the
development plan practices at the national level and finally for in-depth analysis of the case
study city practices in order to achieve the goal set forth in this research.
To assure appropriateness of the selected technique for in depth analysis, assessment of various
other techniques such as experimental design, cross sectional design and longitudinal design
were also made to test its effectiveness. Each of these methods has its own merits and demerits to
provide convincing proof in order to answer the questions set forth in a research (De Vaus,
2001). Case study helps in understanding causes of a problem in profundity through study of
14
limited number of cases having its roots in many aspects and expands over a long period of time.
Case study approach is quite appropriate to answer “how” and “why” questions, however, it is
not confined. Any style of questions can be put to study through an exploratory case study
method, because research questions often act as “door to the research field under study” (Yin,
2003; Flick, 2002). The step by step process of this research is shown in Figure 2.1.
15
Fig-2.1 The research process
Level of Activity
International Literature Review Regarding the

Development Plan Practices International
Practices
Selection of Good Practices

Assessment In-depth Review
of Selected
of
Countries Planning
Governance System
Britain (UK)
Malaysia; China &
Plan Preparation
Legal and India
Process,
Institutional Monitoring and
Framework Review
Review of the National Five Years Plan

National
Review of the National Management of Cities Policy Practices
Review of the National Conservation Strategy
Review of National Reference Manual on Planning and Infrastructure Standards
Review of Cantonments Act (1924) and Cantonment Regulations
Review of Khyber Pakhtunkhwa Comprehensive Review of Provincial Conservation

Provincial
Development Strategy 2010-2017 Strategy (SPCS) /Regional
Practices
Review of NWFP Local Review of NWFP Urban Development Ordinance
Government Ordinance 2001 1978
Review of Review of Review of TMA/PDA Review of Ten Year

Master Plan Structure Plan UPDMSP Building and Provincial Annual Local Level
Structure Plan Development Development Plans
1965-85 1986-2001 Control Regulation (ADP) Developme
2001-2020
nt Plan
Plan’s Review & Plan’s Review & Plan’s Review & Institutional Field survey of
Implementation Implementation Implementation Record & Prof. Deviated areas &
Assessments by Assessments Assessments by Capacities ADP Analysis as
Deptt. assets & through Prof. field surveys and Assessments and well as LPA
Instit. Memories Interview GIS application field verification Budget review
Source: The Author, 2011
16
2.3.1- Case study approach
Case study research methods put emphasis on the detailed contextual examination of a limited
number of cases or events and their relationships with the whole phenomenon. This method has
been used by many researchers for a variety of disciplines for many years (Simons, 1980). In
particular, social scientists have made ample utilization of this research method to examine the
nature of contemporary real-life situations faced by communities. Yin, 1984 defines the case
study research method as “an empirical inquiry that investigates a contemporary phenomenon
within its real-life context; when the boundaries between phenomenon and context are not
clearly evident; and in which multiple sources of evidence are used”.
Critics on the case study method advocated that the analyses of a limited number of cases can
present no firm grounds to established reliability/ generality of findings. Some scholars argue
that the study of limited cases can bias the findings. However, the case study research method is
continuously been used with success in many carefully planned studies regarding various issues
and problems of real life. Examples of case studies research in many fields are extensively
available in the literature.
Many renowned case study researchers particularly have written about this type of research and
recommended various techniques to effectively organize and conduct the research successfully
(Simons, 1980; Yin, 1984). This helped the researcher to ensure the accuracy of the findings and
to provide more concrete information in order to formulate the interpretations.
The most important component of this research was to determine an inclusive methodology to
cover all facets of the development plan practices. For this purpose the case study technique were
used to ascertain the development plan practices been carried out for Peshawar city. The word
practices related to procedure, which incorporates all the pre preparation process, the preparation
process and the plan implementation practices to be carried out for the development plans of the
city. In this regard the UNHSP Global Report on Human Settlements 2009 “Planning Sustainable
Cities” greatly helped the researcher to devise such an approach which can cover the
development plan processes comprehensively. In developing countries, particularly in Pakistan
one cannot accurately label a single factor for the failure of such plans. These ills are
sporadically spread in many aspects; right from the legislative cover to the plan making,
17
institutional framework and enforcement mechanism. Basically, in Pakistan planning process is
partly considered in the development plan preparation as well as the implementation stage. The
aspect of public involvement and plan monitoring and evaluation always remains disregarded in
these processes. For these reasons this research divides the development plan practices into three
stages in order to fulfill the criteria for ex-anti, formative and ex-post evaluation of the
development plan practices as indicated by Season (2009). These practices are mainly related to
these stages:
i- Pre-Preparation stage
ii- Preparation stage
iii- Implementation stage
i- Pre-Preparation stage
This stage is specifically concerned with legislative cover, institutional strength, power and
function of the National, Provincial and District Governments. The various aspects of these
issues were studied in detail accordingly in the following form. The detailed illustrations of these
documents are given in table 2.3.
 Departmental capacity, structure, power and function of the implementing agency

 Regional and local level town planning legislation and legal support
 Assessment of national policies/plans pertained to physical development
ii- Preparation stage
This is the main stage to understand the development plan potency in the achievement of its
specified goal/vision. It is specifically related to the plan document. In this context, the
development plans prepared for major cities in Pakistan in general and the development plans for
the city of Peshawar in particular were reviewed and analyzed. The focus of the review was on
the following aspects:
 Vision statement or goal of the development plan

 Problem identification and synthesis
 Sectoral coverage and analysis
 Consultation with line agencies and consideration of their programs
18
 Development proposals and their compatibility
 Type of public involvement concerning plans preparation.
 Political support and plan approval.
 Public involvement, examination and availability of the plan for public inspection.
iii- Implementation Stage
It is the most important stage to understand whether the plan proposals were real and
implementable or ambitious one. However, the relevance of proposals with the actual practice of
development planning by the rest of the line departments was crucial. In this regard the following
aspects were studied to ascertain the plan effectiveness:
 Phasing and time frame for implementation

 Development of local plans
 Plan approval and legal cover
 Assessment of district ADP to work out its relevance with the plan
 Major proposals and their accomplishment
 RS and GIS applications for change detection
 Periodical review of the Plan.
 Internal and external coordination of the agency to effectively implement the plan
 Expert’s opinion about the implementation of the plan
2.3.2- Assessment of development plan compliance/deviation
Two Spot satellite images (10 meter resolution) of various time periods (1992 & 2009) were
procured from SUPARCO Pakistan in order to assess the growth pattern of the city. Spatial
analysis of the satellite imageries was made through Arc-GIS software to understand the city
expansion and to identify directional changes and deviations from the development plan
proposals. A simple polygon map was produced and development plan boundary was placed on
it through overlay method. This helped to identify the plans deviation, while inner side
deviations were selected through the assessment of the plan proposals. All the three plan of the
city were considered as cluster to devise and identify compliance and deviation to it. Various
localities were identified, which were developed in deviation to these plans prepared so far after
1965. The deviations identified were examined through the sampling procedure.
19
Cluster sampling technique was used in the selection of plans deviated localities within the city.
The technique first considered each plan as a cluster then it divided the plan period into smaller
sub groups called strata before selecting the required samples (Scheaffer et al., 2006). This
technique was chosen due to its usefulness to study plan deviated areas. Stratification has the
qualities of reducing the sampling errors in the field investigation (Monettee et al., 2002). This
method also makes homogeneity among the stratum; therefore small sample size could give
reliable results to represent the whole. Kerlinger and Lee (2000) mentioned that Stratified
Random Sampling is particularly useful when items are composed of dissimilar groups and the
scholar would prefer to study strata differences. The plans period was considered as strata for the
deviation occurred. A careful exercise was made to form strata for the deviated area and then
among these strata 15 localities were selected in order to cover all the deviations occurred in the
case study city. The selection of strata and allocation of questionnaire for the study of selected
localities is given table 2.1.
Table 2.1 Sampling procedure for the selected localities

Target Urban Development Plans Strata Households Valid
Clusters Strata Proportionate sampling Response
Phase 1: 1965-70 2 100 65
Master Plan
Phase 2: 1971-75 2 100 73
1965-1985
Phase 3: 1976-85 2 100 79
Sub total 6 300 217
Phase 1: 1986-90 2 100 82
Structure Plan
Phase 2: 1991-95 2 100 88
1986-2001
Phase 3: 1996-2001 2 100 95
Sub total 6 300 265
UPDMSP Urban Sprawl 1 1 50 48
Structure Plan Urban Sprawl 2 1 50 49
2002-2020 Urban Sprawl 3 1 50 49
Sub total 3 150 156
Grand Total 15 750 538
Source: The Author own construct (2010)
Spatial location of these localities is mentioned on the map 2.1. The justification for distribution
of these localities for various plan periods is that different plans suggested various proposals for
the city expansion but in reality the proposals were not implemented during the plan period.
Thereafter the next plan suggested the same proposals but again the city administration has not
been able to act accordingly. Finally, some of the lapsed plans proposals are in the offing as and
when the matter becomes unavoidable for the political elites and the city managers. Selection of
the sampled localities was carried out by considering the following factors:
20
i- Permanent dwellings were permitted there,
ii- All necessary services (water supply, electricity, Sui-gas) were available,
iii- Social amenities were present,
iv- Access road and streets were paved.
To conduct this survey, a systematic random sampling technique was then used for the selection
of respondents from the localities. Depending upon the size of the settlement every 10 th, 15th and
20th house was selected respectively for the questionnaire survey.
Map 2.1 Map showing the location of selected localities
Source: Map developed from SUPARCO (Spot) Satellite Image 2009
2.4- Methods Adopted for the Study
As explained earlier in this chapter both the qualitative and quantitative techniques were used to
collect the primary and secondary data. For in-depth analysis of urban development plans, spatial
proposals of the case study city were assessed and deviations were identified. These deviations
were studied through a questionnaire survey to collect evidence and information from the
21
community (see appendix-5b). While secondary data was collected from various sources
including Peshawar Development Authority, City District Government Peshawar, Town
Municipal Administrations provincial P&D, Law Department, and Bureau of Statistics etc. This
approach stems from the third objective of the research. Various other techniques which
supplemented the data collection in this process are elaborated in the proceeding sections.
2.4.1- Literature review
In this research, the literature review played a crucial role in order to learn from one’s own
mistakes and of the others good practices and success stories. This task proceeds after searching
good practices both in the developed and developing world regarding urban development plans.
Initially, review of the development plans of Pakistan’s major cities was carried out to
understand its pros and cons. Thereafter literature on good models applied in world cities was
exhaustively studied for review. Some of the sources of literature review are listed below:
 Reputed national and international journals

 Internet search engine (SCUPUS of Elsevier, Google scholar and science direct etc)
 UNCHS, World Bank and Asian Development Bank reports and studies
 Legal coverage (physical planning acts) of the good practice countries
 Urban Unit P&D Department Government of Punjab (Pakistan) consultancies reports
and documents pertaining to reforms in urban development plan system.
 Five years plans of the Government of Pakistan
 Pakistan National Conservation Strategy and Sarhad Provincial Conservation Strategy
 IUCN reports for good governance
 National and international PhD and M.Sc theses
 National and international legislation for urban planning and development
 Development plans document prepared to date for all major cities of Pakistan
 Provincial ADPs and Bureau of statistics reports for district Peshawar
It is pertinent to note that the good practice models countries were selected for their good spatial
planning practices and they provide evidences of reforms in their planning system to get
successes in implementation of the urban development plan. The purpose of the review of their
system was to understand the procedure of successful initiatives carried out in the selected
22
countries in order to provide a firm basis for the comparison of development plan system in
Pakistan.
In this regard, Guller, 1996 and Bulkeley, 2006, supported that policy instruments regarding
spatial planning, which have proved to be successful in one urban area are applicable to another,
given that the latter has a different historical, political or cultural background, or is in another
phase of economic development. Therefore, based on the UN reports and individual’s research
assessment, four countries were selected for exploring their practices in details. The comparative
analysis of selected countries (UK; Malaysia; China and India) good practices were made to learn
lessons. As a whole the step by step methodological process is illustrated in Fig-2.1.
2.4.2- Personal observation
The researcher is an ex-employ of the PDA and joined the faculty of the Department of Urban
and Regional Planning, University of Peshawar. Therefore, the researcher is having a constant
observation regarding the spontaneous spatial growth of the city. The component of phased
development as proposed by the plan was sorted out through personal observation, professional
interviews and departmental memories. Moreover, the researcher observed himself the process of
spatial growth during the period of PhD programme (2006-2012). The facts collected through
observations have been used in the final chapter of this research.
2.4.3- Collection of information on institutional framework
The effectiveness of the development planning organizations was measured through the
assessment of their professional human resource. The institutional organogram was examined to
understand that how these organizations governed physical planning tasks assigned to them. For
this purpose the governance structure of Peshawar Development Authority, Town Municipal
Administrations and Peshawar Cantonment Board were studied and assessed to understand their
effectiveness for the implementation of development plan.
2.4.4- Interview with key urban development practitioners
It was highly desirable to record information about the development plan practices from the key
personnel involved in urban development in one way or the other. For this purpose key officials
who have had been involved in the preparation and implementation of plans of Peshawar city
23
were interviewed. Some of the officials are currently serving PDA and local councils and some
of them have been retired from the services. Attempts were made to interview these
persons/departmental memories to highlight various facts through them. In this regard, a
schedule interview was framed in advance (see appendix-5a) to make recording of the relevant
information easier. The number and type of professionals, interviewed, of concerned
organizations are listed in table 2.2.
Table 2.2 Interview with urban development practitioners

Local
Property
Key Personnel PDA Government P&D SDA PHA Total
Dealers
CDG/ TMA
Town Planners 3 - - - 2 - 5
Architects 2 - 1 - - - 3
Engineers 2 5 2 - 1 - 10
Administrators 1 4 3 1 - 4 13
Councilors - 4 - - - - 4
Retired Personnel 2 4 - - - - 6
Total 10 17 6 1 3 4 41
Source: The Author, 2011
2.4.5- The development plans contents assessment and analysis
This study used the protocol established in the studies of Conroy and Berke (2004) and
Alibegovic and De Villa (2008). First the selected city development plans were reviewed through
the identified factors derived from the literature review of good practices. Then the content
analyses were made in light of the researcher personal verification and through the professional
interviews.
2.4.6- Survey of residents of selected localities
The selected pockets were studied in detail through a questionnaire survey in order to assess that
how construction of houses was allowed in these areas and who provided infrastructure to these
houses particularly that related with the LPAs. The survey was carried out on the basis of 5%
sample size of the community. A total of 750 questionnaires were filled by the residents of these
localities, among these 538 were having complete information and the remaining were ignored
due to incomplete information. This was mainly because some of the respondents could not
record information regarding the old plans in a proper manner. The valid questionnaire data was
analyzed through computer software Statistical Package for Social Sciences (SPSS).
24
2.4.7- Development and building control assessment
The process of development and building control of the Tehsil Municipal Administrations
(TMAs) was investigated through professionals, two different interviews schedules and
assessment of the building plan approval process was made within their jurisdictions. The
interview schedule also incorporates to investigate institutional capacities and plan approval
processes within TMAs (See appendix-9a&b).
2.4.8- Annual Development Plan assessment
Projects identification and selection for implementation in Pakistan usually take place through
the provincial ADP. This process usually dent the development plans for cities. Therefore, its
assessment was necessary to compare actual allocation of projects with that of the plans
provisions. A problem was faced by the researcher that ADPs for all the first and second plans
were not available. Therefore, this research explored the recent 10 year ADPs for Peshawar city
(See appendix-6) and its analyses took place for the recent UPDMSP Structure Plan 2020.
Various tasks recommended by the plan were individually assessed through ground realities.
These analyses were comparatively presented in the tabular form, which clearly mentions that
ADP process is completely causing failure in implementation.
2.4.9- Legal framework analysis
Urban management in Pakistan is fragmented and is under the control of a number of

authorities/agencies working under various acts and ordinances. Coordination and linkages
among these organizations are extremely lacking. Whereas, there exists, no cohesive policy
framework at the national and provincial level to guide these agencies in the provision of
services. This research attempts to assess legal and regulatory framework for urban land
development and management in the case study city with that of the good practices (see
appendix- 4&5).
2.5- Objective versus Methods of Research
This research proceeds with the setting of research topic and formulations of research question to
set forth objectives for the research. This step by step process of objective versus methods of the
research is explained in the figure (2.2).
25
Fig-2.2: The Process of objective versus methods
Development plan practices to manage spatial growth in major cities of Pakistan

(A case of Peshawar)
- What have been the development plan practices in Pakistan?

- Why development plan practices have not been effective to manage cities growth in Pakistan?
- How development plan process could be made effective to address the issues of spatial growth in
urban areas?
The following subsidiary questions were added to clarify the matter more explicitly.
- Why the Development Authorities are unable to implement cities plans?
- Does the plan reflect the perceived needs of the users?
- Is implementation related to the plan’s quality?
Review of the legal provision, Understanding the expansion To suggest measures for
Study of development plan
institutional framework, practices of the selected process of the city and to effective management of
preparation & implementation identify factors causing city spatial growth of cities
countries to draw lesson
practices of the DP growth in deviation of DP
- Gaps and lacunas are to
- Highlights various plan
- Review of National, - Level of planning and be identified in the
policy focus. proposals to workout
Provincial and Local context of analysis of
- Status of the city DP, compliance of development
Government acts/ our own system and in
Future vision. with it.
ordinances as well as comparison with the
regulations relating to - Policy focus - Analysis of spatial growth
- Analytical review of the by using satellite images to selected countries
physical planning.
selected countries legal workout deviation from DP practices.
- Assessment of
Institutional framework and regulatory framework. so far. - The research findings
and professional capacity - Public involvement - Professional interviews have been concluded to
of LPAs. procedure in development - Selection of areas where invasion an effective
- Review of analytical plan’s preparation.
deviation of plan took urban management
quality of plan to - The institutional
place. system for Pakistan.
ascertain its quality and framework.
- Implementation, - Survey of residents in the - Suggests further
effectiveness selected areas
- Internal and external Monitoring and review researches in the field of
procedure. - Review of funds allocation development plan
consistency of the plan.
for urban development practices in Pakistan.
- Analysis of the
development control
practices.
Findings and Conclusion to support Reforms in the Development Plan practices of Pakistan
26
Table 2.3 Secondary data and its sources
No. Organization Documents Remarks
1 City Development and - Master Plan of Peshawar - The plan was prepared with the assistance
Municipal 1965 of technical inputs from the physical
Development (CDMD) planning cell in the Town Planning
Peshawar, The defunct Directorate at Lahore, Punjab Province for a
Peshawar Development period of 20 year (1965-85)
Authority (PDA)
Structure Plan was prepared for the city

- Structure Plan of Peshawar - with technical assistance of a foreign
1986 consultant (Gilmore Hankey Kirke with
collaboration of Roger Tym and partner) for
a period of 15 years.
The city managers opted for a new

- Urban Planning and approach of UNDP, UNCHS, ADB and the
Development Management WB to develop a framework for guided
System for the City physical growth of the city called UPDMS
for a period of 2002-2020.
The provincial Urban Development Board

- North West Frontier Provence (PUDB) have framed building regulations
(NWFP) Building Regulation in 1985 and revised in 1989 in order to
1985 guide and control buildings within the
urban areas of the province.
File record of TMAs BCA and CDMD

- Function of BCA at city level Peshawar was collected for a period of three
months.
An ordinance to establish a system of urban

2 Law College Library - NWFP Urban Planning planning for the NWFP to provide an
University of Peshawar Ordinance 1978 effective vertical and horizontal integration
of physical planning with the economic and
social planning at all government levels and
to create suitable institutional framework to
effectuate such objectives.
An Act to provide support for proper

NWFP Katchi Abadis (Squatter planning and supervision of local
settlement) Act 1996 development activities in the NWFP
It provides the establishment of Sarhad

The NWFP Sarhad Development Development Authority for the purpose of
Authority Act 1972 promoting the economic and industrial
development in the Katchi Abadis of
NWFP.
27
Table 2.3: Continued
Organization Documents Remarks
The NWFP Bus Stand and It provides measure to remove and prevent traffic
Traffic Control (Peshawar) congestion and to regulate movement of vehicular
Ordinance 1978 traffic within the limits of municipal committee
Peshawar.
The NWFP Bus Stand and These Rules were made to regulate and manage bus
Traffic Control (Peshawar) stands and ensure traffic safety in light of the
Rules 1999 NWFP Bus Stand and Traffic Control (Peshawar)
Ordinance 1978.
The NWFP Truck stand and To provide for measure to remove and prevent
traffic control (Peshawar) Act traffic congestion and to regulate movement of
1972 goods vehicles within the MC limits Peshawar.
Manual of Local Government

3 Local Government 2005 The government of Pakistan reconstructs and
Secretariat NWFP regulates the local government system through LGO
Peshawar 2001 in order to devolve political power and
decentralize administrative and financial authority
to it. This ordinance support to establish a local
government system to ensure good governance,
effective delivery of services and transparent
decisions making through institutionalized
participation of the people at grass root level.
Building Control Agency
Tehsil Municipal Town level records for According to LGO 2001 Peshawar city is divided
Administration (TMA) building control within their into four towns administered by TMAs, each TMA
The Second tier of jurisdiction. has an assembly of 21 elected councilors, supported
Local Government by the official staff for the management of town
level function.
City Development Strategy
City District Peshawar Volume 1 & 2 The CDS Peshawar is prepared in collaboration
Government Peshawar with Cities Alliance, UNCHS & WB. It is about
institutional development and improved
governance. It focuses on the creation of an
enabling environment and making better use of the
Zoning, Land use & existing resources and institutions.
Essential Institutional Development Control
Reforms Operational Regulation for TMAs in The document provides adequate development
Program, Governance NWFP control tools to the TMAs in exercising their
Unit P&D Department physical planning functions.
GoNWFP
NWFP Development Statistics
Bureau of Statistics 2007 and yearly ADPs since GoNWFP publications contain latest district &
P&D GoNWFP 2000 till 2011 sector wise data covering socio economic,
infrastructure and other necessary information
28
Table 2.3 Continued…
# Organization Documents Remarks
5 United Nation High Registration of Afghan After the lapse of the refugees status of the Afghan
Commissioner for Refugees in Pakistan 2007 and closure of their camps, their movement started in
Refugees (UNHCR) to cities most specifically Peshawar for seeking
Pakistan shelter and socio economic opportunities. The
NADRA Govt. of Pakistan and UNHCR registered
the Afghan residing in the country.
6 Planning and Khyber Pakhtunkhwa This is the first regional level strategy to support
Development Comprehensive Development development planning in the province. It is a
Department Khyber Strategy (2010-2017) comprehensive document covering all areas of govt.
Pakhtunkhwa policy and it is supposed that all programs will
implement this strategy. Chapter six specifically
addresses urban development. Among its priorities
areas, the following are concerned to this research i)
Improvement in the spatial planning and
management of urban land; ii) Updating of the urban
plans for the seven divisional headquarters cities.
National Level
1 Planning Commission National five years plans Physical planning in Pakistan started with the
formation of the national five year plans. These plans
highlight major development issues at the country
level and allocate resources for the accomplishment
those policies.
2 Ministry of Housing National Housing Policy Construction of houses shapes the city, if it is
and Works 2001 constructed in a planned manner planning by itself
Government of come into existence. Therefore the role of policy is
Pakistan Islamabad vital to give a clear cut direction to the cities
development.
3 Lahore Development Integrated Master plan for A practical working document for the concerned
Authority Lahore 2021 Volume 1,2 &3 authorities to adopt the proposals and
recommendations and proceed to plan
implementation.
4 The Urban Unit P&D Assessment of Urban Land The report presents the analysis of compliance with
Department Development and the urban land development and management
Government of Punjab Management Practices in five provision at the national, provincial and local level. It
Large Cities of Punjab identifies the gaps and the policy reforms required in
the urban sector of the Punjab province.
5 Urban Unit P&D Review Report Assessment of Legal and Regulatory framework for
Department urban land development and management in five
Government of Punjab large cities of Punjab
6 Faisalabad Structure Plan Faisalabad- Development Plan of the third biggest city of the
Development 1986 country was reviewed to understand its effectiveness
Authority and strength.
7 Karachi Development Karachi Strategic The development plan of Karachi the primate city of
Authority Development Plan 2020 Pakistan having more than 10 million populations
was reviewed to understand its policies and proposal.
29
Chapter 3
LITERATURE REVIEW
3.1- Introduction
This chapter aims at specifically elaborating the development plan practices of selected
countries. First, it explores the concept of development plans and its evolution in the annals of
history. Next, it elaborates good practices of spatial planning and policy in selected countries,
such as the UK, Malaysia, China and India. Finally the conclusion section presents a summary of
findings and the lesson learnt in the context of this review.
3.2- Context to the Literature Review
The efficiency of urban settlements largely depends upon various factors i.e. how well they are
planned, how economically they are developed and how efficiently they are managed
(Nallathiga, 2009). The inter-connectedness of these components parts explicitly backing the
preparation of development plans to effectively achieve the stated goals. Preparation of
development plan for a city is basically an exercise of resource generation and management to
efficiently meet future development needs of cities (Tiwari, 2002). Nallathiga, (2009)
highlighted that development plan is a process rather than projects assemblage of various sector.
It provides a rational guideline for the physical growth of a city and guides general public in
locating their investments in the city. In short, development plan is a design for the physical,
social, and economic enhancement of the city, and to improve the quality of life. The functions
of an effective development plan are summarized by Tiwari, 2002 as follows:
To direct development of a city in a systematic manner so as to enhance the quality of

life of people
Classify and harmonize the relationships between various land uses
Give a viable option for spatial growth and to change and maintain its strength
Guide the physical development of a city in a perspective of its social and
environmental characteristics
Ensure economic base of the city and provide employment opportunities
Provide a resource mobilization plan for the proposed development works
30
Successes in the achievements of these functions have been documented by scholars from the
developed world. However, achievements in the developing world are rare, while some countries
are facing complete failure. Therefore, it is necessary to review briefly the development plan
practices, its implementation mechanism and regulatory support that made implementation of
urban development plan possible in the developed and some of the developing countries.
Whilst, it is also necessary to explore how the concept of development plan and its
implementation practices evolve over time. Therefore, the literature review for this research has
first set out the detailed elaboration of the term development plan and then explains its evolution,
particularly in the UK where these concepts have been initiated first. Major focus has been given
to the processes of plan making, approval, and implementation in the selected countries as well
as the legal backing for the system. Finally, these reviews help in the formation of a checklist for
comparison to the development plan practices in Pakistan.
3.3- The Evolution of Development Plans
Development plans, in one form or another, have lain in concerns developed in the early 20th
century in UK (Poxon, 2000). The stimulus for its birth was the degradation of urban
environmental condition due to indiscriminate industrialization and respective suburbanization.
The after effect of haphazard development were expressed through the work of thinkers such as
Ebenezer Howard and the philanthropic actions of self contained communities with their
industries at the countries side. These actions were sufficiently advanced through a series of
Royal commissions, which looked at the problems of urban planning and development control.
These were:
 The Barlow Commission (1940) regarding the distribution of industrial population

 The Scott Committee consideration for rural land use (1941)
 The Uthwatt Committee for compensation and betterment (1942)
 The Reith Report about New Towns (1947)
Whereas, Patrick Abercrombie had developed a plan for the reconstruction of London, which
envisaged urban renewal for London and dislodge 1.5 million people to new and expanded
towns. These intellectual efforts resulted in:
 The New Towns Act 1946

31
 The Town and Country Planning Act 1947
In UK, the 1947 Act in fact, nationalized the right to develop land by a markedly different
system which attempts to strike a distractive balance between the competing land uses. It was
fundamentally a discretionary system in which decisions on particular development proposals
were made, against the policy background of a generalized plan, called the development plan.
The 1947 Act defined the development Plan as “A plan indicating the manner in which the local
planning authority proposed that land in their area should be used” (Solesbury, 1974). The
development Plan consisted of a report of survey; a written statement providing a short summary
of the main proposals and detailed maps at various scales. The map indicated the professional
planner’s desire to influence the future growth pattern of cities. Usually a twenty year period was
designated for the intended pattern of land uses to be achieved through a stage wise program. All
these component parts of the development plan were to be exposed to the local public before
being submitted to the Minister of Housing and Local Government. The plans were approved by
the minister with or without modification after holding a public inquiry. Initially a three year
period target was set for submission of the plan, but only twenty two authorities met this until the
early 1960s (Poxon, 2000) The requirement to review plans on a five yearly cycle had brought
forward amendments and many took the form of more detailed plan for particular areas. These
had to follow the same process of inquiry and ministerial approval as the original plan. The 1947
style did not prove flexible in the face of the very different condition of the 1960s. As a result the
master plan practices were changed through an improved form of plans called structure plan.
In UK, the Planning Advisory Group (PAG) was setup in May 1964 to review the broad
structure of the planning system and in particular the development plan (Poxon, 2000). In its
report published in 1965, PAG proposed a fundamental change to the planning system, which
would distinguish between strategic issues and detailed tactical issues. Only plans dealing with
strategic issues and detailed tactical issues would be for local decisions within the framework of
the approved policy. Legislative effect to the PAG proposals was given in 1968 (for England and
Wales) and 1969 (for Scotland) created a two tier system of structure and local plan. These
development plans consisted of:
i- The structure plan written statement and key diagram for all or part of an authority’s
area.
32
ii- Local plan proposals, map and written statements for areas within the structure plan;
local plan may be district plans, action area plans or subject plans.
Both of these component parts of the development plan must be made available for public
inspection but only the structure plan must be submitted to and approved by the Secretary of
State for the Environment who may hold a public examination of the policy issues dealt within
the plan (Solesbury, 1974). The literature elaborated that local plans were supposed to produce a
proposal map, a written statement, a diagrammatic illustrations and descriptive matter that
explain or illustrate the proposals of the plan.
By 1977, only seventeen of the necessary eighty nine structure plans for England and Wales had
been submitted of which only seven were approved. By 1980, out of seventy nine English
structure plans which were expected, sixty four had been submitted and thirty eight approved.
Initially plans were very slow in coming forward to statutory approval and adoption. The first
structure plan cycle took fourteen year to complete: over the year 1981 to 1985 the time taken
from the submission of Structure plans to their final approval average twenty eight months,
mainly due to lengthy explanatory memoranda. The disputes and delays over structure plan
approval also held back the adoption of local plans; indeed the first local plan was not adopted
until 1975. Moreover, the development plan system was considered to be out of touch with
emerging issues (Lloyd and Peel, 2007), and was believed to be inadequately forward looking
(Planning Advisory Group, 1965). Such criticism becomes more and more acute in 1980 (Lloyd
and Peel, 2007), therefore, the experience of structure plan was felt unsatisfactory and there was
growing uncertainty about its role.
Recently, the planning system in UK further introduced many reforms in the development plan
system through the Act of parliament in 2004. The Planning and Compulsory Purchase Act 2004
changed the Structure and Local Plans approach into new sort of development plans called Local
Development Frameworks (LDFs). Lloyd and Peel 2007 explain that these reforms have ensured
that development plan policies must give clear guidance to developers and the general public.
This system introduced transparent land use policies with clear and justified manner. It also
explained the LPAs intension in an explicit manner contrary to the previous systems. While the
present Localism Act 2011 of England, relinquished the Regional Level Plans and introduced a
more localized plan called Neighborhood plan.
33
3.4- Spatial Planning and Policy in the United Kingdom
The reforms in the spatial planning system of UK are substantial and very frequent. The physical
development in England follows a plan-led system, which guides that what can be built and
where (Dawkins and Colebatch, 2005). This system is largely provided by the physical planning
Acts promulgated in different times to secure the most feasible and useful utilization of land in
the public interest. Local authorities were made responsible to decide whether to permit
development on land and to allow change in its use. Therefore, the development plans were
initiated to set out a course of action for the LPAs. LPAs were mandated to guide and control
development in order to ensure that the proposed changes may have proper regard to other
material factors and are in accordance with the development plan proposals. In this regards, the
planning system was continuously reviewed and updated accordingly. The present form of
planning system in UK has been designed to streamline the development plan system and to
promote a proactive and positive approach to manage development (Lee, 2003). Lee concluded
that key aims of the new system for planning and development in England are:
- Highly flexibility to accommodate market demand.

- It supports to involve community and stakeholders in the development at the local
level.
- Front loading of key decisions in the preparation of plans.
- It ensures sustainability appraisal of the proposed projects.
- It ensures program management.
- It ensures environmental reliability for the projects.
3.4.1- Legal backing of the plans
Initially, Town and Country Planning Act of 1947 in UK created a framework for the
development plan. Thereafter, with the advent of indiscriminate industrialization and its
consequential sub-urbanization, the government nationalized the privilege to develop land. The
Act compelled that all proposals, significantly changing land character must secure planning
permission from the local authority before commencement, while the aggrieved were given
appeal provision against refusal.
34
The 1968 constitutional reform in the UK was introduced to devolve decision making and
governance to the regional level (Alden, 2003). Thereafter a number of alterations were made to
the planning system through legislation. In 1971 the Town and Country Planning Act introduced
comprehensive reforms in the planning system. In result plans were made more flexible to deal
with all matters that are subject to planning control and influence. Time and again a number of
alterations were made to the system and were consolidated in the Planning Acts (TCPA 1990).
Recently, the English planning system further introduced many reforms in the plan making
process. The central government replaced Planning Policy Guidance Notes (PPGs) with Planning
Policy Statements (PPSs) by the reforms introduced through Planning and Compulsory Purchase
Act 2004. It relinquished both Structure Plans and Local Plans practices, in favor of Local
Development Frameworks (LDFs). While the present Localism Act 2011 supports giving more
focus on local level community at Neighborhood level. In the new system, the national level
Policy Frameworks directly guides the Local Development Framework to influence
Neighborhood plans.
3.4.2- Process of the plan making
In UK, the development plans system was considerably changed through the Planning and
Compulsory Purchase Act 2004 (Lee, 2003). These reforms introduced formulation of Planning
Policy Statements (PPS) instead of Planning Policy Guidance (PPG) at the National Level and
Regional Spatial Strategy (RSS) replaced the Regional Policy Guidance (RPG) at the Regional
Level. The Structure and Local Plans were replaced by LDFs at the County and District Level.
Each LDF was comprised of Local Development Documents (LDDs) of which there were two
main documents: i.e. Development Plan Documents (DPD) and Supplementary Planning
Documents (SPDs) (see Fig. 3.1). According to the reformed system, Local Authorities were
required to prepare Local Development Schemes (LDS) in a three year period and a Statement of
Community Involvement (SCI) to sketch out how the council will involve the local community.
Strategic Environmental Assessment (SEA) and Sustainability Appraisal (SA) reports were an
essential part of planning documents (Lee, 2003).
35
Figure 3.1: The old system of physical planning in UK
Source: MLIT (Japan), 2008

Although, this system was established recently through the reforms of Planning and Compulsory
Purchase Act 2004, however it is changed again in respect of England and Wales in light of the
new reforms in November 2011. In England, Regional Development Agencies (RDAs) were
abolished and hence the concept of RSSs was relinquished. The new system introduced Localism
through the enactment of Localism Act in November 2011. These reforms introduced Local
Enterprise Partnerships (LEPs) as the former RSS was considered more bureaucratic in nature
and it could not play an adequate role in the provision of housing. The new form of institutional
setup and its subsequent level and type of plans is presented in the following diagram (See Fig.
3.2):
Fig. 3.2 The present system of physical planning in UK
Source: MLIT (Japan), 2012

36
The following key aims were the driving force to bring reforms into the system:
- to involve general public and stakeholders in the preparation of LDDs
- to frame spatial policy with evidence base information
- to spatially express the Community Strategy;
- to create a more efficient delivery mechanism for residential development
- to better monitor and review the development progress
3.4.3- Agencies for the plan preparation
In Britain all levels of government functionaries compulsory prepare their level of plan to guide
the development proposals of the next order within their sphere of influence. These levels are
national, regional and local to carry out various types of plans. These plan and their respective
levels are as follow.
i- National Planning Policy Framework: National Planning Policy Framework (NPPF)

replaces the Planning Policy Statement (PPS) in the new system of physical planning in UK. The
first NPPF in England was published on March 27, 2012. This is a key document to make the
physical planning system easier to protect the environment and promote sustainable growth.
ii- Local Development Frameworks: The Local Planning Authorities in UK prepare LDF,
which encompasses documents, that setout how a local area may be changed in the future. LPAs
prepare two types of Local Development Documents – those which are part of the Development
Plan (‘Development Plan Documents’) and those which are not (known as “Supplementary
Planning Documents”). The Development Plan Document is necessarily presented to an
impartial public examination. According to these plans the LPAs have to produce an annual
monitoring report which presents the progress of LDD implementation.
The LDF documents set clear policies for the economic, social and environmental needs of the
area. It includes the following development plan documents:
 The core strategy;
 Site specific allocations of land; and
 Area action plans (where needed).
A proposals’ map is prepared, which shows the geographical extent of policies maintained to
supplement all development plan documents. Whereas, development plan documents are
37
prepared through rigorous involvement of the community and an impartial examination is taken
place to ensure the effectiveness of these plans.
Figure-3.3 Key themes in LDF preparation

Community Focus on
Dialogue Delivery
Policy Integration LDF Preparation Integral SA/SEA
Foster and more Strategic, Concise

responsive plans and Distinctive plans
Source: Adopted from Local Development Plan Manual Wales UK, 2006; p-12
iii- Neighborhood Development Plans/Order: The Localism Act 2011 established a new
tier of planning called Neighborhood Development Plans (NDPs). These new types of plans will
be carried out at neighborhood level to better involve local communities in the making of a plan
for the future development of their localities. The Local communities can influence policies
concerning the use of land and general development in a neighborhood in order to guide
judgments on planning applications.
3.4.4- Public participation in the plan making:
Public participation is a legal constituent of development planning in order to promote a planning

system, which is transparent (Government of Brittan, 2004). Planning shapes the places where
people live and work, therefore, they must be involved in the decision making process. In this
regard, planning system in UK has been rigorously reformed to embed people oriented approach
in planning. The literature on public participation in development planning confirms that each
LPA will have to prepare a report on community involvement called Statement of Community
Involvement (SCI). This SCI explains various methodologies and level for involving interested
parties in preparing and revising Local Development Plans. It is ensured that each LPA must
comply with its SCI accordingly (Box-3.1). Whereas, Section 10: sub section 4b, of the Town
and Country Planning Acts of 1997, elaborates a complete process of public involvement in the
preparation of a development plan. The Act explains that public examination will be held before
38
submission of the plan documents to the sectary of state. The involvement of the public in
preparing the core strategy must follow the approach set out in the SCI. It is highlighted in SCI
report that effective community involvement in planning requires:
 A robust framework of legislation and guidance which sets clear standards.
 The means to implement policy.
 A culture, which encourages and facilitates community involvement.
Box-3.1:
A Procedure for the Statement of Community Involvement in Development plans Preparation within UK
A statement of community involvement should:
 Explain clearly the process and methods for community involvement for different types of local development
documents and for the different stages of plan preparation. This needs to include details of how the diverse
sections of the community are engaged, in particular those groups which have been underrepresented in
previous consultation exercises.
 Identify which umbrella organisations and community groups need be involved at different stages of the
planning process, with special consideration given to those groups not normally involved.
 Explain the process and appropriate methods for effective community involvement in the determination of
planning applications and where appropriate refer to Planning Performance Agreements.
 Include details of the LPAs approach to pre-application discussions.
 Include the LPAs approach to community involvement in planning obligations (S106 agreements).
 Include information on how the SCI will be monitored, evaluated and scrutinised at the local level.
 Include details of where community groups can get more information on the planning process, for example,
from Planning Aid and other voluntary organisations.
 Identify how landowner and developer interests will be engaged.
Source: Government of Britain, 2006
The LDP guide also specifies that the main stages at which examination in public (EIP) would be
carried out are:
- At the finalization of the plan proposals

- During the statuary six week period for objection to the deposited plan proposals
Besides public consultation, line agencies consultation is also a necessary component of the
development plan preparation process in UK. At this stage, the authorities have to consult certain
agencies which have responsibilities in the area development. This consultation is mandatory
even for any alteration to the plan. Their proposals are adequately presented to the public for
comments.
39
3.4.5- The plan implementation
Statutory Development Plans are the starting point in the consideration of planning applications
for the development or use of land. Therefore, these plans provide the essential framework for
planning decisions. In Britain, there exists a hierarchical structure of physical planning guidance
at National, Local and Neighborhood levels. Their respective plans include:
i- National Planning Policy Framework

ii- Local Development Frameworks
iii- Neighborhood Development Plans/Orders
3.4.6- Approval of the development plan
The contemporary legal provision give the Secretary of State (SoS)/Minister a special power to
approve a development plan as a whole or in part, and with or without modifications or
reservations. This power operates from the time when the copy of the development plan has been
sent to the concerned Minister (the local planning authorities are required to send a copy at the
stage when they place the plan on deposit for public inspection). This power continues to be
available until the local planning authorities finally adopt the plan, after the required processes of
public inquiry and consideration of objection. Once the authority finalizes the plan proposals, it
makes the plan generally available in public places such as council’s offices and public libraries.
3.4.7- Monitoring of the development plan
Monitoring is an integral part and is of equal importance to the policies of development plans in
UK. Therefore the local and regional planning authorities are now legally bound to submit
annual reports for the monitoring of their spatial plans implementation. It sets out that how far
their policies remain successful. The system of LDFs and NHP is endorsed to monitor the plan’s
policies and proposals in order to provide firm basis for the review of plans. It provides
information to LPAs for any significant changes in the plan after adoption.
The literature confirming the development planning system of UK necessitates that LPAs should
adopt the “SMART” approach in defining targets and indicators for the preparation of the
development plans. This means that the plans policies must be Specific, Measurable, Achievable,
and Time-bound in order to be monitored, for example, “…housing provision figures included in
40
the LDP would provide the target against which progress would be measured; and secondly
sustainability appraisal targets linked to the SA objectives…” (Government of Britain, 2006).
Normally, monitoring identify deviations from the plan which are controlled through amendment
in the plan at the next scheduled review or otherwise ensure the plan progress and a performance
indicator for LPAs. All these measures provide information to understand how their plans are
meeting their targets in UK.
Submission of an Annual Monitoring Reports (AMR) is obligatory for each LPA to keep the
councilors, the community and business groups informed of development plan progress in the
area. It is legally binding that each authority is required to prepare and submit an AMR covering
the preceding financial year. The development plan manual reflected that AMR “must be
submitted to the Assembly Government by 31 October each year and published on the
authority’s website, in accordance with LDP Regulation 37” (Government of Britain, 2006).
3.4.8- Review of the development plans
The UK planning system ensures that the monitoring reports will support continuous review,
while a major review of a development plan
Box.3. 2 Factors that trigger need for a review
must be undertaken after each 4 years - A significant change in external conditions;
- A significant change in national policy or legislation;
following the subsequent adoption. This - Some additional policies need to be added to deal with areas of
significant change or conservation or with some unforeseen events.
review should include reconsideration of the - A significant change in local context e.g. closure of a significant
employment site that undermines the local economy;
- A significant change in development pressures or needs and
sustainability appraisal (including the SEA), investment strategies of major public and private investors; and
- Significant concerns from the findings of the AMR in terms of
and the soundness of the plan. Several factors policy effectiveness, progress rates, and any problems with
implementation.
could trigger the need for a review before 4
Source: Adopted from Government of Britain, 2006
years (see Box 3.2).
Review of a development plan could take two forms i.e. “complete replacement of the
development plan, if the existing plan is found to be substantially out of date and the scale of
necessary alterations is fundamental; or alterations in the form of a partial, where some forecasts
and assumptions have changed, where some policy needs to be changed or where some
additional policies needs to be added to deal with areas of significant change or conservation or
with some unforeseen events” (Government of Britain, 2006). In both cases, prior discussion is
advised with the Assembly Government’s Planning Division.
41
3.4.9- Lessons Learnt
The literature regarding the development plan system in UK supports to develop a checklist for
comparison to the development plan practices in Pakistan. This checklist is given in table 3.1,
while the comparison of legal and regulatory framework is mentioned in appendix-3b.
Table 3.1 Checklist of the development plan process in Britain
Objectives and content
 The purpose and objectives of the plan were made clear.
 Sustainability issues, including international and EC objectives, are considered in developing objectives and targets.
 SA objectives are clearly set out and linked to indicators and targets where appropriate.
 Links with other related plans, programs and policies are identified and explained.
 Conflicts that exist between SA objectives, between SA and plan objectives, and between SA and other plan objectives are identified and described.
Baseline information
 Relevant aspects of the current state of the environment are described.
 Characteristics of areas likely to be significantly affected are described, including areas wider than the physical boundary of the plan area
where it is likely to be affected by the plan.
Scoping
 The environmental consultation bodies are consulted in appropriate ways and at appropriate times on the content and scope of the SA Report.
 The appraisal focuses on significant issues.
 Technical, procedural and other difficulties encountered are discussed; assumptions and uncertainties are made explicit.
 Reasons are given for eliminating issues from further consideration.
Options/Alternatives
 Realistic alternatives are considered for key issues, and the reasons for choosing them are documented.
 Alternatives include ‘do nothing’ and/or ‘business as usual.
 The sustainability effects (both adverse and beneficial) of each alternative are identified and compared.
 Inconsistencies between the alternatives and other relevant plans, programs or policies are identified and explained.
 Reasons are given for selection or elimination of alternatives.
Prediction and evaluation of likely significant effects
 Likely significant social, environmental and economic effects are identified, including those listed in the SEA directive (biodiversity,
population, human health, fauna, flora, soil, water, air, climate factors, material assets, cultural heritage and landscape), as relevant.
 Both positive and negative effects are considered, and where practicable, the duration of effects (short, medium or long-term) is addressed.
 Likely effects are identified and inter-relationships between these effects are considered where practicable.
 Methods used to evaluate the effects are described.
Mitigation measures
 Measures envisaged to prevent, reduce and offset any significant adverse effects of implementing the plan are indicated.
The Sustainability Appraisal Report
 Is clear and concise in its layout and presentation.
 Uses simple, clear language and avoids or explains technical terms.
 Uses maps and other illustrations where appropriate.
 Explains the methodology used.
 Explains how the LDP options were evaluated.
 Identifies sources of information, including expert judgment and matters of opinion.
Public Consultation/ Examination Report
 The same as above for the Sustainability Appraisal Report.
 Explains who was consulted and what methods of consultation were used.
 Gives an explanation of how representations have been taken into account.
 Includes the results of assessing any revised or new option resulting from public consultation.
 Reasons are given for choices in the deposit plan, in the light of other reasonable options considered.
Submission and Adoption
 An explanation of how the findings of the SA process have been taken into account is given in the adoption statement.
 Any changes made to the LDP as a result of the SA, EIP processes and responses to consultation are made clear in the adoption statement.
Monitoring and Review
 Submission of an Annual Monitoring Reports (AMR) is obligatory for each LPA.
 Annual Monitoring Report is submitted to the Government by 31 October each year and published on the authority’s website.
 Measures proposed for monitoring is clearly linked to the indicators and objectives used in the SA.
 After the subsequent adoption dates periodic review of the LDP is made after every four year.
Source: Go Britain, 2006, ODPM SA Guide 2005, LDP Manual 2006, and PGSEAD 2005.
42
3.6- Spatial Planning and Policy in Malaysia
Peninsular Malaysia is divided into 13 states (11 of which are in Peninsular Malaysia and the
other two are the state of Sabah and Sarawak) and 144 local authorities as of 2007 (Sukuran and
Siong, 2008). Each state is divided into districts and each district is further subdivided into
Mukims and within Mukims there are towns and villages. The literature reiterated that town
planning in Malaysia was introduced to improve living conditions of the people. Therefore,
spatial planning is carried out pursuant to the Malaysian Town and Country Planning Act 1976,
while Sabah and Sarawak have separate laws. In physical planning, the role of the Federal
government is supervisory in nature, while the State has to carry out land use planning for their
jurisdictions. Therefore, land is strictly controlled through national and states agencies and the
local development plan system principally provides a definite system of anticipatory measures
for various land uses control. The development plans guide the Local Planning Authority not to
permit any application for development if adverse impact on the contiguous environment were
predicted by the plan (Chapin, 1974).
LDP comprising of structure and local plan system adopted in Malaysia for urban development is
the reflection of the system first introduced in Britain. Therefore, the structure of these plans is
almost exactly the same as those of 1971 British development plans. It is important to note that
the detailed methodology for making Structure and Local Plans of Malaysia is nearly the same as
that of the Development Plan Manual published by the HMSO of Britain (Lee, 1988). The
current practice of development planning in Malaysia is followed according to the following
pattern and area of jurisdiction, as given in table (3.2).
43
Table-3.2 Current hierarchy of development plans in Malaysia
Plans Area of coverage Prepared by:
5-year plan Whole country Federal Government
Regional/Master Region/state Regional Development Authority or

plan State Government
Structure Plan Local Authority area Local Authority
Local Plan Local Authority area Local Authority

Source: Lee, 1988
3.6.1- Legal backing of the plan
The history of physical planning legislation expressed that for the first time the Town and
Country Planning Ordinance of Malaya was promulgated in 1966. This Ordinance was then
revised in 1972 to incorporate the preparation of a National Master Plan, the creation of various
levels of Planning Authorities and the inclusion of public participation concept into the planning
process. In 1976, the Malaysian parliament enacted the Town and Country Planning Act 1976 to
introduce a uniform legal and regulatory system for town and country planning in the whole
country. The important features of TCP Act 1976 were to introduce a two-tier Development Plan
system i.e. Structure Plan and Local Plan; establishment of State Planning Committee; a system
of Development Control and the formation of Appeals Board. The 1976 Act was amended in
1995 in order to accentuate environmental management in planning, for example conservation of
topographical features and forests. In 2001, the Act was again amended to decide the power
between the Federal and State governments in matters related to town and country planning. The
2001 amendments introduced the establishment of the National Physical Planning Council,
Regional Planning Committee and National Physical Plan. The latest amendment was in
September 2007 to confer the executive authority on the Federal Government over certain
matters in relation to the control and regulation of town and country planning in Peninsular
Malaysia.
The Town and Country Planning Act 1976 ensures through Sections 9 (1, 2 and 3), 12 A, 13, 14
and 15 that “public participation is mandatory in the formulation of development plans…” in the
country. In this regard Section 9 of the TCP Act 1976 stated that “when preparing a state
44
structure plan, the report of survey which contains key findings of the study area must be
publicized”. Omar and Oliver, 2009 confirm that this is notified to the public through local
newspapers. This amendment gives an opportunity to the stakeholders for highlighting their
interests. Thereafter, at the completion of the draft structure plan, it was made available for
public inspection (Omar and Oliver, 2009). The Act elaborated that a period of “not less than one
month from the date of notice extendable upon request from the stakeholders” is to be given for
public inspection. The Malaysia Federal Department of Town and Country Planning
continuously improve the approach, coverage and techniques used in public participation. In this
regard a guideline on publicity and public participation has been prepared providing a check list
of activities conducted for development plan preparation (Omar and Oliver, 2009).
Sukuran and Siong (2008) expressed that under the TCPA 1976, the State Authority is
responsible for the general policy with respect to the planning, development and use of all land
within the State. It means “the State Governments have final and ultimate authority on any
dealings related to land. Each state delegates its planning responsibilities through a State
Planning Committee (SPC). The SPC through its Secretariat, (State Town and Country Planning
Department) monitors progress of the development plan implementation, and every LPA is
responsible to regulate development and implement the plan within its jurisdiction (Sukuran and
Siong, 2008).
3.6.2- Administrative set up for planning
A three-tier system of administration exists in Malaysia i.e. the Federal Government, the
Regional (State) Governments, and Local Authorities (city, municipal, and district councils).
Land development planning is carried out at both Federal and Regional (State) levels (Omar and
Oliver, 2009). A physical plan at the Regional (State) level is prepared and it consists of a
Regional Plan and a Structure Plan simultaneously. Structure Plans are drafted by each state with
that state as the fundamental unit, while Regional Plans entail projects involving two or more
states, and are prepared for areas that have priority development issues of an interstate nature that
need to be addressed (MLIT, 2008).
The Constitution and Parliament Acts enshrined the powers of each level of government. The
Department of Town and Country Planning at Federal level works under the Ministry of Housing
45
and Local Government and is formulating and administering National Policies related to town
and country planning in the country. The Department of Town and Country Planning at the State
level performs as an advisory body to the State Governments in Malaysia, while at the local
level, Local Authorities are responsible to carry out Town and Country Planning functions
(Omar and Oliver, 2009).
3.6.3- Public participation
For the first time, the Town and Country Planning Ordinance of Malaysia 1966 revised in 1972
incorporates the involvement of community into the planning process. Thereafter, the Town and
Country Planning Act 1976 and its subsequent amendments broadened the emphasis on the
public participation through its Sections 9 (1, 2 and 3), 12 A, 13, 14 and 15. This declared the
participation of community as mandatory in the preparation of development plans within the
country (Omar, & Oliver, 2009). The following avenues are available for the public to participate
in the development plan processes:
 Development plans preparation stage;

 At the planning permission/approval stage; and
 Environmental impact assessment stage.
Public participation in the Malaysian town planning process is real and not merely asserted in
theory. In this regard, it is pertinent to note that the Kuala Lumpur Structure Plan applied the
methods of ‘public exhibition’ and ‘public hearing’ for the participation of general public to the
plan making process (see photos 1&2). Omar and Oliver, (2009) explained that public was
encouraged to examine and submit written objections to the Draft Plan within the 49 days by
using the public objection forms provided. The Kuala Lumpur City Hall had given complete
briefing to a number of organizations and organized public exhibition and road shows at various
public places within the city. The draft plan was uploaded to the Kuala Lumpur City Hall’s web
site for easy access. The council received 945 objections put forward by individuals, educational
institutions, government departments and agencies, professional bodies, political representatives
and others (Omar, & Oliver, 2007).
46
Public exhibition of Draft KLSP Information counter and the counter for selling Draft KLSP reports
Source: Omar, & Oliver, 2009 (Pictures adopted from)
3.6.4- Type and Level of plans
The Malaysian Town and Country Planning Act 1976 originally recognized three tiers of
authority for the land and development (Siew, 2008). The TCPA empower that development is
carried out at three different levels (Fig.3.4) in the country.
Fig. 3.4 National development planning framework
Source: MLIT Japan, 2008
47
i- National Physical Plan
At the national level a National Physical Plan (NPP) is prepared in Malaysia. The concept of
NPP was introduced as a result of amendments to the Urban and Rural Planning Act in 2001 and
the Department of Town and Country Planning at the Federal level is responsible for making the
plan. The National Physical Plan 2020 prepared in 2005 consists of a written statement, which
formulates a national policy and general proposals for the development and use of land in the
country. Sukuran and Siong, 2008 are of the opinion that the plan assists National Physical
Planning Council to promote national policies for the improvement of the physical environment
and accomplishment of sustainable development.
The literature illustrates that the Cabinet approved the National Physical Plan and thereafter the
National Physical Planning Council (NPPC) adopted the plan. Pursuant to the Malaysian Urban
and Rural Planning Act, NPPs is reviewed every five years in conjunction with the National
Five-Year Plan (i.e. the Malaysia Plan) (MLIT, 2008).
ii- Structure Plan
In Malaysia, almost all state’s governments have structure plans for the physical and economic
development of the states. The structure plan is regional level plan and is prepared at the state
level. This plan is considered state wide comprehensive planning instrument that delineate
physical development procedure and strategies for 10-15 years period (Sukuran and Siong,
2008). The structure plan suggests that how area in the states could be developed in a suitable
and sustainable manner. It also suggests policies for the economic uplift and investment avenues
in the respective states (Sukuran and Siong, 2008).
iii- The Local Plan
In Peninsular Malaysia, most of the states have a detailed local plan for its physical, social and
environmental development (Go Punjab, 2008). Various literatures regarding Malaysian
development planning have made clear that a local plan is a written statement prepared to
elaborate the policies and proposals set out in the Structure Plan. While the local plan clearly sets
out the development proposals, details of land uses, preservation of natural topography,
48
landscaping, tree plantation, create open spaces, maintain and protect the environment, improve
communication system and traffic management in a local planning authority area.
Sukuran and Siong (2008) express that the principal aim of the local plan is to prepare a
comprehensive land use plan in accordance with the requirements set out in the TCPA 1976 and
the Development Plan Rules. Local plans give guidance for development control and deal with
more specific development proposal for the future 10-15 years. Sukuran and Siong (2008)
highlighted that from year 2002 onward, Local Plan studies cover district level, thereby
incorporating more than one Local Planning Authority (usually 2-3 local authorities) in
Malaysia. Whereas, these local plans enable developers and property owners to be aware of how
their interests will be affected and where opportunities lie (Sukuran and Siong, 2008).
iv- Special Area Plan
Section 6B of TCPA empowers the LPA to prepare a special area plan for any part of its area. In
the context of Malaysian system, a Special Area Plan takes the form of and has the same effect to
that of a local plan. However, this plan contains proposals for special and detailed treatment by
development, redevelopment, improvement, conservation or management practices (Sukuran and
Siong, 2008).
3.6.6- Monitoring and evaluation
Monitoring the implementation of development plans are essential in Malaysian development

plan system, which ensures that activities are in line with the implementation schedule and
whether the resources or implementation procedures are used effectively (Yaakup et al, 2005).
Monitoring of the plan’s implementation facilitates timely action to correct deviation from the
plan policies. In Malaysia, the processes of monitoring and evaluation for the implementation of
development plans are obligatory and go together.
3.6.7- Lesson Learnt
The literature regarding the development plan system in Malaysia supports to develop a checklist
for comparison to the development plan practices in Pakistan. This checklist is mentioned in
table 3.3, while the comparison of legal and regulatory framework is mentioned in appendix-3c.
49
Table 3.3 Checklist of the development plan process in Malaysia
Survey of planning areas
 All matters expected to affect the development, or the planning of the development of the state is surveyed.
 Consultation between states are necessary for matters relating to the area of the other state that may be expected to affect the development
in respect of the physical, economic, environmental, and social characteristics, including the principal land uses, of the neighboring States.
 The State Director, prepare and submit the survey report to the committee within the specified time period.
 The State Director ensures publicity to the survey report.
Preparation of draft structure plans

 The State Director prepares a draft structure plan for the state and submits it to the committee for their approval.
 The plan states the relationship of proposals for the development and use of land in the neighboring areas that may be affecting.
 The State Director ensures that the policy and proposals of the plan are justified by the results of his survey.
 Draft structure plan contain appropriate diagrams, illustrations, and descriptive matter to explain or illustrate the proposals in the plan.
 The Committee after confirming all the relevant aspects approves a structure plan in respect of the whole of the area of the State.
Publicity in connection with preparation of draft structure plans

 “As soon as a draft structure plan is submitted to the Committee, the State Director publish, in three issues of at least two local newspapers,
one of which being in the national language, a notice stating that copies of the plan are available for inspection at the office of the State
Director and at such other places as he may determine and the time within which objections to the plan may be made to the Committee…”
 Copies of the plan are made available for inspection at specified places for specific time period to record objections.
 The time within which objections to the draft structure plan are made is not less than one month.
 Time stated in the notice is extended once by the State Director by not more than one month in favor of any particular objector.
Approval or rejection of draft structure plans by Committee

 The Committee after considering a draft structure plan submitted to it, either approve it, in whole or in part or reject it.
 Upon approving a draft structure plan, the committee submits it to the State Authority for their assent to the plan, and upon the assent being
given, the plan comes into effect.
Review or alteration of structure plans

 A structure plan that has come into effect shall be subjected to review every five years in conjunction with the preparation of the State’s
five-year development plans.
Procedure for alteration of structure plan

 If it is decided under section 11 TCPA that an alteration is to be made on the structure plan for the State, the State Director shall prepare
and submit to the Committee proposals for such alterations.
 The State Director shall submit the structure plan in which the proposed alterations have been incorporated to the Committee and at the
same time publish a notice in at least two local newspapers, one of which being in the national language, stating that copies of the plan are
available for inspection and that objections may be made within a period of one month from the date of such publication.
 The Committee appoints a subcommittee consisting of four members and it hears every objection made in accordance with the rules.
 The Committee then consider the proposed alteration to the structure plan, and either approve it, in whole or in part or reject it.
 The Committee submitted the approved altered structure plan to the State Authority for the assent of the State Authority to the plan, and
upon the assent being given, the altered structure plan came into effect.
 The Committee then published the altered structure plan in the State Gazette.
Preparation of draft “Local Plans”

 Where a structure plan for the State has come into effect, the local planning authority as soon as practicable prepares a draft local plan for
the whole of its area.
 A draft local plan for an area accompanied by, such diagrams, illustrations, and descriptive matter as the local planning authority thinks
appropriate for the purpose of explaining or illustrating the proposals in the plan, or as may be prescribed by the Committee, and these
descriptive matter are treated as part of the plan.
Publicity in connection with preparation of draft local plan

 Before commencing the preparation of a local plan:
v- The local planning authority take such steps to publicize the local plan,
vi- Its objectives and the purpose for its preparation, and
vii- The matters that the local planning authority proposes to include in the plan.
 When the local planning authority prepares a draft local plan, it makes copies of the draft local plan available for inspection at its office and
at determines places for inspection.
 The time for the making of objections in respect of the draft local plan may be extended once by the local planning authority by not more
than four weeks on the application of any person.
Inquiries and hearings in respect of draft local plans

 For the purpose of considering objections in respect of a draft local plan, the local planning authority conducts a local inquiry or other
hearing to be heard by a committee of three persons appointed by the State Planning Committee.
 The State Authority may by rules make provision in respect of the appointment and qualifications for appointment of persons to hold a
local inquiry or other hearing
Approval or rejection of draft local plans

 The Committee after consideration approves in whole or in part or rejects the draft local plan submitted to it.
 The Committee submits the approved local plan to the State Authority for their assent, when the assent is given the plan comes into effect.
50
 The local planning authority shall cause the assent of the State Authority to a draft local plan to be published in the State Gazette and in at
least two local newspapers, one of which being in the national language, to identify a place where the plan may be inspected.
Alteration, revocation and replacement of local plans

 The local planning authority may at any time make proposals for the alteration, revocation, or replacement of a local plan.
Preparation of local plan by State Director

 If the Committee is satisfied that a local planning authority has failed to take steps to prepare a local plan or proposals for the alteration,
revocation or replacement of a local plan, the Committee then direct the State Director to prepare the plan or proposals and the expenses
incurred in connection with such preparations are incurred from the local planning authority.
Special area plan

 The local planning authority on its own initiative or as directed by the Committee, may submit to the Committee a proposal for the
designation of a special area for special and detailed treatment by development, redevelopment, improvement, conservation or management
practice, or partly by one and partly by another method, of the whole or part of such special area, and the nature of the treatment proposed.
 The plan for a special area shall be prepared in the same manner as the preparation of a local plan.
Preparation of plan by a qualified person

 All plans, particulars, layout plans and other documents required to be submitted under the Act be prepared through (a) a person whose
qualifications are prescribed under paragraph 58(2)(h) of the TCPA; or (b) a person who is entitled to do so under any other written law.
Source: TCPA, 1976
3.7- Spatial Planning and Policy in the People’s Republic of China
In terms of area, China is the fourth largest country, while demographically it stands first in the
world. In the socialist regime, urban land remained in government ownership. However, the
economic reforms of 1978 propelled the current market-oriented development and thereafter land
was allocated on a one-time basis for particular use at a fixed fee (Zacharias & Bliek, 2008).
Thereafter, these reforms made this practice untenable and paved way for the constitutional
change in 1988, which allowed that land-use rights to be transferred (Xue; Ghanbari and
Redding. 2002). These reforms put urban planning at a crossroads in China. Whereas, the
promulgation of the City Planning Act of 1989 made development planning revolutionary in
nature and has developed good examples in terms of physical planning and development in the
recent past. Some of these reforms, such as the formation of an urban planning commission, legal
binding for development control application, setting up an independent planning appeal system,
better coordination between development control and land leasing, increase in community
involvement, training of planners and improving professional capabilities have played leading
role in guiding cities development in conformity with the 21st century norms.
3.7.1- Legal backing
The law pertaining to city planning in the People's Republic of China was promulgated on
December 26, 1989. City planning law is formulated to accomplish the goals of economic and
social advancement in cities and in order to carry out its plan for future development. The law is
51
specifically observed in the formulation and implementation of plans for cities. Important feature
pertaining to development plan system are mentioned in the checklist (See table 3.5).
3.7.2- Process of the plan making
Wong, (2006) explains that the existing system of physical planning in China is faced with
numerous problems, planning often stops when plan is produced and there exists no adequate
mechanism to consistently monitor and review the plan. While, in some cases, the planning and
approval processes of urban Master Plans are too long and often lag behind the actual
development on the ground (Wonga; Tanga; Horen, 2006). Therefore it has been observed that
city region plan does not succeed to meet all their objectives in reality in China (Luo, X. Shen, J.
2008).
3.7.3- Governance structure
Literature regarding the governance structure in China explaining that administrative governance
structure is comprised of five tiers: Central, Provincial, Prefectural/Municipal, County and
Township (Figure-3.5).
Fig: 3.5 Local government system in China
Source: "Local Authorities for International Relations Forum", CLAIR, Japan Overseas Offices (Beijing) Special Report No. 2 - Overview of
Chinese Administrative Systems (June 2000 Edition)
Occupying the lowest level in the five-tiered Chinese government hierarchy, township reforms
started as early as 1986. In light of these reforms “township” was established as a formal level of
52
the government, which greatly strengthened the structure and functions of the township, and
powers were decentralized from the counties (Li, 2009). Despite the rhetoric of economic
reforms, which emphasized smaller size of government, however, little was accomplished
(Burns, 2003). Contrary to these reforms, there was a phenomenal increase in township
personnel nationwide from the mid-1990s as local governments enjoyed increased discretion
over recruiting additional workers. Some efforts to downsize and contain the growth in staff
were made in the late 1990s after the central government ordered in 1998, that the number of
core central government staff to be reduced by one half within 3 years. At the turn of the
millennium, an average township government in central China was estimated to employ at least
350–550 salaried workers, as opposed to fewer than ten in the mid-1980s (Wu, 2006).
3.7.4- Spatial planning framework
In the people republic of China, there exist three distinct systems of plans concerning the country
development. These plans are:
i- Socioeconomic development plans

ii- Land use (spatial) plans
iii- Urban and rural plans
The levels of preparation of these plans are illustrated in figure (3.6).
53
Fig. 3.6 Level and types of development plans in China
Source: MLIT Japan, 2012 “Overview of Spatial Policy in Asian and European Countries”.
These various type plans are prepared at different levels distinctively according to the role of its
level. Among these plans socioeconomic development plans are drafted at national, provincial,
and county levels. The First Five-Year Plan was started in 1953. The current plan is the 11th and
runs from 2006 to 2010. The National People's Congress (the highest legislative body in the
People Republic of China) is to approve the five-year plan. The National Development and
Reform Commission (formerly the National Planning Commission, formed in 1952) is
responsible for drafting the plan proposals.
The basic national development policy for China is embodied in the Five-Year Plan for National
Economic and Social Development. This plan mainly serves to outline the physical/geographical
distribution of large-scale construction projects and centers of productivity, as well as how
54
resources are to be proportioned out to different sectors of the national economy. The plan also
sets objectives and attempts to lay out a course for the national economy. Second in hierarchy is
the “urban and rural plan” which is further divided into: urban system plans (serve to link
different urban areas together), plans that link cities with towns, and plans that link townships
with villages. Urban and rural plans are drafted at all level i.e. at national, provincial, prefectural,
and county levels. Third in hierarchy is the “Land use (spatial) plans”. This too is drafted at all
level i.e. national, provincial, prefectural, county, and township levels in accordance with the
approved criteria. This system of spatial planning illustrates that there are two sets of spatial
plans in China: the urban and rural plans, and land use (spatial) plans. In terms of national and
regional plans, under the “urban and rural plan” system, urban system plans are drafted that
address the entire country as well as individual provincial regions. These plans are legally
mandated under the Urban and Rural Planning Law. The urban system plans affect the
development of specific regions (i.e. the entire country and the provincial regions). This is quite
noticeable that the development of urban areas has a tremendous impact on entire region; the
goals of the urban system plans are the development and arrangement of urban areas in ways that
translate into the economic development of the broader regions in which they are located. The
national urban system plan is supposed to function as a blueprint for the preparation of provincial
city system and urban plans (urban master plans).
The literature reveals that the scope of the land use (spatial) planning system encompasses the
overall land use plan (master plan), sector specific land use plans, and detailed land use plans. In
terms of national and regional plans, overall land use plans (master plans) are drafted that
address the entire country as well as individual provincial regions. These plans are mandated by
the Land Management Law. Overall land use plans dictate the general allocation of land
resources, and serve as strategic guidelines for the development, use, improvement, and
conservation of land resources. The Land Management Law stipulates that the master plans of
lower administrative bodies are to follow rules of higher administrative bodies.
3.7.5- Public participation in the plan making
Public participation has not been encouraged in planning policy making in China (You & Chen
2004). Therefore, it is highlighted by scholar that lack of public participation in policy making
has led to increasing difficulties in the effective implementation of development plan (Wonga;
55
Tanga; Horen, 2006). They advocated that lack of public participation is a major problem in
Chinese models for cities development. The literature confirms that urban management is strictly
following an administration led approach in which government departments are responsible for
controlling the entire process of urban affairs. Therefore, lack of public involvement causes
many local level officials to pursue urban management projects by setting unrealistic objectives
for their city development (Wonga; Tanga and Horen, 2006). Wong et al, 2006 lamented that in
these scenarios most often urban management plans have been used as a means to enhance local
officials’ personal ambitions and career performance. While Willis, 2001 suggests that better
urban management requires knowledge of local traditions, respecting public opinion and building
upon local cultural values. However, Van Jijk, 2004 argues that a key element for good urban
management is to make a city more competitive, equitable and sustainable through coordination
and integration of the public and the private sectors to tackle major problems faced by the
inhabitants. Public involvement in cities plan making in China is still in the embryonic stage and
yet to develop. Recently, the government published a Town Planning White Bill in 1996 which
suggested changes to increase public participation in the making of statutory local plans.
3.4.9- Lesson Learnt
The literature regarding the development plan system in The People Republic of China supports
to develop a checklist for comparison to the development plan practices in Pakistan. This
checklist is mentioned in table 3.4.
56
Table 3.4 Checklist of the development plan Process of the People's Republic of China
GENERAL PROVISIONS
 The city planning law is formulated to determine the size of a city, define orientation for its development, realize the goals of its economic and
social development to prepare a plan which could carry out its development on a rational basis.
 The law in its article 4 specifies that the city government shall determine the type of the city according to its population size and administrative
function.
 It is made clear that city law shall be observed when a plan for a city is being formulated or implemented.
 The plan shall be a comprehensive one which gives balanced consideration to all factors.
 Article 10 of the city planning law clearly states that “all units and individuals shall have the obligation to abide by the plan for a city and shall
have the right to report and bring charges against any action that runs counter to such a plan”.
Objectives and contents

 Vision has been set for the future development of the cities. For example “Eco-City” for Shenzhen.
Baseline information
 Article 13 of the city planning act specifys that “the compilation of the plan for a city necessarily proceed through methodological process to
consider the actual conditions and then to make a scientific forecast of the needs arising from its long-term development.
 The compilation of the plan for a city is based on the plan for national economic and social development as well as the natural environment,
resources, historical conditions and present characteristics of the city.
Formulation of plan for a city

 The law specified that the size of the city, the standards, norms and criteria for the various items of development, and the development
procedure shall conform to the national and local levels economic and technological development.
 The principle of optimal utilization and conservation of land is observed in the plan making.
 The act specified that city plan shall be carried out in two stages, i.e. comprehensive planning and detailed planning. For large and medium-
sized cities, district planning may be conducted on the basis of comprehensive planning, while detail planning incorporates to further control
and define the use of land and determine the scope and capacity of each plot and to coordinate the construction of various items of
infrastructure and public facilities.
 The comprehensive plan for a city cover the designated function of the city, the goals of its development and its projected size.
 The standards, norms and criteria for its main building structures.
 The distributions of land used for various purposes and functions of different zones are specified.
 A comprehensive urban transportation system is articulated.
 A system of water spaces and green spaces are ensured.
 The detail plan for a city defines the scope for the use of land and provides the control indexes for building density and building height, the
general layout, the comprehensive plan for utilities services and site engineering.
ENVIRONMENTAL CONSIDERATION
 Article 14 maintaining that attention shall be paid to protect and improve the city's ecological environment, prevent environmental pollution
and other public hazards, develop green spaces and tree plantation, improve environmental sanitation, preserve historic and cultural sites, the
traditional cityscape, the local characteristics and the natural landscape in the formulation of a city plan. While attention shall also be paid to
the preservation of ethnic traditions and local characteristics in a national autonomous area plan.
MITIGATION MEASURES
 City plans necessary specify measures for manmade or natural disaster such as: fire-fighting, the prevention of explosions, earthquakes hazards,
the prevention of floods and of mud-rock flows, public security, traffic control and civil air defence [sick] construction.
CONSULTATION/COORDINATION
 It is mandatory that comprehensive plan for a city shall be coordinated with territorial planning, regional planning, water space planning and
comprehensive planning for the use of land.
 While article 10 of the city planning act obligated that all units and individuals have to abide the plan for a city and the city administration
have the right to report and bring charges against any action that runs counter to such a plan.
Public participation / Hearing
 The aspect of general public participation is absent in the system of physical planning for cities, however for the first time in 2000, Shenzhen
formulated the first public hearing for the environmental regulation in China.
Approval of the city’s plan
 Plans for cities are examined and approved at different administrative levels according to its size.
 The people's government of a city may make partial readjustments in the comprehensive plan for the city according to needs arising from the
city's economic and social development.
Plan’s Implementation
 The plan for a city is announced for implementation by the people's government of the city after it is approved.
 The law ensures that all development projects within a city planning area must conform to the plan for a city.
 The competent department of city planning administration issues a permit for a development project according to the planning and design
requirements defined in the plan for the city, so that no such activity may cause damage to the urban environment or produce a negative effect
on city planning.
Source: City Planning Act 1990; UNEP Chapter IV. P 135-154.
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3.8- Spatial Planning and Policy in India
The practice of the conventional Master Planning approach in India owes its origin in the British
Town and Country Planning system. These Plans were initially restricted to the land use and
development control aspects only. Therefore, various scholars have verified that Master Plans
techniques adopted in India have not been able to produce any satisfactory results (Tiwari, 2002),
and are very slow in outputs as well as outcomes (Meshram, 2006a). The planning process
adopted for the preparation of these plans has been unduly long and mostly confined to the
detailing of land use aspects. Functionally, Master Plans paid inadequate consideration to the
provision of trunk infrastructure, socio economic opportunities, environmental conservation and
funds allocation for development projects, the last one labeled them to be impracticable
(Meshram, 2006a).
Moreover, Indian Master Plans lacked a holistic approach for the development of cities and did
not deal with interconnecting issues. For example, in most cities, Master Plans policies have not
been translated into socio-economic development and investment programs and the physical
planning exercises were restricted to core urban areas without much integration with the peri-
urban areas and rural urban fringe (Tiwari, 2002). Attempts to adopt an integrated development
plan approach, based on national, state and regional strategies and recognition of the spatial and
functional linkages between settlements of different orders have not been made (Meshram,
2006b), while adequate attention to the integration of land use and transport planning remains
absent. The fact that transport is a key determinant of land use and leads development but is
always ignored (Meshram, 2006b). Therefore, it appears that the shortcomings of Master Plan
approach in India are in design, conceptual issues and procedures rather than in applied context
as implied in Box 3.3 below.
Box 3.3: Shortcomings of Master Plan Approach

 Large Master Plans are static in nature and they take very long time to prepare and are infrequently updated
 Master plans rarely provide guidelines for the implementation techniques of the plan.
 Master plans have not been evaluated for the finances of development they propose.
 Master plans are often based on unrealistic appraisal of economic potential or needs of the planning areas.
 Master plans seldom provide a compelling ratio of detailed land use and elaborate land use regulation or control
 Community or elected representatives or NGOs are not involved in the planning process meaningfully.
Source: UN-ESCAP (1984)
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Short coming given in Box-1 above are in the context of ESCAP region of the world due to
which Master Plans practices fared poor in the respective countries. However, Indian critics
pointed other issues towards Master Plan practice. Major criticisms about urban Master Plans
adopted in India are summarized by Tiwari, 2002 as follows:
- In appropriate plan’s preparation techniques
- Plan perspective
- Static plan
- Delays
- Ineffective public participation
- Weak information base
- Impractical physical standards
- Lack of financial provision
- Spatial planning overshadows development planning
- Absence of land policy and management
- Lack of private sector participation
- Very weak regulatory support
- Lack of plan’s implementation procedures
- Lack plan monitoring and review
However, Vaidya, 2009 pointed out that these short coming exist mainly due to lack of
constitutional provision for Local Self Government and that democracy in municipal governance
was not stable in India. Therefore, as a result, many urban local bodies became weak and were
not able to perform effectively (Vaidya, 2009).
In consideration to these deficiencies and gray areas, India has introduced several radical reforms
in urban planning processes through 74th CAA 1992 (Nallathiga, 2009). Therefore, since the
early 1990s Government of India (GoI) has undertaken several initiatives aimed at decentralizing
urban governance. These reforms have far reaching effects on the urban sector development
process and strengthen decentralization and give constitutional recognition to the Urban Local
Bodies (ULBs) (Nallathiga, 2009). The ULBs in India comprised of municipal corporations,
municipalities and ‘Nagar Panchayats’. The 74th CAA requires the State governments to amend
their municipal laws in order to empower ULBs with sufficient powers and authority to enable
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them to function as self governance institutions. Accordingly, majority states governments
modified their Municipal Laws by bringing them in conformity with the 74th CAA. The 74th
CAA compels that ULBs will take responsibilities for urban planning, water supply, public
health, slum up gradation, social and economic planning etc. Therefore, these reforms support to
constitute Metropolitan Planning Committees (MPCs) and District Planning Committees (DPCs)
to prepare various types of urban development plans.
3.8.1- Regulatory reforms
Municipal law in India was very old and often did not empower ULBs to bring reforms (Vaidya,
2009). Therefore, the Government of India (GoI) has developed a Model Municipal Law (MML)
in 2003 to guide States for the provision of their services effectively in a planned manner. The
basic objectives of the MML are to implement the 74th CAA provisions to empower the ULBs,
and ensure the legislative framework for implementation of urban sector reform agenda (Vaidya,
2009). These initiatives enhanced the capabilities of ULBs to influence public funds for
development of urban areas particularly in the states of Rajasthan, Bihar, Orissa and Sikkim
(Vaidya, 2009).
3.8.2- Public participation
The 74th CAA provides a framework to ensure public participation in urban governance. It
contains an enabling procedure to form wards committees for public participation. However, the
enabling legislation was in place in only 19 out of 29 states and wards committees were
constituted in only eight states (Sivaramkrishnan, 2006). The provision of these committees has
been a significant addition to decentralization process but they have yet to become an effective
platform for accountability.
3.8.3- Institutional reforms
Vaidya, 2009 expressed that the need for improving the functional efficiency of ULBs has
acquired greater importance after the 74th CAA, which has devolved additional functions to
them. He pointed out that the objectives of CAA cannot be achieved, unless the ULBs have
skilled manpower to undertake various additional tasks entrusted to them. The research proposed
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that all the personnel of ULBs have to be adequately trained in public dealing so that they trust
them as facilitators in the provision of services to them.
In this regard, the literature illustrated that the smaller Indian cities of Surat, Nagpur and Thane
have witnessed major improvements in the quality of life mainly through improved municipal
governance. In Surat, extreme circumstances such as the epidemic in 1994 and a flood plague led
to these reforms. McKinsey, 2003 explaining that the new Municipal Commissioner mandated
all zonal officers and heads of municipal divisions to develop trust of the people by spending half
of their day on walkabouts to monitor city cleanliness. Consequently, Surat rebuilt itself without
any aid from state or national government and became the second cleanest city in India after
Chandigarh (McKinsey, 2003). Similarly, Nagpur and Thane were both improved vastly by the
efforts of Municipal Commissioners who improved competence of local government machinery
by setting targets, making senior government officials accountable for results, monitoring daily
progress and penalizing non-performers (McKinsey, 2003). Consequently, both cities today
enjoy wider roads, a cleaner environment, fewer slums and more low-income housing.
3.8.4- Planning reforms
Researchers have confirmed that in India the master plans remain unsuccessful in
implementation mainly due to its rigidity, conservative (confined only to the dealing of land use
aspects) and ad-hoc system of their implementation, leaving the urbanization and urban planning
processes at peril (Nallathiga, 2008; Tiwari, 2002). Realizing these lacks, a variety of reforms
were introduced in order to achieve success in spatial planning. Some of these reforms are
mentioned in the following lines.
Looking at the developed countries experience, Urban Development Plan Formulation and
Implementation (UDPFI) guidelines have been prepared in India. This report gives details of the
suggested planning system, planning process, plan approval system, contents of various plans,
financial assessment techniques, land and manpower resource mobilization. These are further
supported by giving simplified planning techniques; minimum spatial norms and standards;
simplified development promotion rules and regulations; alternative systems of private sector
participation etc (UDPFI, 1996). The specific variations as applicable to small, medium and large
urban centers have been provided. Variations from these standards for hilly areas, where
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applicable, have also been provided. While the guidelines also help in particular changes and
modifications in Town Planning Acts where necessary.
Table 3.5 Reforms in Indian spatial planning

From To
Concentration on Statutory planning… Results oriented planning: concentration on implementation
Government does all…………………... Public-Community-Private Partnership, coordination of Local bodies
Comprehensive planning……………… Action planning
Focus on spatial and physical aspects…. Focus on institutional development and planning for economic
development
Meeting basic functional needs………... Demand driven planning, emphasis on quality and innovation
planning as a social function
Rigid legislation……………………….. Legal reforms facilitating participatory planning and flexibility
Monopoly over urban information…….. New urban information system, computerization, telecommunication.
Make cities computable and networked
Source: Adopted from Within, 2003
In consideration to these reforms, researches on various cities planning system were reviewed
which highlighted the success stories in the following manner. The Mumbai city experience
shows that administration transformed the Master Plan system to Vision Plan. This
transformation has changed the role of plans and plan making for the city development.
3.8.5- Lesson learnt
The literature regarding the development plan system in India supports to develop a checklist on
progress and achievement of plans and the reflection of reforms in a city development plan were
assessed in order to learn a lesson for development plan practices in Pakistan. These are
mentioned in table 3.6 and 3.7 respectively.
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Table 3.6 Progress and achievements of vision plan
Boost economic growth

Target four high end services – financial services, healthcare,
IT/ITES and entertainment & media
Create jobs in three low end sectors – construction, hotels/tourism/recreation and modern retail
Convert hinterland into a manufacturing and logistics hub
Lower tax rates to make Mumbai a consumption centre
Improve and expand transport infrastructure
Inner ring rail network for the city
Inner ring free-way for the city
Mumbai Trans Harbor Rail and Road Link
Tactical initiatives to optimize the current rail and road network
Increase housing availability and affordability
Increase land availability by 50-70 percent
Create 800,000 low income houses to rehabilitate existing slum dwellers by redesigning the Slum
Rehabilitation Authority
Build 300,000 additional low-income housing units by creating ‘Special Housing Zones’ through targeted
incentives
Create islands of excellence through integrated development
Redevelop the city block-by-block
Upgrade other infrastructure
Create a safer law and order environment
Reduce air pollution
Increase availability and reduce contamination of water
Create more viable options for the disposal of solid waste
Upgrade access to and quality of education
Improve healthcare services
Raise adequate financing
Increase in user charges and collection efficiency
Improvement in the MCGM’s own efficiency
Better utilization of Government land assets in and around Mumbai
Make governance more effective, efficient and responsive
Create the right structure
Make the concerned agencies accountable by instituting target setting, MoUs and monitoring processes
Streamlining the key processes such as building approvals and using IT all levels of government interaction
Generate momentum through quick wins
Beautify and decongest five north-south and five east-west corridors
Institute a report card system for all wards in MCGM
Improve airport ambience and emigration/immigration clearance
Build an additional 300 public toilets through public-private partnerships
Promote NGO and corporate sponsorship to restore and maintain the 325 public open /green spaces
Levy property tax on market value along with a self-assessment option
Enable implementation through committed public private resources led by the Chief Minister
Create a single coordination body
Make key agencies accountable for results
Encourage active corporate and NGO participation
Source: McKinsey (2003)
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The reflection of the reforms in the case of Delhi Master Plan has been awarded internationally.
Many UN reports highlighted the quality and compatibility of Delhi Master Plan prepared in
light of the reforms. Major highlights are summarized as follow.
Table 3.7 Major highlights of the Delhi Master Plan

Vision for the City: The Master Plan envisages vision and policy guidelines for the plan period up to 2021
Land Policy: The land policy is based on the optimal utilization for both public and private purposes
Public Participation and Plan Implementation:

Decentralized local area planning by participatory approach;
Performance oriented planning and development, with focus on implementation and monitoring.
Redevelopment:
Incentivized redevelopment has been envisaged as a major element of city development in all the areas;
(i) Planned Areas: Influence Zone along MRTS and Major Transport Corridor; underutilized / low-density areas;
Special Area; shopping / commercial centers; Industrial areas / clusters and resettlement colonies.
(ii) Unplanned Areas: Villages; unauthorized colonies and JJ Clusters.
Shelter:
Shift from plotted housing to group housing for optimal utilization of land;
Private sector participation for development / redevelopment of housing;
Removed unnecessary controls (like height) for optimum utilization of land.
Enhancement of ground coverage, FAR and height for all categories of residential plots.
Housing for poor:
In-situ slum rehabilitation, including using land as a resource for private sector participation;
Policy recommendation to prevent growth of slums
Housing for urban poor to the extent of 50-55% of total;
Re categorization of housing types, development control norms and differential densities
Environment:
Special emphasis on conservation of the Ridge.
Rejuvenation of River Yamuna through a number of measures given in the plan
Provision of lung spaces / recreational areas and green belt to the extent of 15 to 20% of land use.
Multipurpose grounds: A special category for marriages / public functions.
Unauthorized Colonies:
Unauthorized colonies, which are to be regularized as per government policy, should be effectively incorporated
in the mainstream of urban development.
Mixed Use:
To meet the growing demand of commercial activities and overcome the shortfall of available commercial
space, a liberalized provision of Mixed Use in residential areas has been adopted
2183 streets have been notified by the GNCTD vide notification for local commercial and mixed-use activities.
Small shops of daily needs have been permitted on ground floor, in residential areas.
Trade & Commerce:
District & Community Centers are proposed to be developed as facility corridors along major transport
networks to prevent unintended and unplanned ribbon development and for better synergy between public
transport and work centers.
Development of Integrated Freight Complexes / Wholesale Markets at the urban periphery.
Mandatory provisions for service and repair activities.
Informal shops, weekly markets, handicrafts bazaars, used books / furniture / building materials bazaars to be
developed.
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Informal Sector:
The informal and organized sector is a major source of employment in the economic fabric of the city for which
the following approach is proposed:
Earmarking of 'Hawking' and 'No Hawking' Zones at neighborhood and cluster levels.
Various locations may be earmarked for weekly markets.
New areas for informal trade to be developed and integrated with housing, commercial, institutional and
industrial areas.
Provision of common basic services like toilets, water points, etc.
Institutionalizing designs of stalls, push-carts and mobile vans.
Involvement of NGOs envisaged.
Industry:
The plan had given a list of prohibited industries in the city.
Modernization / up-gradation of existing industries including non-conforming industrial centers.
The plan had given special provisions for service and repair centers.
Inclusion of new activities like IT industry, etc.
Conservation of Heritage:
Identification of heritage zones and archaeological parks.
Development of Special Conservation plans for listed buildings and precincts.
Transportation:
Unified Metro Transport Authority is proposed
Synergy between land use and transport
A new parking policy including private sector development of parking facilities, increase in norms for parking
space, multi level parking and underground parking.
Integrated multimodal public transport system to reduce dependence on personalized vehicles.
Road and rail based mass transport system to be a major mode of public transport, optimal use of existing road
network and development of missing links.
Restructuring of existing network through expressways, elevated roads, arterial roads, distributor roads and
relief roads.
In arterial and sub-arterial roads cycle tracks, pedestrian and disabled friendly features are to be introduced.
Health Infrastructure:
Health facilities are proposed to achieve norms of 5 beds / 1000 population
Enhancement of FAR for hospitals and other health facilities.
Nursing Homes, clinics etc. also allowed under relaxed Mixed Use norms.
Educational Facilities:
Rationalization of planning norms with enhanced floor area.
Locating new school sites adjacent to parks / playgrounds.
Provision for vocational and other educational facilities.
Proposals for the provision of schools and training centers for disabled persons
Disaster Management:
Disaster Management centre provided in each administrative zone.
Building regulations for safety of structures as per seismic zone.
Land Use zoning as per micro-zonation.
Provision of Sports Facilities:
Provisions are made for local, national and international events sports facilities.
Incentives are provided for sports facilities and swimming pools in schools, clubs and group housing.
Focus on Infrastructure Development:
Perspective Plans for Water, Power, Drainage & Solid Waste Management are part of the Delhi MP-2021.
Realistic standards of water supply are used for equitable distribution.
Review:
The periodic review of the plan is proposed to be carried out at five year intervals after first submission.
Source: Delhi Master Plan, 207-2021
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3.9- Conclusion
Review of literature on the selected developed and developing countries reveals that each
country has evolved a system for the preparation and implementation of urban development
plans. Initially, the development plans were unable to achieve desired results due to their
redundancy and it was considered necessary to include more actors and institutions which
control important economic, political and social resources in order to make the development plan
policies workable. It is elucidated that since the advent of the development plan approach
various countries have passed through many challenges in the sphere of legal powers,
institutional strength and the planning processes. In order to address the challenges legal powers
and institutional functions were reviewed consistently and reforms were introduced in the
planning system. Accordingly, new institutional arrangements developed which made it possible
to work in a coordinated manner and align resources and skills in order to ensure success of plan
implementation.
The main lesson learnt from the literature review is that the spatial planning system in the
selected countries appears to have a strong legal support and a dynamic institutional framework
that ensures the guidelines for plan preparation and procedure for public participation in plan
making and implementation. Moreover, the success of implementation of plans has been ensured
through continuous monitoring and periodic reviews.
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Chapter 4
URBAN MANAGEMENT INITIATIVES IN PAKISTAN
4.1- Introduction
This chapter explains the status of urban governance and development plan procedure to manage
spatial growth in cities of Pakistan. It basically answers the first research question presented in
chapter-1 i.e. What have been the development plan practices in Pakistan? In second section it
examined urban management in the perspective of the five year plans. Section three has given an
assessment of Management of Cities Policy 1987. Next it has examined the National
Conservation Strategy. Then it analyzes the role of Federal government institutions in urban
management which includes the assessment of Cantonment Boards, Defense Housing
Authorities, Capital Development Authority and National Reconstruction Bureau. Thereafter,
section fifth explaining the role of local level institutions in urban management, it incorporates
the examination of Improvement Trusts, Development Authorities and Local Government
Institutions. Finally it is giving a brief review of the urban development plans in Pakistan.
4.2- Urban Management in the Perspective of Five Year Plans
Soon after independence, formation of an organized effort was intensely realized to meet the
planning requirement and integrate development work accordingly. Initially a development
board was established in 1948 to coordinate development projects. In addition there was a
planning advisory committee to assist the development board. A six year plan called “Colombo
Plan” was prepared by the board. Thereafter in 1958, the board was renamed as “Planning
Commission”. President/Prime Minister was declared as the Chairman of the Planning
Commission and its deputy chairman (a cabinet minister) as its operational head. At present
Planning Commission is responsible for the preparation of national five years plans, annual,
medium term and perspective plans. The Commission also coordinates with the Federal
Ministries, Provincial Governments, Autonomous Bodies and the private sector in connection
with the preparation of development plans (GoP, 1997).
4.2.1- First five year plan

The first Five Year Plan (1955-60) was prepared by the Planning Board and published it in May
1956. This plan has mentioned manifested stages for the country's physical development needs.
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The concept of planning was in fact introduced first in the Colombo Plan (1950). However, the
first national five year plan refined this concept and proposed to establish some institutions
through which planning could be effectively understood and implemented in future (GoP, 1955).
The plan maintained to initiate the concept of physical planning; however, it remained limited to
house the displaced families from India. Therefore, the administration did not adhere to the
specified policies for coordinated planning for urban and rural areas as well as institutional
development. Most of the recommended programs were not initiated or left incomplete, while a
number of expensive sectorial schemes contrary to the plan were introduced (GoP, 1960).
4.2.2- Second five year plan
The second Five Year Plan was prepared for the period (1960-65) by the Planning Commission.
Meanwhile the government decided to relocate the capital of Pakistan to Islamabad and also
design and build a small subsidiary capital in East Pakistan. Therefore, the aspect of physical
planning was intensely realized and the plan had a great focus on professional and institutional
development to produce master plans for the rest of the cities too. The document of the plan
explicitly demanded guided development and urban growth management through master plans
and therefore allocated Rs. 18 million for preparation of master plans for selected 8 towns in East
and 9 towns and cities in West Pakistan (GoP, 1966). In West Pakistan only four master plans for
Lahore, Faisalabad, Peshawar and Hyderabad were completed till the end of the plan period, due
to non availability of basic land use maps and lack of professional town planners in many cities
of the country greatly hampered plan preparation process (Khan, 1983a). Unfortunately, none of
these plans were properly implemented due to absence of appropriate legislation for physical
planning, capacitated institutions and also due to lack of professionals in the field (GoP, 1966).
Consequently growth of cities occurred in a haphazard manner, mostly with laissez-faire
development pattern and physical development was not subjected to appropriate planning
control.
4.2.3- Third five year plan
The Third Five Year plan was prepared for the period (1965-70) by the Planning Commission.
The plan expressed that in the sphere of urban development a comprehensive program of
research studies was initiated, to assess the systems of physical planning in selected countries. In
light of these assessments the plan policies for physical development were framed in the context
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of national and regional level. The physical planning approach adopted by the plan was based on
the concept of coordination and integration of sectorial program in terms of the most
advantageous uses of the land and harmony with the needs and distribution of population. The
plan proposed to initiate the fist modest comprehensive program for physical planning and
housing, both on a curative and a preventive basis. The plan proposed preparation of 45 Outline
Development Plans, 23 Urban Development Plans, and five Regional Development Plans for
both (East and West) of the country (GoP, 1966).
In West Pakistan up to the end of third plan period six Master Plans and one Outline
Development Plan would have been completed but as yet legal framework and administrative
arrangements have not been finalized to implement these plans (Khan, 1983b). Therefore no
such efforts have been made to vigorously address the congested and ever expanding nature of
the cities except sporadic development of infrastructure only (GoP, 1971). Unfortunately, the
plan was abandoned very soon due to a combination of adverse circumstances (war with India)
in the very first year of the Plan.
4.2.4- Fourth five year plan
Consecutively the 4th five year plan (1971-76), called upon that uncontrolled development and an
ineffective urbanization strategy placed enormous hurdles on the way to wholesome progress.
The strategy proposed in the plan was to prepare regional plans instead of isolated master plans.
Therefore the concept of regional planning was considered rigorously to mobilize the latent
resources and aspirations of different regions. In this regard the plan proposed to establish
independent departments of physical planning in all the provinces, to achieve a reasonable
amount of success in the implementation of the plan policies and programs. The plan also
proposed that professional staff within the planning organization should be increased. Section
36(xii) P-477 illustrates that Special priorities should be given to Urban, Metropolitan and
Regional Development plans as well as Transportation and Traffic Planning Studies. The plan
expressed that special efforts should be made to improve urban and metropolitan transport
system in selected cities by means of widening of roads and streets, provision of parking spaces
and providing better facilities for mass transport. Whereas in section 36 (xxiii) regarding
“Policies for Metropolitan and Urban Development”, the plan expresses that difference of
opinion about policies for urban and metropolitan development exists amongst professionals.
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Some experts feel that the “growth of large urban centers ought to be discouraged and all efforts
should be made for finding new urban centers or for promoting the growth of medium sized
towns”. However, others feel that “it is not a good idea to discourage the growth of large urban
centers. Their feeling is that our large urban centers and metropolitan areas were never
adequately planned and accordingly some of the problems of transportation, facilities and
services and housing had risen due to our faulty planning. By simply putting negative control on
the growth of large cities we might obstruct our economic growth. Therefore, there is an urgent
need for a clear-cut national policy for industrial and urban development”. In this regards the
plan concluded that the concept of “growth control” does not necessarily mean that complete halt
for all sort of physical expansion would be made, but rather it reflects that growth management
practices are to be introduced (GoP, 1977). It supports that there must be a limit to any sort of
activity within specified time period, and that the cities must have defined limits for the
expansion.
The plan also emphasized that until now enough attention has not been paid to metropolitan and
urban administration. Too many institutions and agencies were responsible for various sectors of
development within urban and metropolitan area (GoP, 1977). It was proposed that new types of
urban and metropolitan management (as suited to our needs) should be promoted.
The plan also pointed out that there exist dramatic disparities among various income groups
within cities. A very small proportion of the urban population enjoyed very high facilities and
services, while a very large part of the urban population in many cases are living in depressed
areas. The plan proposed awareness program to prepare people that how to live in an urban area
should be introduced during the plan period, to promote civic sense as well as public
participation in urban development. However, little progress seems to have been achieved and
none of the plans’ proposal for urban development were considered in reality, consequently cities
grew by their own fashion. Only one regional plan, one metropolitan development plan, one
urban development plan and nine outline development plans were completed during the period
(GoP, 1977). The most important was the preparation of a development plan for Karachi
Metropolitan region with the assistance of the United Nations Development Program. But it also
ended in itself due to non existence of a full fledge organization to implement the plan (GoP,
1977).
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4.2.5- Fifth five year plan
In light of the fifth plan (1977-83), a Federal level Ministry for Housing and Works with a
separate division for Environment and Urban affairs has been created. While the Government of
the Punjab, Sindh and NWFP have established separate Housing and Physical Planning
Departments. In this context Development Authorities have been created in Lahore, Faisalabad,
Multan, Hyderabad, Peshawar, Mardan and Quetta to undertake urban development in a
comprehensively planned manner. In NWFP, a Provincial Urban Development Board was
prepared to tackle the problems of urban areas within the province. In Sind, a new organization,
namely Sind Development Authority, has been created on the pattern of Karachi Development
Authority for urban areas other than Karachi. A Regional Planning Organization in Sind has also
been established to prepare regional plans for Sind Province.
Legislation for physical planning and up-dated local bye-laws as well as better enforcement
arrangements were proposed so that the development of cities can proceed on a rational and
planned basis. In the sphere of physical planning, the plan proposed that to economies the use of
scarce urban land, high density development will be encouraged in major cities.
In order to encourage house construction activity in the private sector, housing has been declared
as an industry. Tax incentives, including income tax rebate and tax exemptions on low income
housing, were provided and commercial banks were authorized to provide loans for house
construction. The allocations of the House Building Finance Corporation were substantially
increased during the plan period.
Another important aspect of the 5th five year plan was to suggest regional level planning and to
propose the concept of agro-villes at regional level in order to decrease rural urban shifts in the
country. A regional plan for Karachi metropolitan area has been prepared. Regional Plans for
Sind, NWPP, Baluchistan and areas of Multan, Bahawalpur and Sargodha Divisions were also
materialized. Institutional capability for regional planning was being created in the Provincial
Governments with UN assistance. During the fifth plan, the institutional arrangements were
further strengthened and a National Institute of Regional Planning was suggested to be set up in
the country. Training in regional planning concepts and techniques was proposed to be
expanded. Regional plans, under preparation, were decided to be finalized to provide a new and
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significant input in the development process during the Fifth Plan. An allocation of Rs. 38.0
million was being made in the Fifth Plan for preparation of 6 regional studies. In addition, an
allocation of Rs. 4.0 million was also made for the preparation of six district plans.
It was proclaimed that the process of urbanization cannot be slowed down sharply at least in the
short term. However, haphazard growth has to be checked. The development of cities should be
regulated through proper urban plans. During the Fifth Plan, it was proposed to undertake the
preparation of five Metropolitan Development Plans and Outline Development Plans of twenty
selected urban areas for which an allocation of Rs. 44.0 million has been made.
4.2.6- Sixth five year plan
The Sixth Five year plan was formulated for (1983-88). It has no focus on plan formulation and
had not suggested to undertake any specific programs for the city development plans preparation.
The Sixth plan made a decisive shift to a laissez-faire philosophy. It has policies more concerned
with infrastructure development through local government institution.
4.2.7- Seventh five year plan
The seventh five year plan was formulated for the period of (1988-93). This plan pointed out that
even after the previous plan emphasis on regional development, still a major shift of population
is taking place from rural to urban areas. As a consequence, urban areas are presently faced with
an acute housing problem, environmental degradation and pressure on community facilities
(GoP, 1988). The problem is much more pronounced in the larger cities of Karachi and Lahore
which are likely to attract the bulk of migrants from the countryside.
The 7th five year plan set forth the following strategies to be adopted during the plan period. In
the light of this strategy, the programs to be taken up under various sub-sectors are described as
follows.
 Master Plans for all major towns having first class municipalities or metropolitan
corporations will be developed. The plan pointed out that although Master Plans were
prepared for a number of cities and towns but were not implemented.
 To improve the legal framework, the preparation of urban development plans its approval
and implementation process. While the existing practices of the provincial housing and
72
town planning departments are cumbersome, which prepare urban development plans but
its approving authority is with local government departments. This perplexity will have to
be removed. The plan suggested that the provincial governments would be urged to either
merge both the functions into a single agency or evolve a legal framework to approve and
improve master plans within a specified time frame.
 Master plans will be reviewed and prepared for metropolitan cities of Karachi, Lahore
and secondary cities; outline development plans for intermediate cities having a
population of 25,000 to 500,000 will be taken up.
 In urban centers with a population in excess of 500,000, development authorities will be
set up to undertake large urban development projects in accordance with these master
plans.
 In order to economize on scarce land in the urban areas, multiple constructions on a
single plot will be encouraged.
 To carry out environmental improvement programs; all local authorities will develop
detailed plans for implementation during the seventh plan period.
 Future planning of towns and settlements must cater for parks and play grounds based on
the requirements of the population.
4.2.8- Eighth five year plan
The eighth five year plan (1993– 98) envisaged that urban population will grow from 33 percent
in 1993 to 35 percent in 1998. This increase was about 46 million and it was feared that the brunt
of this increase is likely to be borne by major cities such as Karachi, Lahore, Faisalabad, Multan,
Gujranwala, Peshawar, Quetta, Rawalpindi and Hyderabad (GoP, 1994). Therefore it was
suggested that economic and social policies are to be so designed that the direction of
urbanization shifts towards secondary and intermediate cities. In the sphere of physical
development the development strategy was that, the investment opportunities and availability of
social services will attract entrepreneurs in the secondary and intermediate cities/towns in order
to minimize migration towards bigger cities.
4.2.9- Tenth five year plan
This is the current plan and is formulated for a period started at 2010 till 2015. A new vision that
Planning Commission has presented is people centric development. It endeavours not just
73
poverty reduction but makes a serious attempt to exit from poverty towards sustainable inclusive
growth. The vision also attempts to remove the provincial and intra-provincial disparities. This
plan hopes to remove the social deficit in health, education, gender equity, social safety nets etc.
However, the physical planning and urban development has not been given importance in this
plan.
4.3- Management of Cities Policy (1987)
In pursuance of the Cabinet directive, the Ministry of Housing and Works in collaboration with
the Environment and Urban Affairs Division formulated a national policy in 1987 for the
management of cities in Pakistan. Substantial reforms suggested in the legal, administrative,
financial management and human resource development are as under:
In the legal domain, three areas of action with sub programs have been identified in the policy
(GoP, 1987) and are reproduce as follow.
i- Revision of laws
It was highlighted in the policy that there is a need for simpler, more effective provincial
legislation in the following areas:
a) land acquisition
b) Planning
c) Electoral laws for urban local government bodies.
ii- Reorientation of rules
It was emphasized in the policy that there is a need for reorientation of provincial rules
made under existing and proposed laws. The policy recommended that rules need to be
made based on performance rather than prescription and control oriented. In this domain
the policy recommendations are:
a) Rules under Local Government Ordinance need to be reviewed. Some rules need to be
revoked to allow flexibility and initiative in urban local governments.
b) Rules for coordination between agencies need to be framed, as no rules of business for
coordinated action exist in the present set up.
74
iii- More use of Bye-laws
Focus needs to be shifted to encourage urban local governments and urban agencies to
make their own bylaws. It is evident that laws imposed from above are not self enforcing,
besides there exists loop holes in the existing bye laws in the following areas:
a) Planning (zoning, scheme identification, selection and processing).
b) Building control (market oriented approach)
c) Environmental control.
In the administrative sphere the policy recommends rationalizing the role of various agencies and
induction of systems to enable inter-agency and inter-departmental coordination by evolving
effective partnerships, including good conventions and clear systems for case processing
responsibilities. These were identified as under:
i- Coordination between agencies:

ii- Efficiency within agencies
In the financial management sphere, the policy proposes:

i- Plan oriented budgeting
ii- Double entry accrual accounting system
iii- Unit cost accounting
It was envisaged that these measures would lead to progressive introduction of a full-fledged
planning, programming and budgeting system. In the sphere of human resource development, the
policy analyses availability of professionals (urban planners) and proposed to remove the
existing shortfall through the following measures:
i- Improving prospects and inducements

ii- Induction training
iii- On-job service training
iv- Career management and removal of disparities and
v- Creation of itinerant team at higher levels of government.
It was anticipated that these reforms could strengthen urban local government institutions in
order to introduce innovative planning techniques. As a result it would bring radical changes in
75
the prevailing laws pertaining to urban development and would establish rules/regulations to
guide city wide development prospects, allow greater local initiatives and an improved decision
making system. Institutions would be strengthened in respect of trained manpower and
supporting staff to facilitate and initiate planned development within cities.
In order to increase administrative efficiency, equity and citizen welfare in cities, the policy
recommended various options on individual case to case basis and action agencies were
recommended to bring the required change in the system1… (GoP, 1987).
4.4- National Conservation Strategy
The Pakistan National Conservation Strategy (PNCS) was emerged in response to the World
Conservation Strategy (WCS) developed in collaboration with the International Union for
Conservation of Nature (IUCN). It was approved as official policy by the Federal Cabinet on
March 1, 1992. The PNCS launched after almost a decade of analysis and discussion, and has
served as a defecto environmental policy for Pakistan. It presents the environmental situation in
Pakistan and recommends actions to readdress issues pertaining to environmental degradation in
order to facilitate sustainable utilization of natural resources (Naureen, 2009).
A total of 86 specific programs were identified in 14 core areas, which included urban growth
management as its prime goal for sustainable development. Various ministries including Urban
Affairs and Local Government established a special cell for the implementation of PNCS. The
midterm review of PNCS was undertaken in 2000, this review finds that achievements under
PNCS have been scanty and primary in nature i.e. awareness rising rather than actual on ground
improvement of natural resources and environment (Arthur, 2000). This review pointed out that
PNCS influence on economic and social issues is limited and some basic elements of sustainable
development such as sustainable livelihoods and climate change are not considered by PNCS.
Therefore, like other plans, policies and programs, PNCS remains just a good document and
could not fully guide the development in its true sense. It was necessary to strengthen the
institutions, set priorities and then to start its implementation. The enforcement procedure and
tools of implementation are important but there exists shortage of skilled manpower to
implement plans and policies in Pakistan (Naureen, 2009).
1
For more detail see table 10.1 Pages (125-134) of Management of Cities Policy, 1987 (Pakistan).
76
4.5- Role of Federal Government Institutions in Urban Management
In Pakistan urban development evolved through various forms but did not settled down with a
perfect and sustainable setup. The institutions have taken various shapes and forms to address
urban environmental issues in cities. Unfortunately none of these initiatives prove to be
successful for one reason or another. Most specifically the institutional strength, power and
function remain overwhelmingly cumbersome and unclear. This muddled and unclear power and
function completely ruins down the consistent efforts for effective planning. Thus it could be
discovered from these perplexities that why a uniform and consistent planning and development
move does not take place in Pakistan.
The whole range of physical planning acts, ordinances, rules and regulation were assessed and
analyzed to find loopholes and gaps of the system, which are constantly hampering development
plans implementation and causes for the failure of such plan in all major cities of Pakistan.
4.5.1- Cantonment Boards
The areas of major British interest were cantonments. These new settlement were located outside
but in close vicinity of the existing cities to accommodate colonial masters in a planned manner
and were designed to serve the British strategic needs. For this purpose, several notable English
planners like, Sir Patrick Geddes, were brought to Sub-continent for a very brief period (Khan,
1983b). It is urged that during this period certain schemes were prepared and implemented for
limited physical planning of selected cities and some irrigation colonies. However, after 1921 the
British rulers have changed their priorities and the temporary interest in physical planning
declined (Khan, 1983b).
The planning and development of Cantonments still continue to consolidate and amend the
administrative functions of Cantonments in Pakistan through the Cantonment Act, promulgated
in 1924. Presently there are 40 Cantonments in Pakistan, 18 in Punjab province, 8 in Sind, 11 in
Khyber Pakhtunkhwa and 3 in Baluchistan. The Cantonment Act 1924 spells out the classes of
these Cantonments. Cantonments with civilian population of more than 100, 000, 50,000 to
100,000 and less than 50,000 are to be considered as Class I, II and III respectively. Thus CBs
77
set up to run the Cantonment administration with their own budgets and sources of revenue. The
composition of these boards is in accordance with the criteria given in the Cantonment Act 1924.
(1) The Board members for Class 1 Cantonment:
(a) The Officer Commanding the station or, if the Federal Government so directs in respect of any
cantonment, such other military officer as may be nominated by the Competent Authority;
(b) Twelve elected members;
(c) The Health Officer;
(d) The Maintenance Engineer;
(e) A Magistrate of the first class nominated by the District Magistrate;
(f) Nine civil or military officers nominated by the Officer Commanding the station by order in writing.
(2) The Board members for Class II Cantonment:
Cantonment, such other military officer as may be nominated by the Competent Authority;
(b) Seven elected members;
(d) The Maintenance Engineer;
(e) A Magistrate of the first class nominated by the District Magistrate;
(f) Four military officers nominated by the Officer Commanding the station by order in writing.
(3) The Board members for a Class III Cantonment:
cantonment, such other military officer as may be nominated by the Competent Authority;
(b) Two elected members: Provided that the Federal Government may, by notification in the official
Gazette, increase the number of elected members to such extent not exceeding five as it deems fit:
(d) One military officer nominated by the Officer Commanding the station by order in writing:
Provided that, if the number of elected members is increased under clause (b), the number of members
so nominated be one less than the number of elected members so increased.
The Act authorizes Cantonment Boards to carry and regulate development activities within their
limits under the provisions of this act and that the Provincial Law on the subject would not be
applicable within the territorial limits of the Cantonment Board concerned (Government of India,
1924). The Act also enabled Cantonments to make their own bye-laws for governing local
matters that require particular treatments. Based on the urgency of the emerging issues within
78
their limits, and the continuous expansion of military colonies, the government of Pakistan
passed an Ordinance in 2002. However, later on due to unknown reasons the government
abrogated the ordinance. In the prevailing system Cantonment Boards work directly under the
Federal Defense Ministry and are not responsible for following the plans of LPAs. Cantonments
generate social and environmental problems, particularly traffic and sewerage problems for their
parent cities, however, the relevant laws do not address solutions to these problems in the rest of
the cities. Therefore, the assignment of powers and functions to organizations with in cities
creates confusion and mismanagement in the remaining city enclaves. The Cantonment law is
applicable only to development associated with the Directorate of Military Land and Cantonment
(MLC). Agencies working under the military headquarters, such as the Defense Housing
Authority (DHA), can develop land for the benefit of the armed forces but are not directly
controlled by any specific development law. This Phenomenon greatly hampers the
implementation of Master or Structure plans prepared by DAs. This clearly suggests that a city
within a city exists with no common vision and coordination in Pakistan (Ahmad and Anjum,
2011).
4.5.2- Defense Housing Authorities
Defense Housing Authority (DHA) is a residential enterprise which was established in 1953 first
in Karachi and then it extended its branches/activities to all major cities of Pakistan. DHAs have
separate laws for development projects in their respective areas. Section 24 of the DHA
ordinance 2007 provides indemnity to the authority such that “No suit or legal proceedings shall
lie against the Authority, the Governing Body, the Executive Board, the Administrator, or any of
their members, or employees of the Authority for anything done or purported to have been done
by them in good faith under the Ordinance, including the rules or the regulations made there
under’’ (GoP, 2007). Utilizing this power, DHAs have the liberty to deviate from any sort of
development plan that exists with the LPA. This is an urban planning dilemma for LPA planners
to deal with the affairs of these institutions in the cities’ development plans or land use/zoning
plans (Ahmad and Anjum, 2011). Whilst DHAs mega projects within various cities spread on
thousands of acres of land (i.e. 11,640 acres of land on Super Highway Karachi) creating cities
within cities.
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4.5.3- Capital Development Authority
The Capital Development Authority (CDA) is responsible for providing municipal services in the
capital city of Pakistan (Islamabad). CDA was established on June 14, 1960 through CDA
Ordinance 1960. This Ordinance laid down its charter and defined its power and functions.
Initially a three member’s board was responsible to administer the Authority. However, at
present the CDA board is comprised of the Chairman and head of various directorates such as:
Planning, Administration, Finance, Environment, Estate, and Engineering (CDA Islamabad Web
portal, 2012).
A master plan devised by an international Consultant firm, Doxiadis Associates provided a broad
framework for the development of capital city on a grid iron pattern. Some of the concepts of the
master plan, however, remained unrealized. Within Islamabad Capital Territory the concept of
acquiring entire land for development of Islamabad Park remained an unaffordable proposition
and led to large scale unauthorized construction. Development remained urban biased and
neglected rural areas, induced migration to urban areas beyond its absorbing capacity.
Thereafter, this master plan was reviewed consistently at the lapse of the time framework.
4.5.4- National Reconstruction Bureau
The establishment of National Reconstruction Bureau (NRB) came into being in November,
1999. Its prime responsibility was to formulate policy for reconstruction within the parameters of
the 7-point agenda put forward by the Government of Pakistan, in October 1999. This new
system was explained through 5-Ds concept i.e. Devolution of political power, Distribution of
resources to the district, Decentralization of administrative authority, Diffusion of power and
authority nexus and De-centralization of management functions. NRB devised recommendations
to bring reforms in the Local Governments system and the police department which were
approved in August 2000 by the National Security Council and the Federal Cabinet (GoP, Web,
2010).
Since August 2001, the administrative system went through some major transformations to de-
concentrate federal and provincial functions, and devolve monetary and financial authorities and
80
responsibilities to Local Governments. This was an attempt to eliminate overlapping of
responsibilities between the federal, provincial and local institutions in service delivery.
Municipal and development authorities’ functions have been decentralized to the TMA level in
the districts governments. A significant development of this change was the abolition of urban
and rural concept, which caused the merger of urban and rural Union Councils under one service
delivery system.
The Local Government Ordinance 2001 was simultaneously promulgated in all the provinces of
the country other than areas notified as Cantonments under the Cantonment Act, 1924. The main
purpose of the ordinance was to decentralize administration and financial authority to ensure
good governance, efficient services provision and rational decision through community’s
involvement at the grass root level. Various departments of the provincial government have been
decentralized (change in operations, financial and management control) to the local government
(GoP Web, 2010).
4.6- Role of Local Institutions in Urban Management
Pakistan, being a federation of five provinces, the Punjab, Sindh, Khyber Pakhtunkhwa,
Baluchistan and Gilgit Baltistan as well as FATA, however, physical planning is not in the
federal legislative responsibility. The provinces are responsible to deal with physical planning in
accordance with their own legislation, rules and regulation pertaining to its need and preferences.
Therefore province vise Act and Ordinances are listed in the table 4.1. The analysis of these acts
and ordinances comprehended the rule of business of local level institutions to carry out
development plan practices.
4.6.1- Improvement Trusts
Improvement Trusts were created through an Act of the Parliament in 1922 by the British rule in
the sub-continent. Municipal Corporations and other government institutions handed over all
vacant lands to Trusts. These institutions supported Municipalities and undertook a host of
measures to improve sanitary and living conditions in major cities. The first Improvement Trust
in areas now constituting Pakistan was established at Lahore in 1936 (Khan, 1983a).
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After partition, Pakistan had faced formidable problems of housing the refugees. Cities were
flooded by migrants and haphazard growth of cities occurred. Consequently sanitary conditions
deteriorated due to over crowdedness and lack of physical infrastructure. The Municipalities
were unable to tackle the issue promptly and there was an urgent need for development planning in
cities. Looking at the experience of Lahore city, there was separate organization called
Improvement Trust to shoulder development responsibilities with municipality. The government
statutory created Improvement Trusts for bringing about improvements in the rest of the cities.
By December 1964, the country had 22 Improvement Trusts in all major cities of the country
(GoP, 1966). However, these institutions remained incapacitated and only three of these Trusts
had qualified staff for physical planning and housing, while the rest of the Trusts remained
incapacitated in terms of physical planning and housing tasks (GoP, 1966). Consequently
Improvement Trusts have rarely undertaken physical planning; at best, they carry out systematic
execution of schemes only. No such serious efforts were made to evaluate and review the system’s
failure but Development Authorities were established through various Urban Planning Acts to take
over the responsibility for planning and development of the major cities.
4.6.2- Development Authorities
Development Authorities were established in major cities of the country after the promulgation
of the Urban Planning Acts/Ordinances respectively in these provinces. These Acts and
Ordinances repealed the Improvement Trusts and their establishments and other assets were
transferred to the newly developed agencies i.e. Development Authorities (DAs).
Karachi Development Authority (KDA) was established in 1957 in order to prepare and
implement the master plan for the city. KDA replaced Karachi Improvement Trust (KIT) through
a presidential order No V of 1957. Empirical research has established that KDA launched
various development projects such as: National Stadium & Karsaz, Liaquat National Hospital &
Liaquat Memorial Library known as Dhoraji Colony KDA Scheme 1-A, Korangi Township,
Malir Town, Drigh Township, Malir Extension Township, North Karachi Township, Old
Nazimabad, North Nazimabad, Orangi Township, Baldia Township, Lyari Town, Hawksbay,
Shah Latif, Mehran Town, Halkani Town, Landhi Industrial Area, Landhi Residential Scheme,
Metroville-I to III, Gulzar-e-Hijri, Gulshan-e-Iqbal, Gulistan-e-Jauhar, Taiser Town, Korangi
Industrial Area, SITE Metroville, mega transportation projects and light rail transit etc
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(Wikipedia web, 2012). However, none of these development projects could confirm its
relevance with the contemporary development plan for the city (Ahmad, 2009).
Recently Karachi Development Authority has launched some mega projects such as 16.5
kilometer long Lyari express way; development of DHA water front on around 600 acres of
coastal land; A 24 kilometer long grade separated Karachi Elevated Expressway project and a 40
storied commercial high rise Karachi financial tower in deviation of the development plan
(Ahmad, 2009).
Lahore Development Authority (LDA) was created under the LDA Act 1975 duly approved by
Punjab Legislative Assembly. It replaced Lahore Improvement Trust in 1975. LDA is
responsible for new planned development in Lahore city district/Metropolitan area. LDA acts as
regulatory body for new development including housing schemes; commercial and industrial
establishments; grants planning permissions for new housing projects, private houses in the city
areas. It also manages urban renewal; traffic and transportation network planning through Traffic
Engineering and Transport Planning Agency (TEPA); water supply through WASA, parks and
arboriculture of the city and any new urban extension. The LDA succeeded to successively
formulate two urban development plans for Lahore city, however, none of these got
implemented.
The city has a record of violations and LDA played no role to control it. Recently the Lahore
high court commission identified 480 high rise buildings constructed in violation of the
permissible height (Dawn, 2009). In this connection the Supreme Court on Dec 29, 2009 ordered
the Punjab Government to pull down all structures built in violation of the approved site plan
(Dawn, 2010). Whereas, influential people have developed 102 housing schemes in violation of
the city development plan proposals for the city (Hussain, 2012). The report says that some of
these schemes are 10-30 years old. The officials claim that this was happened due to the
perplexities of the law and that section 33 of the LDA Act is too weak to punish such developers.
As the reporter explained that the developers succeed to get approval from the TMAs under the
Local Government Ordinance 2001 if LDA refuses to give permission for such schemes.
Quetta Development Authority (QDA) came into existence in 1978 by the Government of
Baluchistan. The jurisdiction of the QDA extends over whole of the Quetta city/Tehsil. So far it
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has prepared two development plans for the city. There exists no empirical research on the
development plan practices of the city. Ground realities exemplify great variations between what
was proposed by the plan and what actually happened.
4.6.3- Local government institutions
The Constitution of the Islamic Republic of Pakistan conforms only to two levels of government
(the federal and Provincial), there exists no Local Government. The tier of local government was
always introduced whenever the other two remains dissolved. These three tiers of government
never worked in parallel with each other and are therefore do not flourished in Pakistan.
The system of Local Government was first introduced in various military (Martial Law) regimes
in the country for almost three times. First period was from (1959-72), second period was from
(1979-88) and third period was from (1999-2008). These episodic attempts, gave us an
inconsistent system for local development. The 1959 Basic Democracy Ordinance introduced a
four tier structure of local government at the Divisional, District, Municipal Committees and the
Town Committee level in urban areas. This hierarchy stayed functional simultaneously until
1972 in all the provinces. After a short while, the political government was again dissolved
through another martial law in 1979, this time the LGO introduced a two tier system at district
and union council level. These institutions were abandoned by the successive political
government due to strong opponent of the martial law administrator. Therefore, all their policies
remained appalled in the successive governments. Once again in 2001 the military rule
introduced local government system in the country and promulgated LGO 2001. The LGO 2001
has given us a totally new system through NRB called devolution of power to the local level. It
introduces three levels of hierarchies of the local government institutions in major cities called
City District Governments (CDGs), Town Municipal Administration (TMAs) and Union
Councils (UCs). The selection of Nazims and Naib Nazim for CDGs and TMAs were made
through election among the elected members, while Union Nazim and Naib Nazim were elected
through direct adult franchise election.
City District Governments: With the promulgation of the LGO 2001, the established institution
in federal and provincial capital cities (Islamabad; Karachi; Lahore; Peshawar and Quetta) were
devolved into new sort of organizations called City District Governments (CDGs). A CDG is a
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district that consists entirely of a major city or large metropolitan area. Later on the large
metropolitan cities have also been restructured into the City District status (Faisalabad; Multan;
Rawalpindi and Gujranwala) by using section 8 of the LGO 2001. While there are 117 Districts
in Pakistan, however, only nine districts were declared as CDGs. These CDGs are further
subdivided into various Towns and Union Councils. Various powers were devolved to the
district level in order to enhance the decision making process.
Town Municipal Administrations: Districts Governments were further subdivided into (Tehsil
in rural and Town in urban) Municipal Administration called TMAs. City District Government
Karachi is divided into 18-TMAs, City District Government Lahore into 9-TMAs, City District
Government Faisalabad into 7-TMAs, City District Government Peshawar into 4-TMAs and City
District Government Quetta into 3-TMAs etc. While each TMA is further sub divided into a
number of Union Councils.
Union Councils: At the bottom was the Union Councils (UCs) to support the identification of
various projects. The functions of UCs were limited and were responsible for execution of very
small scale projects within their jurisdictions.
In actual multiplicity of institutions created a state of confusion among these institutions and
finally it did not generate any cohesive action to carry out physical planning functions in the
country. The development works were carried out through the consent of the members of
parliaments. Similarly perplexities among Improvement Trusts and Municipalities as well as
thereafter Development Authorities and Municipalities persisted without little head paid to it
(For illustration of perplexities see appendix-3a).
4.7- Legal Framework
For the preparation of urban development plans various Acts and Ordinances were promulgated
in various parts of the country (See table 4.1). The main purpose of these Acts was to establish
Development Authorities, which would carry physical planning function in order to improve the
quality of life in cities. A number of development plans (Master Plan, Structure Plan and Outline
Development Plans) were prepared through these organizations (see appendix-2). Besides
development plans, a series of Outline Development Plans were also prepared through various
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consultants but could not be put into reality for many reasons. The province wise list of these
initiatives is mentioned in the table (see appendix-2).
Table 4.1: Legal provision empowering institutions to prepare development plans in Pakistan
Khyber
Punjab Sindh Baluchistan
Pakhtunkhwa
NWFP Urban Planning Karachi Development QDA amendment
The LDA Act 1975
Ordinance 1978 Order 1957 Ordinance 1985
Punjab Development of Hyderabad Development

- -
Cities Act 1976 Authority Act 1976
Punjab LGO 2001 NWFP LGO 2001 Sindh LGO 2001 Baluchistan LGO 2001
Source: GoP Web portal.
Comparative analysis of these Acts/Ordinances shows that LGO 2001 simultaneously empowers
local government institutions to carry out physical planning. Alongside, the Development
Authorities have been empowered by their respective Acts and Ordinances to prepare the
development plans. Ironically, these laws were not repealed nor covered with legal procedures to
delegate the function of physical planning to the local government institutions. Therefore there
remains complete complexities amongst the officials to carry out physical planning functions as
the diversity of laws are creating perplexity and hampring the implementation of development
plans in Pakistan (Ahamd and Anjum, 2011).
Similarly, confusion persists among the professionals regarding the term “Spatial Planning”
given in LGO 2001. It is not defined that what is actually meant by spatial planning, what sort of
plans it incorporatres, whether it means master plans or structure plans, local plans or other sort
of land use plans. The level of planning is also not clear, because large cities have more than one
TMA and section (54A) of the ordinance empower that “Town Municipal Administration
(TMAs) shall prepare spatial plans for Town in collaboration with Zila and Union Councils”.
While Section, 29 of the ordinance empowers the Executive District Officer for preparation of
development plans and its implementation etc.
Here it is quite pertinent to clarify the type of plan that LGO is proposing. If it means Master
Plan for such plan at the district level then what plan will be prepared by the TMA to fulfill the
function of the section (54A). If one goes for the Master Plans prepared by the TMA then how
many plans will be prepared at the city level where more than one TMA exists?
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In practice local government institutions have no capabilities to prepare and implement these
plans (See chapter 6). The parallel counterpart institutions to the local government i.e.
Development Authorities have capabilities to implement such plans but they lack responsibilities
and political support to do so. Development activities are mainly controlled by the political
leaders who give no regards to plan led process but to mould the plan according to their desires
and wishes.
4.8- Urban Development Plans
To understand the concept of spatial planning in Pakistan, there is a need to set it in the context
of the legacy of colonialism. When the British arrived they began to build cantonments in major
cities for military and an area of civil lines for the administration (Go Punjab, 2008). Legal and
regulatory framework (i.e. Cantonment Act 1924 and Cantonment Boards) were developed to
manage the affairs of these cantonments. The spatial settings of these cantonments were properly
planned in accordance to the principle of planning, but plan initiatives were not extended to other
portion of the cities. Therefore, the growth of cities occurred in a haphazard manner as many
settlements emerged next to these Cantonments.
After inception of the country in 1947, a plan led approach was realized in the very beginning for
all major cities of the country. The 2nd Five Year Plan envisaged preparation of development
plans for all major cities of the country. In order to guide and manage the growth of major cities
in a planned manner development plans were prepared since 1960s for all major cities of
Pakistan. The assessment of these plans is carried out to indicate how these instruments were
prepared and implemented by their concerned agencies. A brief overview of the latest
development plans of major cities is presented in the following table-4.2. However none of these
plans proved to be successful in the achievement of its stated goals.
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Table 4.2 Development plan practices in major cities of Pakistan
City/Plans Major highlights of the plan

Karachi  Prepared by Master Plan Group of Offices (MPGO)-CDGK and Consultants group of M/S ECIL and PADCO-
AECOM.
Strategic  The KSDP extends over the whole City District of Karachi, consisting of 18 administrative towns, 6 cantonments, and
Development Plan the Federal and Provincial governments land holding agencies
(KSDP) 2020  The CDGK has a vision of making Karachi a world class city and attractive economic centre with a decent life.
Objectives are set for the achievement of the vision
 The KSDP was approved by the competent authority and have a legal status under Section 40 of the Sindh Local
Government Ordinance 2001 (SLGO), for guiding city’s growth
 Socio-economic survey and a land use survey were carried out
 Proposed that densification and infill process will intensify to accommodate future growth.
 The plan proposed mixed use developments in designated areas and in new development areas
 The plan proposed development of new urban centers and its connections through improved radial and concentric
roads and improved public transport services
 A new inter/intra bus terminal is proposed to be located along the RCD Highway and Northern Bypass.
 A new warehousing area, adjacent to a new wholesale market is proposed
 The plan proposed a new ICT centre in Bin Qasim
 New housing areas for employees of the centre will be developed to the northeast and south.
 A new government centre at the intersection of the Northern Bypass and Super Highway is proposed
 Renewal of Federal and Sindh Government Secretariat Blocks is proposed
 Renewal and up-gradation of government servant quarters at specified location
 Land for special projects to be undertaken by the private sector or for publics uses such as hospitals, educational
institutions transport infrastructure for BRT / Mass Transit or municipal
Offices up gradation undertaken on case by case basis
 The plan proposed three more location / zones for industrial development at specified location. To realize the early
development of these industrial zones the requisite infrastructure is also proposed.
 The plan proposed to allocate an additional site for an International Airport for future use.
 An urban corridor with a length of 38 Km is planned for special purposes along the Northern Bypass. The proposed
land use include housing, commercial, institutional and public uses.
 The plan proposed 9000 acres for Education City.
 The plan identified three major sites for graveyards
 The plan propose new sites for landfill sites
 The plan propose that CDGK will develop an action program to address the housing backlog in the plan period at
guiding principles given in the plan
 The propose that the demand of low-income groups would be met through high ratio (75 percent) of small plots in all
housing schemes
 The plan proposed that about 100,000 new housing units will be required annually. Etc
Lahore  Prepared by NESPAK (2004) a local firm
 The plan was formally approved by the City District Government Lahore Nazim in 2004
Integrated Master
 The plan includes aggressive programs of densification and infill development with the objective to channelize the
Plan for Lahore-2021
growth from south to southwest of the LMA
 Detailed land use survey is conducted
 Proposed to establish 10,000 hectares of industrial zones in the southwest of the LMA at Chunnian
 A total demand of 1,265,183 housing units is estimated until 2021, which includes existing shortage of 199,204 units
 The IMPL did not proposed a standard plot sizes for housing (particularly the poor) in the city
 The do not identify the potential sites for the new housing needs
 The IMPL also does not provide sufficient and realistic land projections for commercial activities
 The plan focused on industrial establishment and is not adequately covering the present and future commercial and
trade boost
 The plan does not considering the land requirements for institutional and educational activities
 Development of the city has been restricted on the north side
 Lake city has also been proposed to the north of Lahore
 The plan strictly oppose the conservation of nonconforming uses particularly commercialization of residential areas.
 Trade centre measuring about 14000 kanal is proposed to be developed in Johar Town.
 Proposed 2-business districts on the south of Hudiara Drain of 4800 kanal each
 Proposed 140 roads in various towns proposed for commercialization
 Proposed 19 roads for industrial use
 Proposed 18 for commercial/industrial use in Iqbal, Nishter and Ravi towns.
 2-5% area allocated for commercial use in the public and private approved housing schemes. Etc
Faisalabad  Prepared by Indus Consultants a local firm
 The plan was not approved from the competent authority
Faisalabad
 The period of implementation was 15 year
Structure Plan-
 Land use survey was conducted
1986-2000
 A zoning plan for the city is described in the Structure Plan
 The proposed areas of various uses in future were also forecasted in the plan
 The plan recommended infill development in the existing built up areas in order to attain a form of compact
development
88
 the plan forecasts the provision of 13000 houses for meeting the existing shortage
 One shop for 50 persons.
 The plan allowed ‘linear development’ along the major roads
 The plan propose that the city should expand on the radial form on the neighborhood pattern
 The SP aimed at the development of secondary and tertiary centers beyond the inner metropolitan area to reduce the
pressure on CBD
 The plan considered that the FDA established new markets/commercial areas in different parts of the city to be enough
for future growth of population
 The plan proposed two ring roads and a green belt with a width of 2 miles at the periphery of the external ring road
was recommended all around the city
 The plan does not provide any focused provisions related to the promotion of industries.
Rawalpindi  The plan was prepared for a period of 20 years
The plan was approved by the Government of Punjab, Department of Local Government and Rural Development in
Rawalpindi Master
1998
Plan (1996-2016)
 Four zones have been proposed for residential, commercial, Cantonment and future development
 It provided broad guidelines for a systematic and planned growth of the city
 Extensive land use study has been made
 The proposals are based on both the primary and secondary data
 Identification of planning needs are not reliable due to unrealistic population projections
 Total dwelling units identified to meet the housing demand of present population, existing shortage and dilapidated
units are 74,252
 No redevelopment proposals exists for dilapidated areas
 No low income housing proposals exists
 RDA has not accepted the road network strategy proposed by the plan
 The plan did not cover establishment of the commercial activities within the city
 The plan proposed a green belt around the city to ensure environmental safety
 The proposed to integrate the road network with capital city Islamabad, and two by-passes and a ring road is proposed
 The plan did not envisage a commercialization trend
Multan  The plan is approved by the Technical Committee (Members Parliaments from Multan, Mayor of the MC, DG of
MDA, senior government officials, technocrats and heads of government departments/agencies) approved the master
Multan Master Plan
plan in October, 1987
(1987-2007)  Prepared by Master Planning Cell without any involvement of consultants
 Estimates for future land uses have been made
The plan envisaged an improvement to urban economy with the proposed expansion and strengthening of industrial
and commercial centers
 It suggests the establishment of small scale industrial units rather than large units.
 An Industrial Estate of over 2500 acres was proposed to be developed for medium and heavy industrial purpose.
 The area along both sides of Bahawalpur Road was earmarked for light to medium scale industry.
 The area lying in the surroundings of Pak Arab Fertilizer Factory was recommended to be developed for light
industrial use.
 Housing need for the plan period is calculated as 406539 units.
 The plan recommended that 1225 houses will be provided each year
 It is recommended that the projected houses would be met through strategies such as: strict enforcement of town
planning layouts, installation of sewerage system and full-scale mass production of low cost housing to meet this
demand
 A strategy of rehabilitation of the existing stock is suggested but no financial strategy is developed for it
 It is proposed to provide maximum infrastructure and services in new areas and partial services in major areas of
intensification throughout the city and its immediate vicinity
 A Detailed zoning exercise is carried out in the preparation of the Master Plan of Multan
 A detailed exercise to delineate permitted uses, permissible uses and prohibited uses for the purposes of their
permission in each zone is mentioned in the MP.
 Most of the proposals and projects of the master plan have been implemented
Gujranwala  Provide development guidelines for the growth of city
Gujranwala Outline
 Both the primary and secondary sources of data have been used
Development Plan
 Data pertaining to land use distribution, industrial establishments, and a hierarchy of commercial centers,
(1986-2010)
transportation and traffic flows, educational institutions, health, open spaces and public utilities has been compiled
through extensive primary surveys
 The element of environmental planning, finance management and implementation strategies are completely missing
 The plan has no phasing for the implementation of the plan proposals
 The minimum and maximum sizes of plots have been proposed to be restricted to 3 ½ Marla and 1 kanal respectively.
 The proposed demand of land for various land uses in the ODP is 23993 acres till the year 2010.
 New sites were proposed on an area of 1214 acres at different locations for industrial establishment
 The sites earmarked for industrial establishment have been occupied by other uses
 The proposed strategy for commercial establishment is based on one shop for 100 persons
 The growth of the city has been taking place in the direction which is not indicated in the ODP
Peshawar See Chapter 5 and 6 for detail contents of the plan
Source: Go Punjab, 2008, GoS, 2006
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4.9- Conclusion
Review of the national urban management initiatives illustrates that planned development has been
greatly realized in Pakistan since its inception, but never been practiced. Although the government
managed to consecutively prepare and adopt the national five year plans, some of these plans laid
high emphasis on achieving planned urban growth. Yet it failed to generate any action at the local
level and these plans were shelved due to change in regime. Assessment of these plans reflects that
actually five year plans were a haste grouping of policy measures without further insurance for
implementation at the provincial level.
This apathy persists in various other policy documents such as Management of Cities Policy and
PNCS, which highlighted core problems of haphazard development. Different initiatives regarding
planned growth at urban and regional level were suggested but they were never put into reality. In
short, the efforts to improve the chaotic condition and muddled form of cities remained one of the
constant priorities of every government but none of the proposed strategies happened in reality.
One of the impediments is that unlike other countries specifically illustrated in chapter-3, physical
planning is not incorporated in the federal legislation concurrent list in Pakistan. Therefore, there
exists no unanimous Town Planning Act at the national level to provide a uniform strategy for the
physical growth of cities. However, provinces have been empowered to draft their separate
legislation to address the issue of physical planning. In this scenario, various organizations (both
National and Provincial level) are striving for the planned physical development in cities. In actual
these fragmented stakeholders with multiplicity of institutional mandates and legal provision along
with an indifferent framework indicate an inefficient system.
In this regard, the Management of Cities Policy 1987 declared that: revision of law; Re-orientation
of rules; more use of by laws; coordination among agencies are utmost important to avoid further
failure. The policy recommended that in the sphere of financial management plan oriented budget
is to be ensured in city districts so that plan led approach may flourish within the country but no
one took it serious. Therefore, the continuous failure of various types of plans clearly indicates that
without removing the system lacunas, plan can not prove to be successful by itself. It is, therefore,
necessary to treat institutional mandates in order to enable planners to avoid further chaos in major
cities.
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Chapter 5
SPATIAL GROWTH MANAGEMENT IN PESHAWAR
5.1- Introduction
This chapter explains the urban form and various spatial growth management attempts in Peshawar
city. The second section explains the physical form of the city, its population growth and the
resultant spatial growth. This section is followed by the assessment of various institutions
responsible for spatial growth management in the city, such as: Peshawar Development Authority,
Local Government Institutions and the Cantonment Board Peshawar. Forth section analyses
various planning instruments for guiding and controlling spatial growth i.e. the Master Plan for
Peshawar, The Structure Plan and the Urban Planning and Development Management System for
Peshawar. The final section presents a conclusion drawn on the basis of the analyses done in this
chapter.
5.2- Peshawar City
Peshawar, the capital city of Khyber Pakhtunkhwa province, is one of the historical cities in
Pakistan. It is situated near Afghan border and has always held a very important place in history;
needless to say that it has had a most eventful career (Jaffar, 2008). Its development evolved
through different periods: that is the famous walled city, the Cantonment, the university area,
emergence of slum areas and planned township of Hayatabad, rest of the city is the amalgamation
of different villages in its suburb.
The famous walled city is having its own characteristics such as surrounded by substantial wall
about 20 feet high and 2 feet thick, interspersed with 16 gates, closely spaced wooden frame tall
structures with zigzag and narrow streets (Dani, 1969; Jaffar, 2008). In 1848-49 the colonial
government established a planned community called Cantonment covering an area of five square
miles (Jaffar, 2008). The railway line divides the old city from the cantonment. It is planned on
grid pattern with wide streets arranged houses and trees planted in line.
In the north of the Cantonment, a plain area laid outside the village of Tahkhal has developed an
important education center. The nucleus was the glorious Islamia Collegiate School that started in
1913, followed by Islamia College in 1914. After independence the University of Peshawar came
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into existence in 1957. The other institutions, PCSIR Laboratories, the PFI, academy and other
research laboratories were established in the surrounding areas. In 1953, an idea was floated to
develop a residential area for the upper class of the society. This led to the buildings of another
planned housing scheme called as University Town. This development marked the gradual shift in
the spatial expansion from the East to the West and further to northwest. This trend was further
induced by the establishment of a new town of Hayatabad, founded at the verge of tribal area
further extended city life to the very foot of Khyber hills. This led the dawn of prosperity in the
surrounding areas. Land values suddenly boomed up and unplanned residential colonies emerged
in close vicinity to this township. Plot speculators have grabbed the planned town and enhanced
the demand to establish another township for different groups of employees of government and
semi government departments. Thus another planned township of about 4-5 thousand acres area
with the name of Regi Lalma started by the public sector in the same direction. Meanwhile,
following the development trend other departmental schemes, particularly Police Colony and
Askary Housing Schemes were also developed in this direction. This process caused the
amalgamation of many rural villages in between these settlements into the city fabric.
5.2.1- Population growth
Peshawar city is ranked eight in city size distribution in Pakistan (Zaman and Ara, 2002). Its
population was increased at the rate of 4.69%, during the inter census period of 1972-81 this was
higher than the average growth rate of 4.38% for Pakistan and 3.89% for the province. The growth
rate of the city between 1981 and 1998 census was 3.3%, this too was much higher than the growth
rate in Pakistan (2.61%) in general and the province (2.75%) in particular (GoP, 1999).
Being a single metropolitan city in the province and the provincial capital, the city enjoyed
preferential policy programs (especially for mega projects) from the central and provincial
government. Therefore with the concentration of resources and more investment in industrial and
commercial sectors the urbanization is expected to increase more rapidly in future. According to
1998 census, its population was recorded 983 thousand; amongst it migration contributed 26
percent of the total population increase in Peshawar city (GoP, 1998). However, the ground reality
of Peshawar city is greatly varied from the census report as 5 lacs Afghan refugees living in the
city were not included in census figure, and it only reflects registered Afghan with UNHCR, while
majority of refugees are living without registration due to fear of forced eviction (UNHCR;
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NADRA, 2007). Whereas, besides Afghan refugees the recent tendency of in-migration towards
Peshawar being unprecedented due to militancy and unrest in the north and south of the province
and in the tribal belt. Therefore, Afghan refugees and herds of internally displaced persons had
increased the city growth rate manifold and clandestinely influenced the housing supply of the
government and private sector. The projected population for 2010, area and density pattern of
various towns and PCB in the city as given in the structure plan 2020 are presented in table 5.1.
Table-5.1: Population density in various administrative units

of CDG Peshawar (Projected for 2010)
Population Density Town I Town II Town III Town IV PCB
Population 750144 843257 702114 683758 76270
Area in Sq. Km. 21.83 437.51 193.94 515.8 14
Persons per Sq. Km. 34363 1927 3620 1326 5447.86

Source: Structure Plan, 2020
Town 1 and PCB comprised the city union councils, while town II, town III and town IV are
having 2 urban out of total 25 UCs, 15 urban out of total 21 UCs and 2 urban out of total 21 UCs
respectively.
5.2.2- Spatial growth
Spatial growth of Peshawar city has also been extremely rapid particularly during 1970s. In 1947,
total area of Peshawar municipality was 20 km2 only. This area multiplied to 111 km2 through five
consecutive boundary extensions. The first two of these (1954 and 1964) were rather limited in extent
and added total area of only 2.5 km2 within the municipal limit. The third and fourth were the two
major extensions (1972 and 1978). Together they resulted in the expansion of municipal area to 103
km2. The later expansion was accompanied by a change in the status of Peshawar Municipality to
Municipal Corporation (MC). Another change in the boundary of the MC took place in 1981, when
an area of 8 km2 in the southeast of the city was annexed to increase the total corporate area to 111
km2 as mentioned in table-5.2.
93
Table-5.2 Boundary extension of Peshawar Municipal Corporation
Period of Spatial Expansion in the City Boundary

The City
1947 1954-64 1972-78 1981 1990 2001
Area in
Square Km
20 22.5 103 111 245 1257*
3.4
Population 150,000 212,800 272,697 566,248 982,816
Million
Source: PDA Record and DCRs
* City District area
The fast growth of population together with rapid increase in the built-up area created further
extension to the city boundary and it reached 245 km2 at the end of the century. On average it resulted
in an annual increase of 5.2 Km2 per year since 1947, towards the built-up areas of the city. The most
recent change occurred as a result of direct consequence of the Local Government Ordinance 2001,
which did away with the rural and urban divide. With the introduction of the new LG system, the
geographic boundaries of Peshawar under the former MC were redefined to include the entire district
under the new Peshawar City District Government. Thus from a Geographical area of 245 km2, its
jurisdiction increased to 1257 km2 (a fivefold increase). Figure 5.1 exhibits historical expansion of the
city and its environs in different periods.
Fig. 5.1 Expansion of Peshawar city in different periods
94
Source: Digitized and trace by SamiUllah from SPOT Image and Archives maps of Peshawar edited by Niaz PhD Scholar
Rapid increase in population and area amalgamation towards the city started deterioration in the city
environment. In order to overcome numerous problems and to guide future growth the government
promulgated a Town Planning Act in 1975 and a subsequent Urban Planning Ordinance in 1978.
These legislations established a formal boundary for Peshawar in order to exercise planning control
through a development authority.
5.3- Institutions Responsible for Spatial Growth Management
The British inherited institutions, such as Municipality, Cantonment and Improvement Trust
continued to manage spatial growth of Peshawar city until mid 1970s. Thereafter, in order to
establish a system of urban planning for the province and to provide for effective vertical and
horizontal integration of physical planning with the economic and social planning at all
governmental levels NWFP Urban Planning Ordinance 1978 was promulgated. The government
established the Provincial Urban Development Board (PUDB). The functions of the Board related
to spatial planning include; a) to effectively integrate provincial urban development planning by
federal, regional and local planning agencies, b) to consider special aspects or implications of
economic and social planning, c) to formulate and amend long term, medium term, and short term
policies for development of urban areas, d) to secure compliance with urban development policies,
95
urban development plans and land development regulations, e) to ensure that urban public
development activities are adequately co-ordinated or conducted in accordance with accepted
planning practices and procedures, f) to approve development plans, g) to review activities
undertaken or to be undertaken by government agencies in carrying out development plans and h)
to define the boundaries of local areas (GoNWFP, 1978).
In the light of powers vested in the PUDB, a local area authority was formed to replace
Improvement Trust in Peshawar city. Simultaneously, the status of Municipal Committee was
upgraded to Peshawar Municipal Corporation (PMC). However, the Local Government Ordinance
(LGO) 2001 established a three tier system: City District Government, Town Municipal
Administration and Union Councils to carry out local development mandate in their jurisdictions
(GoNWFP, 2005). Detailed responsibilities of these organizations and their institutional strength
are explained henceforth.
5.3.1- Peshawar Development Authority
As explained above, the PUDB is empowered to establish Local Area Authority for local area
planning and implement provincial urban policies of sufficient importance at local level.
Accordingly, the Peshawar Development Authority (PDA) was established in the light of NWFP
Urban Planning Ordinance 1978 in order to control land use and to guide urban development
(GoNWFP, 1978). Initially PDA was to perform the following functions such as “the location,
distribution, rehabilitation and development of public and private housing; development,
improvement or provision of public facilities, and services such as transportation and traffic
circulation system or their components; industrial, public utility, educational, health, sanitation,
community and recreational facilities, and other environmental facilities and services” (GoNWFP,
1978). According to this Ordinance, PDA is to prepare development plans and undertake major
development within the city; to preserve and protect open spaces and historical or archaeological
sites; the designation, improvement, clearance, re-development or renewal of blighted areas,
improving in-sanitary or otherwise deteriorated area and the relocation and rehabilitation of their
residents; as well as the location and development of new or expanded urban areas. This was a
violation of the Local Government Act (1979), which empowered Municipalities with the same
mandates in section 76 (a, b and c). As a result, conflicts developed among these organizations.
96
PDA prepared a Structure Plan (1986-2001) for the future development of the city. Besides many
proposals, the plan proposed that the existing Directorate of Planning and Development is required
to be capacitated in order to implement the plan effectively. Moreover, it also proposed the
creation of Directorate of Urban Planning within the PDA, which was to be consisted of four
Deputy Directors for development control, building control, structure and local planning and
transport planning. The hierarchy of Deputy Director, Structure and Local Planning, was further
supported with four Assistant Directors to monitor the plan implementation effectively and to
execute its review. The Structure Plan proposed organization for PDA was necessary to strengthen
the capacity of the institution in order to prepare local plans as suggested by the structure plan.
Presently, PDA has 13 directorates, each one is equipped with a full complements of Deputy and
Assistant Directors (see Fig-5.2). Eight out of the thirteen directorates are specifically concerned
with engineering. The remaining five directorates include; Directorate of Administration,
Directorate of Budget and Audit, Directorate of Planning and Development, Directorate of Estate
Management and Directorate of Building Control. It is worthwhile to be noticed that one of the
main functions of this organization is to practice town planning but interviews with town planning
officials reveal that the Directorate of Planning and Development is not dynamic and functional as
presently it has not been carrying out any work. This is because of the fact that the development
plan has been abandoned due to jurisdictional conflicts of PDA with City District Government
Peshawar. Therefore, PDA with present organizational structure has no function in city
development except exaction of development works in the newly developed housing schemes such
as Regi Lalma and Hayatabad.
Fig-5.2 Organizational structure of the Peshawar Development Authority
Director General
Secretary
Directorate Directorate Directorate Directorate Directorate Directorate Directorate Directorate Directorate Directorate Directorate Directorate Directorate
of of of of of Engg. of Engg. of Engg. of Engg. of Engg. of Engg. of Engg. of BC of
Admin. B&A P&D E.G. 1 2 3 4 5 6 7
E.M
Director Director Director Director Director Director Director Director Director Director Director Director Director
1 DD 3 DDs 2 DDs 1 DDs 2 DDs 4 DDs 2 DDs 4 DDs 2 DDs 2 DDs 2 DDs 1 DDs 1 DDs
5 Ads 4 ADs 1 ADs 6 ADs 4 ADs 4 ADs 4 ADs 4 ADs 2Ads 4 ADs 4 ADs 3 ADs 4 Ads
Support Support Support Support Support Support Support Support Support Support Support Support Support
Staff Staff Staff Staff Staff Staff Staff Staff Staff Staff Staff Staff Staff
Source: PDA, 2011
Admin = Administration, B&A= Budget and Audit, P&D = Planning and Development, E.G. = Engineering General, Engg. = Engineering, BC
= Building Control, E.M = Estate Management, DD = Deputy Director, ADs = Assistant Directors
97
The Structure Plan proposal for a well capacitated institution was not honored and no significant
improvement was made in the organizational structure to effectively carry out town planning
functions. The existing strength of professionals working in different directorates of PDA is
presented in table-5.3. It clearly reflects that only eight town planners in different capacities are
working in both the directorates (i.e. Directorate of Building Control and Directorate of Planning
and Development) in order to carry planning, development and building control functions.
Table-5.3 Detail of professionals working in PDA

Deputy Assistant
Category Directors Total
Directors Directors
Town Planners 2 2 4 8
Architects 0 1 3 4
Civil Engineers 10 21 25 56
Finance Managers 1 3 8 12
Miscellaneous - - 9 9
Total 13 27 49 89
Source: PDA, 2011
This lack of capacity of the Directorate of planning and development was cited as one of the main
limitation in the implementation of Structure Plan in letter and spirit. Looking to professional
deficiency, the third attempt of Urban Planning and Development Management System for
Peshawar Structure Plan 2020 seems to meet with the same fate of failure. It appears that a lack of
legal and institutional framework along with inadequate professional strength spoiled government
efforts to discourage haphazard urban growth. Unfortunately, the aspect of capacity development
was neglected. Therefore, lack of professionals brought the plan to an end without any
implementation.
5.3.2- City District Government Peshawar

Prior to the promulgation of LGO 2001, the MC was responsible for the development and
provision of municipal functions within its jurisdiction. Due to lack of town planning staff the
function of building control for the entire city was entrusted to the building control agency, a
subsidiary of PDA. However, all the powers and functions assigned to the PDA and MC were
transferred to the newly created the City District Government (CDG) Peshawar. The CDG is
98
divided into four different jurisdictional areas which are called Towns. These towns are governed
by Town Municipal Administrations (TMAs). The jurisdiction of TMAs is presented on Map-5.1
and the administrative setup of the TMAs as given in section 53 sub-sections 3 of NWFP LGO
2001 is exhibited in Figure-5.3. The town administrations are supported by 92 Union Councils
(UCs) in the development planning perspectives.
Fig-5.3 Administrative setup for TMAs as given in LGO 2001
Town Municipal Officer

(TMO)
Town Officer Regulations Town Officer Town Officer Planning Town Officer Finance
(TOR) Infrastructure and Services (TOP) (TOF)
(TOI&S)
Source: Go NWFP, 2005
99
NWFP2 LGO 2001 assigned TMAs all town planning related functions of the PDA and the MC
without enhancing their capacity, mainly because the PDA remained intact with the same cadre as
a separate entity. This situation can be illustrated with the fact that the responsibilities of spatial
planning, land use control, building control and coordination of development plans and projects
within TMAs rest with the Town Officer Planning (TOP). The professional capacity of BCA
works under TOP is deficient which is given in table 5.4.
Table 5.4 Professional capacity of BCA within TMAs Peshawar
Category Town 1 Town 2 Town 3 Town 4 Total
Jurisdiction area in acres 6212.2 105592.0 43490.0 152215.3 307509.5
Town Planner/ Architect 0 0 0 0 0
TOP (Civil Engg.) 1 1 1 1 4
ATOP (Diploma in Civil Engg) 1 1 1 1 4
Draftsman 1 1 1 0 3
Building Inspector 2 1 1 1 5
Assist. Build. Inspector 7 4 6 4 21

Source: Resource files of TMAs, 2010
Looking to the professional capacities of all four TMAs in Peshawar CDG and the functions which
are entrusted to them to carry out physical planning, land use control, building control and
coordination of development plans and projects without the services of a qualified town planners
or architects seem meaningless. All these professional functions are supposed to be carried out
through junior staff. Although their number is insufficient to carry the task, they are supposed to
perform. The number of Building Inspectors (BI) and Assistant Building Inspectors (ABI) are
insufficient to cover the entirety of all TMAs areas. One ABI in town 4 inspects 38054 acres and
has no logistic support, not even a bicycle. No draftsman is available to work out the details of a
plan even if submitted for approval to the Building Control Agency (BCA). In addition to their
insufficient number, staff members are rarely qualified for their job. BIs and ABIs rarely have
basic knowledge of the maps and plans, which are supposed to be checked by them for violation
during construction. They understand that their job is to check that construction plans have been
2
Old name of Khyber Pakhtunkhwa province of Pakistan.
100
approved by the BCA. As a result developers obtain approval for one map of a building and then
construct another plan. Field survey carried out for this research indicates that due to such
practices; nearly 80 percent of buildings are constructed in violation of the approved plans. The
survey statistics reflect the weakness of governance procedures and institutional capacity in
TMAs.
The lack of Town Planners and Architects is unprofessional. Interviews of the BCA staff members
reveal that they are improperly acquainted with PUDB building regulations and LGO building and
land use control. The collected record of BCA in all TMAs shows that the process of development
control and building plan approval is dealt with an ad hoc and unprofessional manner (See chapter
6 sub section 6.2.1 for more detail). None of the building approval committee members are
acquainted with physical planning and management techniques. The lack of qualified town
planners has made development cumbersome and impossible to control. No spatial planning, land
use control, building control and coordination of development plans and projects have been so far
made by these organizations.
Therefore, once again the political government showed dissatisfaction over the local government
system and dissolved all the local bodies in Khyber Pakhtunkhwa on February 20, 2010 as well as
in the other provinces of the country. It was expressed through notification that, “In the light of the
legal provisions contained in section-179 (B) of the NWFP Local Government Ordinance-2001
amended vide NWFP Local Government (Amendment) Act-2010, the NWFP government
dissolved all District Councils, Tehsil Councils, Town Councils and Union Councils in all districts
of the province with immediate effect. Consequently all the Nazims 3, Naib Nazims4, and members
of the councils in the province cease to hold their respective offices”. Hence once again the
country is being run without this important tier of government body.
5.3.3- Peshawar Cantonment Board
Cantonments Boards (CBs) are the British inherited institutions and were established exclusively
to serve the British military establishments in particular areas within certain cities. After
independence, however, they continued to function in the same manner for the armed forces of the
country. There exists a Cantonment in Peshawar and it spreads over 13.64 sq.km area. It
3
The elected local government person in command
4
Second in command
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accommodates about 79000 civilians besides military personnel. The PCB is comprised of 15
members to run the Cantonment management. Amongst these members seven are elected from
civilian residents and seven are selected from the military personnel. Under the secretariat of the
Federal Defense Ministry, Cantonment is governed through the following organizational structure
shown in Fig-5.4.
Fig-5.4 Cantonment organizational structure

Secretary Defense
Federal
DG ML&C
Federal
Director ML&C
Provincial
CEO
Addl. CEO
Asst. Secretary
Admin Revenue Engineering Sanitation Gardening Lands

71(Staff) 45 (Staff) 42 (Staff) 263(Staff) 296 (Staff) 15 (Staff)
Source: PCB, 2010
The engineering section carries out development works according to the Cantonment Development
Plan. Therefore the Cantonment runs all affairs through its respective plan and bye-laws framed
through the Cantonment Act 1924. The Cantonment Plan only addresses the issues pertaining to its
own area without having a broader perspective of the city.
Another important aspect of an organizational strength is its professional capacity in order to co-
ordinate and communicates within and outside the organization. Conversely, the institutional
coordination of the Peshawar Cantonment Board (PCB) in city is more centrally controlled and has
no link with line departments carrying out development in the city. The professional strength of
PCB is more focused on subordinate staff, and is working without the services of professional
town planners and architects (see table-5.5). The engineering staff is specifically employed to
carry out development works i.e. water supply schemes, roads and building construction etc.
Moreover, the PCB has its own building byelaws and it controls land use, erection and re-erection
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of buildings within its jurisdiction. There is no town planner or architect working in the PCB. The
posting of town planners in CBs is centrally done through Military Engineering Services. In the
past, a town planner was working for PCB but in 2010 the post of town planner was lying vacant.
Table 5.5 Professional strength of Peshawar Cantonment Board
Category Qualification Strength
Town Planner City and Regional Planning 0
Architect Architecture 0
Cantonment Chief Engineer Civil Engineering 1
Assistant Cantonment Engineer Diploma in Civil Engineering. 2
Assistant Cantonment Engineer Diploma in Electrical Engineering. 2
Assistant Cantonment Engineer Diploma in Mechanical Engineering. 2

Source: PCB, 2010
5.4- Instruments for Guiding and Controlling Spatial Growth
Prior to 1960s, there was no formal development plan prepared for any city in Pakistan. However,
in light of the national five years plan policies, the progress in local level planning, legal and
institutional framework was made to prepare and implement the development plans for large cities
of Pakistan including Peshawar. In this regard, preparation of Master Plan of Peshawar city came
into existence in 1965 as envisaged by the 2nd five year plan as discussed in chapter-4. The reasons
for selection of Peshawar city in the first batch of four cities for which master plans prepared was
its status as provincial headquarter and administrative city of the province. Thereafter three
consecutive efforts were made to guide and control the spatial growth of the city. These include;
Structure Plan for Peshawar 2001, Urban Planning Development Management Structure Plan
(UPDMSP) 2020. All the planning instruments used to manage the development of Peshawar city
are explained in the proceeding sections. Table 5.6 highlights a summary of the profile of the
instruments introduced in Peshawar.
5.4.1- Master Plan 1985
Master Plan for the Peshawar city was prepared in 1965 for a period of 20 years in the light of
directive of 2nd five year plan (see 4.2.2). Initially, neither the Municipal Committee nor any other
local body in Peshawar was equipped to undertake this assignment. Moreover, the Directorate of
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Town Planning in Peshawar was functioning without a director and was lacking the capacity to
undertake such a technical task. Therefore, a master plan committee was constituted under the
chairmanship of the Divisional Commissioner to supervise the collection of preliminary data
required for the preparation of master plan of the city. The socio-economic and other data was
collected by using the services of various departments of University of Peshawar and personnel
hired on deputation basis from different line departments. Since there was lack of capacity of the
institutions in Peshawar to formulate an urban development plan, therefore, the task of master plan
preparation was entrusted to the physical planning cell in the Town Planning Directorate at Lahore
in Punjab province. The Master Plan team from Punjab had an initial meeting with the members of
the committee who administered the collection of data. The entire data was shifted to Lahore and
the plan was prepared accordingly. The same team was involved in the process of plan preparation
for the city of Lahore. Thus the planning standards adopted for Lahore Master Plan were used as
the basis for Peshawar Master Plan too. The plan document prepared consists of a well organized
report accompanied by a map prepared on a small scale. It was submitted to the Divisional
Commissioner who passed it on to the Municipal Committee. It was not presented to any forum
for its approval. The institutional memories suggest that the plan was never disseminated to the
line departments involved in the development of the city.
The Master Plan covered an area of about 23 Sq Km (including 32 villages) which was being
controlled by the then Municipal Committee. The total population of the city was around 0.21
million. Although the Master Plan was not prepared with specified goals and objectives, but
generally it reflected a planned approach with all basic principles of modern town planning. As
such, the basis of the Master Plan proposals and recommendations were not found to be unsound
to a greater extent. Most of the emphasis was given to guide and channelize development in the
city region. The provision of infrastructure and other major facilities was proposed for the existing
city. The Master Plan did not recommend any radical and revolutionary redevelopment projects.
A strategy for future growth (provision of housing and related facilities) of the city was developed
in hierarchical order. For this purpose, the plan proposed 13 planning units to be developed in
different phases (see Fig-5.5). The planning units were to be developed in zones according to the
planning principles of hierarchy of self contained communities. Each community would have
public amenities according to its level in the hierarchy. This approach could lead Peshawar city
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expansion into an arena of compact development against the existing laissez faire development
pattern.
Fig-5.5 Proposed planning units for the Master Plan period
Source: GoNWFP, 1965
The stipulated time period for the Master Plan ended in 1985 with very little progress toward its
implementation. The interviews with government officials, the institutional memories and personal
observation of the researcher reveal that most of the proposals of the Master Plan were not
materialized. The main reasons attributed to this end reported as a lack of professional capacity
and funds allocation for the accomplishment of the proposals regarding development in
hierarchical order in the city. The boundary of the MP and its deviations are shown on map 5.2
while the major achievements of the MP are presented in chapter-6.
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Map 5.2 Map showing built up areas and Master Plan boundary
5.4.2- Structure Plan 2001
One of the functions of the PUDB through local area authority is to prepare urban development
plans. Therefore, the PUDB with the financial assistance of UNCHS and UNDP took the initiative
of the Structure Plan of the Peshawar after the lapse of the MP in 1986. The Directorate of Town
Planning (presently known as Directorate of Planning and Development) of PDA hired the
services of consortium of foreign and local consultants (Gilmore Hankey Kirke in partnership with
106
Roger Tym and partners Abdullah Jan). The consultants were housed in the office of PDA and
collected the requisite data from the relevant departments. The proposals of the plan are primarily
based on secondary data. However, primary data was used where it was considered highly
desirable. The plan systematically considered all dimension for population projection, economy
and employment, housing demand, utility infrastructure, transport and land potentiality for future
urban growth. The consultants prepared a comprehensive plan for accomplishment of
redevelopment/ regeneration and future growth in a planned manner. In order to achieve balance
growth the following objectives were considered by the consultants.
1- The development and initial application of basic mechanisms for guiding the physical
growth of the city and facilitating its management.
2- The initiation of the process including major policies and procedure for upgrading the
infrastructure and facilitation of management of the old city.
3- The initiation of the process for improving living conditions of the poorest segments of
the urban population by:
i- Preparing detailed action programs in priority areas for future capital investment
projects; and
ii- Strengthening the city capacity to cope with continuing urban development.
The SP presents two strategies focused on (i) land costs versus accessibility to employment and
(ii) the opportunity to improve existing under service areas with integrated new development
versus the opportunity to create new and well planned, balance and self funding communities on
open land. The SP proposes both these strategies for future expansion and recommends that during
first half of the plan period development should concentrate around the old city through infilling
by private sector. The development will be guided by the PDA through the provision of trunk
infrastructure to ensure that development may not occur in a haphazard manner. In this strategy the
areas for most urban expansion would be to the south of the walled city and the Cantonment with
some growth to the north of the GT Road. This should provide benefits to both the existing
residents as well as to the low income families requiring houses within short travel distance to
their work places. The plan recommends that during the second half development of areas should
be considered in south of University Town to form link with Hayatabad and to support the ring
road proposals. In the SP, the proposed organizational responsibilities of PDA and PMC have been
clearly demarcated to effectively manage city’s development consideration. PDA being a
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professional organization for implementing major projects has sufficient capacity to take over
major role and responsibilities from the province and PMC. Therefore the current organizational
management and responsibilities are considered in light of the future demand.
The whole exercise comprised of six reports with diagrammatic illustrations of different tasks.
Task one deals with the preliminary study/review of the existing legislation and development
practices; task two is about Dalazak area local plan and task three is about Kohat Road area local
plan; task four comprises a strategy for the old walled city; task five gives detailed methodologies
for the proposed construction of ring road and finally task six comprises structure plan program for
the future development of the city. The SP divides the city into six growth zones to be completed
in three phases (Fig-5.6).
Fig. 5.6 Proposed growth zones for Peshawar
The proposals of SP grouped in three phases are presented in figures 5.7, 5.8 & 5.9. Phase-1
identifies the pockets need to be developed on priority basis. The development in these pockets
encompasses house construction and the provision of infrastructure in a period of five years (1986-
90). The proposed development in phase-1 predominantly consists of infill development and
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contiguous peripheral development to a small extent. The areas included in phase -1 of the
Structure Plan are shown in figure 5.7.
Fig. 5.7: Proposed areas to be developed in Phase-I of the Structure Plan (1986-1990)

Fig. 5.8: Proposed areas to be developed in Phase-II of the Structure Plan (1991-1995)
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Fig. 5.9: Proposed areas to be developed in Phase-III of the Structure Plan (1996-2001)
The proposed areas to be developed in phase-II (1990-95) and phase-III (1996-2001) are shown in
figures 5.8 and 5.9. These two phases focus on the development of housing, infrastructure and
other facilities mostly in growth areas. It can be clearly seen that most of the proposed
development is directed in the southern direction of the city where vacant land is sufficiently
available. It is important to note that some proposals of the Structure Plan endorsed the proposals
given in the Master Plan 1965. For instance, the proposal regarding establishment of industrial
estate, expansion of area for the University of Peshawar and infill development. On the other hand,
the Structure Plan legitimates the status of some areas developed in violation of the Master Plan
1965. The development of Hayat Abad Township (an initiative of PDA) is proposed on a site
which was restricted for development due to security reasons. The major achievements of the
Structure Plan 1965 are presented in chapter-6, while the deviations from the plan boundary are
mentioned on map 5.3.
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Map 5.3 Map showing built up areas and structure plan boundary
5.4.3- Urban Planning and Development Management Structure Plan 2020
The Urban Planning and Development Management System for Peshawar UPDMSP were
prepared in 2002 for a period of 18 years (2002-2020). Settings of objectives are necessary to
reflect the validity of development plans and provide basis for exercise monitoring and evaluation.
However, the UPDMSP has no specific goal and objectives set in the report for the future
development of the city.
The promulgation of LGO 2001 eliminated the divide of urban and rural concept for the
perspective development of the district (see map 5.4). The UPDMSP planning and development
tactics neither perfectly curbed to be an Urban Development Plan nor could be considered as a
Regional Development Plan. Simultaneously it opted for the LGO 2001 liability to relinquish rural
urban divide and considered the whole district’s union councils population. It also considered
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social and physical infrastructure in its analysis, and focused only on Town-I and Town-III which
are largely urban in character for its structure plan proposals while leaving aside Town-II and
Town-IV which are predominantly of rural character. This divergence in opinion could not help
them to turn up an explicit plan for the concerned authority.
The plan proposes civic community centers along Ring Road, regional radial roads intersection
and identifies that land use planning and controlled development framework should take place
only in these selected areas. However, according to the LGO 2001 the real implementer of such
plan is the CDGP through its TMAs and Union Councils. The plan has been submitted to the PDA
considering that it is in the ambit of CDGP. As mentioned (in section 5.3.1) that PDA had no legal
power to guide development in Peshawar except Hayatabad Township, Regi Lalma housing
scheme and areas abutting to major roads only which are mainly commercial in nature. Housing
and infrastructure development for the rest of the city comes under TMAs’ function. LGO 2001,
section 54(a), delegates power to the local TMAs to prepare physical plans for Towns in
association with union councils, including plans for zoning and land use. The plans prepared in
such manner would be approved by the respective TMA.
The UPDMSP plan maintains that land-use planning determines density of use, may render land
unused because government and private owners or developers do not have enough funds to
provide infrastructure to the extent required to meet the planning criteria. The plan is of the view
that such prescriptive conditions, decrease the supply of land for immediate use, and add to the
inefficiencies of urban land (GoNWFP, 2002; 220). It advocates that less control on the
development of urban land has a positive effect, therefore, a minimum control should be exercised
in selected areas (particularly on land use along major road intersections), while the rest of the
development should be left to the market forces with limited control.
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Map 5.4 Map showing the city in context of district Peshawar
113
The following table (5.6) illustrates a brief summary of the three attempts being carried out for the
city of Peshawar. Facts in the description column are based on the review and interview with
government officials.
Table 5.6: Development plans used for spatial growth management in Peshawar city
Plan Description
Master Plan  MP prepared by a committee constituted under the Commissioner Peshawar
Division
 Validity period of MP was 1965-85
 Town Planning Directorate Peshawar and Directorate of Town Planning Lahore
as counterpart involved in plan making process
 Plan could not be understood by the officials as there were not qualified town
planners.
 Plan document was not disseminated to the line departments.
Structure Plan
 SP prepared by consortium of international and local Consultants
 Validity period of SP was 1986-2001
 Peshawar Development Authority as counterpart involved in plan making
process
 The new concept of development plan (i.e. Structure Plan) could not be
understood by the officials who were trained with the concept of Master Plan.
Urban Planning
 UPDMSP prepared by ECIL a Karachi based Consultant
and Development
Management  The validity period of the plan is 2002-2020
Structure Plan
 PDA as counterpart involved in plan making process
 The approach presented in the plan did not focus on Peshawar city rather it
covered the entire district
 The proposals of the plan have not been shown on a map
 Government officials do not recognize it as a development plan
Source: GoNWFP, 1965; GoNWFP, 1986; GoNWFP, 2002 and official interview, 2010.
5.5- Content Assessment of the Development Plans
Content assessment was carried out for the development plans formulated for the city of Peshawar.
This assessment is based on the review conducted by the researcher for all three plans. The review
of the documents of plans covers the parameters which have been extracted from the review of
literature on successfully implemented development plans in both developed and developing
countries. The parameters have been grouped as follows:
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 Preliminary considerations
 Sectoral coverage and analysis
 Implementation mechanism
The comparative analysis of the above mentioned aspects is explained in the proceeding sections.
5.5.1- Preliminary considerations
The important aspects such as setting up of a vision for the future of the city and setting of
objectives reflect the strength of plans. Moreover, development exercises require objectives that
provide foundation/guidance for various proposals and a firm basis for monitoring and evaluation
process. The review of documents shows that both vision and objectives are missing in the Master
Plan (MP) and UPDMSP. However, a clear cut vision and explicit objectives are given in the
Structure Plan (SP). Besides setting of goals and objectives, consideration of the national and
regional policies and review of the existing legal backing are other important aspects which should
have been taken into account in the plan making process. The MP and SP have reviewed the legal
aspects and national and regional policy framework whereas UPDMSP has ignored these
components. The involvement of stakeholders at various stages of plan has been considered a key
to the successful implementation of a development plan. However, consultation with line
departments and community was not given due regards in the planning process of MP and
UPDMSP. Problem identification and forecast are the main factors which determine the planning
approach for spatial expansion of a city. The review of three plans prepared for the city of
Peshawar shows that data has been exhaustively analyzed, projection are properly made and
planning approach have been defined to address the identified problems in the MP and SP. A
summary of the preliminary considerations is presented in table 5.7.
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Table-5.7: Status of parameters required for the preliminary consideration of the development plans
Development plans
Parameters Master Plan Structure Plan UPDMSP Structure Plan
1965-85 1986-2001 2002-2020
Vision No vision stated Clear cut vision given No vision stated
statement
Objectives No objectives given Explicit objectives given No objectives for
attainment of proposals
Review of No review as no relevant Partial review done for Partial review done for
previous documents are available targets of Master Plan 1965 targets of previous plans
documents but no causes ascertained for but no causes ascertained
its non implementation for its non implementation
Review of the No consideration given Urban Planning Ordinance No consideration given
existing legal 1978 not reviewed
aspects
Consideration Plan made in context of the Little assessments made No attempt made to link
of national national five year plans and plan policies with national
and regional policies policies
policies
Problem Problems clearly identified Problems clearly analyzed Weak identification of
identification and identified problems
and synthesis
Planning Hierarchical development pattern Mohallah or township with No specific approach
approach for of self contained communities for varying size of population adopted for spatial
spatial various levels (division, district, recommended as self expansion
expansion neighborhood and Mohallah) contained communities
Consultation Line departments consulted to Consultation made with line No consultation with line
with line some extent departments and their departments
departments proposals incorporated
Public No mechanism adopted to involve No public consultation in Consultation made with
involvement public plan making process selected people but not
with general public
Forecasting Forecasts based on primary and Forecasts based on primarily Forecasts made just for
secondary data. secondary data. traffic and transport data.
Source: GoPunjab, 2008; GoNWFP, 1965; GoNWFP, 1986 and GoNWFP, 2002.
5.5.2- Sector coverage and analysis
Adequacy of sectoral coverage and robust analysis enhances the comprehensiveness and
authenticity of a development plan. The content analysis made by the researcher highlights the
discrepancy in sectorial coverage and analysis. All the plans mainly relied upon the secondary
data; however, some primary data was collected for the MP. The existing situation of various
sectors including land use, housing, health, education, transportation, industry, commerce, open
spaces/parks and water supply and sewerage have been comprehensively analyzed in MP and SP,
whereas a muddled analysis has been done in UPDMSP. Forecasts of the data have been made and
necessary proposals regarding various sectors have been formulated.
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Unfortunately, the sectors which were not considered in the plan making process are given as
follows: redevelopment, informal trade, environmental consideration and disaster management. It
appears that these sectors had less significance until mid 1980s, therefore, the consultants had
overlooked. Nevertheless, these aspects should have been taken into account by the consultants
who prepared UPDMSP in 2002. During this period, there was awareness among the masses
regarding the significance of the above mentioned sectors. A summary of review of different
sectors coverage and analysis is presented in table 5.8.
Two of the development plans prepared for Peshawar have adopted structure plan approach which
requires the preparation of local plans. The review of SP and UPDMSP suggests that only two
local plans against 11 proposed local plans were prepared in the SP and no local plan was
recommended by the UPDMSP. The SP envisages that the remaining local plans would be
prepared by the PDA with its proposed new institutional framework. The fate of creation of
proposed institutional framework of PDA and the preparation of local plans is discussed in chapter
6.
The contents analysis shows that comprehensive proposals regarding land management have been
presented in the MP and SP. The proposals ensure that the city of Peshawar is to be developed in
compact manner. However, no proposal regarding land management is given for the required areas
for the provision of housing and other facilities in both the plans. The boundaries marked by the
MP and SP were not overlapping with the administrative boundary of the city. The proposals of
MP had been shown on a small scale map whereas the proposals of the SP are illustrated with
suitable diagrams.
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Table-5.8 Summary of sectorial coverage and analysis of development plans
Development plans
1965-85 1986-2001 2002-2020
Land use Land survey conducted and data Proposed land uses shown with Satellite image used for
analyzed diagrams identification of settlements
Proposed land use plan given on a and major land uses.
small scale map
Housing Housing forecast made for different  Housing forecast made for No recommendation
income groups different income groups regarding housing for
Area requirements worked out for  Phase wise requirements of different income groups
phase -I and phase-II plots of different size for
various income groups given
 Phase wise land requirements
worked out
 Housing policy regarding the
allocation of plots to various
income groups formulated
Open space  Analysis of existing open spaces made No strategy for provision of open No strategy for provision of
and parks  Shortfall of open spaces worked out spaces and parks open spaces and parks
 Earmarked areas for development of open
spaces and parks
Health  Existing situation of health facilities  Existing situation of health  Existing situation of health
analyzed facilities analyzed facilities analyzed
 Proposed an increase in number of  Proposed increase of hospital  Proposed category wise
beds in hospitals beds in existing and new number of health units,
 Proposed hospital in each planning facilities for plan period institutions in each town for
district and poly clinics for each  Phase wise provision of hospital two phases
neighborhood beds, filter clinics and maternity
and child health clinics
proposed
Education  Existing situation of educational facilities  Existing situation of educational  Existing situation of educational
analyzed facilities analyzed facilities analyzed
 Bases on population criteria primary  Phase wise number of educational  Proposed net required
schools both for boys and girls, high institutions in each category educational institutions in each
schools and colleges proposed proposed category in town one and two
only
Industry  Existing situation of industries analyzed  Existing situation of industries  Neither analysed nor proposed
 Proposed extension to existing small analyzed any industrial need
industrial estate for relocation of existing  Retained MP proposal for industrial
industries in residential areas estate in eastern side of city
 A heavy industrial estate recommended in  Two complementary training
north eastern side in later stage of plan schemes suggested, through private
period. sector involvement.
Conservation &  No proposal given regarding this aspect  Redevelopment of walled city proposed  No proposal given regarding this
revitalization and conservation of historical sites aspect
Land  Proposed hierarchical and compact  Proposed compact development pattern  No proposal exists for land
management development pattern for new extension for infilling and new extension. management.
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Transportation  Proposed separate cycle track for all  Proposed a detailed traffic  Proposed widening of roads and
major roads and a network of roads management schemes including elimination of encroachments
including circumferential road and link curb and off street parking lots,  Improvement of road geometry of
road major corridor improvement, multi legged intersections.
 Channelization of Warsak Road
 Proposed signaling and lane marking for pedestrians & cyclists walkways
Junction
sub arterial roads and construction of sub arterial  Construction of northern bypass
 Proposed shifting of private bus stands to roads & access roads road and its connection with motor
circumferential road.  Proposed capacity development way etc.
 Proposed goods transport terminal close through technical assistance and
to small industrial estate Kohat Road training
 Proposed off street parking lots at various  Proposed new terminals for bus,
places goods transport
Trade and  Proposed a series of districts,  No clear cut policy given for Trade and commerce aspects
commerce neighborhoods and Mohallahs centers. commercial establishments in not covered.
 In each district a commercial cum civic existing and proposed new
center with allied facilities such as localities.
education, health and recreation are
planned to be provided to make each  Compact development pattern
community self contained. proposed for urban growth.
 Shifting of whole sale market from CBD
to outskirts.
Informal sector Neither analyzed nor given any proposal Neither analyzed nor given any Neither analyzed nor given any
trade proposal proposal
Water supply  A detailed sewerage system is proposed  Highlighted main problems in No proposals given regarding
and sewerage  The plan targeted water supply from the existing distribution system water supply and sewerage.
existing 25% to 100% population by  Proposed establishment of WASA
1981. within PDA to ensure efficient
system of water supply and
sewerage.
Environmental No consideration No consideration No consideration
Consideration
Disaster No consideration No consideration No consideration
management
Identification of  Identified a boundary for the city expansion  Identified a boundary for the city  The plan is focused on existing
Limits for the expansion district and TMAs boundary
Future Expansion irrespective of the city boundary.
of the City
Preparation of Not applicable  Suggested 11 local plans, out of No proposals regarding
Local Plans which only two prepared preparation of local plans.
 Remaining local plan PDA to
prepare.
Detailed Maps  Master Plan prepared at a very small  Adequate diagrammatic  Neither map nor any diagram
scale map not showing detailed illustrations given
information
Source: GoNWFP, 1965; GoNWFP, 1986 and GoNWFP, 2002.
5.5.3- Implementation mechanism
No plan will have any worth unless it is implemented (IBRD/The World Bank, 2007). In order to
achieve this, a strong implementation mechanism needs to be included in the plan itself.
Mechanism should include the official status of the plan, allocation of responsibilities, financing of
plan proposals, phasing, monitoring and periodic review. Phase wise development proposed in MP
and SP but no time line for execution of development projects is specified in the UPDMSP. The
costs estimates for the main stream programmes have been worked out in the MP and SP only but
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there are no link between the expenditure to incur and the budgets. The responsibilities for
different proposals and the execution of development projects have not been clearly mentioned in
the plans. Moreover the lead organization to coordinate the implementation of plan is overlooked.
The MP and UPDMSP do not present any proposal regarding the capacity building of the agency
responsible for implementation of plan. However, The SP has emphasized on the capacity building
of PDA. It recommends creation of planning directorate for the implementation of SP.
It is interesting to note that the three planning instruments used in the city of Peshawar have no
official status as they were not approved by the competent authority and notified by the concerned
agency (except the SP was approved by the then Chief Minister but not notified). Similarly, none
of the plans was published and made available to general public as well as disseminated to the
agencies/departments responsible for execution of its various proposals.
Monitoring the progress of the plan is essential for its implementation. The review of development
plans shows that the MP and UPDMSP do not clearly suggest the monitoring procedure and the
organization responsible for the overall monitoring of progress of all components of plans.
Similarly, periodic review mechanism is specified in the SP only but the other two plans are
deficient in suggesting the periodic review process. Table-5.9 presents a summary of status of
parameters required for the implementation mechanism of the development plans.
Table-5.9: Status of parameters required for the implementation of the development plans
Development plans
1965-85 1986-2001 2002-2020
Status of Plan not approved Plan approved by Chief Minister Plan not approved
approval but not notified
Phasing Phase wise implementation Phase wise implementation No time frame for
proposed proposed projects/proposals
Financing Costs estimates of development Detailed costs estimates of main No consideration given to cost
projects proposals worked out stream programs proposals estimates of various projects
worked out
Assessment of Weak professional capacity of PDA professional and Professional capacity of the
institutional Directorate of Town Planning administrative capacity assessed CDGs/TMAs not accessed
capacity identified but no and recommendations made
recommendation given accordingly
Custodian Responsibility of plan Responsibility of plan Responsibility of plan
implementation not specified implementation not specified implementation not specified
Monitoring No monitoring mechanism Monitoring mechanism specified No monitoring system
suggested suggested
Periodic review No review process suggested Review mechanism specified No review process suggested
Dissemination Document neither published nor Document neither published nor Document neither published
disseminated disseminated nor disseminated
Source: GoPunjab, 2008; GoNWFP, 1965; GoNWFP, 1986 and GoNWFP, 2002.
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5.6- Conclusion
Spatial growth has been piecemeal and the city of Peshawar has grown haphazardly. Various
institutions are responsible for the management of city’s spatial growth. The institutions include;
the Peshawar Cantonment Board, Peshawar Development Authority and local government
institutions i.e. Peshawar City District Government and Town Municipal Administrations. The
review suggests that these institutions are empowered through their respective Acts and
Ordinances to administer development plans. Nevertheless, they have overlapping functions and
limited professional capacities which potentially cause impediments in the implementation of
development plans.
Attempts have been made to manage the process of development and spatial growth through
different instruments in the city of Peshawar. The instruments in the form of various development
plans have been practiced which include the Master Plan, Structure Plan and Urban Planning
Development Management Structure Plan. The content assessment of these plans indicates that
non-inclusion of some parameters, inadequate sectorial coverage and deficient implementation
mechanism led to little prospects of their execution.
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Chapter 6
ANALYSIS OF URBAN DEVELOPMENT PLAN PRACTICES IN PESHAWAR
6.1- Introduction
In order to address the second research question that why development plan practices have not
been effective to manage spatial growth of cities in Pakistan and the subsidiary research question
that why the development authorities are unable to implement city plans. This chapter presents
evidences regarding how urban development plans were violated in the case study city. It mainly
attempts to explain the relationship between the plans proposals and ground realities. Firstly, it
presents the content assessment for all three plans prepared for the Peshawar city. Then, it shows
the progress in the implementation of proposals of three plans with detailed analysis of the
Structure Plan 1986. Next section illustrates the assessment of different tools to evaluate the
implementation of urban development plan carried out for Peshawar city. Finally, conclusions
were made upon the analyses in order to support final recommendation of the study.
6.2- Implementation status of development plans
To know the status of the development plans prepared and implemented in Peshawar over the last
47 years, it is imperative to analyze that which urban development projects have been executed
during the above mentioned period. It was difficult to completely analyse all the proposals versus
the projects implemented on the ground. However, efforts have been made to present as much
information as it has been conveniently available. The information is based on analysis of satellite
imageries, interview with government officials, key informants, personal observation, plans’
documents, government reports, secondary data collected from different agencies and institutional
memories. Accordingly, the implementation of proposals of all the three development plans have
been analyzed and presented in the following sections.
6.2.1- Achievements of Master Plan 1985
Sector wise Implementation of the MP has been analyzed and it is noticed that very few proposals
were partially implemented within the stipulated period of the plan whereas some proposals were
executed but after the lapse of the MP period, while some of the proposals could not be
implemented at all (see appendix-1a). The line departments implemented their projects during the
plan period on their own without observing whether those were included in the plan or not. The
appropriate examples of this end are related to the provision of health, education, public facilities,
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water supply and sewerage schemes. The number of educational and health institutions for
instance does not match with MP proposals as the consultant had used higher standards.
Similarly, the phasing of projects included in various proposals was not linked with financing
arrangement of the line departments. Interviews with the officials of line departments (health,
education, police and public health engineering) confirm that they were not aware about the
existence of any development plan. Moreover, they had provided facilities according to the budget
allocation and the availability of land in a particular area. They also admitted that budget
allocation for various development projects related to their sector had been influenced by the
politicians etc. The responsibilities for the implementation of proposals regarding housing and
transportation rested with Directorate of Town Planning Peshawar and the Municipal Committee.
These agencies were not able to get their proposals implemented within the plan period. The
reasons reported by the concerned government officials include; limited capacity of the agencies in
terms of human resource, financial resource and ability to coordinate with other departments. It
was also pointed out that proposals regarding provision of housing were related to land acquisition
from private sector. It was however, very difficult to manage land with limited financial resources.
In order to address the need of shelter, residential areas developed by individuals on their own
without following planning, space and infrastructure standards. Some of the proposals such as the
shifting of industry from residential areas to a location close to small industrial estate Kohat Road,
construction of circumferential road and spatial growth in planning district, neighborhood and
Mohallahs could not be executed at all. The other proposals of the MP which could not be
materialized are presented in appendix-1a. A sector wise summary of achievement of the MP
proposals is presented in table 6.1.
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Table- 6.1 Achievements of Master plan 1985 in Peshawar city
Sector Achievements
Housing The proposals regarding housing density and planned residential development could not be
materialized but some residential areas developed in haphazard manner without following
density standards
Establishment of industrial estate was proposed by the MP in eastern side of the city but the
Industry
industrial estate was developed in western side after the lapse of plan period
 Extension in Lady Reading hospital proposed which was materialized after 2000
Health
 Major hospitals with 500 beds proposed in each planning district but only two were
established after the lapse of the plan period
 Educational institutions of different categories proposed in a hierarchical order but
Education
developed in scattered form
 The proposal to provide a mosque cum Maktab school in each Mohallah was materialized
through the community but not as envisaged by the plan
 The proposal for extension of Peshawar University was materialized during the plan period
but against the proposed direction
 Link road proposed by the MP in 1965 is under consideration now by the present
Transportation
government
 Animal drawn vehicles were to be gradually withdrawn but this proposal has been
materialized after the lapse of plan period.
 MP proposed traffic signals and junction re-planning and improvement but this proposal
was partially implemented
 Private bus stands were proposed to be shifted to a properly designed bus terminals along
proposed circumferential road, bus terminal established along GT Road after the lapse of
plan period
 The proposal to provide one police station, telegraph office and post office in each planning
Public facilities
district was implemented but not at manner as proposed by the plan
 One fire station for two planning districts proposed but only one could be constructed for
the whole city
 The proposal to supply pipe water from 25% to 100% population by 1981 was partially
Water supply
implemented.
& sewerage
 Projects for sewerage and drainage proposed, very few were completed in the plan period
Source: Interviews conducted by the researcher with government officials, estate agents and institutional memories
(2010)
6.2.2- Achievements of Structure Plan 2001
The Structure Plan concept was introduced in order to overcome the problems associated with
rigidity of MP. A flexible approach was to be followed in the provision of various projects
proposed in phased program of the SP. The plan had a detailed document comprising 6-volumes. It
was not officially declare as an approved plan till 2001. The researcher interviewed some of the
officials who remained responsible for the preparation and implementation of the SP. Brief
analyses of various contents as reported by the professionals are presented in table 6.2, while its
detail analysis is given in appendix-1b. The analysis shows that most of its proposals were not
executed as they were envisaged by the plan. The concept of compact development in the shape of
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establishment of development priority zones 1 to 6 partially materialized. A summary of
achievements of SP is given in table-6.2.
The proposals regarding the land development by public and private sector can be cited as an
example of partial implementation of the SP as planned residential Hayatabad Township (3000
acre for five phases) was executed. The land was acquired from the private owners by the PDA by
using land acquisition Act 1894. The land owners were given cash compensation. It is important to
mention here that the new Township was developed on a site close to border of tribal area. The
development in this area was restricted by the MP due to security reasons. However, the concept
of proposed residential land development planned by the PDA and developed by private sector
could not happen. The other concept proposed for residential land development was ‘that private
developer would make land available and the PDA was to provide planned infrastructure’ could
not implemented. The reasons to this end has explained by the officials of PDA include; limited
capacity of PDA to mobilize private sector land owners for land pooling to launch housing
schemes in the shape of big clusters, the lethargy of PDA itself to plan ahead private sector land
development initiatives. The detail of SP proposals and implementation is presented in appendix-
1b.
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Table- 6.2 Achievements of Structure Plan 2001 in Peshawar city
Sector Achievements
Housing  Housing provision were made up to some extent but not as proposed by the plan in the
hierarchical order
 The private sector continued to fulfill housing need of the community but its initiatives
were not planned by the PDA as proposed by the plan.
The MP proposal regarding establishment of industrial estate retained by the SP but the
Industry
industrial estate was developed in western side during the plan period
Health The proposals regarding health institutions were partially implemented, one big hospital
instead of three was established, while filter clinics and maternity and child health clinics
were established in the private sector.
Education The proposals regarding establishment of educational institutions were partially achieved in
a haphazard manner
 Proposal to build Ring Road was executed up to 75%
Transportation
 Proposal to improve carriageway/circulation route around the walled city for easy
movement of buses and heavy vehicles implemented after the lapse of plan period.
 Proposal to build foot paths and pedestrian bridges executed but at different locations
 Proposals to construct parking lots and declare some road for one way traffic circulation
were partially implemented
 Proposal for corridor improvement schemes (trunk and radial routes) was partially
implemented
 An action area plan for the improvement of Khyber Bazar to Chowak Yadgar proposed but
modified version of the proposal was implemented
Utility services The provision of services such as Telephone and Sui-Gas were made by the concerned
departments and had no link with any sort of PMC or PDA permission or planning
procedure.
 Proposals for water supply; 35 tube wells and 11 reservoirs built at locations different than
Water supply
as proposed
& sewerage
 A total of 175 Km of distribution lines provided but not in a planned manner as envisaged
 Two water testing labs were setup at Wazir Bagh and Hayatabad as proposed
 Sewerage lines were laid down but not according to the proposal but sewerage treatment
plants constructed at proposed locations
Environment Proposal for conservation work of historical sites implemented after the lapse of the plan
period
Capacity  Proposal regarding institutional (PDA) strengthening partially executed
building  Proposal to establish Traffic Engineering and Management Unit (TEMU) was implemented
Source: Interviews conducted by the researcher with government officials, estate agents and institutional memories
(2010)
The proposals regarding housing density and type of plots could only be implemented in
Hayatabad Township. However, the proposed allocation of plots for various income groups was
partially implemented. Whereas density standards were completely ignored in the remaining
pockets development by private individuals and building plans of houses were approved by the
concerned agencies (see section 6.4.4). The interviews with town planners and architects
practicing in Peshawar reveal that they were ignorant how to observe density standards while
planning a layout plan of a housing scheme.
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The MP proposal regarding industry was revalidated and retained as such. However, a heavy
industrial estate proposed to be developed during MP period was established within SP period in
western side whereas both SP and MP proposed its location in the eastern side of the city. The
interviews conducted with Sarhad Development Authority (SDA) pointed out that the site for the
establishment of heavy industrial estate in eastern side was selected on the following grounds; a)
the land on eastern side was fertile and expensive to acquire, b) the land was cheap as being
barren, c) the land was easy to acquire, and d) it offered employment opportunities to the residents
of Hayatabad Township.
The transportation sector had been lucky that most of the projects were either executed within the
plan period or after the lapse of plan period which suggests that the proposals were realistically
formulated. The main reason with respect to its implementation as explained by the officials was
that PDA itself was responsible for transportation sector and the directorate of engineering in PDA
had the capacity to execute these projects. Moreover, the creation and establishment of Traffic
Engineering Management Unit (TEMU) had also contributed to the implementation of
transportation projects.
The proposals pertained to other sectors such as education, health and utilities were partially
implemented but not in the manner proposed by the SP. The reasons attributed to this end were
that the analyses of projects of line departments were not done appropriately and the proposals
were not formulated in the light of budget allocation. The availability of land for building
educational and health institutions was another cause of non compliance with the plan proposals.
The SP proposed institutional strengthening through capacity building. The PDA being planning
and development agency was mainly to strengthen the directorate of planning and development.
However, this proposal was not implemented in letter and spirit while TEMU was established as
proposed. A detailed account of the implemented SP proposals is exhibited in table 6.3.
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Table-6.3: Structure Plan 2001: proposals versus implementation
Sector Proposals Implementation
Housing Residential land development by PDA
Phase No. of plots No. of plots
I 3300 6267
II 6000 2740
III 8850 26857
Residential land development by private sector and planned by PDA
Phase No. of plots No. of plots
I 4950 283
II 14000 -
III 24350 -
Urban Growth Compact development through  Zone 1, 2 & 3: unplanned infill and cluster
Phase-I Zone 1,2,3 & 6 development occurred by private developers
Phase-II Zone 2 & 6  Zone 6: Planned Hayatabad Township developed
Phase-III Zone 4, 5 & 6. by PDA
 Another planned Regi Lalma town developed by
PDA in violation of SP proposals
 Zone 5 piecemeal but predominantly planned
development in Cantonment and in areas
surrounding University of Peshawar
Water supply  Provision of 28 tube wells and overhead  Provided 35 tube wells and built 11 reservoirs at
reservoir where pressure was too low various location
 Water supply distribution system  Provided 175 Km of water supply distribution
 Establishment of water testing labs system
 Two lab set up at Wazir Bagh and Hayatabad
Sewerage  Sewerage treatment plant is to be  These 3 treatment plants were provided at
provided at specified locations
 Shahdand/Gulbahar  17 Km trunk sewer was provided and 80000
 Charsaddah road houses were connected
 Warsak road
 Provision of Trunk and secondary
sewers
 House connection to be provided
Drainage Provision of main, secondary and tertiary  9.5 Km of main drain and 22 Km of secondary and
drains and cover of Shahi Katta drain tertiary drains constructed
 A part of Shahi Katta covered.
Solid waste Improvement in solid waste collection Arranged:
collection system Trucks 16; Containers 125; Hand carts 1000
Pivot Bins 6994; Transfer stations 45
Under passes No proposal  On the direction of Governor:
Five underpasses provided during the plan period
by private sector
Slum Up gradation of slum areas Partial implementation through MPA and MNA
Upgrading development schemes.
Urban A comprehensive program for the Improvement of streets and drains was carried out
Rehabilitation rehabilitation of existing areas through MPA and MNA schemes
Program
Site and Provision of site and services schemes at No execution
Services various locations
schemes
Action areas  Action area A: Khyber bazaar up to Alternate design for only Chowk-e-Yadgar
Chowk-e-Yadgar implemented
 Action area B: Pir Ghulab Shah
Road and Ring Road single carriage way around  Dual carriage way about 75 % of the whole ring
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Traffic Peshawar and 2-flyovers proposed. completed and 3 flyovers built
Management Comprehensive traffic management and  Some road improvement work was done
road improvement schemes
Capacity A well capacitated directorate of planning The proposal was partially implemented
building and development was proposed
Conservation Conservation of Mahabat Khan Mosque; Conservation completed after the lapse of the plan
City wall; Kotla Mohsan Khan; Golgatri; period
Qila Bala Hisar; Saty House
Source: Professional Interview and SP
6.2.3- Achievements of Urban Planning Development Management Structure Plan 2020
The latest instrument used for the

management of spatial growth in
Peshawar city is UPDMSP. It is Box-6.1 Achievements of UPDMSP 2020
Proposals regarding:
already explained in chapter-5 that  Widening of selected roads and elimination of
UPDMSP was an effort to address encroachments accomplished
 Improvement of road geometry of multi legged
the issues of entire district intersections accomplished.
 Channelization of Warsak Road Junction executed
including Peshawar city. However,  Construction of northern bypass road and its connection
with motor way is in progress
this plan focused on transportation
sector only and provides cursorily
touch to other sectors. It attempts to include on going projects related to transportation sector
without giving any comprehensive analysis. It has completed almost half of the life but some of its
proposals regarding the transportation sector have been either implemented or in progress (see
Box-6.1).
6.3- Usage of Tools for Development Plans’ Implementation
The significance of development plan was assessed through various instruments of development
plan implementation which are:
 Development and building control
 Financing of plans proposals
The in-depth investigation of these aspects were made through various techniques including
professional interviews, personal observation and questionnaire surveys in order to deepen our
understanding for the reality of market driven urban development.
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6.3.1 Development and building control
i- Development control
Development control is an indispensible tool for achieving an orderly development of land in

accordance with the development plan policies and proposals. The literature supports that it
prevents the development of land uses that are inappropriate in certain location in order to protect
the natural and physical environment of cities set forth through development plans. Thus it helps to
ensure guided development, play fields/open spaces, adequate provision for accessibility,
rationalization of land uses, and support to traffic planning and maintaining the efficiency of utility
services. However, in Pakistan in general and Peshawar city in particular, due to the absence of an
adequate development control system, the planning agencies are facing tremendous hardships to
exercise their spatial planning functions. These results in the formation of urban sprawl,
indiscriminate change of land uses, linear developments and environmental degradation (see
satellite images appendix-6).
Cullingwortrh and Vincent, 2002 have confirmed that the reliability of development control
process depends on the authorities’ capability to take strict action when it is essential. The existing
system of Local Government in Pakistan has ended the dichotomy between urban and rural areas.
The entire Towns are now considered as a municipal unit for the purpose of planning and
development control. In fact, zoning and land use regulations particularly do not exists in the
whole province, except sporadic building control practices that are taking place in certain parts of
major cities only.
Hence, execution of regulations is impossible in weak institutions (such as TMAs in Peshawar)

due to political and bureaucratic intervention or lack of security for the employers. In some cases,
the violators themselves belong to political groups. Change of land use has now become a routine
procedure, as many offices, hotels, guest houses, clinics, schools, hostels and even universities are
operating in residential areas throughout the city (table-6.3).
Physical violation and deviation from development plan is something to be judged at the building
plan approval stage, but change of use in building and land has already specified for specific
purposes need vigilance amongst the BCA staff. The lacunas in these aspects elucidate laxity and
grey areas which espouse malpractices and corruption. During interviews with officials of the
BCA personally proclaimed that “we are fully involved in corruption from the violators”. They
130
quoted examples of many cases, where they were committed to take steps to curb illegal
construction but had to surrender due to political intervention.
An example of this laxity is University Town Peshawar (table-6.4). In Peshawar city once a posh
and planned residential area, the University Town spreads over 500 acres of land, comprising of
1200 spacious bungalows, is facing intervention of the political and bureaucratic intrusions to
override the harmonious environment of residential community by converting it into a slum.
Table 6.4: Development control violation in University Town

Land use class Change of use Total violated
# (approved) cases
1 Residential Offices 34
2 ˝ Guest Houses 25
3 ˝ Institution 24
4 ˝ Prof. Colleges 21
5 ˝ Clinics 16
6 ˝ Schools 10
7 ˝ Universities 5
8 ˝ Hospitals 4
9 ˝ Shopping plaza 3
10 ˝ Miscellaneous 7
Source: Field Survey, 2010
In this case the existence of five private sector universities and three big hospitals and a private
medical college as well as a number of guest houses, national and international organization’s
offices etc have completely ruined down the peaceful congenital environment of a once posh
residential area of the city. Due to all these wrongdoers (by creating public nuisance in either case
the residential area be clandestinely made commercial through continuous invasion and
succession) laissez-faire prevails, which destroys the peace. Consequently slums are in the making
through TMAs. No destiny can be foreseen for a bright and worth living city if such institutional
apathy prevails.
ii- Building control
As far as the building control aspect is concerned, the readiness of the TMAs and CDGP officials
is reviewed through a schedule interviews (see appendix-5c&5d). The finding of these interviews
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illustrates that a very weak and unprofessional system of governance was found in respect of its
spatial jurisdiction. This study shows that the professional strength of the Building Control Agency
(BCA) given in table 5.4 is very weak which portraits that this very important aspect (to make the
city livable) is undermined in these TMAs. Ironically, it works without the services of a qualified
town planner or even an architect. The number of Building Inspectors (BI) and Assistant Building
Inspectors (ABI) are insufficient to cover whole of TMAs areas. One assistant building inspector
in town 4 would have to cover 38054 acres of land’s building activities and has no logistic support
of even a bike. Whereas no drafts man exists to work out the details of a plan even if submitted for
approval to the BCA. Besides their insufficient numbers, they are also low qualified, for the job
they are supposed to do. No BI or ABI have basic knowledge of maps/plans reading, that are
supposed to be checked by them for identifying violation during construction at site. They
understand that our job is to check that the plan of an under construction building has been
approved/passed from BCA or not. Therefore people have developed a mechanism to have an
approved map for the building they want to erect or re-erect on their plots and then construct one
which they like to construct; to avoid hindrance of the BCA inspectors. Due to such practices in
the city, almost 80 percent buildings are constructed in violation of the approved plan. These
statistics reflect that the governance procedures and institutional capacity are very weak in TMAs
to properly control a technical and cumbersome activity of BCA.
Secondly non existence of a Town Planner or an Architect to scrutinize a submitted plan for
approval manifesting that a very unprofessional approach is adopted for a very technical activity in
TMA’s BCA. While interviewing the BCA staff, none of them has proper acquaintance neither
with PUDB building regulation nor LGO building and land use control; which are being supposed
to be applied for the control of buildings in TMAs jurisdiction. The collected record of BCA in all
TMAs shows that the process of building plan approval is dealt with on ad hoc and in a
nonprofessional manner.
Another important aspect of the analysis is that of uniformity; the collected information and survey
result clarified that no proper land subdivision exists. Plot sizes and covered area are in great
deviation of the specified standard sizes mention in building regulation. Every house is different in
size, shape and covered area (table no. 6.5, 6.6, 6.7 & 6.8) reflecting that no building regulations
are considered in its approval. Whereas owners of larger plots of more than one Kanal, can
construct only 1:0.3 % of the total plots area as oppose to the standard of 1:1.3% plot to floor area
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ratio. It also reflects that traditional manner of housing construction is in practice i.e. housing
construction in parts/installments is taking place in majority cases of CDGP.
Analysis of the three month records of the BCA housing plan approval process in their respective
TMAs was carried out through this research. It reflected that there exists neither a criteria for
demarcation of a plot for house construction nor it is binding upon the owners to have a proper
dimensional plot for house construction. Consequently, people are following the existing
traditional land subdivision system instead of a well defined standard plot sizes. Street pattern and
different social and physical infrastructure facilities take place after a cluster of houses has been
fully constructed in a locality. While the provision of social infrastructure such as open
spaces/playing fields, school and health facilities etc is considered as the responsibility of the
government. Landowners hesitate to subdivide their land according to building regulations and
hence they do not declare to purchase their land at once. Because in the prevailing circumstances,
plot by plot sale out is more profitable for them, while the community demanded social services
from politicians and they provided services through ADPs (see section 6.3.2 and appendix-6 for
more detail).
Town 2 & 4 which are located to the north and southern sides of the city are pre-dominantly rural
in character. Therefore the collected data from the TMA of these towns represents that none of the
constructed house proclaims to attain the specified standards. Majority of houses, (88%) in town-4
while 100% in town 2, have violated plot to floor area ratio in excess to the building regulation
standards (see table-6.5 & 6.6).
Table 6.5: Compliance with building regulations in Town-4
Site coverage PUDB %age of approved house plans

as specified by Total
# Plot Size (Marla) specified
Regulations Regulations (%)
PUDB (%) FAR
violated complied with
1 Less than 7 75 1:1.5 60.0 6.0 66.0
2 7 – 10 70 1:1.4 14.0 6.0 20.0
3 10 – 20 65 1:1.3 7.0 - 7.0
4 More than 1 Kanal 62.5 1:1.25 7.0 - 7.0

Total 88.0 12.0 100
Source: Field survey and BCA Town IV record.

Marla (272.25 Sq. ft.), Kanal (20 Marla)
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The study shows that these TMAs fail to enforce building regulation in the construction of houses
in its jurisdiction. Moreover, the collected data exemplifies that majority 85% of the houses are
small in size (i.e. less than 10 Marla) of the total houses constructed in town 2 (table 6.5).

Plot size (Marla) Site coverage PUDB %age of approved house plans Total (%)
# as specified specified Regulations Regulations
by PUDB (%) FAR violated complied with
1 Less than 7 75 1:1.5 69.0 - 69.0
2 7 - 10 70 1:1.4 16.0 - 15.7
3 10 - 20 65 1:1.3 9.0 - 9.3
4 More than 1 Kanal 62.5 1:1.25 6.0 - 6.0

Total 100 - 100
Source: Field Survey, 2010 and BCA Town II record.
Town 1 and 3 are predominantly comprised of the city, the nature of violation and type of
problems in these towns is of major concern for the city planners. Each house is designed in a
manner that it can be split into two units, the upper portions are specifically constructed for rent
and entrance/approaching passage are provided illegally from the outer side of the house. This
phenomenon is neither checked nor controlled by the respective TMAs. Considering the building
regulation standards for site coverage, 74% violation exists in the house construction of town-3
and 77% violation is noted in town-1 (see table 6.7 & 6.8) below.

Site coverage PUDB %age of approved house plans
# as specified specified Regulations Regulations Total (%)
Plot size (Marla) by PUDB (%) FAR violated complied with
1 Less than 7 75 1:1.5 37.7 19.8 57.5
2 7 - 10 70 1:1.4 12.0 1.5 13.5
3 10 - 20 65 1:1.3 21.0 5.0 26.0
4 More than 1 Kanal 62.5 1:1.25 3.0 0.0 3.0

Total 73.7 26.3 100
Source: Field Survey, 2010 y and BCA Town III record.
The elements of rent are gaining more momentum in these two towns. Almost all 0.7M Afghan
refugees are focusing accommodation in these towns. In a recent breakthrough of dismantling
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refugee’s camps in CDGP caused the settlement of refugees in formal houses of the city. This
factor has triggered up construction of multi stories plazas, where small apartment are provided at
the upper stories while ground and first stories are specifically used as shops.

Plot size (Marla) Site coverage PUDB %age of approved house plans Total (%)
# as specified specified Regulations Regulations
by PUDB (%) FAR violated complied with
1 Less than 7 75 1:1.5 58.0 20.0 78.0
2 7 - 10 70 1:1.4 10.0 2.5 12.5
3 10 - 20 65 1:1.3 9.0 - 9.0
4 More than 1 Kanal 62.5 1:1.25 0.5 - 0.5

Total 77.5 22.5 100
Source: Field Survey, 2010 and BCA Town I record.
In an interview; an officer in TMA confessed that BCA staff only considers commercial
establishment along the roads and it often takes place in a very relaxed form, because it is always
intervened by the politician and bureaucrats. He admitted that, the residential house plan approval
is just a formality. People in the rural part of TMAs do not consider it mandatory to approve maps
except those who want to apply for bank loan for construction, and that is, not necessarily prepared
according to the building regulation. Usually people assign such work to their respective U.C.
Nazims and he manages its approval through Tehsil Nazim from Town BCA. The respective
TMAs just want to ensure their plan approval fee from the client and that’s all for them, no ground
checks are taking place to verify the nature of buildings. Building approval is considered as a
formality to justify that the building construction is approved in the Town jurisdiction.
In response to a question that “what are the basis of BCA approval or rejection for any residential,
commercial or public building plan?”, the TOP replied “due to individual ownership we cannot
control anybody for constructing anything or demolish on their land/plot as being practiced in a
planned development scheme”. He narrated “we do not have any official document to guide us
what, where, and how could be constructed or not”, BCA just work out plot to floor area ratio and
to ensure that the street space of minimum 8 feet exists or not.
Schedule six, Section 33 of the LGO 2001; deals with the inspection of building after compilation
of the completion notice by the owners. Its sub section (2) states that:
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“ The concerned Local Government may cause to be inspected any building of which construction
has begun or which has been erected or re-erected in violation or contravention of any provision
of this ordinance rules or the bye-laws or of the master plan or site development scheme, if any,
the local government may require the alteration of the building so as to be in compliance
therewith, and where such alteration is not possible, it may require the building or any part
thereof to be demolished”(NWFP LGO, 2001).
This study confirms that legal provision strongly discourages all illegal acts but in actual practice,
no such activities have been taking place due to nonexistence of professional planners and a full
time magistrate. Moreover, TMAs provide no safeguards to staff to discourage violation. BCA
staff feels insecurity while initiating such activities; they always face personal humiliation and
threats from the violators at spots as narrated by the concerned staff.
This study confirms that control of plan violation is impossible in an unplanned community,
having rural characteristics and many cases of violation within it which got escaped through
political and bureaucratic manipulation/intervention. Therefore, general people resist their cases by
pointing other’s violations which do exist.
6.3.2- Financing of development plans proposals
As discussed in section 6.2 that most of the proposals of development plans were not implemented
as specified. However, it has been observed that a series of development projects have been
executed in the city. The question arises that how these projects have been prepared and financed?
In order to assess the implementation of various proposals given in the development plans it is
desirable to analyze the financing of projects related to different sectors. Project preparation and
implementation particularly at local level follows a distinct pre-defined stream of actions. Mega
projects are spontaneously identified for consideration in response to political pressure by public
representatives. Similarly, small projects are also identified by the local councilors, Nazims and
members of the parliaments (MPAs, MNAs and Senators) for their constituencies. These projects
are included in the Annual Development Plan (ADP) of the relevant department. ADPs are
prepared through correspondence with line departments. The official procedure is to ask the line
departments to prioritize their schemes for inclusion in the ADPs. The steps involved in this
process are listed in Box No. 6.2.
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Box No. 6.2 ADP preparation process
 Call letter to line departments for submission of their projects to be included in the ADP issued in November.
 PE&D receive proposals from line departments/district governments in January.
 PE&D receive anticipated development budget figures from the Finance Department by February
 Appraisal of proposals and preparation of first draft by March.
 Meetings with line departments and preparation of 2nd draft by April.
 Preparation of final draft of ADP by May
 Submission of final draft ADP to Chief Minister during May-June.
 After getting clearance from Provincial Cabinet final draft ADP is submitted to Provincial Assembly for approval
in June.
 Circulation of printed copies of the ADP to all line departments for execution/implementation starts in July.
Source: PE&DD Khyber Pakhtunkhwa, 2010
Development projects identified through the above mentioned process follow routine scrutiny by
Provincial Government Planning Environment & Development (PE&D) Department. The Line
Departments prioritize their proposals and prepare Planning Commission form-1 (PC-I) or PC-II
for projects for onward submission to the PE&D. After the preliminary scrutiny PC-I is forwarded
to the concerned authority for its review and approval.
The above mentioned project selection and preparation procedure do not gives any consideration
to the proposals given in the development plans. Detailed review of the ADPs for the last 10 year
was carried out to compare both the plan proposed projects with that of the selection of projects
and allocation of funds. The analyses confirm that proposals of UPDMSP were ignored in the
ADP preparation process with the exception of a few proposals which were implemented. Table-
6.9 presents that ADP budget allocates a substantial funding for urban development on going and
new schemes. Most of the projects included in the ADP relates to the provision of infrastructure
(such as roads, water supply and sewerage etc). This situation greatly promotes the concept that
‘infrastructure follows the haphazard development’.
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Table-6.9: Financial allocation for development projects in district Peshawar
ADPs (Millions Rupees)
ADP (2002-2003) Cost Allocation
Ongoing ADP Schemes 1213.968 335.236
ADP New Schemes 1401.923 446.204
Federal Schemes 1776.247 221.867
Total 4392.138 1003.307
ADP (2003-2004)
MPAs Fund allocation - 100.000
Foreign funded Schemes - 62.365
Total 3258.334 910.46
ADP (2005-2006)
Total 12621.833 2436.768
ADP (2006-2007)
Total 12622.8 3080.953
ADP (2007-2008)
Total 12622.8 3080.953
ADP (2008-2009)
ADP New Scheme 4828.522 648.091
Total 80743.399 5226.349
ADP (2009-2010)
ADP New Scheme 2611.276 1181.403
Urban Development 4902.38 683.443
Total 14301.99 3288.706
ADP (2010-2011)
ADP New Scheme 5502.213 1865.66
Total 19201.82 6997.667
Grand Total 147142.31 26025.163
Source: GoKpK, ADPs 2000-2011
In order to have deeper understanding of the issue a detailed assessment of the ADP (2001-12) was
carried out to compare fund allocation for projects with that of proposals of the present UPDMSP
2020. Mega projects which usually shape the city structure and attract development have no link
with the plans identified projects (see table 6.10). To illustrate this state of affairs, few examples
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are cited for reference. In order to overcome traffic problems in the provincial metropolis, the
provincial government approved the construction of eleven intersections in Peshawar other than
work on extension of ring road.
Table 6.10 Urban development projects for 2011-2012

Exp. up to
Total
Name of the project Total Total allocation finance
June 11 for July 2011-
Cost
June 2012 beyond
2011-12
On-going projects Million Rupees
Construction of 6 Security Police Posts, 4 on Ring Road & 2 in
Industrial Estate, Peshawar. 39.900 23.130 16.770 0.000
Construction & Rehabilitation of Urban Roads in Peshawar 115.000 20.000 95.000 0.000
Construction of Northern Section of Ring Road (Missing Link), 833.804 40.000 400.000 393.804
Peshawar. Section from Charsaddah road to Pajjagi road.
Flyover on Rehman Baba Intersection and Bacha Khan Chowk, 1768.427 150.000 532.343 1,086.084
Peshawar.
Flyover at Gulbahar-Nishtar Abad Intersection on G.T Road 670.456 166.675 400.000 103.781
Peshawar.
Effluent Management System (Treatment Plants) in Peshawar. 39.884 10.000 29.884 0.000
Construction and re-modeling of Southern Bypass detouring 3030.001 0.0 1500.00 0.000
Hayatabad *
Total 6,497.472 409.805 2973.998 1,583.669
New projects
Diplomatic Enclave and Model Town in Peshawar. 300.000 0.000 2.000 298.000
Widening of Bridges on Gandau and Narai Khwars 100.000 0.000 60.502 39.498
Rehabilitation of existing sewer line on city circular Road from 4.500 0.000 4.500 0.000
Ramdas Chowk to Kohati Gate (Construction of Mainholes).
Total 404.500 0.000 67.002 337.498
Grand Total 6901.972 409.805 2,940.998 1,921.167
Source: ADP, 2011-12

*Foreign funded project
The work on the approved projects has been started which were supposed to be completed either
by the end of current financial year (June 30, 2012) or likely to be completed in the next financial
year. Moreover, some projects which were approved previously were also executed during the
current financial year. These include: Mufti Mehmood Flyover, Construction of underpass at FC
square and fly over at GT road near Jinnah Park etc. Recently, in a press statement the Chief
Minister announced that construction work of Benazir Hospital in Peshawar would be started
during the next fiscal year whereas the UPDMSP 2020 proposes establishment of small clinics and
restricts construction of major hospital. The Chief Minister also reiterated that Charsaddah Road
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would be linked to Warsak Road via Pajgai and work on this important project would be started
during next financial year at an estimated cost of Rs. 830 million. This was actually a proposed
project of MP 1985, but could not materialize until now.
The UPDMSP 2020 reflects that most of its proposals also contain projects that are related to
transport infrastructure development. The following are some of the notable short term projects: i)
creation of nodal points at Ring Road by improving junctions and establishment of community
centers/commercial areas, ii) relocation of existing bus terminal outside ring road, iii) traffic
management scheme and corridor improvement on GT Road, iv) construction of northern section
of the Ring Road (Charsaddah Road to Warsak Road) and v) Construction and re-modeling of
Southern Bypass detouring Hayatabad.
Besides, a number of medium projects for transportation improvement within the city were also
proposed by the latest plan which includes: i) traffic management as a result of commercialization
along GT road, ii) extended transportation network for future land use, iii) provision of mass
transit for Peshawar urban area, iv) shifting of airport outside the city, v) grade separations at
Warsak Road and Hayat avenue intersections.
It is clearly evident that the projects included in the current ADP are not from the projects
proposed in UPDMSP 2020. This practice indicates that implementation of the development plan
is not taking place. All these mega projects have been initiated without reviewing the city plan. It
is confirmed that the selection of project in ADP has been purely spontaneous decisions of the
departments.
6.4- Spatial Growth in the Context of Development Plans
In Peshawar city the concept of development has not been worked out as planned. The city growth
continues to take place in deviation of the development plan policies and proposals. Planned urban
facilities and infrastructure services were not developed as envisaged in the consecutive
development plans. Moreover, the compact development as proposed in six staged development
for different periods in the SP was not accomplished (Fig 6.1). While all the necessary services
were allowed after the communities grew up in an unplanned manner. This shows deviations from
development plans prepared to direct the city growth in a planned manner.
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Fig.6.1: Structure Plan’s phase wise proposal for compact development
Similarly, the structure plan had identified 11 areas for the preparation of local plans in order to
implement the envisaged SP policies at the local level (Fig. 6.2). Among these, two local plans
were developed by the consultant and the preparation of the remaining local plans was left to the
PDA. No local plan was prepared by the concerned authority. The plans prepared by the consultant
were not honoured and therefore, no development was carried out.
Fig. 6.2 Proposed areas for preparation of Local Plans
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The survey of houses constructed in deviation of the development plans was conducted by the
researcher to highlight the real cause of deviation. According to the survey results, majority of the
residents had no other option but to have a house in other parts of the city. The PDA was unable to
promote phase wise development in accordance with the proposals given in the plans. The
authority itself violated the boundary compulsion of the plan. It first violated the MP boundary by
locating the Hayatabad Township and second, it again violated the SP boundary by extending two
more phases of the Hayatabad Township. Moreover, it also initiated a new township, ‘Regi Lalma’
in the north western direction of the city (see map 6.1). While the private sector and individuals
who violated the plan boundaries were unaware of the fact that there was a development plan
which prohibited them to constructs houses in those areas.
Map-6.1: Urban development and the boundaries of Master Plan and Structure Plan
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6.5- Analysis of Selected Localities Emerged After 1965
A large number of localities/residential areas have been developed during the period of 45 years
(1965-2010) in the city. Some of these areas were developed by public sector organizations such
as PDA and PCB. The prominent areas include Defense housing and Askary colony developed on
military land falling in the territorial limits of the Cantonment, whereas Hayat Abad Township
(4000 acres) and Regi Lalma Town (4500 cares) developed by PDA on private land acquired by
using the NWFP Land Acquisition Act. While some housing colonies were developed by
provincial and federal government departments for the accommodation of their employees. These
areas are well planned and provided with properly managed basic services and facilities. The
houses built in these areas are generally in accordance with approved building plans by the BCAs
of the Cantonment and PDA. Out of the well planned areas, Hayat Abad Township was selected
for detailed investigation. The characteristics of the locality are given in table 6.9 and detailed
analysis is presented in the following section.
The remaining spatial growth occurred in the shape of semi planned and un-planned
localities/settlements developed by private sector firms, corporate developers, estate agents and
individuals land owners. The land developers by managing land from various owners and
individual land owners sub-divide their parcels of land into various sizes of plots and earmark very
little space for public facilities. They sell their plots to the general public at market price. These
localities emerged in various parts of the city without getting any approval from development
control agencies. Although, some basic services and public facilities are available over there, yet
the quality is not up to the mark. Five out of fifteen selected localities are semi planned where
most of the houses have been built in violation of prevailing building bye laws. Similarly, other
nine selected localities are unplanned with zigzag road network where basic services have been
inadequately provided. Majority of the residents in these areas are from low and middle income
groups. It is important to note that a significant number of houses in these areas have been built by
the local people and rented out to the Afghan refugees and internally displaced persons. The
Afghan refugees cannot purchase land against their name but they have acquired land by using
surrogates. General characteristics of these localities are presented in table 6.11.
6.5.1- Localities grew-up in compliance/deviation of development plans
Location of the selected localities grew up after 1965 have been analyzed in the light of
development plans. The analysis shows that most of the areas have developed in complete
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deviation of the development plans boundary, while some areas were in compliance but developed
in deviation of the plan’s proposals (hierarchical order of District, Neighbourhood and Mohallah).
The performance of MP in this context remained unsatisfactory due to the fact that only three areas
were developed in accordance with the location proposed in the plan whereas Hayatabad
Township was developed in compliance with SP but in violation of the MP proposals regarding
urban development. However, the location of three areas was in compliance of the MP regardless
the other aspects of these areas being in violation of the plan (see table 6.11).
Since the form of SP is flexible one and in case of Peshawar the boundary of the plan was also
extended, therefore, the location of most of the selected localities falls within its limits. The
extension of Hayatabad Township (phase 6 & 7) was in deviation of the SP. The PDA officials
reported that the main reason behind this deviation was the availability of land and infrastructure
required for the extension of Hayatabad Township. The deviation in location of Choghal Pura was
due to the shrinkage of SP boundary; nevertheless, it was developed in compliance with the MP. It
is worthwhile to note that Regi Lalma Township (not a selected locality) which was planned and
developed by the PDA itself is the infringement of the SP.
Table-6.11: Growth of selected localities in compliance/deviation of development plans
Description Localities/areas
Compliance with Choghal Pura; Nawa Kalay; Dalazak Colony

Master Plan
Deviation of Master Hayatabad Township; Mal Manday; Shagai Hinkain; Canal Town
Plan
Compliance with Arbab Road (Bilal Lane); Hayatabad Township; Canal Town; Shaheen Town; Taj
Structure Plan Abad; Palosay; Nawa Kalay; Gulshan Abad; Latif Abad; Gharib Abad; Dalazak
Colony; Gulshan Abad; Rafiq Abad
Deviation of Phase 6 and 7 an extension to Hayat Abad Township; Choghal Pura; Mal Manday
Structure Plan
Source: Field Survey Investigation, 2010
6.5.2- Characteristics of the selected localities
The salient features of the areas developed during the last 45 years include; haphazardly grown
localities, predominantly residential areas with inadequate road network and utility services,
developed by private sector. There are only few settlements which have been developed by public
sector such as Hayatabad Township, Regi Lalma Township, Askary and Defense Housing
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Schemes. In addition, some planned housing schemes have been developed by government
employees’ cooperative societies.
The selected surveyed localities are grouped into three different clusters according to their
characteristics. Planned development occurred in compliance of the development plan boundary is
grouped into cluster-I, the semi-planned areas either developed in deviation or compliance of the
development plan boundary are grouped into cluster-II, while unplanned communities are grouped
in cluster-III. The general characteristics of the localities selected for detailed survey are presented
in table 6.12.
Table- 6.12 Characteristics of selected areas emerged after 1965
Cluster Locality General characteristics
 Situated in the north western side of the city, close to the
Hayat Abad border of tribal area (Khyber Agency)
Township  Planned and developed by PDA
 Accommodates high and upper middle income groups
Cluster – I  Quality of basic services and other infrastructure
(Planned) facilities is very good
 Well planned parks and play grounds exist
 Houses are uniformly constructed according to PDA
bylaws
 Consists of five selected settlements located in scattered
1. Arbab Road form
(Bilal Lane)  Semi planned developed by private sector
2. Canal Town  Developed contiguous to Hayat Abad township
3. Dalazak  Accommodates upper middle and low income people
Cluster – II Colony  All basic services are moderately available
(Semi-planned) 4. Taj Abad  Open drain system exists
5. Shaheen Town  Settlements are accessible for all type of vehicles
 Settlements are deficient in parks and play grounds
 Some houses in the settlements are constructed in
violation of building bylaws
 Consists of nine selected settlements located in scattered
1. Chogal Pura form
2. Gharib Abad  Mostly unplanned residential land subdivisions
3. Gulshan Abad developed by private sector
4. Latif Abad  Settlements emerged as result of urban sprawl
5. Mal Mandy  Accommodates low income mostly Afghan families
Cluster – III
6. Nawa Kalay  Areas mostly comprised zigzag and narrow streets
(Unplanned)
7. Palosay  No proper system exists for the drainage of sewage
8. Rafiq Abad  Majority of the houses in the settlements are not properly
9. Shagai Hinkain accessible by car
 Infrastructure services are inadequately available
 Mix used development emerged in violation of PDA
bylaws
Source: Field Survey, 2010.
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6.5.3- Acquisition of houses in selected localities
In ordered to understand the dynamics of selected localities, the respondents were asked as to why
they had selected to live over there. The survey results reveal several reasons for their choice
which are presented in table 6.13. Majority of the residents (66%) acquired houses due to the fact
that cost of land was low, while (26%) of the residents mentioned that these sites were in close
proximity to educational/business/employment facilities. Only 8% of the respondents listed non-
existence of a planned housing scheme in that area.
Table 6.13 Reasons for having a house in the selected localities

Number of respondents
Reasons Total Percentage
Owned Rented
Due to low cost of land 221 134 355 66
Near to educational/ business/employment 26
facilities
102 38 140
None availability of a planned sites 32 11 43 8

Total 355 183 538 100
The residents of the selected localities have got possession of their houses either by purchasing a
plot and then building a house or purchased a house. Moreover, in some cases they have got
possession of house on rent. Table 6.14 presents status of houses along with their period of
occupation by the respondents. Majority (56%) of the respondents got possession of their houses
during the period 1986-2001 and 13% residents got possession during the period 1965-85. 18%
respondents occupied houses recently (2002 onward) and 13% respondents were unable to report
the exact period of occupation of their houses.
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Table-6.14 Year of occupation of houses in selected localities
Status of occupation
Period Total Percentage
Self Constructed Purchased Tenant
1965 - 1985 65 6 - 71 13
1986 – 2001 226 75 - 301 56
After 2002 63 31 - 94 18
Don’t know - - 72 72 13
Total 354 112 72 538 100
The survey shows that majority of the houses have been built on small size plots as 68% plots have
size up to 7 Marla and belong to poor people who cannot afford to have a house in public or
private sector planned housing schemes. 19% houses were built on plots ranging from 8-10 Marla.
8% respondents had built their houses on plots with 11 Marla to one kanal size. The remaining 5%
respondents had houses on plots of more than one kanal (see table 6.15).
The residents usually constructed their houses by arranging loan for the payment of plot and
construction of house from informal lenders and commercial banks. The repayment of loan is
generally done in installments. Moreover, it was observed that the houses were built by adopting
simple design and in traditional manner. Except in Hayat Abad, the houses in other localities have
been built on plots of varying in size. This shows that the land owners/developer had offered the
respondents plots according to their affordability. About 47% plots are irregular in size whereas
about 53% plots are of regular size and dimensions.
Table-6.15 Type of plots and their size in selected localities

Plot size Number and type of houses
Total Percentage
(in Marla) Regular Irregular
below 5 124 70 194 36
5–7 64 108 172 32
8 – 10 59 43 102 19
11 – 15 22 16 38 7
16 – 20 2 4 6 1
Above 20 13 13 26 5
Total 284 254 538 100
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6.5.4- Legal status of house building in selected localities
The survey reveals that 45% of the respondents have got their building plan approved whereas
25% respondents reported that they have constructed their houses without getting any approval of
building plans (table-6.16). The remaining 30% did not know the approval status of building plan
as most of these respondents were tenants.
Table-6.16: Approval of building plans in selected localities
Approval status Frequency Percentage
Building plan approved 242 45
Building plan not approved 135 25
Don’t know 161 30
Total 538 100

It is an interesting fact that the owners built their houses in some localities, the location of which
were completely in deviation of development plan proposals. They succeeded in getting their
house plans approved from the concerned agencies. The survey results confirm that out of the
total, 59% owners of the houses have got their building plans approved from PDA and 11% of the
owners had got their building plans approved from PMC/TMA (table-6.17).
Table-6.17: Agency for approval of building plans in selected localities
Approving agency Frequency Percentage
PDA 317 59
PMC/TMA 60 11
Don’t know 161 30
Total 538 100

6.5.5- Availability of basic services in selected localities
It is the general tendency in major cities of Pakistan that the provision of infrastructure services is
made by the sponsor before the construction of houses in planned in approved housing schemes
(Anjum and Hameed, 2007). whereas, in unplanned and un-approved land subdivision the services
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are provided by the civic agencies after the construction of houses (Anjum and Hameed, 2007).
The survey results show that basic services such as water supply, electricity, Sui gas and telephone
are completely available in the selected areas (table-6.18). 100% services in planned area (cluster-
1 Hayat Abad Township) have been made available to the residents and services in semi planned
areas are also available to all the residents. However, in un-planned areas (cluster-111) water
supply and Sui Gas is not available to all the residents. The quality of the services is generally low
in areas falling in cluster II and III.
Table-6.18 Availability of basic services in plan deviated area

Availability of services
Cluster Water Supply Electricity Sui Gas Telephone
Yes No Yes No Yes No Yes No
Number of respondents (percentage)
Cluster-I 100 - 100 - 100 - 100 -
Cluster-II 100 - 100 - 100 - 100 -
Cluster-III 68 32 100 - 64 36 100 -
This phenomenon illustrates that, which is the real force in ensuring the provision of services in
un-approved localities against the plan proposals. In most of the selected areas road infrastructure
has followed the housing development whereas in Hayat Abad Township housing development
has followed the road infrastructure. The infrastructure services in Hayat Abad have been provided
by the PDA and in the remaining selected areas mostly by the politicians (Councilors, members of
provincial and national assemblies). However, there were few cases where services were provided
through the efforts of the residents (see table 6.19). Actually this practice has encouraged the
community to construct houses in areas even which were in violation of the plan proposals.
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Table-6.19 Basic services provision in selected localities
Services Provided by:
Concerned
Locality Agency
Councilor MPA MNA Own initiatives Total
Percentage of Respondents
Arbab Road BL - 27 55 18 - 100
Canal Town - - 100 - - 100
Choghal Pura - 36 28 - 36 100
Dalazak colony - 18 55 18 9 100
Gharib Abad - 20 60 20 - 100
Gulshan Abad - - 100 - - 100
Hayat Abad 100 - - - - 100
Latif Abad - 40 40 20 - 100
Mal Mandy - 33 17 33 17 100
Nawa Kalay - 40 50 10 - 100
Palosay - 14 43 43 - 100
Rafiq Abad - - 100 - - 100
Shagai Hinkain - - 100 - - 100
Shaheen Town - 22 67 11 - 100
Taj Abad - 25 63 12 - 100

6.5.6- Major problems related to the selected localities
The field survey shows that the residents were facing certain problems which are presented in table
6.20. Out of the total, 46% respondents reported that water supply is inadequate and
drainage/sewerage system is non existent in their localities. 23% showed their concern about the
lack of arrangement for solid waste collection. 6% of the respondents complained about the poor
accessibility and narrow street network. These problems have engulfed in these areas due to their
unplanned and unapproved character. Among the three clusters areas the state of cluster III is
depressed in terms of necessary services. The houses are not only haphazardly located but there is
a complete lack of system of drainage and sewerage. The provision of services in these areas is not
cost effective. It was shocking to note that 23% residents showed their concern about security
problem while living in their areas. Basically these are the areas (for instant Hayatabad) where the
Master Plan discouraged any sort of development due to security reasons i.e. proximity to tribal
150
area. Two percent respondents had reported high water table as a problem due to which frequent
incidents of dampness in the building structures. This problem prevailed in those areas where the
Master Plan proposed national park and restricted house/building construction due to low lying
areas.
Table-6.20: Major problems being faced by the residents in selected localities
Problems No. of Percentage

respondents
Improper drainage system/capacity 137 25
No arrangement of solid waste collection 123 23
Lack of security 123 23
Inadequate water supply 88 16
Poor accessibility and narrow streets 30 6
Non existence of sewerage and drainage system 24 5
High water table 13 2

Total 538 100
6.6- Effectiveness of the Development Plans in Peshawar?
The review on implementation of development plans prepared and implemented in the city of
Peshawar reveals overall weaknesses regarding their contents, preparation process and
implementation mechanism. The different forms of development plans (i.e. master plan being
rigid, structure plan being flexible and UPDMSP; combining district regional plan and local
structure plan) have been prepared with a common objective of guiding and controlling the spatial
growth of Peshawar city. However, their objectives could not be accomplished in the wake of non-
compliance or partial implementation of the plans. The main causes of inability of plans to
effectively manage spatial growth of the city are given in the following sections.
6.6.1- Comprehensiveness of the plans
A close look into the three plans prepared for the city of Peshawar reveals that unfortunately they
lack comprehensiveness. The MP and SP emphasize on physical planning and only marginally
touch upon social and economic dimensions whereas the UPDMSP emphasizes on economic
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planning and lacks in social and physical planning. Moreover, the MP and UPDMSP are not based
on well-articulated visions related to the future economic, social, and environmental conditions of
the city. They inadequately identify the major actions that are required to promote economic
development, improvement in affordability for housing and quality of life. However, the SP has a
clear vision and explicit objectives. In summary, most of the planning elements are missing in
these plans, therefore they do not direct and foster social cohesion and economic growth.
6.6.2- Adequacy of coverage
Some important sectors (such as Informal sector trade, environmental consideration, disaster risk
reduction measures) have not been included in the plans. Moreover, the MP and UPDMSP
proposals have excluded PCB areas accommodating the civilians and having strong linkages and
influence with other parts of the city and adjoining areas. Thus a significant proportion of the city
area falls under the jurisdiction of PCB but their exclusion from the development plans has made
the authenticity of the proposals of the plans questionable. Although, the SP proposals pertain to
PCB areas, but execution of these proposals is not binding on the PCB.
The development plans in Peshawar formulated the proposals based on utopian standards and the
list of existing projects provided by the line departments. The plan could not incorporate the future
proposals of the line departments simply because they had to identify only the projects for one
fiscal year in the shape of ADP. Moreover, most of the projects are identified by the
politician/public representatives for inclusion in the ADP. Therefore, the projects included in the
ADP are generally implemented. Also, the consultants did not involve the general public at the
plan making stage particularly with reference to the identification of projects. The above facts
clearly suggest that the development plans had been deficient in coverage as they had not used
realistic approach in identifying the projects.
6.6.3- Plan’s document as a mere formality
The local authorities have got development plans prepared which is considered to be as mere
formality. The MP was an obligation in response to the second five year plan which required that
MP should be prepared for all major cities of Pakistan (see 4.2.2). Accordingly a team of Lahore
based experts in collaboration with the committee constituted by the then Divisional
Commissioner prepared the MP and submitted to the Town Planning Directorate in Peshawar. The
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MP was neither approved by any forum nor its copies were disseminated to the various line
departments which had to play an important role in the implementation of plan.
The SP was funded by international donors and formulated by a consortium of international and
local consultants with active participation of PDA officials. The SP was legally supposed to be
approved by the PUDB and it was approved by the then Chief Minister but not notified. The
document of SP was not disseminated to the line department as well as general public. Similarly,
the UPDMSP was prepared by the local consultant in order to address the issues at district level
since the devolution had relinquished the rural urban divide. This plan was too not approved by
any authority nor was it disseminated.
The PDA officials and institutional memories argued that since the plans were not approved as
such their dissemination was not justified. In response to a question that why the plans were not
approved? The official replies that it was difficult to hold the meeting of PUDB in order to
approve the SP, while the power to approve the UPDMSP was with CDGP but the plan was in
custody with PDA not CDGP/TMAs. The above facts clearly suggest that the authorities have got
plan prepared as an ‘eye wash’ exercise but no serious efforts were made for their implementation.
6.6.4- Ownership of the plans
The sense of ownership of the plan document by those who are responsible for implementation has
a direct relation with its implementation. A study on ‘Land Development and Management
Practices in Large Cities of Punjab’ confirms that lack of sense of ownership of plan was one of
the major reasons for inadequate implementation (Go Punjab, 2008). The analysis of the case
study city reveals that in Peshawar the plans were prepared by the consultants with a local
planning agency as counterpart. The local councils and PDA were responsible for the
implementation of the plans. Both the local council and PDA did not own the proposals given in
the plan.
In Peshawar this issue has arisen due to the fact that two separate agencies have been responsible
for plan preparation and implementation with varying understanding and views on resolving urban
problems. For instance, the MP was prepared by team of experts under the supervision of a
committee and handed over to the directorate of Town Planning Peshawar. The Municipal
Committee and the Improvement Trust were the implementing agencies. Institutional memories
suggest that the officials of the implementing agencies had no knowledge of the existence of plan
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and its implementation. The SP, however, was prepared with active participation of PDA officials
and to some extent PDA owned this plan. As a result, some important proposals (such as
development of Hayatabad Township, construction of Ring Road and sewerage treatment plants
etc) of the plan were implemented by the PDA. On the other hand the PMC which had allot of area
under its jurisdiction failed to implement SP proposals. The key informants confirmed that the
PMC did not own the plan as it was not deliver to it. The client of the latest plan has been PDA but
neither did PDA nor CDG/TMAs own UPDMSP. Therefore, most of the proposals contained in it
have not been implemented albeit it is still valid.
The sense of ownership of the plan coupled with provision of requisite resources and powers can
immensely boast the spirit of the implementing agency to rigorously pursue the implementation of
the plan. For example, the so called Master Plan of 1994 prepared by the then Commissioner of
Faisalabad saw most of its proposed projects completed successfully. The reason being that the
plan was owned by the implementing authority, the then Commissioner, who had a strong
influence to make the resources available and direct the line departments for swift implementation
(Go Punjab, 2008).
The case of Lahore provides another facet of what a sense of ownership of the plan can achieve in
terms of implementation. The 1980s Structure Plan for Lahore was prepared by international
consultants with active involvement of LDA officials. The LDA fully owned the plan and the
ground realities show that their efforts helped securing reasonable plan implementation in new
expanding areas. On the other hand, the Integrated Master Plan Lahore (IMPL) 2004 was also
prepared by the consultants M/s NESPAK but without an active involvement of the stakeholders at
each stage of plan preparation. Although the City District Government had given approval of the
IMPL, several of its proposals due for implementation in the first phase were neither being taken
by CDG nor the TMAs. Therefore its success is questionable up till now as it has proved to be a
conventional MP with inadequate participation of implementing agencies (Go Punjab, 2008).
6.6.5- Ambiguity of boundaries
The analysis reveals that the ambiguity of boundaries had been one of the main contributors of
leapfrog and haphazard spatial growth. The plans delineated their boundaries which were not
overlapping with the administrative boundaries of the planning agencies. For instance, the
boundary of PMC was different to that the MP boundary. Similarly, the SP boundary did not
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completely overlap the PMC boundary (see satellite image with boundary overlay map in
appendix-6). UPDMSP merely consider Town-1 & III for its SP proposals whereas Town II & IV
are not included in the SP proposals. Moreover, the PDA and TMAs have different areas of their
jurisdiction which UPDMSP has simply not considered.
Ineffective land use control and conflict of boundaries has caused unplanned growth trends in the
city. The overlapping boundaries of planning agencies (PDA, TMAs, CDG, PCB and defunct
PMC) created a divergence of interest among the controlling agencies which favored the private
developers. Consequently, the developers found it advantageous to start developing scheme
outside that boundary thus leading to uncontrolled growth. A large number of residential areas
have been developed outside the plan boundaries (see section No. 6.4.1). The haphazard growth in
peri-urban area is likely to pose challenges related to sustainable urban development in particular
the provision of infrastructure services and higher order facilities.
6.6.6- Land management system
The MP proposed higher order public facilities in planning districts and lower order facilities in
the neighborhood and Mohallahs centers. Similarly, the MP proposed health and education
facilities as well as trunk infrastructure. The provision of the above mention facilities and trunk
infrastructure required land by public sector. Moreover, the SP also proposed residential land
development for different groups by public sector. For this purpose, the only way to manage land
was through the Land Acquisition Act 1894. According to this Act, the PDA was supposed to
acquire land at market price plus 15% surcharge for compulsory purchase.
The PDA acquired around 4000 acre for the development of proposed Hayatabad Township but it
could not manage land for public facilities in other areas of the city. As a result, higher order
facilities were developed in piecemeal fashion by the private sector which caused inconvenience to
the general public. The SP also proposed that PDA had to plan and provide infrastructure and the
plots by private sector in the growth areas. However, PDA failed to initiate any project to execute
this proposal due to its limited capacity and lethargy of the official. Consequently the private
sector developed land in the shape of sub division with inadequate infrastructure in unplanned
manner. This type of spatial growth posed threats to the environment and caused inconvenience to
common people.
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6.6.7- Building and land use control
The planning authorities are responsible for building and land use control within their areas of
jurisdiction. It has been observed that there is a strict control over land use and erection of
buildings within the boundary of PCB. Most of the city area falls either in the jurisdiction of PDA
or the local councils (TMAs). Theoretically, the onus of regulation and control of land use and
building rests with these agencies. Private developers have developed land for various purposes in
the areas of PDA and TMAs. The agencies have not exercised control over the urban development
by the private sector. The analysis of survey of the selected localities reveals that building plans
have been approved in those areas which were in deviation of the plans proposals (see 6.4.4). For
instance, PDA is considered as a custodian of the development plan and is responsible for its
implementation; even then it had given approval for 35% of the building plan in these areas which
were restricted by the city development plan for house construction. Similarly, the building plans
of houses were also approved on plots which had size in contravention of the development plan
proposals (see 6.4.4). The case of the then PMC and present TMAs is different from that of PDA,
as practically these agencies are not considered responsible for the development plan
implementation. However, by law these agencies have equal power to give approval for the
building plans. This perplexity benefits the general masses, if PDA tenders refusal for approval of
building plan, then the owner knocked the door of TMAs to get their house plan approved.
The success and failure of development plans mainly depends upon the community response and
political support. However, both these necessary pre-requisites are completely missing in
development plans. Communities have not been involved in plan making, while politicians give
less importance to the community in development process. Therefore development plans were
prepared but were not endorsed both by the politicians and general public. The survey results
reveal that politicians play a major role in the provision of facilities/services in the deviated areas
(see table-6.19).
6.6.8- Implementation mechanism
It is not sufficient to make beautiful plans, if these are not capable of effective implementation.
Absence of phasing, programming, and implementation mechanisms is one of the major
deficiencies in development plans prepared and implemented in Peshawar city. Even a well
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prepared development plan is bound to fail if not backed up by well-oiled administrative
machinery. Thus in MP and UPDMSP no proper institutional mechanism was put in place to
pursue and coordinate the implementation of proposals contained in the plans. However, the SP
proposed a planning and development directorate with requisite and qualified personnel in PDA.
The proposed directorate was created but not capacitated with the professionals. The discussions
with PDA officials suggest that no sincere effort was made to strengthen the planning directorate.
Recently, the UPDMSP has been prepared but the fate of PDA (the potential implementing
agency) is undecided in the perspective of the devolution plan. Therefore, the PDA with its limited
capacity can only manage the building control in its planned housing schemes.
Another important aspect that the officials of planning agencies mainly concentrated on
authoritative assignments like building control and commercialization with the assumption that the
plan will get implemented automatically. The need for a custodian of the plan supported with legal
backing and fully responsible for ensuring due implementation was never realized by the
authorities. Unless this is ensured, no plan can be implemented successfully whether it is a
structure plan, mater plan, urban planning development management structure plan or any other
type of development plan.
6.6.9- Monitoring of the plans
Monitoring of development plans is also a critical component of implementation as it provides

feedback to the plan making and revision processes. Continuous monitoring and updating of the
plans is a prime activity which needs to be fashioned to meet modern and ever changing scenarios
of the city. The urban unit report (2008) exemplified that planning is a continuous process,
planning for rapidly growing cities like Peshawar should be like clothing a teenager. But
unfortunately, the plans, their preparation and implementation processes seem to be geared
towards dealing with the city assumed to be growing at slow pace rather than for metropolitan area
where rapid pace of development is the norm (Go Punjab, 2008). The NWFP Urban Planning
Ordinance 1978 empowers the local area authorities (such as PDA) to continuously monitor and
update its development plan and coordinate with other agencies in order to get plan implemented.
However, there is no mechanism to ensure the monitoring of plans based on up-to-date data.
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6.7- Conclusion
The analyses of implementation of the development plans in Peshawar show that there is a great
variation between the proposals of the plans and ground realities regarding spatial growth. The
analyses reflect that the plans played insignificant role in guiding the development process of the
city. The lack of enforcement of building and land use regulations in accordance with plans
proposals suggests the failure of the development plans. The important stumbling blocks in the
way of implementation of development plans in Peshawar include; inadequate capacity of
planning institutions, the lack of land management system, conflict of boundaries among the
institutions, a lack of coordination between the planning institution and other line department, lack
of comprehension about development plans by officials of the implementing agency, inadequate
plan making process, and provision of services and facilities (through ADPs) in areas in violation
of development plans. The analysis of compliance/deviation of plans in the selected areas stands
valid regarding the above mentioned factors. As a result, the plans implemented in Peshawar could
not yield the desired results and city is growing in haphazard manner.
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Chapter 7
CONCLUSIONS AND RECOMMENDATIONS
7.1- Introduction
The research has examined the practices in major cities of Pakistan in general and of the Peshawar
city in particular in order to find out causes behind the failure of development plans to manage
spatial growth in planned manner. The aims of this research were a) to understand the problems of
implementation of urban development plans and b) to provide basis for formulation of policies
related to the legal and institutional framework for the preparation and implementation of
development plans in Pakistan. In particular, the research addresses the following core questions:
 Why development plan practices have not been effective to manage growth of cities in
Pakistan?
 How development plan could be made effective to address the issue of spatial growth
in urban areas?
To answer these questions explicit objectives were formulated which are given as under:
 To review various aspects of development plans in Pakistan.

 To study the expansion process of Peshawar city and to identify the factors causing
growth in deviation of development plan proposals.
 To study good practice models of development plans of selected countries and to draw
lessons for Pakistan.
 To suggest appropriate measures for development plan practices in order to effectively
manage spatial growth in major cities of Pakistan.
Although, the aims and objectives are focused on Pakistan, the research findings can be expected
to have relevance for other countries confronting with similar problems. Second section presents
general conclusions drawn from this research whereas the specific conclusions in case of Peshawar
are presented in section 3. The recommendations of the research are presented in section 4. The
final section summarizes the significance and contribution of the research.
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7.2- General Conclusions
The general conclusion from the research can be drawn on the following aspects:
 Nature of the problem
Urbanization in Pakistan is taking place in a haphazard manner. Cities are growing further and
further having no direction and destination. The growth pattern of cities is not designed but is
emerging as a product of market forces. Various attempts have been made to control and manage
the cities expansion process by developing legal and institutional frameworks since 1960s. A
number of institutions were made responsible to prepare development plans in order to manage
growth of cities. Types and contents of the development plans were changed with change in
nomenclature but without making amendments in existing laws to support those changes.
Moreover, the institutions remained incapacitated to effectively comprehend and implement these
plans. Apparently haphazard growth continues and various problems have engulfed the cities. The
development authorities alongside local government institutions are striving to overcome the
problems but all in vain.
 Development plans practices in selected countries
This research has attempted to identify various good practices in the developed and developing
countries in terms of their planning systems, legal and regulatory frameworks. The reforms made
to improve the development plan practices in order to manage spatial growth in the selected
countries are summarized as under:
The research shows that authorities in many cities of United State were initially unable to fully
implement the development plans mainly due to lack of funds and time line of relevant laws and
policies. Later, the introduction of new approaches of plan making, institutional and legal support
made it possible to implement cities development plans. The research highlights frequent reforms
(such as institutional, development plan approach and legal backing) were made in order to ensure
the success of development plans. The planning system in UK has been designed to streamline the
development plan system and to promote a proactive and positive approach to manage spatial
development. Most developing countries (previously colonies of the Britain) have adopted the plan
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led approach as that of the UK; therefore, the system of master and structure plan approach has
been practiced in these countries.
The Town and Country Planning Act of 1947 in UK created a framework for the development
plans. The Act compels that all proposals, significantly changing land character must secure
planning permission from the local authority before commencement. Time and again a number of
reforms (a flexible Structure Plan approach) were made to the system and were consolidated in the
Planning Acts. The Structure and Local Plans were replaced by Local Development Frameworks
at the County and District level through the provision of Planning and Compulsory Purchase Act
2004 (See appendix-3b). However, the recent reforms introduced preparation of neighborhood
plan at parish/town council level in 2011. These reforms were not only made to the planning
system but also to the institutional arrangements.
Recently, the English planning system further introduced reforms in the plan making process.
According to the reformed system, local authorities are required to prepare statement of
community involvement. Moreover, Strategic Environmental Assessment and a sustainability
appraisal reports are an essential part of planning documents. Annual monitoring report is
mandatory to be submitted to the government. Accordingly, the plans are periodically reviewed
and updated.
The literature shows that the practice of the conventional Master Planning approach in India owes
its origin in the British Town and Country Planning system. Indian Master Plans lacked a holistic
approach for the development of cities. The plans initially prepared were restricted to the land use
and development control aspects only. The research verifies that master plans adopted in India
have not been able to produce any satisfactory results as being very slow in producing outputs and
outcomes. The planning process adopted for the preparation of the plans appears to be unduly
long. Ironically, master plans paid inadequate consideration to the provision of trunk
infrastructure, socio economic opportunities, environmental conservation and funds allocation for
development projects, eventually labeled as to be impracticable.
The 1992 reforms in India, the conventional approach of master plan was transform in to a
conceptual and procedural approach which consists of the following: Results oriented planning:
concentration on implementation; Public-Community-Private Partnership, coordination of Local
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bodies; Action planning; Focus on institutional development and planning for economic
development; Demand driven planning, emphasis on quality and innovation; Legal reforms
facilitating participatory planning and flexibility and New urban information system,
computerization, telecommunication, to make cities computable and networked
The research shows that spatial planning is carried out in the light of Malaysian Town and Country
Planning Act 1976 which has been consistently updated to incorporate the necessary changes. To
accentuate environmental management in planning the act was amended in 1995. Other
amendments in the Act were made in 2001 and 2007 regarding the division of power between the
Federal and State governments in matters related to town and country planning and the
establishment of various planning institutions at national and regional level respectively. The Act
provides the preparation of Local Development Plans which comprised structure and local plans
for urban development in Malaysia. Structure Plans are drafted by each state and the detailed plan
making methodology is almost same as given in the Development Plan Manual of Britain.
Legally, public participation is mandatory in the formulation of development plans and the report
of survey which contains key findings of the study area of structure plan must be publicized. This
gives an opportunity to the stakeholders for highlighting their interests. The draft structure plan is
made available for public inspection. In this regard guidelines on publicity and public participation
for development plans have been prepared. It is important to note that the development plans guide
the Local Planning Authority not to permit any application for development if adverse impacts on
the environment were predicted by the plan. The development plans practice in Malaysia is
reportedly successful as the processes of monitoring and evaluation for the implementation of
development plans are obligatory and go together.
 Urban development plans in Pakistan
The national level policy documents (five year economic development plans) consistently require
preparation of development plan for all major cities of Pakistan. Moreover, the Acts/Ordinances
were promulgated to establish development authorities in these cities. The main functions of these
authorities include the provision of housing, infrastructure development and preparation of
development plans. A series of development plans having different nomenclature were prepared
with the objective to guide and manage the spatial growth of cities in a planned manner (see
appendix-2). The research shows that master plan concepts for cities are not widely understood at
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local government level in Pakistan. As a result, the government officials attached no importance to
it and a lack of commitment is always exhibited on their part. Eventually, master plans once
prepared are seldom followed and are rarely updated (see chapters 4 & 6). It has been noticed that
the planning exercise has never been considered as a process but it has been dealt as a project.
Therefore, development plans were prepared for cities, but that ended with the end of the exercise.
The research further establishes that some of the development plans were formulated through
consultants and other by the authorities themselves. The assessment of these plans carried out
indicates that most of these plans were partially implemented by the relevant agencies (see
chapter-4).
 Methodological Development
Considering the consecutive failure of development plan practices to manage spatial growth in
major cities of Pakistan, the researcher attempted to investigate causes for their failure. The
methodology used for this research comprised of the general assessment of the development plan
practices in major cities of Pakistan and in-depth analysis of various factors in a case study city.
The selection of case study was based on the facts that the city is a dynamic metropolitan growing
rapidly and where attempts have been made for implementation of the development plans. The
following lessons on development of methodology can be drawn.
It has been learnt about how to conduct research on urban development plans implementation
practices in developing countries. The research approach was design on the basis of personal
knowledge of the researcher and comprehensive literature review. The rapidly growing city of
Peshawar where three types of development plans have been implemented was selected as a case
study. The method used under this research included a literature review, collection of secondary
data, structure interview conducted with leading professionals, institutional memories, government
officials, estate agents and residents’ survey. The approach used for this research has both strength
and weaknesses, consideration of which is useful in developing methodology for future researches.
The researcher has pointed out the ways that further research might be carried out and accordingly
methodology be developed in order to advance understanding of how to improve the
implementation of development plans framework in developing countries including Pakistan.
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Major limitation of the research was that there exists complete anonymity regarding the
achievements of development plans not only in the case study city but in all major cities of
Pakistan. Development plans were prepared but were not recognized as official documents;
therefore, none of their proposals could be assessed in a quantifiable form. This limitation of the
research compelled the researcher to restrict the use of advance statistics for the compliance and
non compliance of the plans proposals. The researcher developed a methodology to assess various
causes for the ill implementation of development plan in a qualitative manner.
In order to gain true picture of the ground realities regarding spatial growth and to analyze the
compliance of the development plan, resident survey was conducted in selected areas of Peshawar.
The findings of the survey were helpful in drawing conclusion about the problems associated with
implementation of development plans. This survey was time consuming to conduct and analyze
the collected data. It would have also been possible to collect almost similar information through
focused group discussion with residents. This method would yield quantitative information about
perception of people about spatial growth in those areas.
An assessment of the effectiveness of the development plans to manage spatial growth was made
by covering the legal, institutional framework and financing of the plan proposals. The research
approach was designed to study the whole system rather than a single aspect of these plans. For
this purpose pre-preparation, preparation and implementation stages were assessed to ascertain
some findings. The research has used two satellite images of 1992 and 2009 to ascertain the
changes in urban development. The research illustrates the potential value of using different
satellite images for three periods (1985, 2001 and 2009) which were expiry of the plans. In this
way, more useful findings have been drawn.
Researchers can expect to face problems in conducting comparative research on development

plans implementation in developing countries like Pakistan where scarcity is common in the
availability of comparable data. This was evident in case of Peshawar where collection of data was
managed after a different exercise. The researcher cautions that in the future development of
methodology the access to data is gigantic task even when data theoretically is available.
Moreover, it was not easy to contact government officials for structured interviews. The researcher
had faced a lot of problems in collecting information through institutional memories (retired
government officials involved in the preparation and implementation of development plans in
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Peshawar). The researcher overcomes this problem through networking and using personnel
influence.
7.3- Specific Conclusions from the Case Study of Peshawar
This research work is directed by three core research questions and four objectives developed in
light of these questions. Insight was gained through research findings from urban development
plan practices including legal and regulatory frameworks, institutional capacities, and development
plan preparation process and implementation techniques. These findings are mentioned as follows:
» Process of plan making
The research suggests that development plan has always been perceived as a project and has never
been considered as a process in Pakistan. The study shows that the development plans for the city
of Peshawar were prepared by the consultants who were not familiar with local conditions and
circumstances. The consultants appear to have hard pressed by stipulated time and completed the
project without ensuring adequate coverage of all the sectors. The proposals of SP and UPDMSP
were mainly based on secondary data; however, primary data was also used for some aspects.
Primary data collected through field surveys was largely used in formulation of proposals for the
MP. Moreover, the plans did not adequately cover all the sectors as some very important sectors
were overlooked in the formulation of plans.
The plans lack vision and explicit objectives regarding development of the city except for the SP
which gives vision and specifies the objectives. The study shows that the stakeholders were not
involved in the process of plan making. The non involvement of the stakeholders at any stage of
the plan making did not create awareness to question the concerned authorities about
implementation status of the plans. Some of the proposals of the plans were realistic but their
phasing was not appropriate as they were implemented after the lapse of the plans due to funding
arrangements. However, some of the proposals were implemented but in different direction which
shows the lack of involvement of the stakeholders. For instance, the establishment of industrial
estate in western side of the city against the proposed location in eastern side clearly indicates the
non consultation with Sarhad Development Authority. Development plans prepared through
consultants for Peshawar did not consider the professional capacities of the implementing
institutions during the plan making process.
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» The official status of plans
A development plan is unlikely to be implemented unless it has official status. The plans are also
more likely to be implemented if accepted and followed by the government departments and
general public. The study shows that none of the development plans in Peshawar was accepted and
ratified by the concerned authority. The relevant laws did not specify the official authority for the
approval of plans; therefore, the Master Plan (MP) was not approved. Although, the Structure Plan
(SP) was to be presented to Provincial Urban Development Board (PUDB) and ratified by it but it
was approved by the then Chief Minister. However, the approval of SP was not officially notified.
The latest plan, Urban Planning Development Management Structure Plan (UPDMSP) is being
implemented unapproved, albeit, it could not have been approved either by the PUDB or by the
City District Government Peshawar (CDGP). The study shows that the jurisdictional problem
between the PDA and the CDGP could not make the plan official. The study further shows that the
status of the development plans has never been challenged at any forum in Peshawar.
» Allocation of responsibilities for implementation
The development plan (that clearly specifies the lead organization and assigns responsibilities to
other stakeholders involved in implementation process) is likely to achieve its desired results. The
lead organization cannot implement the plan on its own; progress is dependent on other agencies
responsible for those aspects of plan implementation that fall within their domain. The study
shows that the plans did not clearly allocate responsibilities to various line departments which
potentially had to execute some of the projects included in the plans. Moreover, what so ever was
included in the plans, the officials of the agency (client for the preparation of plan) had never
considered to disseminate it among the line departments statutory responsible for urban
development in their respective sectors. This could have helped the departments in the
identification of their projects in light of plans. The development plans were also not made
available to the general public.
» Financing of plan’s proposals
Activities of the plan are likely to be implemented if it has financing plan. This could be ensured
through formulation of proposals in the light of financial commitments of the government and line
departments. In general, lack of financial resources is cited as one of the causes of non-
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implementation of the plans proposals in Pakistan. However, huge amount is been spent on
development projects both by the provincial and local governments in major cities (particularly
provincial capitals).
The study shows that the non-implementation of plans is not because of the financial constraints,
but due to non-linking the plan with mainstream programs and budgets in Peshawar. All the
development plans do not clearly formulate the proposals regarding the improvement of financial
resources and do not mention the financing of the proposals. The urban development has been
occurring but through Annual Development Plans (ADPs) which does not conform to the plan led
approach (see appendix-4). The haphazard growth of various localities and the subsequent
provision of facilities and services clearly can be cited as an evidence of this approach.
» Institutional framework
Effective and dynamic institutions play a key role in the successful implementation of urban
development plans. The study shows that planning and development functions in Peshawar are
simultaneously carried out by variety of institutions: these include; local government institutions
(such as CDGP, four TMAs), Peshawar Development Authority (PDA) and Water Supply and
Sanitation Agency (WASA). In addition, Peshawar Cantonment Board (PCB) directly managed by
the Federal Ministry of Defense which has separate laws for its governing within its jurisdiction.
The institutional framework in Peshawar has been weak in order to undertake development plan’s
proposals. The PDA, CDGP and TMAs are incapacitated in terms of qualified personnel and the
distribution of tasks. However, SP proposed the strengthening of planning directorate in PDA
which is still a ‘dream’. Moreover, there is an institutional diversity which has led to complexity in
functions and jurisdictional problems. The practice by these institutions muddying conformity with
the development plans is seriously affecting the efforts to follow a plan led approach.
» Comprehension of Plans
The development plans prepared in Peshawar were neither comprehended by the government
officials responsible for their implementation nor had been passed through some sort of public
hearing or consultation. The development plans were prepared by the consultants and the
documents were generally not consulted by the officials of those agencies who were the clients of
the plan making exercise. The officials of the planning agencies were unable to comprehend how
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to translate the proposals of the plans and get them implemented by using various tools. This can
be attributed to the lack of capacity of the officials. It can be exemplified with the fact that nine
local plans were to be prepared by the PDA according to the SP proposals but the PDA officials
did not pay heal to this proposals.
There has had been a general perception that there is no need of urban development plan as
development could better be achieved through incremental approach with the implementation of
Annual Development Plans (ADPs). Moreover, some government officials argued that the process
of plan formulation has always been wastage of time, financial resources and infringement upon
developer rights thus plans have been ridiculed as ‘paper tigers’.
» Monitoring and review of plans
Planning is a continuous process not a one time activity. Therefore regular monitoring and
periodic assessment gives useful impetus for the adjustment and review of the plan documents.
The lead organization (implementing agency) should have responsibility for monitoring the overall
progress of all components and periodic review of the plan. However, the study shows that the
PDA responsible for the implementation of SP and UPDMSP failed to conduct any monitoring or
review of the plans. Similarly, the Town Planning Directorate and the Municipal Committee
responsible for the implementation of MP did not make any effort in this regard.
» Changing nomenclature of plans
Like a few other cities in Pakistan, the authorities kept on changing the name of development
plans. similarly; three development plans with different name have been prepared and
implemented in Peshawar since 1965. Moreover, the new plan was prepared after the expiry of
previous plan. The MP was prepared with the objective to guide and control the spatial growth of
the city of Peshawar. The authorities considered that the MP being rigid could not manage spatial
growth in Peshawar. Moreover, a new approach was also adopted in the UK. Therefore, a new
plan (with name as structure plan) was prepared to manage the spatial growth of the city. Recently
in the light of devolution plan, the authorities perceived that most of the development occurs
outside the plan boundary which is neither planned nor regulated; therefore, UPDMSP has been
formulated. The latest plan covers the whole district Peshawar with focus on the city. The study
shows that the authorities kept on changing the name of the development plans without changing
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the approach of plan making as well as the legal backing for the preparation and implementation of
the plans as it has been practiced in other countries such as UK and Malaysia.
» Achievements of the Plans
The city of Peshawar has grown significantly since 1965 but its spatial growth could not be
managed as envisaged in the consecutive development plans. As a result, haphazard development
occurred which is posing problems to the public as well as city managers. The study shows that
most of the proposals of the MP were not implemented during the plan period with the exception
of a few proposals implemented later. Nevertheless, few proposals (such as Hayatabad Township,
establishment of sewerage treatment plants and construction of Ring Road) of the SP were
implemented mainly where PDA itself was the executive agency. The urban development related
to other departments occurred but not in compliance with the plan proposals. Similarly, a very few
proposals of the UPDMSP were also implemented. The implementation of these proposals may
not be attributed to the plans worthiness since the projects related to the proposals were on going
and the plan had embraced them.
7.4- Recommendations
This research has provided sufficient insight into the current status of urban development plan
practices in Pakistan. A comprehensive methodology presented in chapter-2 was used to grasp the
various dimensions of these practices and to find out loopholes and gray areas within the system.
Considering the findings of this research, the following recommendations are made for the
improvement in the development plans and spatial growth management in Pakistan.
 Reforms in the land management system
There is a significant need to bring reforms in the urban land management approach. The
conventional revenue record system is unsuitable for urban land disposal and development system.
There is also a need to de-link land management system in urban areas from the prevailing
regulatory system to a reformed land management system. The research shows that the plans
proposed specific development at specified location but the inability of the authorities to acquire
land on time for that purpose toppled the proposals of plans (see chapter -6). The policies for urban
development could only help in guiding the overall development at desired lines if local planning
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authorities are empowered to release land for future expansion. Therefore, the role of the
authorities needs to be redefined in order to guarantee the land acquisition, land management and
its timely disposal in accordance with the proposals of the development plan (Fig. 7.2). The
research also identifies the problem related with the purchase and development of land from the
owners and its disposal to the individuals without observing the proposals of the plan. The practice
of direct purchase and sale of land within the city boundaries requires to be discouraged (see figure
7.1).
Fig. 7.1 Proposed guided land development in urban interface
Land Acquisition
Allow Discourage
GUIDED LAND
DEVELOPMENT IN
URBAN INTERFACE
Land Management Land Disposal
Source: The Researcher’s own construct 2011
 Revitalization of the Development plan approach
 The development plan processes need to be revitalized. Type of development plan and
its preparation process is to be specified through legislation as it has been done in
different countries (see chapter 3). The legislation is required to cover all aspects of the
development plan.
 Currently development plans preparation is considered as a project, a mean in itself, to
be completed, shelved and job done, rather than a part of a continuous process. This
research proposed Action Plans for various sectors to be prepared for the development
of cities.
 The present practice of ADPs is greatly denting the practice of development plan in the
cities. Therefore, a system of development plan oriented financing is needed to be
170
introduced in cities irrespective of the conventional ADPs’ project sanctioning,
presently being practiced.
 There is very limited public consultation in the plan preparation process in Pakistan.
Proper mechanism is needed to be devised in order to ensure transparencies which
could better help in the adoption of plans.
 Reforms in the legal and institutional frameworks
It is highly desirable to formulate policies in order to promote dynamic and capacitated institutions
with well defined functions and to provide a legislative support to strengthen the practice of urban
development plans in Pakistan. In this context, there is a need to have unified Act which would
comprehensively cover all aspects of urban planning in the entire province. This would require: a)
the consideration of various provision related to town planning particularly development plans in
the NWFP Local Government Ordinance (LGO) 2001 and minimize overlapping therein, b) the
repeal of the existing NWFP Urban Planning Ordinance 1978 as its provisions regarding various
aspects of Local Area Authorities, town planning practice and development plans have become
redundant with the promulgation of NWFP LGO 2001. The proposed Urban Planning Act should
explicitly specify inter alia the following provisions
Name of development plan: The plans prepared and implemented in major cities of Pakistan
including Peshawar were different in nomenclature, approach and contents. The earlier were called
as Master Plan/Outline Development Plan, while the predecessors were called Structure
Plans/Integrated Master Plan/Strategic Development Plan and Urban Planning Development
Management Structure Plan. There is need to have a single name that could be ‘City Strategic
Development Plan’.
Approach of development plan: The spatial growth of cities needs to be guided and control
through three types of plans which include: i) Strategic Development Plan, ii) Local Area Plan and
iii) Action Area Plan. These plans are briefly explained as under:
 Strategic Development Plan: This plan will be formulated at district level with clearly
define boundary. It will be prepared by using secondary data and with active involvement
of stakeholders. It will include sector analysis and will identify the higher order facilities
related to each sector and their location. It will formulate policies regarding each sector in
171
consultation with the line departments. It will also define the skeleton of strategic road
network and major land uses for growth areas by using satellite image. It will be approved
by the district assembly.
 Local Area Plan: This plan will be prepared at town level by utilizing both primary and
secondary data in the light of policies given in the proposed strategic development plan. It
will include the analysis of improvement and proposals (worked out with active
participation of the community) for each sector. The execution of proposals will be linked
with the ADPs. It will be approved by the town council.
 Action Area Plan: This plan will be prepared for a particular area (where immediate
action is required) by utilizing mainly primary data in the light of local area plan. It will
include a detailed map showing its proposals and will be approved by the town council.
Moreover, these plans should not be considered as a sole activity of a single institution but
should be regarded as an integrated plan of various institutions concerned. In view of the
institutional diversities this research proposes preparation of Action Area Plans for various
sectors such as:
 housing and social amenities
 transportation networks and traffic management
 solid waste management
 sewerage and drainage system
 development of green areas
 commercial development
Fig. 7.2 Sector development and actions plans
Works and DAs WAPDA

Service & SNGPL
Health Actions Education

Department Department
Plans
Cantonments/
City District TMAs DHAs
Governments
172
Therefore, separate Action Plans may help the organization to act accordingly to the plan as it
would be considered the concern institution own initiatives.
The lead agency (custodian) for implementation of development plan: Absence of a lead agency
for the development plan is intensely felt in case of Peshawar. Development plans were prepared
but no one took responsibility of their approval and enforcement. The lead agency could also
ensure monitoring and review of the development plan. In light of the literature review on good
practice models, indication of an agency responsible for the plan implementation is indispensable.
Under the given circumstances in Pakistan, CDGs could be entrusted with responsibility of the
lead agency. The terms of reference of the lead agency needs to be clearly outlined in the law.
There are triangular forces which could patiently support the plan implementation in practice. If
one of these important forces fades the other two would lose their effectiveness (see Fig. 7.3).
Fig. 7.3 Triangular forces to support plan implementation
Custodian of the Plan
Ensure legislative cover Monitor the plan progress
SUCCESSFUL
IMPLEMENTATION
OF DEVELOPMENT PLAN
Legal Binding and Support the plan Implementation Well Capacitated

Legislative cover Institutions
Source: The Researcher’s own construct 2011
Preparation of guide lines for plan making and implementation: The research shows that there
exist no specific guidelines in Pakistan for the preparation and implementation of urban
development plans. Various cities’ administrators or most often the consultants follow some
arbitrary procedure for preparation of urban development plans as no procedure is prescribed.
173
Consultants do not involve communities at any stage of the plan preparation. Similarly, there
exists no guidance for plan implementation. Therefore, it is recommended that guidelines need to
be prepared that specify:
a) the steps involved in plan making;

b) the procedure for the involvement of public at various stages of the plan; and
c) the procedure for implementation of plans (particularly monitoring and periodic review
of plans)
Capacity building of institutions: The institutional capacities to implement planning rules,

regulations and proposals of the development plan are seriously inadequate in Pakistan. The
strengthening of institutions through their capacity building requires to be given high priority.
Moreover, the institutions follow outdated byelaws regarding physical development. These
byelaws and regulations are mostly based on the standards of high income societies and are not in
tune with the socio-economic conditions. The application of redundant byelaws is one of the main
reasons underlying the failure of plan implementation (see chapter-6). This is mainly due to
inadequate capacities of the institution to revise the existing regulations. Moreover, the institutions
have been unable to effectively implement the proposals and regularly monitor the progress of the
plan due to their limited capacity. The institution should be made capable of efficient delivery of
services within their clearly defined realms of operation and effective coordination in areas of
multi agency interest. Therefore, it is highly indispensible to strengthen the present institutional
framework and the relevant legislative support may also be provided in this regard.
7.5- Significance and Contribution of the Research
The research findings are seen significant in a number of ways for policy makers, urban planning
practitioners and for those researching on urban development plans:
 The research contributes in the field of urban development planning and policy making by
providing a deeper understanding of problems associated with the implementation of urban
development plans. The literature has been reviewed on development plan practices in the
developed and developing countries. The good practice models for spatial planning and
policy making have been identified and the lessons learnt for Pakistan have been
documented.
174
 The research documents urban planning and management initiatives at national level and
the role of federal institutions in managing the spatial growth. The profile of development
plans prepared and implemented for the larger cities of Pakistan is presented in this
dissertation. The research also reviews the legal support and implementation status of the
plans achievements.
 The research has significance on methodological grounds for reviewing urban development
plan practices and spatial growth management. It has employed both qualitative and
quantitative approaches which have wider scope for further application of methodology on
the basis of research findings.
 The research utilizes original data on the case study of Peshawar. It covers all aspects of
review of different types of development plans, their legal support and institutional
framework. The results of analysis brought forward useful finding that provide basis for the
improvement in the implementation framework of development plans. Although, the
findings of the research are Peshawar city specific and Pakistan in general but these
findings will be helpful to those developing countries facing similar problems related to the
implementation of development plans.
 One article extracted from the research has been published in an international Journal on
Urban Policy and Planning-Cities (Ahmad and Anjum, 2012). Several research papers
have presented at national seminars and conferences. Two articles are in the review process
of publication in the refereed Journals.
 Limited literature on urban development plans practices is available in the developing

countries context. Three researches were undertaken in Pakistan during the course of this
study and the researcher is aware of the findings of these researches (Hameed and Nadeem,
2006; Zaidi and Mayo, 2006 & Go Punjab, 2008). This research broadly encompasses the
main aspects of spatial planning through development plans. Therefore, it is a valuable
addition to the knowledge of urban development plans implementation framework in
developing countries.
175
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184
185
Appendix - 1
Assessment of Development Plan practices
186
1a
Appendix
Synthesis of Master Plan (1965-85) for Peshawar City for Measuring its Effectiveness and Achievements
Master Plan Proposals Phase I Phase II Total Status of Achievements
(1965-70) (1970-85)
Housing: these are to be located at the south of the city between GT road and the University
Land required for housing increased 1040 2900 3940 No such land had acquired in phase 1 of the plan, however,
population acres acre acres in phase two an area of 3000 acres were acquired to house
the poor people according to the policy of the then
government but it too took place in total deviation of the MP
i.e. it lies towards west and at outside of MP boundary.
Land required for housing the 875 875 1750 No such relocation from the old or dilapidated areas took
overspill of about 43738 persons acres acres acres place and therefore this too did not taken place.
10% of the population to live at 30 dwelling/Hectare This criterion did not work as majority of housing taken
35% of the population to live at 80 dwelling/ Hectare place in private sector as an individual initiative which was
55% of the population to live at 140 dwelling/ Hectare not properly guided through any mechanism (See Block 1).
Community facilities
At present only 432 acres of open 211 415 626 The provision of open spaces cannot implement accordingly,
spaces is available in the city. acres acres acres nor has it been expanded as proposed.
Recommended open space at city
level
Open space at neighborhoods level 328 - 328 No Neighborhoods development took place.
acres acres
Central area uses @ 1acre/1000 96 189 285 No central area was developed
person acres acres acres
A proposed standard of 5 acre/1000 persons is recommended in the M. No park or play ground was developed during MP period or
plan. This has further been distributed as under according to this stipulated criteria. The selected standard
i- City level Acre/1000 persons Acre/Neighborhood i.e. 2153 acres open space by 1985 was very ambitious to
- Parks and forest area 1.2 - achieve at any level.
- Green belt 1.0 -
ii- District level 0.36*50 18
iii- Neighborhood parks and play fields 0.75*25 = 18.75*2 = 37.5
iv- Mohallah play ground & Children parks 1.75*5 = 8.75*10= 87.5
It is evident that a total area of 2153 acre is to be requires for open spaces
187
by 1985. A high power committee be constitute in Peshawar to acquire
land by gifts, purchase and other means. It would be better to acquire
suitable land now in order that huge amount may not to be incurred later
on
It is recommended that 5 acre of land site at Gor Khatri a historical This proposal partially achieved after the lapse of the plan
building site be converted into a park for passive recreation. period
The space of 35 acre exists between lady reading hospital and railway This site was a government property and remains vacant for
line extend right up to the bridge can be easily acquired for the open the entire period of Master Plan but no one alter its character
space. to be called as open space. Later on doctor and nursing flats
and hostels were constructed on this site.
A space of about 2 acre is lying vacant in Lahori Gate damaged in 1947 No action had taken place during the master plan period and
partition can be converted in to a public park ultimately the sites were encroached by other uses.
Similarly a space of 2 acre is lying vacant in DubgarinGate damaged in
1947 partition can be developed to a public park
Three plots 13,14 & 18 are lying vacant in Nishtarabad and can easily be Private land and therefore could not be materialized
converted into children park
An area of about 0.77 acre is lying vacant in Skindara pura west of Dr
Ghulam Hussain building may be declare as an open space
An area of 178.9 acre running between the two canals from Eidgah to This proposal was based on the fact that high water table
Sakhi Ka Cheshma may be earmarked for development as National park exists in the area and therefore could be declare as national
to meet outing need and picnics places need of the city. park, but due to the private ownership and later on lowering
of the water table due to the initiative of the SCARP, people
constructed houses thereupon.
Public amenities
Hospital beds existing deficiency of 30 acres - 30 The provision of health facilities at districts, neighborhoods
864 beds at the city level acres and Mohallah centre were very ambitious and therefore
could been accomplished at any level.
Existing deficiency of 5 Dispensaries, 20 acres - 20
5 Maternity & child welfare centers acres
It is proposed that 1338 hospital beds would be needed at the plan period. This proposal could not taken place due to financial
Therefore One 500 bed hospital should be provided in each district and a constraints.
poly clinic in every alternate neighborhood during the first phase of the
plan period, while in the second phase bed strength of the lady reading
188
hospital be gradually increased to 1000 beds and ultimately one poly
clinic for every neighborhood of 50,000 persons is proposed by the plan.
Mental hospital located in the premises of the central prison should be This proposal could not take place due to financial
relocated to the area zoned for special uses constraints.
Existing Education Deficiency of 98 176 acres - 176 Education department was not considered during the plan
Primary school, 8 High school and 7 acres making process. Therefore, it works according to its
colleges departmental allocations of funds.
It is proposed that two 2-section segregate primary schools one for boys This is again a very ambitious proposal for the establishment
and one for girls at every Mohallah centers will be provided in the plan of these schools at Mohallah and neighborhood level.
period.
Two 4-section segregate high schools one for boys and one for girls at
every neighborhood centers will be provided in the plan period.
It is proposed that one 6-8 section boy’s college and one 4-section girl’s Planned development as proposed by the plan could not be
colleges at every District centers will be provided in the plan period. ensure in the financial allocation.
Space standards The master plan did not elaborate the actual attainment of
Type of Institution Site area per student Area of play ground such large areas for educational institutions provision at
In Square feet various hierarchical levels. This makes the whole plan
Primary 100-150 2 acres plus 50 sft per student
unacceptable to the authorities concerned.
High 250-300 4 acres plus 100 sft per student
College 400 Boys, 6 acres plus 300 sft per

student
Girls, 5 acre plus 200 sft per
student
Existing deficiency of Educational Institutions and Future Requirements Proposal for the required number of educational institution
Type of Existing Existing Additional Required Total for a poor developing country shows that the plan did not
Institution No of Institution Deficiencies for the plan period requirements consider how it could be made possible to acquire 538 acre
Primary School 30 98 78 176 of land and then to construct building for these institution.
This greatly discouraged the achievement of the plan’s
Boys High School 11 02 08 10 proposals.
Girls High School 07 06 08 14
189
Boys College 03 03 04 07
Girls College 02 04 04 08
A 300 acres extension is proposed in the East and South direction of the Extension occurs but not as the plan proposed.
University of Peshawar
Industry
Land adjacent to the existing Kohat 50 - 50 acres This was a very valid proposals but could not been
road SIS required for small scale acres considered due to acquisition of land
industries relocation from the city
A 660 acres heavy industrial state is recommended in the north eastern side This could not be considered due to funds
beyond water logged area of the city. It will develop at the later stage of the plan availability during the plan period, while an
period. industrial estate was developed after the lapse of the
plan period in opposite direction of the city.
Green Belts
Two green belts, inner comprises of water logged area of 2400 acres will acts as No availability of land management system and
parks and open grave yard purposes and outer comprises of 6000 acres will serve development control along with private ownership
as agriculture and dairy needs, are recommended by the plan of these sites remains the main hurdle in the
attainment of these proposals.
Transportation
An arterial six lane 150 feet right of way circumferential road is proposed to join This proposal was intensely needed and finally in
major roads entering Peshawar in order to avoid congestion on the inner city 1990 after the laps of the plan period with the
roads. assistance of Asian development bank this proposal
was materialized.
A six lane 150 feet wide right of way, arterial road is recommended to form a This proposal could not materialize and finally it
partial outer loop in order to avoid heavy traffic from cantonment. It will originate becomes unachievable with the construction of
from Jamrud road at Tehkal Payan will cross Warsak road north of Kabul river houses.
canal shall hit Pajjogi road and will end at circumferential road.
Other roads proposed to fall in major road category are Mall road, Michini road, No action has been taken up by the competent
north circular road, south circular road, city road and city circular road shall have authority.
a minimum right of way of 100 feet with four lanes with progressive signaling,
lane marking etc shall be used to increase the capacity.
Separate cycle track will have to be provided on all major roads No action has been taken up by the competent
authority.
190
Private bus stands are to be shifted to a properly design bus terminals along Shifting of the bus terminal took place after the plan
proposed circumferential road. period but not as proposed by the MP.
A 25 acre terminal is proposed for goods transport along Kohat road alongside the No action has been taken up by the competent
small industrial state. authority.
Three off street parking lots are proposed for shopper of Qissa Khawani, Chowk This proposal is partially implemented in
Yadgar and Cantonment areas. cantonment only due to presence of land
management system.
Commercial
50 shops per 10,000 Population is recommended in the extending areas on basis The proposals for the hierarchical distribution of
of a hierarchy of communities. residential area could not materialized due to:
The distribution of shops in the different centers will be: - Lack of professional capacity in the institutions.
- District centre = 50,000 population = 70 – 80 shops - Financial constraints
- Neighborhood center = 25,000 population = 35 – 45 shops - Private land ownership
- Mohallah center = 5,000 population = 6 – 8 shops - Legal backing
It is proposed to have 10 districts, 20 Neighborhoods and 100 Mohallahs. In each - Land management and development control rules and
of these districts a commercial cum civic center where shopping and allied regulation
facilities of educational, medical and recreational services are planned to be
provided to make each community self contained.
Relocation of the whole sale market from the CBD is proposed to relieve Did not take place
congestion.
Hierarchy of Residential Neighborhood (Planning Division, Districts and Neighborhoods)
The entire urban area has been divided into Planning Divisions, Districts, The plan proposal of hierarchical development of
Neighborhoods and Mohallahs. The Pop. of the planning division is 2 and a half residential area is based on advanced countries
lack and it will be a self sufficient unit, having its own industry, commerce, practices, where development is totally controlled.
offices and other public and semi public uses. Each division has been provided This proposal did not consider the urbanization
with a Divisional Centre to cater high order services, it is further divided into 10 pattern of a developing country like Pakistan.
planning district of about 50,000 pop. with a district centre. The district center Where land is privately owned and it could not
will cater the educational, commercial, recreational and other needs. Each district confirm the norms of a controlled system for
is further been subdivided into neighborhoods have a pop. of 25,000. It will be housing provision.
facilitated with a neighborhood centre, which would cater to the lower order
functions and other incidental need of the residents. These neighborhoods have
been sub divided into Mohallah of 5000 each with Mohallah centers.
Residential Densities:
191
Peshawar has been divided into four density zones. The grass density figure of 50, Did not take place
75, 100, 200 Persons per acre has been recommended by the Plan. It will be
achieved during the plan period in the reverse order from center to the periphery.
Construction of 10 dwelling per thousand persons per year is recommended to Did not take place
achieve a total of 94,500 dwellings units in the plan period.
Suggested %age and plot sizes for various income groups This sort of development pattern could only take
Income groups %age of HH Size of plots Plot %age in %age in non- place in Hayatabad a planned town of PDA, where
subside schemes subside schemes land was purchased in advance and then designed
Higher income 5.48 2-1K 5 20 through such predetermined criteria.
Middle income 23 15-7M 20 80
Lower income 70.5 5-3M 75 -

Other community facilities
Proposed distribution of social services in various centers This proposal of compact development pattern
Category Social Services could not materialize due to non accomplishment of
District centre Boys and girls colleges, Hospital, Cinema, Mosque, Post and Telegraph office, hierarchical development pattern.
Police Station, (50,000) Fire station, Auto mobile service station, whole sale
& Retail shopping, Professional offices, Play
fields & Transport terminals
Neighborhood centre Boys and girls high schools, poly clinic, Mosque, retail shopping, play
fields
Mohallah Center Boys and girls primary school, Mosque, Dispensary, Small Mohallah
shops, Play ground
Source: Master Plan 1965
192
Appendix 1b
Assessment of the Structure Plan (1986-2001) Policies and Proposals
I = Implemented; PI = Partially Implemented; NI = Not Implemented; NA = Not Applicable
Development Structure Plan 1986-2001 I PI NI Remarks
Plan Parameters
Vision Statement, To achieve balance development which will enhance the role of - - NA Balance development did not take
Goals and Peshawar as a provincial capital place due to non availability of a
Objectives custodian to the plan.
Identified Limits The structure plan advises not to build up to the tribal area in the west - - √ The identified limit for the city was
for the Future and identified the Takhta Beg Khwar in the north west and the canal in first violated by the PDA itself without
Expansion of the south west of Hayatabad Abad, Bara river in the south and Budni a proper review. Besides it non
City Nallah in the north of the city as terminal boundaries for spatial existence of estate management for the
expansion of the city. whole district supported deviation from
the plan proposals.
Planning Mohallah or township of about one square kilometer i.e. 100 hectares - - √ No such hierarchical development
Approach for the with population varying from 10,000 to 60,000 is recommended as self could become possible in the absence
Spatial Expansion contained communities. of a planned package including
of the City provision of infrastructure and services.
Land Use Compact development pattern. - - √ Lack of expertise and interests of the
Distribution PDA made it impossible.
Policy
Housing Policy, The structure plan housing policy is based on 54% low income housing, - √ -  Development authority has no
Residential 36% middle and 9.4% high income groups housing provision. The powers and expertise to guide private
Densities and structure plan further recommended that 10 Marla to one canal plots for sector housing, because private sector
Hierarchical high income groups, 4-6Marla for middle income and 2-3marla plots housing expands in a sole manner. The
Distribution of for lower income groups. It also recommends the phase wise structure plan’s detailed calculation
Residential Plots development according to the following criteria. could not even persuade LPA to guide
1986 – 91 = 18,000 low income plots private sector owners in the
11,800 medium income plots accomplishment of the proposed
3,000 high income plots pattern of development.
1991 – 96 = 22,600 low income plots
14,800 medium income plots
3,800 high income plots  No such criteria were used to restrict
The SP proposes plot density as fallow: the owners accordingly. In such an
10% people will live in 30 dwellings per hectare. unbridled development pattern density
35% people will live in 80 dwellings per hectare. could not be imposed. A proposed
55% people will live in 140 dwellings per hectare. town plan could help DA to impose
Therefore land requirements for the future growth will be as fallow: some standard for density upon
193
1991 = 595 hectares = 1470 acres owners. While in public sector LPA
1996 = 749 hectares = 1850 acres could only develop two phases in
2001 = 822 hectares = 2030 acres extension of Hayatabad. The plot
A total of 2166 hectares/5350 acres will be utilized for housing. delivery process was so lengthy that a
real needy could not wait for it and
ultimately the speculators gets
advantage for investment.
Strategy for To achieve this target the SP gives two different strategies focused on - - √ No PDA directives were there to guide
development land costs versus accessibility to employment and the opportunity to private sector development, nor, any
improve existing under service areas with integrated new development infrastructures were laid down to bring
Versus the opportunity to creates new and well planned, balance and private sector development on a formal
self funding communities on open land. Through a convincing debate manner.
the SP proposes both these strategies for future expansions and
recommends that during first half of the SP period development should
concentrate around the old city through infilling by private sector. It
will be guided by the PDA through sitting of trunk infrastructure to
ensure that development may not locate in a haphazard manner.
In this strategy the areas for most urban expansion would be to the
south of the walled city and the cantonment with some growth to the
north of the GT road. This should provide the greatest benefits to both
the existing residents and the lower income families requiring houses
within short travel distance of their work.
In the second half the SP recommend that areas should be considered
south of university town to form link with Hayatabad and support the
ring road proposals.
Open Space and Did not considered - - √ Ambitious proposals and were not
Parks Strategy implemented (See Block)
Health Institution The SP proposes the following increase no. of hospital beds in the - - √  Only one hospital construction in
Proposed and existing and new facilities for the planning period: public sector taken place. While no
Upgradation of 1986-1991 = 570 bed spaces at the cost of Rs. 85.5M filters clinics were provided.
Existing Services 1991-1996 = 668 bed spaces at the cost of Rs. 100.2M
1996-2001 = 739 bed spaces at the cost of Rs. 110.85M
Looking to this demand, the SP proposes that one new hospital to be completed
each five year.
One Filter clinics is proposed for 50,000 people. therefore the following
no. of FC is proposed:
1986-1991 = 4 at the cost of Rs. 16M
1991-1996 = 6 at the cost of Rs. 24M
1996-2001 = 6 at the cost of Rs. 24M
The SP proposes the following no. of maternity and child health  No maternity or child health centers
clinics: 1986-1991 = 6 at the cost of Rs. 12M were constructed during the plan
194
1991-1996 = 7 at the cost of Rs.14M period or afterward.
1996-2001 = 8 at the cost of Rs.16M
Educational The SP Proposes that each category of education need the following no. of more school - √ - Some educational institution were
Facilities Primary schools Middle Schools High schools constructed but not as planned by the
1986-91 177 31 4
Identification of 1991-96 223 39 6 MP as it is the responsibilities of the
Deficiencies and 1996-01 245 43 6 education department to provide
Proposed educational institutions and it usually
taking place in according to the elected
representatives directives.
Industry: Two complementary training schemes are suggested, through private - - √ Industrial development is the
Small and sector involvement. responsibilities of the industry
Medium department and that they are not bound
Industries The SP revise the MP proposal for industrial estate at the eastern end of to fallow what the PDA plan suggest.
Large Scale the city Ultimately no action was taken place
Industries on the plan’s proposals and hence all
these gone in vain.
Green belt, Did not considered - - √ The structure plan proposals to built
Agricultural and housing south ward on the agricultural
Diary need land ruined all such proposals.
proposals
Communication Area traffic management schemes: a) Old city b) Inner ring route √ Work on all these traffic management
and Transport: c) Saddar bazaar priority schemes are: Schemes were initiated from time to
Traffic - Immediate improvement to traffic flow and pedestrian movement time but it did last for very long time
Management around and within the old city. due to improper policing system in
Schemes - Rationalize and improve all junctions providing access to or from order to ensure its enforcement, driver
the old city. education and above all the role of the
- Establish a primary circulation route around the old city suitable RTA to ensure public and pera- transit
for buses and heavy vehicles. permits.
- Establish a limited access route around the old central core (not
suitable for large vehicle).
- Establish a series of access loops between the primary circulation
route and the central core (not suitable for large vehicle).
- Provide foot paths on all routes and establish major pedestrian
routes (with pedestrian crossings/over bridges) to link areas of This proposal was can not implemented
major pedestrian attraction and activity. due to lack of institutional interests and
- Control of traffic movement by physical works and traffic political support for such like
management measures such as: proposals. Only sporadic action were
- Introduction of linked one way street system. taken but that too did not been honored
- Provision of controlled on street parking. particularly parking restriction,
- Restriction of parking and loading (except for (b) above on all banning of specific vehicle entry on
195
Curb and Off circulation and access routes during the working days certain roads at day times, provision of
street Parking (Saturday- Thursday 7.30am-8.30pm). bus pick and drop bays for the public
Lots - Banning specific vehicles from specific routes at specific time. transport, foot paths and pedestrian
- Provision of bus lay- bys and stopping places and establishing only routes in specific location etc.
and licensing rickshaw/pickup routes and stopping areas.
- Establishing some limited access or pedestrian only routes or
areas, improved pedestrian footpaths and crossing facilities
especially along the GT road and Qissa Kwahani and Chowk
Yadgar.
- Provision of inner ring route to relieve pressure on the old city by
utilizing existing (but improved) elements of the present road
network and would provided by:
- Completing and enhancing the current package of improvement to
the route from GT road east of the city circular to Wazir Bagh.
- Introduction of traffic management measures including some limited
one way system around the major shopping streets of sadder Bazaar
- Construction of a short (350m) diversion at the western end of (i)

above around Wazir Bagh.
Corridor improvement schemes (trunk and radial routes)
i) Defining the carriage way width to provide reasonable capacity for Work on these proposals are routine
moving vehicles. business but lack of proper monitoring
ii) Provision of new and improved footpaths and pedestrian crossing and repair waste all such efforts if ones
facilities. taken for the betterment of community.
Major corridor iii) Removing encroachment. For example removal of encroachment,
improvement iv) Rationalization of bus stopping places and provision of bus bays. the provision of service road for slow
Programs v) Where necessary and where space is available the provision of moving vehicle, provision of streets
service roads or lanes for slow moving vehicles. lights and traffic signs and signals
Pedestrians & vi) Junction improvements.
Cyclists vii) Repair and resurfacing as necessary.
Walkways viii) Provision of street lights signs and carriage way markings to
guide and inform drivers and to direct flow. Various actions for these projects were
ix) The improvement of the Kohat road from Wazir Bagh to the railway taken accordingly but that could not be
bridge at Sadar Bazar. considered the development plan
x) A short one way system to link the railway bridge to the old GT initiatives. These were routine business
road. and have no links with the plan
xi) Improvement of the old GT road. implementation
xii) The proposed Saddar Bazar traffic management scheme
include improvement to:
- The proposed link to the new ring road (south) and the GT road.
196
Sub Arterial - The proposed inner ring road and the GT road.
Roads & - The Bara road and GT road.
Access Roads
Construction of new ring road and link road during 1986-2001 The proposal of the ring road as
The SP organizational improvement program include establishment of proposed by the plan was considered
separate Traffic Management Unit and coordination amongst agencies. by the authority as and when the funds
This unit will: were made available for the project.
- Undertake traffic surveys and counts
Arterial roads - Record and analyze traffic accidents √ The establishment of a separate traffic
- Identify, design, implement and monitor traffic management management unit was taken place in
Capacity schemes. the city with the help of foreign
Development, - Provide specialist traffic advice on Bus Terminals, other transport assistance. It had undertaken various
technical interchanges, car parking and general development planning issues. activities regarding traffic planning and
assistance and - Prepare longer term traffic and transport plans. management assignments but could not
training - Establish the necessary legal and administrative frame work to sustain its existence and was
provide improved management and coordination in all aspects of closedown with the lapse of foreign
highway use and traffic management within the city. assistance. None of its schemes got
Bus Terminals - Establish objectives for and methods of public information and implemented due to non availability of
Goods Transport participation in traffic schemes. finances, skilled manpower and above
- TEMU will undertake: all political well to support such
- To complete the mapping and detailed inventory of existing major schemes.
routes.
- Complete and formally record the peak hour traffic movements at
all priority junction.
- Obtain a resource persons interested in acquiring traffic planning
and management skills to work within PDA under the direction of
the director of planning.
- Undertake surveys like screen line surveys to enable detailed
traffic assignments to be undertaken.
- Parking duration and total parking surveys in key commercial
areas especially around Sadar.
- An estimate of the total numbers of Afghan Refugees vehicles
operating on the roads of Peshawar.
Commercial √ Provision of commercial strategy in an
establishments established manner could never taken
Strategy/Policy:
Number of place due to the absence of planned
shops/1000 development pattern.
Population
Distribution of Shops
Whole sale and trade
centers
197
Estimation of The SP plan pointed that existing system of water provision in the city √ The proposal could not been
Essential is in haphazard manner. Tube wells have been constructed as required considered due to political interference.
Services: by demand, with separate branched distribution system, where mains
- Water Supply diameter is 6 inch only and there is no record of the existing distribution
system with MC. The SP proposes new extension in the designated
future expansion at an estimated cost of Rs. 100000/ha.
- Electricity Did not mention in the plan proposals

- Sui gas Did not mention in the plan proposals
- Solid waste The SP only increase the cost to properly handle Solid Waste
collection and
disposals
Financial Carried out in details Financial analysis has carried out by
Analysis of the the plan but it could not been used
Projects Proposed because none of the plan proposal were
in the Plan implemented in time. Great variation
were occurred as a when these proposal
were considered at the later stage.
Implementation Project wise √ No strategy of the plan was utilized.
Strategy of the
Plan Proposals
Worked out - The SP proposes that the PDA must have a Board to discuss and √ The structure plan proposed
Institutional assist decision making. The board will comprise of the Minister for institutional capacity and its
Capacity for the PP&H as its chairman, 2 MPAs, 2 Local councilors, Secretary to coordination procedure at various intra
Plan Minister for PP&H, DG PDA, MD WASA PDA, and DUP as and inter organizational level, but it
Implementation members. Regular Meeting of the board is to be held every two could not taken place.
month.
- The SP proposes an executive committee with in PDA comprises of This was a very valid proposal to
all Directors as members and will meet every month to discuss change the organizational and
major projects priorities and coordination. professional structure of the
- development Authority, because from
- The proposed structure for PDA comprises of: the very beginning the authority was
PDA Board expected to carry out civil engineering
DG PDA works and therefore were totally ill
Secretary PDA capacitated for carrying out planning
MD wasa DB&R DLD DUP DF D. estate works.
No such proposal could take place due
DD w. supply DDB DD upgrading DDBC DDprog. DDLA to a complete hold of non planner at
DD D&S DDR DDLD DDDC DDAct. DDSale various levels in the organization. This
DD account DD Hyt Abad DDTP DDAud. was considered as a conspiracy of
198
DD St. & Local Plan existing planner to get hold of the
Directorate of √ organizational affairs.
urban planning The SP proposes a full pledge directorate of urban planning to deal with
all aspects of urban planning according to the SP policies and proposal.
These are as fallow:
- The SP proposes that this plan should be updated after each

10years and monitored on an annual basis.
- The SP divided the city into eleven districts, and proposes
preparation of local development plans for each district of the city.
- The ST plan proposes four AD local planning under the
auspicious of the director ST. and local plan.
Environmental The Plan did not cover this aspects No environmental examination i.e. IEE or SEA
Consideration of the were carried out for the plan’s project
Proposed Projects
Public Examination of The Plan did not cover this aspects No such public hearing or examination was
the Proposed plan carried out for the plan’s proposals. It was just a
project report prepared by the foreign consultant.
Plan’s Approval from The plan was not declared approved The existing plan was not approved by the
the Legislative Body legislative body and was not revised by the
development authority.
Plan Dissemination The Authorities did honor this aspect Plan’s dissemination did not taken place amongst
Amongst the Line line agencies and public institution. Actually the
Agencies and Public plan was not approved nor could it become a
Institution public document.
Sewerage and The SP pointed out that limited progress has been made in implementing the √ The proposals regarding sewerage and
drainage system master plan proposals. some of the proposed trunk sewer has been constructed drainage could not get fully implemented
but virtually no laterals for connection. The Sp proposes a separate organization till the end of the plan period. Sporadic
WASA for the provision of sewerage system. The SP proposes lateral sewers action taken place but could not completed
connection to the existing areas in the following manner. due to financial problems.
Period Service installation RS in Million
1986-1991 10% 4.5
1991-1996 30% 13.5
1996-2001 45% 20.5
This prog. will provide 85% of the sewer in the period to 2001. This proposal of the structure was based on
The Sp during 1986-91 and 1991-96 proposes provision of main holes on trunk the interests of the PDA to mobilize
sewer for clearing the blockages at a cost of Rs one million. community for lying of sewers. The
The Sp proposes that if considerable efforts are put into developing the skills organization concerned was having no
require to plan and execute sewerage schemes and all residents are convinced capacity for social mobilization of the
for having sewer connection, then 50% of all new private development will be masses. Therefore this proposal could not
sewered in the period until 2001. take place.
The Sp proposes 2 trunk sewer south eastern and eastern side sewer at a cost of Later on after the lapse of the plan period a
199
Rs. 13.61 million and Rs. 4.94 million. Further extensions of these sewers are sewerage treatment plant was established
also proposed in the period 1991-2001. but not as proposed by the plan.
Treatment plant for sewage of this sewer is proposed at Budni Nala as per 1965 Work on this proposal is still continued and
Master plan. A fairly deep sewer through an area with a high water table at cost have not completed yet.
of Rs. 20 million in the period 1997-2001.
The Sp also proposes trunk sewer for the areas of Hayatabad and airport until
2001.
Phasing of Urban The SP identifies the following direction for spatial expansion of the √ Spatial expansion was proposed according to a
expansion city during the three five year period. It is also proposed that the public pre determined criteria. Amongst these six
localities for future expansion the first three were
sector play its role in the advance provision of infrastructure, public proposed for the first and second phases of the
developments and by development control system: plan. These areas remain un-attracted due to
1- The east of the city inside the ring road, from the Charsadda unavailability of infrastructure except few
localities along main roads. While the proposal 4
road to the Bara road.
could not taken place even now. Major expansion
2- The south east of the city outside the ring road, from the GT occurs on the 5th proposal, which were very close
road to the Bara road. to educational institution and health services.
3- The south west of the city inside the ring road, from the Bara Generally the city expanded very fast towards
road to Hayatabad. north and western direction.
The zonal allocation remains as follow:
4- The south west of the city outside the ring road from the Bara  Zone 1 was dominant throughout the St. Plan
road to Hayatabad. period (1986-2001) by private developers
5- The north of the city from Charsadda road to the Jamrud road.  Zone 6 was dominant due to PDA provision of
services to Hayatabad
6- Hayatabad.
From 1986-1991 = Zone 1, 3, 2 and the steadily growing zone of  Another zone took place in deviation of the St.
Plan proposals (Regi Lalma)
Hayatabad throughout the three planning period. The rest of the zones have gradual growth in
1991-1996 = Zone 2 and Hayatabad with general growth in all deviation of the plan proposal of compact
other. development.
1996-2001 = The fastest growth is expected in zone 4, 5 and 6.
Urban management - The fast growing areas of the city urgently need local plans to aid control of √  The plan proposes that local authority will
the haphazard location of building, to ensure future servicing costs are be capable enough to produce local plans
reasonable and the expansion of the city can take place in an attractive, for the remaining areas of the city, but
rational and cost effective manner actually it did not.
- Land development regulation is proposed.
- LDR should determine what type of building can be built and where.  The plan proposal for the strengthening of
- Development control mechanism is proposed as a first step for approval, the professional capacity and efficient
when passed the application should be passed to building control. workability of the development authority
- Regular meeting and procedures should be set up to ensure that the federal were not honored. Therefore it could not
agencies involved in the development of the city have full information on been possible for it to manage urban land
the programs and priorities for growth and improvement so as to enable according to the plan proposals.
them to coordinate their forward programs.  No such meeting could even taken place to
coordinate plan’s implementation.
Source: Structure plan report and professional interviews
200
Appendix – 2
Development plan prepared in Pakistan
201
Appendix 2
Province wise list of urban development plans and their period of implementation in Pakistan
Type of Khyber Planning Punjab Planning Sindh Planning Baluchistan Planning
plans Pakhtunkhwa Period Period Period Period
Master Peshawar 1965-85 Lahore 1966-80 Karachi 1957 Quetta 1966
Plans Mardan 1976-90 Faisalabad 1968-82 Sukkur 1988-2003 Quetta 1988-2003
Abbotabad 1983-97 Multan 1966-80 Karachi city 2005-2020
Rawalpindi; 1971-90
Murree (Hill station) 1976-90
Structure Peshawar 1986-2001 Structure Plan 1980 Mirpurkhas, 1990-2010

The Lahore Urban Development and 1980
plans/Regi
Traffic Study (LUDTS) was formed in
Sanghar, " - -
onal Rawalpindi Master Plan for Greater (1970-1990)
Nawabshah "
Developme Rawalpindi Tando Adam, "
nt Plans Sargodha From mid Tando Allahyar, "
70's-2000 Khairpur; "
" Larkana, "
" Shikarpur "
Integrated Master Plan for Lahore IMPL 2020 Jacobabad. "
Nausheroferoze. "
Thatta, Badin , 1999-2012
Dadu, Mithi "
Dhabeji Ghora "
and Bhambore
OSP/ODPs Abbottabad 1989-2003 Pattoki 1978-95 Nawabshah, 1985-1997 Chaman, Mid 80s-
for Bannu " Bhalwal 1979-95 Tando Adam, " Sibi, 2000
Intermedi DI khan " Mir Mohal 1978-95 Larkana, " Khuzdar, "
Kohat Muridke 1981-95 Mimurkhas, Turbat,
ate Cities " " "
Nankana Sahib 1981-95
Mardan " Tando Allah " Pishin, "
Shujabad 1981-2000
Mingora " Lodhran 1982-2000 Yar, Rohri " Loralai, "
Multan, Gujranwala, 1999-2004 Zhob, Hub, "
Sargodgha, Sialkot, Sahiwal, " Mustang, "
Vehari, Rahim Yar Khan, " Gawadar "
Bahawalpur, Sheiklhpura,
"
Burewala and Mian Channnu
"
202
Table 4.3 Continued…
OSP/ODPs Charsaddah 2000-2014 Gakhar;Gojra; Jhang;Arifwala, 1968-1995
for small Hangu " Abdul Hakim; Dina; Dingo, Ahmad "
Cities and Haripur " Pur; Alipur; Attock; Bahawal nagar; "
Bahawalpur; Daska; Basirpur;
towns Mansehra " "
Bhahvalnagar, Bhaipheru, Bhakkar;
Takhat Bhai " Borewala, Chiniot; Chak Jhumroo, "
Timergra " Gujrat; Chakwal, Chishtian; "
Swabi " Chichawatni, Chunian; Jhelum; D.G "
Nawansher, " Khan, Depal Pur, Fort Minro; "
Havellian, " Darya khan; DG Khan; "
Khalabat, " Farooqabad; Fort Abbass Bhero, "
Utmanzai, Jalalpure; Gujjar khan, Jatio, jattan;
" "
Tangai, Gujranwala;Hafizabad;Haroonabad;
" Hasilpur, Haveli Lakha; Hujra "
Shabqadar, " "
Shah Muqeem; Hussanabad,
Jehangira, " "
Jampur; Jaran Wala, Khushab;
Akora Khattak, " Jehanian, Juharabad, Kabirwala; "
Zaida, " Kamhlia, Kamoke, Karore Pucca, "
Pabbi, Kasur, Khan Pur, Khan Garh;
" "
Topi, Khanewal, Khanpur; Kishan
" "
Nowshera, Dunypur, Kot addhu, Kot Radha;
" kotmemon; kundian; Layyah, "
Tordher,
" Liquat pur; Mailsi Rajanpur; "
Batkhela,
Dir, " Makhdum pur,Lala Musa, Mandi "
Chitral, " Bahaudin; Mian Channu, Mianwale; "
" Mitha Tiwana, Murid Ke; Muzffar "
Thall, Garh, Narowal; Norang Mandi,
Karak, "
Okara; Pak Pattan, Pasrur, Patoke,
Lakki Marwat, Pindi Ghabe; Pinvala, Poharon; "
Tang Qila Dedar singh; Rahim Yar "
Khan, Sadiqabad, Sahiwal; Sama "
Satta, Sangla Hill; Sarai Alamgir, "
Sumandari, Sargodha, Shahkot; "
Sheikhupura, Sialkot, Talagang, "
Rabwah, Taxila, Yazman;
"
Wazirabad; Tamay wala, Tulamba,
Vehari, Tandian Wala, Tansua, "
Tobateksingh, "
Total 33 135 25 12
Source: NUDP (KPK); Urban Unit (P&D) Punjab; ADP and GoP, 2000
203
Appendix - 3
Comparison of development planning
Acts and Ordinances
204
Appendix 3a
Analytical Comparison among Urban Planning Acts and Ordinance promulgated in NWFP
NWFP Urban Planning Act, 1975 NWFP Urban Planning Ordinance, 1978 LGO 1979
“Regulation” means regulation made under this
ordinance; “Rules” means rules made under this “Regulation” means regulation made under this ordinance; “Bye-laws” means bye-laws made under this Ordinance…
ordinance. “Rules” means rules made under this ordinance.
"Local Area Authority" means the Local Area “Local Area Authority” means the Local Area Authority
Authority established under section 15 of this Act. establish under section 15 of this ordinance”. While Local
While Local Area Authority is explained as “Planning “Local Area” means an area under the jurisdiction of a Local Council.
Area Authority is explained as “Planning agency includes Whereas Local Council is define as “Local Council” means a Local Council
agency includes the Provincial Urban Development the Provincial Urban Development Board, Local Area
Board, Local Area Authority and other government constituted under this Ordinance, and includes a District Council, a
Authority and other government agency engaged primarily Municipal Corporation (MC), a Municipal Committee (MC), a Town
agency engaged primarily in planning for in planning for development…
development… Committee (TC) and a Union Council (UC)…
The preliminary chapter at no 25 defined that an “Urban The preliminary chapter of this ordinance define the “Urban Area” at no 59,
The preliminary chapter at no 23 defined that an area” as “an area within the jurisdiction of a town or
“Urban area” as “an area within the jurisdiction of a that “an area within the jurisdiction of a Town or MC and includes any other
municipal committee and includes any other areas which area which Government may, by notification, declare to be an urban area for
town or municipal committee and includes any other government may, by notification in the official Gazette
areas which government may, by notification in the the purposes of this Ordinance”
declare to be urban area for the purpose of this ordinance.”
official Gazette declare to be urban area for the
purpose of this Act.” Section 76 empowers the “MC” to draw up Master Plan for the Municipality
Section 15 subsection (1) states that to implement which shall, among other matters, provide for-
provincial urban policies and local area planning, the
Section 15 subsection (1) states that to implement ordinance too empowering to establish a Local Area
provincial urban policies and local area planning, the Authority to carry out all such functions in a local area. (a) Survey of the Municipality including its history, statistics, public
act empowering to establish a Local Area Authority to services and other prescribed particulars;
carry out all such functions in a local area.
Section 17 subsection (1) empowering that “in addition to
other functions assigned to local area authority under this (b) Development, expansion and improvement of any areas within the
Section 17 subsection (1) empowering that “in addition ordinance, such Local Area Authority shall engage in a Municipality; and
to other functions assigned to local area authority under continuing planning process…
this Act, such Local Area Authority shall engage in a (c) Restrictions, regulations and prohibitions to be imposed with regard to
continuing planning process… the development of sites, and the erection and re-erection of buildings
Subsection (2) stated that the objectives of planning
process include “planning for land development and within the Municipality.”
Subsection (2) stated that the objectives of planning implementation thereof for all parts of the local area which
process include “planning for land development and may be related to any of the following:— Section 77 illustrated that:
implementation thereof for all parts of the local area (a) the location, distribution, characteristics, and intensity
which may be related to any of the following:— of uses and development of land for agricultural, residential (1) Where a Master Plan has been drawn under section 76 and such Master
(a) the location, distribution, characteristics, and commercial, industrial, public or other purposes; Plan has been approved, with or without any modifications, by
intensity of uses and development of land for (b) the development, improvement or provision of public Government, or such agency as Government may specify, no owner of
agricultural, residential commercial, industrial, public facilities, and services such as transportation and traffic land, exceeding such area as may be specified in this behalf in the
or other purposes; circulation system or their components; industrial, public Master Plan so approved, shall develop the site or erect or re-erect a
(b) the development, improvement or provision of utility, educational health, sanitation, community and building on any plot of land covered by the Master Plan except in
public facilities, and services such as transportation and recreational facilities, and other environmental facilities conformity with the provisions of a Site Development Scheme
traffic circulation system or their components; and services; sanctioned for the area in the prescribed manner.
industrial, public utility, educational health, sanitation, (c) the location, distribution, characteristics, rehabilitation
community and recreational facilities, and other and development of public and private housing;
environmental facilities and services; (2) Where a Master Plan has not been drawn up under section 76, no owner
(d) the preservation and protection of open 205
spaces and
(c) the location, distribution, characteristics, historical or archaeological sites; of land shall develop the site or erect or re-erect any building on any
rehabilitation and development of public and private (e) the designation, improvement, clearance, re- plot or land except in conformity with the provisions of Site
housing; development or renewal of blighted, in sanitary or Development Schemes sanctioned by the MC…
(d) the preservation and protection of open spaces and otherwise deteriorated area and the relocation and
historical or archaeological sites; rehabilitation of their residents; Section 79 described the erection and re-erection of buildings and compel
(e) the designation, improvement, clearance, re- (f) the location and development of new or expended that:
development or renewal of blighted, in sanitary or urban areas.
otherwise deteriorated area and the relocation and (g) the acquisition of land for public purposes;
rehabilitation of their residents; (h) the allocation of public land, including the terms and (1) No person shall erect or re-erect a building or commence to erect or re-
(f) the location and development of new or expended conditions of sales or leases; and erect a building unless the site has been approved and the building plan
urban areas. (i) any other objectives as may be prescribed”… indicating the purpose or purposes for which the building is to be used,
(g) the acquisition of land for public purposes; has been sanctioned by the MC.
(h) the allocation of public land, including the terms
and conditions of sales or leases; and (2) A person intending to erect or re-erect building shall apply for
(i) any other objectives as may be prescribed”… sanctioned in the manner provided in the bye- laws and shall pay such
Section 31 subsection (1) empower that a planning fees as may be levied by the MC with the previous sanction of
agency may, subject to the approval of the Board, Section 31 subsection (1) empower that a planning agency government.
adopt Land Development Regulations for the purpose may, subject to the approval of the Board, adopt Land
of regulating all or specified aspects of land Development Regulations for the purpose of regulating all
or specified aspects of land Development, and that (6) A MC may sanction a site plan or building plan subject to such
Development, and that modifications or terms as may be specified in the order of sanction.
(2) Land Development Regulations shall be applicable (2) Land Development Regulations shall be applicable
whole of a Provincial Control Area or Local plan Area whole of a Provincial Control Area or Local plan Area or ;
there of specified in the Land Development Regulations. (7) Nothing in this sanction shall apply to any work, addition or alteration
or; there of specified in the Land Development
which the MC may by bye-laws declare to be exempt.
Regulations.
(2) The objectives of planning process include planning for
land development and implementation thereof for all parts Section-80 is regarding the “Completion and alteration of buildings”,
(2) The objectives of planning process include
of the local area which may be related to any of the which specified that:
planning for land development and implementation
thereof for all parts of the local area which may be following:—
related to any of the following:— (a) the location, distribution, characteristics, and intensity (1) Every person who has erected or re-erected a building shall within thirty
(a) the location, distribution, characteristics, and of uses and development of land for agricultural, residential days of the completion of the building, report such completion to the
intensity of uses and development of land for commercial, industrial, public or other purposes; MC.
agricultural, residential commercial, industrial, public (b) the development, improvement or provision of public
or other purposes; facilities, and services such as transportation and traffic
(2) The MC shall cause every building which has been competed to be
(b) the development, improvement or provision of circulation system or their components; industrial, public
inspected and if it has been constructed in violation or contravention of
public facilities, and services such as transportation and utility, educational health, sanitation, community and
any provision of this Ordinance, the rule or the bye-laws or of the
traffic circulation system or their components; recreational facilities, and other environmental facilities
Master Plan or Site Development Scheme, if any, the MC may require
industrial, public utility, educational health, sanitation, and services;
the alterations of the building so as to be in compliance there with and
community and recreational facilities, and other (c) the location, distribution, characteristics, rehabilitation
where such alteration is not possible, the MC may require the building
environmental facilities and services; and development of public and private housing;
or any part thereof to be demolished, or on the application of the owner
(c) the location, distribution, characteristics, (d) the preservation and protection of open spaces and
of such building compound the offence; provided that no offence shall
rehabilitation and development of public and private historical or archaeological sites;
be compounded if it involves any violation or contravention of the
housing; (e) the designation, improvement, clearance, re-
provisions of Master Plan or of a sanctioned Site Development Scheme
(d) the preservation and protection of open spaces and development or renewal of blighted, in sanitary or
or if the building has been constructed for a use other that it was shown
historical or archaeological sites; otherwise deteriorated area and the relocation and
to be used in the sanctioned building plan.
(e) the designation, improvement, clearance, re- rehabilitation of their residents;
development or renewal of blighted, in sanitary or (f) the location and development of new or expended
urban areas. (3) If a building is required to be demolished under the provisions of sub-
otherwise deteriorated area and the relocation and
(g) the acquisition of land for public purposes; section (2), and such requirement is not complied with, within the
rehabilitation of their residents;
(h) the allocation of public land, including the terms and specified period, the MC may have the building [Sick]demolished
(f) the location and development of new or expended through its own agency, and the cost so incurred thereon by the MC
urban areas. conditions of sales or leases; and
shall be deemed to be tax levied on the owner or occupier of the
206
(g) the acquisition of land for public purposes; (i) any other objectives as may be prescribed. building under this Ordinance.
(h) the allocation of public land, including the terms Section 81 describes the Regulation of Buildings:
and conditions of sales or leases; and (1) Except with the prior sanction of the MC, no building shall be put to a
(i) any other objectives as may be prescribed. use other than the use as shown in the sanctioned building plan
according to which it was erected or re-erected:
Provided that the MC shall not sanction any change in the use of a
building which may be in violation or contravention of the Master Plan
or Site Development Scheme, if any,
Section 173 is regarding the preparation and application of building “Bye-
laws”, it state that:
(1) A Local Council may, and if required by Government shall, make bye-
laws not inconsistent with this Ordinance and the rules framed there
under to carry out the purposes of this Ordinance.
Source: Acts and Ordinances simultaneously promulgated in NWFP
Legal and Regulatory provision for development planning through various other acts and ordinance empowering
other institutions to carry out function without inconsideration of the Development Plans.
Acts and Ordinances Laws Comments

NWFP River Protection The ordinance specified to prohibit that Although the Ordinance deals primarily with matters related to
Ordinance (2002) - “Carrying out construction or any other development work, whether for the building or development control but it does not comes
commercial or non-commercial purposes, is prohibited within 200 feet of within the jurisdiction of any authority specifically deals with
the high water mark of rivers or their tributaries”. building control or spatial development by law.
- “Effluents may not be discharged into any river or tributary in excess of the
amounts specified in the Federal Government’s NEQs Standards”. The ordinance declared that violation of these provisions is
- Sections 141, 144 and 145 read with Part I of the Fourth Schedule of the punishable with a maximum term of three years in prison and/or
ordinance that industries are required to make arrangements for the safe a fine of 15,000 rupees, but it did not mention any responsible
disposal of effluents, and to ensure that effluents are not allowed to pollute institution to ensure the implementation of these laws. This
the water supply or enter the sewerage system. actually produced perplexities amongst institutions to take
- The ordinance strongly prohibited dumping of solid waste and hazardous responsibilities.
waste into a river or tributary. In this regards it is also made clear that the However, the term "catchment area" is not defined in the
Government may, from time to time, add to the list of substances that Ordinance
cannot be dumped.
- The ordinance empowered the Government to make new regulations or
apply existing building regulations to control construction in the catchment
area of any river or tributary.
Sarhad Development - The Act Establishing Sarhad Development Authority (SDA) within the province. SDA has no mandate to comply with the DP proposals. Therefore it
Authority Act 1972 - Act is charged primarily with matters related to the development of industry. SDA is always works in deviation of the DP proposals.
empowered to explore localities for the development of industries in the province.
West Pakistan Industries - Section (3) of the ordinance specifically supports that only an organized This ordinance does not mentioning that who will frame rules
(Control on and planned growth of industries is to be allowed and that industrial and who will ensure its implementation. This 40-year-old
Establishment and facilities may be established or enlarged only with the permission of the Ordinance has no provisions for taking environmental concerns
Enlargement) Ordinance Government. into account in sitting, constructing and operating industries.
1963 - Section (11) of the ordinance says that “the Government may, by
notification in the Official Gazette, exempt any industrial undertaking or
207
class of industry from all or any of the provisions of this Ordinance”.
West Pakistan Motor A quarterly tax is imposed on every motor vehicle through this act. The Act provides no tax incentives to encourage operation of
Vehicles Taxation Act "clean" vehicles with low pollution emission rates. All sort of
1958 vehicle no matter how old they are, considered in one category,
without looking or testing its nuisance.
Bus Stand and Traffic - Section 12 of the Ordinance 1978, these Rules require the Peshawar The development plans prepared so for empowering the
Control (Peshawar) Municipal Corporation, when so directed by the Commissioner, to Peshawar Development Authority to carry such function.
Ordinance 1978 regulate the administration of bus stands in the public interest. Therefore the plans could not implement due to perplexities
- The Ordinance empowering the Municipal Corporation for constructing and amongst the responsible organizations.
maintaining roads, waiting rooms and sheds, and provides facilities such as
drinking water and lavatories within the limits of a bus stand.
Source: Acts and Ordinances promulgated in NWFP for the carrying out of various functions.
208
Appendix 3b
Comparison of Urban Planning Acts/Ordinances with that of the United Kingdom physical planning legislation
United Kingdom Pakistan Pakistan (KPK) Pakistan (Sindh) Pakistan
(Punjab) (Baluchistan)
Legal and Regulatory Law in - The LDA Act 1975 - NWFP Urban Planning Act 1975 - Karachi Development - Quetta Acquisition of
- Punjab Development - NWFP Urban Planning Order 1957 Land (Housing and
Practice - Hyderabad DA. Act Development
The Planning and Compulsory purchase act of Cities Act 1976 Ordinance 1978
1976 Schemes) ordinance
2004 - LGO Punjab 2001 - NWFP LGO 2001
- The Lyari DA. Act 1979
- New Murree DA. Act 1993 - QDA Ordinance 1985
2004 - The Maleer DA. Act - Baluchistan Coastal
- The Thal 1993 DA. Act 1998
Development Act - Sehwan DA. Act 1993 - Gawadar DA. Act
1949 - The Badeen DA. Act 2003
- Cholistan DA. Act 1995 - Baluchistan LGO
1976 - Sindh LGO 2001 2001
Level of Planning Acts (Local level (Local level applicable to the (Local level applicable (Local level
(National level i.e. applicable to the applicable to the particular city only) to the particular city applicable to the
particular city only) only) particular city only)
whole country)
Depth of the document: 163 pages 16 pages 24 pages document 52 pages document 52 pages document
document
Amendment in Law for improvement in - No major - No major Amendments - No major - No major
Physical Planning Amendments Amendments Amendments
The Housing and Town Planning Act 1909,
The Housing and Town Planning Act 1919,
Town Planning Act 1925,
Town and Country Planning Act 1932
The Town and Country Planning Act 1947
Town and Country Planning Act 1990 and
The Planning and Compulsory purchase act
2004, finally the Localism Act of 2011 bring
further changes to the planning system of
Britain.
Definition of Development: No Provision in Definition of Development: No Provision in the No Provision in

The Great Britain 1990 TCPA gives a very "development" includes those
clear and comprehensive definition in section the Law Law the Law
subjects, embraced by the
209
55(1) of the act; define development as “The operative National Five Year
carrying out of any building, engineering, Plan, Annual Development Plan
mining or other operations in, on, over or under of similar plan, which have
land, or the making of any material change in special aspects or implications;
the use of any buildings or other land”.
2- "development planning" and
Section 49 of the plg. and compulsory
"development plan" means,
purchase act 2004 further modify the term respectively, planning and plans
Development and include certain internal for development engaged in
operations: (1) In the principal Act in section 55 formulated by the planning
(meaning of development) after subsection (2) agency; and include the full
there are inserted the following subsections— range of scales, types and
“(2A) The Secretary of State may in a functions of planning;
development order specify any circumstances
or description of circumstances in which
subsection (2) does not apply to operations
mentioned in paragraph (a) of that subsection
which have the effect of increasing the gross
floor space of the building by such amount or
percentage amount as is so specified.
(2B) The development order may make
different provision for different purposes.”
(2) This subsection applies if—(a) section 55(2)
of the principal Act is not applied in respect of
any operations by virtue of a development order
under section 55(2A) of that Act, (b) at the date
the development order comes into force a
certificate under section 192 of the principal
Act (certificate of lawfulness of proposed use or
development) is in force in respect of the
operations, and (c) before that date no such
operations have been begun.
Examination in Public is to be ensure
by the SOS
Section 8 of the Act requires that an
examination in public for RSS is required: The No Provision in No Provision in the No Provision in
No Provision in the Law
Secretary of State is to decide that an the Law Law the Law
examination in public is to be held of a draft
revision of the RSS. The procedure is explained
comprehensively in the act.
210
Monitoring of the Plan: Section 76 is
regarding the
Annual monitoring report
(1) Every local planning authority must make
an annual report to the Secretary of State.
(2) The annual report must contain such No Provision in No Provision in the No Provision in
information as is prescribed as to— No Provision in the Law
(a) the implementation of the local development the Law Law the Law
scheme;
(b) the extent to which the policies set out in the
local development documents are being
achieved.
Review of local development plan

(1) A local planning authority must carry out a
review of their local development plan at such
times as the Assembly prescribes.
(2) The authority must report to the Assembly No Provision in No Provision in the No Provision in
No Provision in the Law
on the findings of their review. the Law Law the Law
(3) A review must—
(a) be in such form as is prescribed;
(b) be published in accordance with such
requirements as are prescribed.
Source:
211
Appendix 3c
Comparison of Urban Planning Acts/Ordinances with that of the Malaysia physical planning legislation
Peninsular Malaysia Pakistan (Punjab) Pakistan (KPK) Pakistan (Sindh) Pakistan
(Baluchistan)
Legal and Regulatory Law in Practice - The LDA Act 1975 - NWFP Urban - Karachi - Quetta Acquisition
The Town and Country Planning (Amendment) Act 2007 - Punjab Planning Act Development of Land (Housing
Development of 1975 Order 1957 and Development
Cities Act 1976 - NWFP Urban - Hyderabad DA. Schemes)
- LGO Punjab 2001 Planning Act 1976 ordinance 1979
- New Murree DA. Ordinance 1978 - The Lyari DA. Act - QDA Ordinance
Act 2004 - NWFP LGO 2001 1993 1985
- The Thal - The Maleer DA. - Baluchistan
Development Act Act 1993 Coastal DA. Act
1949 - Sehwan DA. Act 1998
- Cholistan DA. Act 1993 - Gawadar DA. Act
1976 - The Badeen DA. 2003
Act 1995 - Baluchistan LGO
- Sindh LGO 2001 2001
Level of Planning Acts (Local level (Local level (Local level (Local level
(National level i.e. applicable to the whole country) applicable to the applicable to the applicable to the applicable to the
particular city only) cities only) particular city only) particular city
only)
Depth of the document: 132 pages 16 pages document 24 pages document 52 pages document 52 pages document
Amendment in Law for improvement in Physical Planning - No major - No major - No major - No major
- Town and Country Planning Ordinance of Malaya 1966 Amendments Amendments Amendments Amendments
- The revised Town and Country Planning Ordinance of Malaya 1972
- The National Town and Country Planning Act 1976
- The Town and Country Planning (Amendment) Act 1995
Definition of Development:
“development” means the carrying out of any building, engineering,
Same as given
mining, industrial, or other similar operation in, on, over, or under No Provision in the No Provision in the No Provision in
above in Appindix-
land, the making of any material change in the use of any land or Law Law the Law
4
building or any part thereof, or the subdivision or amalgamation of
lands; and “develop” shall be construed accordingly;
212
Preparation of plan: Section 21c of the act ensuring that the
development plan must be prepared through a qualified person and
that all plans, particulars, layout plans and other documents required
No Provision in the No Provision in the No Provision in the No Provision in
to be submitted under this Act shall be prepared by Law Law Law the Law
(a) a person whose qualifications are prescribed under paragraph 58(2)(h);
or
(b) a person who is entitled to do so under any other written law.
National physical plan
Section 6B illustrate that The Director General of Town and
Country Planning shall, upon the direction of the Council, prepare
Law Law Law the Law
and submit to the Council for its approval a draft national physical
plan which covers Peninsular Malaysia.
Preparation of state structure plans
Section 8 of the act empower that The State Director shall, within The Structure plan
The Structure plan is The Structure plan The Structure plan is
such period as the Council or Committee may specify, prepare and is prepared at the
prepared at the city is prepared at the prepared at the city
submit to the Committee a report of his survey under section 7 and city level and not
level and not at the city level and not at level and not at the
at the same time prepare and submit to the Committee for its at the regional
regional level the regional level regional level
approval a draft structure plan complying with subsection (3) for level
the State.
Public Inspection:
Section 9 subsection (2) make it mandatory that As soon as a draft
structure plan has been submitted to the Committee, the State
Director shall—(a) publish, in three issues of at least two local
newspapers, one of which being in the national language, a notice
Law Law Law the Law
stating that copies of the plan are available for inspection at the
office of the State Director and at such other places as he may
determine and the time within which objections to the plan may be
made to the Committee; and
Review or alteration of structure plans
Section 11 subsection (1) illustrate that a structure plan has come
into effect shall be subjected to review every five years in tandem
Law Law Law the Law
with the preparation of the State’s five-year development plans, and
the review shall relate to the whole of the State.
Preparation of draft local plans
Section 12 subsection (2) ensures that where a structure plan for the No Provision in the No Provision in the No Provision in the No Provision in
State has come into effect, the local planning authority shall as soon Law Law Law the Law
as practicable prepare a draft local plan for the whole of its area.
Public Inspection for local plan:
Section 13 of the act (2) Before making copies of a draft local plan
Law Law Law the Law
available for inspection under subsection (1), the local planning
213
authority shall publish, in three issues of at least two local
newspapers, one of which being in the national language, a notice
stating the date on which copies of the draft local plan will begin to
be available for inspection, the places where they will be available
for inspection, and the time, which shall not be less than four weeks
from the date on which copies of the draft local plan begin to be
available for inspection, within which objections to or
representations in respect of the draft local plan may be made to the
local planning authority.
Preparation of local plan by State Director
Section 16A subsection (1) illustrate that If the Committee is
satisfied that a local planning authority has failed to take steps to
prepare a local plan or proposals for the alteration, revocation or No Provision in the No Provision in the No Provision in the No Provision in
replacement of a local plan, the Committee may direct the State Law Law Law the Law
Director to prepare the plan or proposals and the expenses incurred
in connection with such preparations shall be payable by the local
planning authority to the State Director.
Use of land and buildings: Planning control is ensured through the
act section 18 subsection (1) empower that No person shall use or No Provision in the No Provision in the No Provision in the No Provision in
permit to be used any land or building otherwise than in conformity Law Law Law the Law
with the local plan.
Declaration of development areas
Section 38 subsection (1) illustrating that at any time after the local
planning authority has adopted a local plan for a special area, the
local planning authority may, by notification in the State Gazette,
declare the area or any part thereof to be a development area. No Provision in the No Provision in the No Provision in the No Provision in
(2) Upon an area being declared to be a development area, it shall Law Law Law the Law
be the duty of the local planning authority to acquire, by purchase
or by compulsory acquisition under the Land Acquisition Act 1960,
all alienated lands situated within the area, and to develop the area
in accordance with the local plan.
214
Appendix - 4
Assessment of 10 years Annual Development Plans (ADPs)
of District Peshawar
215
ADP 2001-2002: New Schemes in District Peshawar
(Rs. in Millions)
# Name of Scheme Cost Allocation
(2001-2002)
(Specific) New Schemes
1 Water supply and sanitation Scheme No. 1 Daraz Abad 1.137 0.121
2 Water supply and sanitation Scheme No. 2 Ghari Sheikhan Phandu 10.257 1.200
3 Sanitation Scheme No.3 Kafor Dheri 7.224 3.904
4 Water supply and sanitation Scheme No. 4 Budni 15.626 1.000
5 Sanitation Scheme No. 5 Kaga Wala 11.320 4.025
6 Covering of swimming pool at Qayyum stadium 8.194 0.745
7 Lying of Astro Truf in Hockey Stadium Peshawar 1.057 0.100
Total Expenditure 54.815 11.095
On-going Schemes
1 Installation of 20 Nos Hand pumps UC Sherkera 1.500 1,500
2 Re-Placement of rusted pipe line at Peshawar city 2.000 2.000
3 Lying of pipe line at Abdara 0.150 0.150
4 Construction of tube well in Rashid Town 1.200 0.819
5 Construction of tube well Chamber motor pump external electrification of Palosai Maq. 0.819 0.819
6 Installation of tube well and allied work at civil hospital Mattani 0.830 0.830
7 Construction of tube well at Faisal colony 2.000 2.000
8 Construction of tube well at canal colony 2.000 2.000
9 Replacement of rusted pipe line in Peshawar city 2.000 2.000
10 Extension and repaire of GGHS Nahaqi 0.881 0.498
11 Construction of Drain/Culvert/Pavement of street at Sufaid sang 1.500 1.336
12 Pavement of street/Drains at Kukar 1.650 1.650
13 Construction of culverts at Warsak Kababian Navy Recruiting centre 0.200 0.200
14 Construction of drain/road at Al-badar street GT road near Sahibzada public school 0.900 0.900
15 Construction of drain/brick pavement at Madina colony Miskeen Abad N. Jadeed 0.534 0.534
16 Construction of drain at Nauthia Bazar Peshawar 0.309 0.309
17 Construction of drain at Gujar Abad 0.800 0.800
18 Construction of drain/Pavement of street and sewerage line at Chamba Pir road Nuthia 0.335 0.335
19 Construction of drain/pavement of street in Waris Abad 2.500 2.500
20 Construction of drain/pavement of street at Husain Town 2.000 2.000
21 BTR from house of Habib ur Rehman Shaheed Baba (1Km) 1.690 1.690
22 BTR from Carhi Habib Khan Kandi Marozi Kohat Bus stop Bachano Garhi (1.10 Km) 1.746 1.220
23 BT of road kuragh road sufaid Dheri (1.52 Km) 2.251 1.862
24 BT of road from Umar Abad road to Sabazmand via Umer and Chewha Gujar 1.544 1.343
25 Construction of road at Abdra lane 0.232 0.232
26 Construction of road from Tehkal road up to Shaheed Abad Via Firing range 1.439 1.439
27 Construction of road from Nuthia Gulbery Railway crossing 0.805 0.805
28 Construction of road at Abdara 2.700 3.700
29 BT of road at Garhi Izzat Khan Via Mera Surazai 3.700 3.700
30 BT of road Dalazak road till Wadpaga Via GHS 1.400 1.400
31 BT of road/pavement of street at Ghareeb Abad 2.000 2.000
32 BT of road from Mewera GG community school to Charra Naguman road 3.300 3.300
33 BT of road at Ghari Wahid 2.300 2.300
34 BT of road from Phandu Bala to vegetable Market 1.700 1.700
35 Construction of Rahat Abad road Palosay link road 0.700 0.700
36 Re construction of Phandu road 3.000 3.000
37 Resurfacing of road linking Rahat Abad 0.700 0.700
38 Resurfacing of road and construction of drain in Dir colony 1.500 1.500
39 Construction of show room from community centre for women at Pardah Bagh Peshawar 0.180 0.180
40 Renovation of women industrial home at sheikh abad 1.000 1.000
41 Construction of embroidery school 1.000 1.000
42 Re conditioning of Lala Rukh colony Peshawar 0.824 0.824
43 Provision of computer at Municipal Secondary School 1.000 1.000
Total Expenditure 64.519 54.075
Urban Development
1 Urban Planning and Development Management System for Peshawar 13.180 7.180
2 Special Development Package for Peshawar 50.000 20.000
Total Cost 127.699 81.255
Source: PSDP 2001-2002
216
ADP 2002-2003: Ongoing Schemes in District Peshawar
(Rs. in Millions)
(2002-2003)
1 Community Paediatric project in KTH Peshawar 7.295 2.837
2 Completion of balance work at LRH Gay née, Obstt and paediatric 42.546 17.895
3 Drug edict patient centre 0.800 0.800
4 Construction of extra rooms in High Coart 25.000 16.564
5 Construction of over head reservoir at Governer House 1.354 1.354
6 Provision of recreational facilities in Ghore Gahtree 18.847 15.847
5 Construction of Rahman Baba intersection 72.000 42.000
8 Widening and improvement of Warsak road from Mechni Chowk to Peshawar Public School 41.025 21.025
9 Improvement of GT road from Suri Pul to Ring road 49.752 39.752
10 Improvement of Jamrud road from Hayat Avenue to Run way 37.610 27.610
11 Conservation of Mahabat Khan and Shetee Mosque 7.075 2.500
12 Improvement and expansion of Peshawar Museum 14.050 6.000
13 Conservation of historical building 28.000 3.300
14 Lather industry centre 45.051 1.000
15 Modern Technical education centre 161.342 30.022
16 Special development for Peshawar 50.000 15.000
17 Urban planning and development management system for Peshawar 13.180 7.180
18 Institutional strengthening in CDGP 65.000 1.000
19 Special development package for Peshawar (Construction of police station and posts) 15.000 0.100
20 Carpet town in Chamkani Peshawar 31.628 0.500
21 Peshawar Scarp under NDP 149.583 20.550
22 Kabul River canal 68.576 -
23 Duaba Daudazai Scarp under NDP 31.553 14.690
24 Kafoor Dehre Scarp under NDP 237.701 47.710
Total Cost 1213.968 335.236
Source: ADP 2002-2003
Rs. In Million
(2002-2003)
1 Up gradation of government middle School Nakand and Bazid Khel 5.850 5.850
2 Constriction of boundary wall, class rooms and bath room in GGFC 10.000 10.000
3 Maintenance of building and sewerage system of GCGC Peshawar 2.000 2.000
4 Construction of class rooms and bath rooms in GGC Gulshan Rehman colony 2.600 2.600
5 Provision of basic facilities in GGP Schools in Distt. Peshawar 5.490 5.490
6 Construction of 57 rooms in various govt. Schools in Distt. Peshawar 27.688 27.688
7 Construction of burn unit in HMC 40.000 1.000
8 Construction of 200 room’s doctor hostel in HMC 30.000 10.000
9 Purchase of computers for post graduate nursing college Peshawar 0.700 0.700
10 Purchase of necessary equipments for KMC 7.500 5.000
11 Rehabilitation of KTH building Peshawar 0.850 0.850
12 Construction of 100 rooms doctor hostel in LRH Peshawar 20.000 5.000
13 Maintenance work in various units of LRH Peshawar 5.400 5.400
14 Improvement of mental hospital Peshawar 5.000 3.000
15 Construction of New Service Hospital 50.000 2.000
16 Installation of automatic cleaning system in LRH Peshawar 9.000 4.000
17 Improvements in health facilities in health Deptt. 70.000 3.000
18 Construction of deplete public health laboratory in Peshawar 32.500 5.000
19 Construction of new block in civil secretariat Peshawar 40.000 30.000
20 Construction of block C in civil secretariat Peshawar 30.000 20.000
21 Rehabilitation of provincial assembly building 25.000 25.000
22 Construction of partition wall and group latrines in Civil Secretariat 5.100 5.100
23 Construction of office store and room for Masjad Khateeb in Governor House Peshawar 4.900 4.900
24 Master plan for reconstruction of flats in Race Course Garden Peshawar 2.000 2.000
25 Renovation of Governor house 30.000 15.000
26 Construction of central office for police 80.000 8.000
27 Establishment of P&D in Works and Services Deptt. 5.000 1.000
28 Establishment of borstal departments in Peshawar 15.000 10.000
29 Construction of Sewerage system for Civil Secretariat Peshawar 30.000 15.000
30 Construction of Central Jail Jalozai Phase II 200.000 0.100
31 Construction of Link road to connect Warsak road and jamrud road 100.000 30.000
32 Construction of link road to connect ring road and frontier road in Hayatabad 30.000 30.000
217
33 Improvement and widening of link road along Kabal Canal to connect Warsak road and GT road 50.000 25.000
34 Improvement and widening of link road along Warsak gravity Canal from Board colony to Bara road 25.000 15.000
35 Improvement and widening of Charsaddah road from Bacha Khan Chowk to ring road junction 100.000 9.000
36 Construction of Delia Ection Dam at Azakhel 25.000 10.000
37 Lift Irrigation scheme at Kheshki 35.000 1.000
38 Increase in Production capacities of Vaccine in VRIK biological production division 13.000 1.000
39 Forestation on Hills of Peshawar Valley 30.000 2.000
40 Jamnasiam Hall in Peshawar 10.000 5.000
41 Rehabilitation of player hostel in Arbab Niaz Stadium Peshawar 2.000 2.000
42 Construction of open air auditorium in Nashtar Hall 10.000 4.000
43 Construction of additional building in Industrial complex Peshawar 20.000 4.140
44 Construction of Industrial estate in Jalozai 80.000 17.706
45 BMR readymade garments centre 3.000 1.000
46 Peshawar to Naguman 15 KM road 50.000 50.000
47 Construction of police station Shekhan 5.115 2.560
48 Construction of police station Mathra 5.115 2.560
49 Construction of police station Sahrab 5.115 2.560
Total Cost 1401.923 446.204
ADP 2002-2003: Federal Schemes in District Peshawar
(Rs. in Millions)
(2002-2003)
1 Improvements in water distribution in Warsak through CIDA grant 1325.000 49.000
2 Islamabad Peshawar motor way 26862.261 1353.000
3 Computer science up gradation in university of Peshawar 36.966 6.966
4 Increase in IT graduates in agricultural university 35.990 15.990
5 Up gradation of library in agricultural university 39.885 13.885
6 Provision of R&D facility in PCSIR Laboratory 35.692 19.631
5 Construction of GSP office building and laboratory in Peshawar 50.892 20.000
8 Establishment of biotechnology centre in university of Peshawar 21.915 15.157
9 Provision of equipments to UET Peshawar laboratories 6.687 0.149
10 Collaboration UET Peshawar with George Washington university 22.800 0.780
11 Establishment of Bio Technology centre and Genetic Engineering in agriculture university 39.650 20.000
12 Maintenance of Hostels, Academic block and residencies 5.421 0.240
13 Provision of infrastructure in FC complex Hayatabad 17.320 5.000
14 Construction of officer colony in FC complex Hayatabad 19.576 1.002
15 Construction of zonal head quarter and housing for FIA staff in Peshawar 39.405 10.000
16 Youth development centre for Peshawar 15.740 2.000
17 Women handy crap centre in Peshawar 9.000 2.000
18 Construction of Housing in PARD Peshawar 9.958 7.958
Total Cost 1731.897 189.758
CIP Project District Peshawar
1 Faisal colony 7.077 3.424
2 Ghareeb Abad 2.760 1.445
3 Gul Abad 11.600 7.461
4 Lala Kalay 7.383 4.036
5 Tehkal Bala 6.123 6.411
6 Urmar Bala 9.407 9.332
Total 44.35 32.109
218
(Rs. in Millions)
(2003-2004)
1 Construction of Mid wives training centre Peshawar 71.055 3.000
2 Planning cell in works and services Deptt. Peshawar 7.500 2.000
3 Construction of Mosque in Provincial Assembly Peshawar 2.350 0.350
4 Const. Of new block in MPA hostel Peshawar 30.000 2.000
5 Installation of road lights from Bara road to Charsaddah road Peshawar 11.000 11.000
6 Maintenance of roads in Town 1,2,3, and 4 Peshawar 50.000 14.000
7 Construction of Darul Kafala Peshawar 8.100 2.500
8 Construction of international sports complex in Hayatabad Peshawar 15.000 2.000
9 Sui gas supply to government superior science college Peshawar 1.000 1.000
10 Construction of women hostel and office block in sports complex Peshawar 2.000 2.500
11 Construction of water supply scheme in govt. College Peshawar 1.000 1.000
12 Construction of hostel and IT block in superior science college Peshawar 3.000 3.000
13 Provision of basic facilities in primary schools in Peshawar 5.885 5.885
14 Construction of 50 rooms in primary schools in Peshawar 19.000 8.000
15 Construction of primary school Peshawar 3.250 3.250
16 Provision of furniture in primary school 2.445 2.445
17 Provision of basic facilities to dilapidated schools in Peshawar 4.800 4.800
18 Construction of additional rooms in Peshawar public school 10.000 5.000
19 Up gradation of 10 primary school to middle in Peshawar 25.000 8.000
20 Up gradation of 9 middle schools to high in Peshawar 25.200 7.800
21 Installation of Ingo grapy machine in LRH Peshawar 80.000 13.000
22 Re usage of waste water in Hayatabad Industrial state 25.000 5.500
23 Construction of roads in the city suburbs 2.500 0.500
24 Construction of tube well in Madani and TV colony Peshawar 1.750 0.750
25 Construction of Medical ward in LRH 10.000 3.000
26 Construction of Hayatabad girls college 35.000 19.060
27 Construction of degree college in Hayatabad 35.000 15.000
28 Construction of science block in Government College Peshawar 4.500 4.500
29 Construction of Sufaid Sang road in PF 7 6.000 1.000
30 Renovation of historical building in Qisa Khwani Bazar 40.000 3.000
31 Construction of tube well in Achni Bala ring road 1.750 0.750
32 Construction of tube well in Nudia Payan Bara road 1.750 0.750
33 Construction of girls campus in Khyber medical college 20.000 3.000
34 Construction of medical university in Peshawar 20.000 3.000
35 Construction of drainage system in Lala Kaley Peshawar 10.000 2.000
36 Construction of sewerage and drainage system in Ternab farm 15.000 2.000
37 Water supply scheme for Roshan Abad, Gul Mohd and Yar Mohd kaley 2.000 2.000
38 Maintenance and rehabilitation of Shahi Mehman Khana 6.000 1.000
39 Dualization of road from Bacha Khan Chowk to ring road junction 20.000 1.000
40 Widening and maintenance of road from Chatti Bala to Chatti Payan 10.000 1.000
41 Widening and maintenance of road from Naguman to Naila Wali 10.000 0.500
42 Feasibility study for bridge construction in Ghani Rahman and Dang Lakhtai 1.000 1.000
43 Rehabilitation of Shekhan Mushtarzai road Peshawar 5.000 0.500
44 Construction of Pull road Mustar zai Peshawar 5.000 0.500
45 Maintenance of road from Tarnab to Mattar Peshawar 5.000 0.500
46 Widening and construction of Peshawar Chagar Matti road 5.000 0.500
47 Widening and construction of road between Chulha to Tarai Payan 5.000 0.500
48 Feasibility study for Peshawar water supply scheme 2.000 2.000
49 Construction of new secretariat in irrigation block 20.000 5.000
50 Water supply schemes for Afridi Abad, Kaga wala, Shab Khel and Shekhan 2.000 1.000
51 Up gradation of govt high school to higher secondary in Musa zai PF 11 3.500 3.500
52 Up gradation of govt girls high school to higher secondary in Umar Maina PF 11 3.500 3.500
53 Up gradation of govt girls primary school Misthri zai and Ghazali Ghari to Middle 5.000 5.000
54 Up gradation of govt high school Charparza to high 2.800 2.800
55 Up gradation of govt high school Sufaid sang and Chagarmatti to higher secondary 7.000 6.000
56 Construction of govt high school and girl high school in Afghan colony 5.000 4.000
57 Up gradation of Deen Bahar colony ShahiBagh govt primary school to middle 2.500 2.500
58 Construction of primary school in Khalid Bin Waleed and Latif Abad colony 1.600 1.600
59 Construction of govt girls primary school Pahari Pur Peshawar 0.800 0.800
60 Up gradation of govt girls middle school to high in Shagai Bala 2.800 2.800
61 Up gradation of govt girls primary school to middle in Takht Abad 2.500 2.500
62 Construction of girls high school in Larama Peshawar 4.500 4.500
219
63 Up gradation of BHU Takhtabad to RHC 16.000 1.000
64 Wideningf and reconstruction of Badhni Akbarpura road 10.000 2.000
65 Up gradation of BHU Pakha Ghulam to RHC 10.000 0.500
66 Up gradation of govt high school Nahaqi to higher secondary in PF 9 2.000 2.000
67 Up gradation of govt middle school Gulai zai to high in PF 9 2.000 2.000
68 Maintenance of govt primary school Mulago and const of two room in it PF9 0.500 0.500
69 Up gradation of govt girls middle school Wazir Bagh to high 3.000 3.000
70 Up gradation of govt primary school Qasab Khana Kohati Gate to middle 3.000 3.000
71 Construction of 10 tube wells for water supple in Peshawar 7.000 1.500
72 Construction of Women university 400.000 1.000
73 Reconstruction of 8 KM Heal street road Kohat road to Bara road wia Sheikh Muhammadi 16.000 1.000
74 Water supply scheme for Akbar Town Danish Abad 5.000 1.000
75 Construction of 30 tube wells in town IV Peshawar 30.000 0.500
Total Cost 1249.835 248.34
(Rs. in Millions)
(2003-2004)
1 Completion of remaining work in Gynee block of LRH 42.546 6.000
2 Construction of additional courts rooms Peshawar 25.000 5.000
3 Extension in Peshawar Musieum 33.112 2.000
4 Improvement of Jamrud road from Hayat Avenue to Run way 199.500 5.019
5 Construction of Gymnasium hall in Peshawar 21.769 2.000
6 Purchase of equipments for KMC 5.000 2.000
7 Water proofing of KTH ceiling 0.918 0.918
8 Construction of mental hospital Peshawar 50.000 3.000
9 Construction of New Service Hospital in Peshawar 50.000 5.000
10 Increase in Production capacities of Vaccine in VRIK biological production division 12.550 5.000
11 Laundry facility improvement in LRH 10.800 0.075
12 Construction of borstal departments in Peshawar 59.130 8.000
13 Construction of new block in civil secretariat 26.817 5.000
14 Construction of C block in civil secretariat 29.452 5.000
15 Expansion and construction in PA building 197.522 65.343
16 Construction of central office for police 80.000 5.000
17 Construction of Pick up wear and Delia Ection Dam at Azakhel 39.027 18.473
19 Establishment of 6 advance technical training centre Peshawar 161.342 3.500
20 Improvement and widening of link road along Kabul Canal to connect Warsak road and GT 80.000 20.000
road 12 km
21 Establishment of health reform unit in health Deptt. 13.348 2.000
22 Construction of provincial public health ipleat laboratory 32.500 2.000
23 Construction of open air auditorium in Nashtar Hall 27.770 0.500
24 Construction of Sewerage system for Civil Secretariat Peshawar 30.000 1.500
25 Construction of office store and room for Masjad Khateeb in Governor House Peshawar 4.900 2.100
24 Construction of Jalozai phase II central jail 199.875 9.000
25 Construction of flates and houses in race course garden 20.000 5.000
26 Tree plantation in Peshawar vally 30.000 2.500
27 Renovation of governor house Peshawar 39.615 8.000
28 Construction of Peshawar to Naguman road 135.022 50.000
29 Construction of Central Jail Jalozai 53.272 24.981
30 Conservation of historic building Sethi house, Goregatry and Kotla Muhsan Khan 22.871 2.000
31 Control of Drug ediction and treatment of edicts 3..300 0.800
Total Cost 1738.199 207.366
220
Rs. In Million
(2003-2004)
1 Establishment of Bio Technology centre and Genetic Engineering in agriculture university 39.700 11.650
2 Up gradation of computer science Deptt. PU to Information technology institute 39.800 2.870
3 Up gradation of information technology facility in PU 35.000 20.000
4 Conservation of Geology canter PU into earth sciences 39.300 18.365
5 Establishment of Earth Quack Centre in UET Peshawar 37.300 19.500
6 Establishment of computer best learning college for Home Economic PU 12.100 12.064
7 Extension of Computerization and networking in PU 35.000 20.000
8 Establishment of wide spread internet setup for UET Peshawar 37.700 25.000
9 Marker assistant for change of parts and oil seed sid rape scheme 31.800 9.076
10 Establishment of Medical Botanic centre in PCSIR Peshawar 72.500 30.230
11 Construction of centre for handicap people in Peshawar 40.000 10.000
12 Construction of vocational training centre for handicaps 21.400 10.800
13 NSTCC renovation and accreditation in Peshawar 6.800 3.000
14 Peshawar Squash courts renovation 4.000 1.000
15 Construction of boxing gymnasium in Peshawar 8.000 0.200
16 Construction of youth development centre in Peshawar 15.700 5.000
17 Construction of office building for Federal public service commission 11.700 3.635
18 Construction of residential quarters for intelligence bureau in Hayatabad 37.000 5.000
19 Up gradation of FG primary school in Peshawar 5.500 3.000
20 Peshawar Turkhum Highway 2029.000 50.000
21 Construction of GSP building in Peshawar 50.900 20.000
22 Construction of Zonal headquarter and residential houses for FIA in Peshawar 39.400 10.000
23 Installation of 3*100 KV Radio transmitter in Peshawar 60.000 2.000
Total Cost 2708.3 292.389
ADP 2003-2004: Foreign Projects in District Peshawar

Rs. in Million
# Name of Scheme Allocation
(2003-2004)
1 Science education project II (ADB) 23.527
2 On Farm water management project II (WB) 19.040
3 Technical education schemes (ADB) 19.621
4 CBRM-II project (Swiss and Dutch governments) 0.177
Total Cost 62.365
Allocated funds for MPA in District Peshawar 100.000

Rs. In Million
(2005-2006)
1 Feasibility study for multi story educational complex 2.000 2.000
2 Funds for public school and college Warsak road 10.000 4.000
3 Children health hospital in Khyber institute 2.000 1.000
4 Establishment of Peshawar institutive of cardiology 50.000 4.732
5 Funds for IRNUM 10.000 1.000
6 Reconstruction of Lady Reading hospital Peshawar 30.000 11.000
7 Purchase of necessary equipments for various Deptt. in LRH Peshawar 15.000 5.931
8 Purchase of equipments for KTH 15.000 5.000
9 Establishment of institute for chest in HMC Peshawar 2.000 1.000
10 Reconstruction of Chachehry Mosque 4.940 4.940
11 Reconstruction of 2 Km road from Dir colony ring road to Ghari Atta Mohd. 3.103 3.103
12 Construction of 34 Km road in Peshawar 102.190 34.063
13 Construction of 1.5 Km road from Sufaid Dehree to Achni road 1.245 1.245
14 Drainage and streets pavements in Ghari Rajkot Dalazak road 0.805 0.805
15 Construction of house for Imam Jamia Gulshan Rehman colony 1.500 1.500
16 Provision of parking in civil secretariat block D 27.000 12.000
17 Construction of house in PM secretariat Peshawar 1.200 1.200
18 Construction of roads in Peshawar city 50.000 3.500
19 Feasibility study for mass transit system in Peshawar 5.000 1.000
221
20 Construction of roads in police colony Nasir Bagh Peshawar 1.500 1.500
21 Maintenance and renovation of Islamia college 10.000 1.000
22 Piolet project for sports academy 5.000 2.000
23 Establishment of food street in Peshawar 5.000 1.000
Total Cost 354.483 104.609
Rs. In Million
(2005-2006)
1 Purchase of land for road construction from Mental hospital to frontier road 2.000 1.500
2 Construction of para plajic centre in Hayatabad 19.789 10.000
3 Construction of bachelor hostel in Hayatabad Medical Complex 35.717 5.000
4 Purchase of land for agriculture export processing zone and purchase of nec. Equipments 24.035 1.000
5 Construction of Falahi Markaz for baggers 4.621 1.600
6 Payment for the land purchase for ring road (court case) 20.000 2.000
7 Improvement of cardio vascular deptt LRH 21.160 10.000
8 Feasibility study for car village on ring road 0.550 0.550
9 Construction of building for public service commission 76.318 8.000
10 Construction of treasury block for district account officer 15.000 0.100
11 Provision of facilities for KCD Peshawar 39.984 5.000
12 Establishment of industrial training centre 2.400 1.400
13 Construction of houses for grade 17-20 employees in Hayatabad 43.225 10.000
14 Construction of building for mental hospital 13.592 12.592
15 Conservation of Sheti house and Goregathry buildings 36.258 4.000
16 Construction of degree college in Hayatabad 55.283 22.559
17 Provision of necessary equipments for KTH 15.000 5.000
18 Upgradation of GGMS Shagi Bala to high 2.770 2.000
19 Construction of Open air space in Neshtar hall 27.770 0.100
20 Construction of new block in MPA hostel Peshawar 45.306 8.000
21 Drainage scheme in Lala Kaly 9.715 1.007
22 Upgradation of GGPS Mistray zai and Ghazali Ghare to Middle level 3.900 1.450
23 Establishment of Government high schools for boys and girls 22.800 5.000
24 Expansion of Peshawar Musium 33.112 4.500
25 Establishment of GGHS in Larama 6.104 1.200
26 Establishment of planning cell in works and services deptt. 25.424 3.849
27 Water supply scheme for Nodia Bala Peshawar 2.346 1.246
28 Construction of new block for irrigation in Secretariat 30.620 3.000
29 Installation of sewerage system in Hayatabad industrial estate 24.433 3.505
30 Drinking water supply for Shaheed Abad in PF4 2.696 1.196
31 Construction of Flats in Race course and Civil quarter feasibility study 161.914 5.000
32 Construction of phase II in central jail Jalozai 199.875 8.000
33 Maintenance and rehabilitation in Shahi Mehman Khana 11.770 0.500
34 Up gradation of RHC Jamal Abad to Grade D hospital 32.566 8.000
35 Construction of block D in Civil secretariat 35.000 5.000
36 Establishment of women hostel and office in sports complex 12.746 3.000
37 Rahman BABA intersection phase II extension 267.000 47.000
38 Construction of 30 tube wells in town IV 48.340 7.000
39 Up gradation of BHU TakhtAbad to RHC 21.075 3.000
40 Improvement of roads in town I, II, III, and IV 56.799 20.000
41 Establishment of Women university in Peshawar 54.988 15.000
42 Plantation in Peshawar valley 30.000 3.000
43 Establishment of primary school in Khalid Bin Waleed colony and Latif Abad 5.323 1.5000
44 Construction of central police office 95.552 20.000
45 Establishment of development unit in youth Deptt 30.000 1.000
46 Feasibility for the construction of bridge between Ghani Rehman and Dang 4.125 3.748
47 Water supply scheme for Ahmad Khel 2.147 0.901
48 Construction of additional courts rooms in Peshawar High court 58.850 8.000
49 Construction of 12 Km road along Kabul river canal from Warsak road to GT road 55.834 7.950
50 Construction of 10 tube wells for drinking water 7.000 1.000
51 Reconstruction of PA building and its renovation 197.522 16.000
52 Anti narcotic campaign 4.746 1.400
53 Construction of girls primary school in Paharpur 2.523 2.523
54 Conservation of historical building in Qissa Khawani bazaar 40.000 1.000
55 Upgradation of 9 middle school to high 25.200 7.300
56 Construction of mosque in provincial Assembly 2.410 1.040
57 Water supply scheme for Sherkro 2.788 1.388
222
58 Construction of Darulkafala 6.305 2.000
59 Establishment of Brastal institute in Peshawar 59.130 8.000
60 Sewerage system for civil secretariat 10.000 0.500
61 Up gradation of 10 primary school to middle 25.000 5.000
62 Construction of girls college in Hayatabad 54.390 21.737
63 Widening and reconstruction of Badni Akbar Pura road 16.301 7.301
64 Construction of provincial public health eplit laboratory 38.151 3.126
66 Construction of Khyber Medical University 91.018 30.000
68 Purchase of land for model mosque in Peshawar 10.000 5.060
69 Rehabilitation of historic wall around the city 20.000 0.500
70 Establishment of IT excellent centre and IT park 0.400 0.100
71 Advance technical training centre Peshawar 3.000 1.000
72 Maintenance of Archive Library building 9.000 4.349
73 Construction of new services hospital 134.487 10.000
74 Construction of Medical logical Deptt in LRH 12.100 5.000
75 Girls campus in Khyber medical college 183.680 25.000
76 Construction of building for PGMI in KMC 13.910 11.910
77 Extension work in girls hostel of Khyber Medical college 11.484 6.484
78 Training programme for community mid wives 71.055 4.000
79 Installation of pumping machine and pipe fitting 3.151 2.151
80 Drainage scheme for Tarnab farm 9.841 1.000
81 Water supply scheme for Akbar town Danish Abad 4.457 1.000
82 Construction of Peshawar to Naguman road Section 15 Km 155.566 10.000
83 Street pavement and drainage system in Faqir Abad 0.421 0.321
84 Pavement of Amanat Shah BaBa road 0.707 0.607
85 Improvement of road in Yusuf Abad 1.500 0.800
86 Widening and improvement of road in Naguman 10.635 3.468
87 Construction of 5 Km road in PF 11 14.247 3.000
88 Reconstruction of road in Hasan Gahree 1.500 1.400
89 Reconstruction of road in town 1 UC 21, 22,and 23 7.500 0.500
90 33 Km Road pavement 60.004 8.196
91 Street pavement and drainage scheme in Yousaf Abad street no. 1 and 6 0.403 0.303
92 Street pavement and drainage in Sultan Abad 0.345 0.245
93 Street pavement and drainage schemes in Bashir Abad Al Haj colony 1.500 1.400
94 Feasibility study for bridge between Chager Matti and Shakalay 8.000 2.000
95 Road pavement in Khan colony 0.803 0.703
96 Street pavement and road improvement in Bakhshee 1.319 0.819
97 Resurfacing in Corporation colony No. 2 and feroze Abad colony NO. 2 0.750 0.650
98 Construction of central jail phase II in Jalozai 53.272 4.000
99 Housing colony in Nasapa Payan 123.754 36.877
100 Feasibility for the construction of regulating gate for Jeozardad canal 1.000 1.000
101 Feasibility study for Warsak canal system detail design 10.680 3.000
102 KRC and RD 72000 improvement 20.500 6.704
103 Research and development for Ravi and Azakhel Buffalo identification 34.192 5.574
104 Construction of cricket stadium in Regi model town 10.780 3.000
106 Construction of Union council offices - 0.431
107 Justice provision programme - 25.433
108 Support programme TA 1 - 0.208
109 Support programme TA II - 0.208
110 Educational improvement programme - 0.525
111 National programme for water channel improvement - 4.167
112 Construction of police station - 0.001
115 M.P. Allotted funds - 83.237
Total Cost 3501.65 913.977
Total Cost Source: PSDP 2005-2006
223
Rs. In Million
(2005-2006)
1 Up gradation of national institute of food and agricultural 176.500 55.000
2 Maintenance in Irnum 39.300 39.300
3 Construction of GSP office laboratories 47.400 5.000
4 Establishment of CNG station 27.000 18.000
5 Islamabad to Peshawar Motor way M1 26862.300 1185.000
6 Peshawar northern bypass 26 Km 3078.100 100.000
7 Research extension in faculty of animal husbandry and veterinary in AUP 167.900 70.000
8 Improvement of facilities for higher education in PU 182.300 63.000
9 Construction of hostel for boys in PU 27.600 12.567
10 Establishment of botanical garden in PU 37.900 27.861
11 Pharmacy Deptt. improvement 36.500 11.479
12 Up gradation of Geological centre library to earth science library 39.300 8.637
13 Improvement of Geology Deptt. in PU 652.100 80.000
14 Establishment of mechanical institute Phase I in UET Peshawar 147.600 40.000
15 Establishment of human resource development in Hayatabad 38.000 25.000
16 Establishment of Urban planning Deptt. in UET Peshawar 174.000 54.000
17 Internet facility extension in UET Peshawar 35.400 2.277
18 Improvement of old structure in UET Peshawar 37.700 15.000
19 Construction of boy hostel in UET Peshawar 18.000 7.500
20 Provision of facilities in Area study centre PU 11.900 7.600
21 Construction of female hostel in UET Peshawar 15.200 15.187
22 Funds for UET Peshawar improvements 480.000 70.000
23 Improvement of Management sciences and provision of facilities 30.900 10.000
24 Extension and improvement of PU 474.100 70.000
25 Establishment of frontier women university 480.000 30.000
26 Construction of hostel in Management sciences 36.600 10.000
27 Extension of Deptt in PU 470.000 20.000
28 Establishment of Cardiology centre in Peshawar 1000.000 50.000
29 Establishment of Emergency centre for women 10.100 1.000
30 Establishment of vocational centre for women in Surazai payan Peshawar 1.100 0.900
31 Establishment of vocational centre for handicaps 21.400 2.250
32 Establishment of special educational centre for special children 6.100 3.000
33 Establishment of soft ware technology park in Peshawar 150.000 10.000
34 Establishment of boxing stadium in Peshawar 39.600 24.595
35 Improvement of Hockey ground and construction of tennis courts in Qayum stadium 4.600 2.600
36 Construction of Youth welfare centre in Peshawar 23.700 15.250
37 Purchase of land for housing colony of NAB employ 231.900 110.000
38 Evaluation centre in Peshawar 32.500 17.500
39 Establishment of technical training centre for equipments in PCSIR 186.300 70.000
40 Construction of Laboratories and PSQCA office in Peshawar 33.000 15.180
41 Construction of residential and zonal head quarter for FIA staff in Peshawar 39.400 12.905
42 Construction of residencies in PARD Peshawar 10.000 0.870
43 Construction of Training complex for FIFA in PARD Peshawar 13.700 5.060
Total Cost 8765.7 1208.518
224
ADP 2005-2006: Foreign Projects in District Peshawar
Rs. in Million
(2005-2006)
2 On Farm water management project Phase IV (WB) 31.098
3 Skeletal for technical education and vocational training system project 2.380
4 Forestry Sector development project (ADP and Dutch governments) 6.208
5 Improvement of water supply for Peshawar city from Warsak Dam 2.100
6 Ammonization program extension 2.456
7 AIDs and HIV control program (WB/DFID/CIDA) 2.809
8 TB Control program (GTZ) 8.907
9 Primary health project (GTZ) 1.083
10 EIROP project 1.852
11 Rural water supply and sanitation (DFID) 4.955
12 CIP project II 22.000
13 National poverty elevation program for urban areas (UNDP) 17.083
14 Pavement of rural roads Phase II (Japan) 17.083
15 Road sector development project (ADP) 4.283
16 Basic education program in NWFP (NORAD) 6.803
17 National drainage program 78.098
Total Cost 209.664
Source: Development Brief (2005-2006)

Rs. In Million
(2006-2007)
1 Renovation of Mahabat Khan Mosque 1.500 1.500
2 Construction of mosque in Gulshan Rehman colony Kohat road 7.000 7.000
3 Maintenance of new NC flats Khyber road 2.000 2.000
4 Irrigation scheme for Peshawar under The President order no. 221 0.010 0.001
5 Distribution of irrigation scheme in Peshawar 50.000 5.000
6 Establishment of Zoo in Peshawar 50.000 19.048
7 Construction of new building for girls college in Gulshan Rehman colony 70.000 10.000
8 Funds for the damaged roads ways building Peshawar 10.000 5.000
9 Construction of post graduate medical institute building in HMC 271.460 5.000
10 Reconstruction of civil dispensary in Tarnab 10.000 10.000
11 Construction of wards in LRH 200.000 10.702
12 Purchase of necessary equipments for HMC 30.000 30.000
13 Starting of Peshawar institute of cardiology phase II 500.000 12.187
14 Starting of phase II in Khyber Medical University Peshawar 50.000 5.000
15 Starting of monitoring and evaluation cell in health Deptt. 30.000 1.000
16 Renovation of KMC Peshawar 15.000 15.000
17 Improvement and surfacing of city circular road from Ramdas to GT road 95.000 7.000
18 Construction of bridge on Muryam zai khwar 10.000 2.000
19 Establishment of 2 information centre in Zar Ghare and Regi 3.000 1.000
20 Rehabilitation of Arbab Niaz Stadium Peshawar 6.000 2.000
21 Gymnasium and fitness centre Peshawar 1.000 0.500
22 Feasibility study for establishment of food street in Peshawar 0.300 0.300
23 Construction of tube well and rehabilitation of cricket ground in HSC 5.179 1.000
24 Construction of wall from football ground Wazir Bagh Peshawar 3.000 1.500
25 Construction of Hall in Nishtar hall 2.000 0.500
26 Renovation of Sheti house 2.000 0.500
27 Construction of 4 police posts on ring road 10.000 10.000
28 Purchase of vacuum cleaner for the city 10.000 10.000
29 Widening, construction and elimination of encroachment from Kabul river canal road from Warsak 76.260 76.260
road to GT road
30 Rehabilitation of Warsak Lift canal 10.000 2.000
31 Feasibility study for the up gradation of Warsak gravity canal from jamrud road to Kohat road 50.000 30.000
32 Establishment of government polytechnic college for women in Hayatabad 40.000 5.000
Total Cost 1620.249 287.998
225
Rs. In Million
(2006-
2007)
1 Research and development for Neli/Ravi and Azakheli Buffalo Liostak 57.669 11.200
2 Increasing production of Veterinary research institutive 14.307 8.822
3 Reconstruction of Chachehry mosque 6.500 4.560
4 Feasibility study for the construction of FMIU rooms for finance Deptt in civil secretariat 65.000 2.000
5 Feasibility study for the construction of flats and houses in Race course garden and civil quarter 212.561 8.000
6 Establishment of Brastal institute in Peshawar 101.630 5.500
7 Provision of funds to the PHA for the purchase of land for Nasafa housing colony 123.754 18.377
8 Provision of parking facility with block D in civil secretariat 25.303 3.000
9 Construction of house and installation of pump in CM Secretariat 6.709 5.509
10 Construction of additional rooms in Peshawar High Court 80.418 17.171
11 Construction of mosque in PA 3.066 2.026
12 Construction of PA building 197.522 18.000
13 Construction of new block in MPA hostel 68.367 16.000
14 Construction of block D in civil secretariat 53.074 3.000
15 Construction of houses for grade 17-20 employees in Hayatabad 47.739 10.000
16 Feasibility and construction of central jail Peshawar 501.313 1.000
17 Sewerage system for civil secretariat 10.000 1.000
18 Establishment of planning cell in works and services Deptt. 23.131 3.000
19 Construction of central police office 145.500 10.565
20 Construction of provincial public service commission building 76.318 10.000
21 Construction of new block for irrigation in Secretariat 36.460 2.000
22 Feasibility study for the supply of water from Warsak dam to Peshawar 0.100 0.100
23 Drainage scheme in Lala Kaly 9.257 5.005
24 Drainage scheme for Tarnab farm 9.841 2.186
25 Water supply scheme for Akbar town Danish Abad 4.889 1.369
26 Construction of 10 tube wells for irrigation in Peshawar 6.999 3.474
27 Hayatabad industrial estate waste water scheme 24.433 11.076
28 Plantation on hills in Peshawar valley 30.000 3.268
29 Basic skeletal for KCD 41.896 36.896
30 Provision of necessary equipments for KTH 30.000 25.000
31 Initiation of Khyber medical university in Peshawar 99.593 26.719
33 Construction of new services hospital 149.055 15.000
34 Construction of building for Psychological hospital 13.592 13.592
35 Initiation of phase 1 in Peshawar institute of cardiology 36.865 20.133
36 Initiation of girls campus in KMC 183.680 20.000
37 Re construction of old building in LRH 80.000 10.000
38 Extension in new girls hostel in Khyber Medical College 13.670 7.186
39 Khyber institute of child health Peshawar 120.000 10.000
40 Initiations of health sector reforms unit in health sector 27.528 2.000
41 Initiation of chest institute in HMC 2.000 1.000
42 Construction of bachelor hostel in Hayatabad Medical Complex 37.210 20.526
43 Establishment of para pelagic centre in Hayatabad 19.789 19.789
44 Up gradation of BHU Takhtabad to RHC 21.078 10.585
45 Construction of Medical logical ward in LRH 15.011 5.011
46 Provision of land for agricultural export processing zone in Peshawar 24.035 0.100
47 Construction of tube well in advance technical training centre Peshawar 2.260 0.547
48 Establishment of Seherb police station 15.950 9.000
49 Establishment of Metra police station 13.846 10.409
50 33 Km Road pavement in district Peshawar 64.184 10.000
51 Dualization of road from Bacha Khan intersection to Ring Road Peshawar 58.473 8.000
53 Improvement and widening of Main Qamar Din road 1.5 Km 7.500 1.745
54 Construction of 5 Km road PF 11 12.819 2.591
55 Feasibility study and planning and designing of Mechani bridge on river Kabul 47.282 7.290
56 Construction of 34 Km road in district Peshawar 117.384 8.000
57 Feasibility for the construction of bridge between Ghani Rehman and Dang 6.365 2.514
58 Construction of road from Naguman to Nela way 39.938 3.000
59 Designing and construction of bridge for Chagar Matti and Nelaway 7.304 5.156
60 Construction of Badani Akbar pura road 9.501 3.200
61 Rehabilitation of 15 Km road from Peshawar to Naguman 187.685 25.000
62 Opening of girls primary schools in Khalid bin Waleed and Latif Abad colony 5.323 3.123
226
63 Opening of girls primary school in Paharpur 2.523 2.523
64 Up gradation of 10 primary school to middle 25.000 5.000
65 Up gradation of 9 middle school to high in dist. Peshawar 25.200 7.300
66 Establishment of govt high schools separately for boys and girls 22.800 5.492
68 Provision of funds for the improvement of Peshawar Public School 11.500 4.500
69 Feasibility study and construction of malty story educational complex in Peshawar 2.000 2.000
70 Construction of Darul Kafala for male baggers in Peshawar 6.516 1.092
71 Construction of welfare homes for baggers children’s in Peshawar 4.621 1.775
72 Rehabilitation of Drug control centre in Peshawar 4.746 1.630
73 Establishment of 8 industrial training centers in Peshawar 3.433 0.672
74 Establishment of IT excellent centre and IT park 0.400 0.400
75 Pilot project for the establishment of sports academy in Peshawar 2.500 0.500
76 Improvements in Peshawar Musieum 39.812 3.000
77 Construction of Open air space in Neshtar hall 27.770 0.050
78 Construction of office block and female hostel in Peshawar sports complex 14.746 2.000
79 Conservation of historical building in Qissa Khawani bazaar 40.000 1.000
80 Maintenance of Islamia college 10.000 2.000
81 Conservation of historical Shethi house and Gore Gathery 36.258 3.000
82 Rehabilitation of historic wall around the city 20.000 0.500
83 Construction of cricket stadium in Regi model town 15.100 2.000
84 Feasibility for the improvement of car village on ring road 0.550 0.550
85 Feasibility for the construction of road from Mental hospital to frontier road and approach road to 20.000 3.000
SOS village
86 Improvement of Rahman BaBa intersection Phase II 267.000 46.450
87 Payment for the purchase of land for ring road (Court case) 20.000 1.000
88 Improvement of roads in town I, II, III, and IV 123.381 20.000
89 Feasibility for the Metropolitan city Peshawar commuter train 5.000 1.000
90 Improvement of primary urban roads 298.000 10.000
91 Feasibility study for the regulating gate of Jeozardad canal water from Budni Nala 1.000 1.000
92 Feasibility study for Warsak canal system detail design 10.680 6.689
93 Establishment of heaphotology centre 200.000 2.000
94 District ADP - 83.237
Total Cost 4748.468 687.873
227
Rs. In Million
(2006-2007)
1 Up gradation of national institute of food and agricultural 168.240 80.000
2 Establishment of CNG station 27.300 8.500
3 Islamabad to Peshawar Motor way M1 26862.300 800.000
4 Research extension in faculty of animal husbandry and veterinary in AUP 167.856 67.856
5 Improvement of facilities for higher education in PU 182.250 45.750
6 Improvement of Geology Deptt. in PU 652.138 128.000
7 Establishment of mechanical institute Phase I in UET Peshawar 147.600 40.000
8 Establishment of human resource development in Hayatabad 38.000 18.000
9 Establishment of Urban planning Deptt. in UET Peshawar 174.146 84.748
10 Construction of boy hostel in UET Peshawar 36.584 21.584
11 Provision of facilities in Area study centre PU 19.924 12.324
12 Improvement of Management sciences and provision of facilities 36.718 26.716
13 Establishment of frontier women university 456.153 70.000
14 Construction of hostel in Management sciences 38.590 28.590
15 Establishment of Cardiology centre in Peshawar 1000.000 10.000
16 Establishment of Emergency centre for women 156.140 2.632
17 Establishment of vocational centre for handicaps 21.434 3.000
18 Construction of special education centre for mental handicap children’s 11.350 2.500
19 Establishment of boxing stadium in Peshawar 39.600 8.500
20 Construction of Youth welfare centre in Peshawar 23.710 14.200
21 Purchase of land for housing colony of NAB employ 231.873 50.000
22 Establishment of technical training centre for equipments in PCSIR 186.200 103.238
23 Construction of Laboratories and PSQCA office in Peshawar 31.050 12.770
24 Construction of training complex NIFA in PARD Peshawar 19.160 14.100
25 Construction of wall around federal dispensary Hassan Ghari 0.640 0.640
26 Construction of building material research centre in PCSIR laboratory 102.300 20.000
27 Initiation of quality control centre Peshawar 40.000 20.000
28 Construction of special education centre for mental retorted children’s 6.051 1.200
29 Up gradation of national special education centre for HIC primary to secondary level 12.436 2.500
30 Up gradation of bodily handicap children’s institute from primary to secondary level 12.248 2.500
31 Construction of MI rooms in Hayatabad 2.908 2.908
32 Improvement of forest product research in PFI Peshawar 39.250 19.450
33 Installation of two lifts in custom house Peshawar 15.914 4.000
34 Car parking shed in NAB office Hayatabad 3.064 3.064
35 Bath room for DG NAB 0.332 0.332
36 Construction of 20 residential houses for PARD Peshawar 23.018 13.098
37 Funds for UET Peshawar improvements 479.000 176.675
38 Construction of foreign faculty hostel in AUP 26.620 15.200
39 Pakistan study centre improvement PU 21.344 12.000
40 Establishment of Net working in institute of Management Sciences PU 8.245 8.245
41 Improvements in centre of Physical chemistry laboratories 36.550 15.000
42 Improvements of Pushto academy PU 21.808 10.000
43 Construction of hostel for visiting faculty in Institute of Management sciences Peshawar 19.386 10.000
44 Improvement in AUP 496.377 50.000
45 Initiation of earth quack centre Peshawar 480.000 40.000
46 Establishment of water desalination centre in chemical engineering department 35.000 15.000
47 Construction of Squash courts complex in PU 34.325 14.325
48 Improvements of Environmental sciences Deptt. in faculty of life sciences 471.250 20.000
6254.08 1329.145
228
ADP 2006-2007: Foreign Projects in Peshawar District
Rs. in Million
(2006-2007)
2 On Farm water management project Phase IV (WB) 45.000
3 Improvement of water supply for Peshawar city from Warsak Dam 0.100
4 Ammonization program extension 12.000
5 AIDs and HIV control program (WB/DFID/CIDA) 12.000
6 TB Control program (GTZ) 12.000
7 Primary health project (GTZ) 10.000
8 EIROP project 1.500
9 Rural water supply and sanitation (DFID) 120.000
10 CIP project II 58.100
11 National poverty elevation program for urban areas (UNDP) 8.800
12 Road sector development project (ADP) 300.000
13 Basic education program in NWFP (NORAD) 2.500
14 National drainage program 77.220
15 Preparatory skeletal for technical education and vocational training system project 30.000
Total Cost 692.72
Source: Development Brief (2006-2007)
ADP 2007-2008 Ongoing Schemes in District Peshawar

Rs. In Million
(2007-
2008)
1 Renovation of Mahabat Khan Mosque 1.500 1.500
2 Construction of mosque in Gulshan Rehman colony Kohat road 7.000 7.000
3 Maintenance of new NC flats Khyber road 2.000 2.000
4 Irrigation scheme for Peshawar under The President order no. 221 0.010 0.001
5 Distribution of irrigation scheme in Peshawar 50.000 5.000
6 Establishment of Zoo in Peshawar 50.000 19.048
7 Construction of new building for girls college in Gulshan Rehman colony 70.000 10.000
8 Funds for the damaged roads ways building Peshawar 10.000 5.000
10 Reconstruction of civil dispensary in Tarnab 10.000 10.000
11 Construction of wards in LRH 200.000 10.702
12 Purchase of necessary equipments for HMC 30.000 30.000
13 Starting of Peshawar institute of cardiology phase II 500.000 12.187
14 Starting of phase II in Khyber Medical University Peshawar 50.000 5.000
15 Starting of monitoring and evaluation cell in health Deptt. 30.000 1.000
16 Renovation of KMC Peshawar 15.000 15.000
17 Improvement and surfacing of city circular road from Ramdas to GT road 95.000 7.000
18 Construction of bridge on Muryam zai khwar 10.000 2.000
19 Establishment of 2 information centre in Zar Ghare and Regi 3.000 1.000
20 Rehabilitation of Arbab Niaz Stadium Peshawar 6.000 2.000
21 Gymnasium and fitness centre Peshawar 1.000 0.500
22 Feasibility study for establishment of food street in Peshawar 0.300 0.300
23 Construction of tube well and rehabilitation of cricket ground in HSC 5.179 1.000
24 Construction of wall from football ground Wazir Bagh Peshawar 3.000 1.500
25 Construction of Hall in Nishtar hall 2.000 0.500
26 Renovation of Sheti house 2.000 0.500
27 Construction of 4 police posts on ring road 10.000 10.000
28 Purchase of vacuum cleaner for the city 10.000 10.000
29 Widening, construction and elimination of encroachment from Kabul river canal road from Warsak 76.260 76.260
road to GT road
30 Rehabilitation of Warsak Lift canal 10.000 2.000
31 Feasibility study for the up gradation of Warsak gravity canal from jamrud road to Kohat road 50.000 30.000
32 Establishment of government polytechnic college for women in Hayatabad 40.000 5.000
Total Cost
229
(Rs. In millions)
Estimated Allocation
# Name of schemes
Cost 2008-09
1 Establishment of GGHS, at Khan Mast colony Peshawar. (Land available) 20.373 20.373
Grant in aid for improvement of existing facilities in Peshawar Public school & College Warsak road
2 Peshawar 50.673 10.000
3 Construction of new building for GGC Gulshan Rehman Colony Peshawar 70.000 30.000
4 Construction of Mosque at Khyber Medical College, Peshawar 10.312 6.312
5 Establishment of Khyber Medical university at Peshawar (Phase –II) 34.032 13.618
6 Improvement of Post Graduate College for Nursing. 12.183 11.183
7 Construction of building for PGMI at H.M.C 14.710 3.367
8 Construction of New services Hospital Peshawar. 149.055 50.000
Establishment of Project implementation unit for Pakistan Bailt ul Mal assisted project “NWFP
9 advanced research and diagnostic center at HMC, Peshawar 4.709 2.917
10 Women & Children Hospital at former Roadways house Peshawar (Balance works). 273.440 80.230
11 Upgradation of BHU Regi to RHC, District Peshawar. 30.279 15.903
12 Construction of Sarkari Sarai with shops at LRH Peshawar 15.406 8.819
13 Completion of balance works in Burn Centre at Nishtarabad, Peshawar. 10.000 2.000
14 Construction of building for Psychiatry Hospitals 13.592 0.5000
15 Community Midwifery Training Programme in NWFP. 100.238 21.202
16 Construction of PGMI building at HMC (Phase-II) 322.400 48.970
17 Establishment of Monitoring & Evaluation cell in Health Department. 33.789 15.405
18 Extension of infrastructure at KCD, Peshawar. 61.565 0.325
19 Strengthening and improvement of RHC Nahaqi, District Peshawar. 21.639 18.639
20 Establishment of Peshawar institute of Cardiology, Phase-I 36.865 12.427
21 Khyber institute of Child Health, Peshawar 120.000 84.500
22 Establishment of Peshawar institute of Cardiology, Phase – II (matching Grant). 727.485 -
23 Establishment of Girls Campus for Khyber Medical College. 369.275 165.221
24 Construction of additional ward at LRH Peshawar 901.717 100.000
25 Rehabilitation of paraplegic center at Hayatabad. 24.112 4.000
26 Establishment of Accident and Emergency Department at LRH, Peshawar 171.184 100.000
27 W.S.S. (192 Tube Wells) in District Peshawar under the Presidents directive No. 221. 331.251 100.000
28 Drainage system at Esszai, Sarband, Peshawar. 3.726 1.726
29 Revamping of WSS distribution system in Peshawar. 50.000 9.239
30 Development studies for improvement water supply to Peshawar from Warsak Dam (Japan assisted). 115.841 0.099
31 Establishment of two ITC centers at Zoorgarhi and Regi at Peshawar. 1.682 0.489
32 Improvement of Mamokhatki to Masheen Koroona, Karyanan Road (5 KMs), Peshawar. 30.125 27.125
33 Rehabilitation & carpeting of internal roads in Peshawar city. 17.610 17.610
34 Feasibility study & preparation of PC is for PSDP projects. 1.000 1.000
Improvement &* widening of Hill street road, linking Kohat road with Bara road via sheikh
35 Muhammadi 8 km, Peshawar. 48.723 9.346
36 Improvement of Balazai to Mashoo Khel Road (5 KMs), Peshawar. 15.000 13.000
37 F/S, Design & Const: of Bridge between Charghar Matt and Shaghalai. Peshawar. 14.359 3.496
Improvement, widening and rehabilitation of city circular road form Ramdas bazaar to GT road
38 Peshawar. 133.768 76.768
39 Construction of Block D in Civil secretariat Peshawar. 74.700 31.102
40 Feasibility study/planning designing of Central prison, Peshawar. 25.065 5.000
41 Establishment of planning cell in works & services department. 23.131 4.000
42 Construction/Rehabilitation of Frontier Reserve Police Building Peshawar. 8.459 8.459
43 Construction of Treasury Block for District Accounts office Peshawar. 39.950 5.000
44 Establishment of Media colony, Peshawar. 50.000 30.000
45 Construction of Central Police office in Peshawar. 145.142 10.000
For payment to Pakistan housing authority on a/c of purchase of housing colony Nasapa Payan,
46 Peshawar. 123.754 0.100
47 Construction of office block II in civil secretariat Peshawar. 64.108 60.108
230
48 Purchase of land for police post Sifand police station Baddber Peshawar. 0.207 0.207
49 Provision of sewerage system for civil secretariat Peshawar. 10.000 2.000
50 Construction of judicial loges at 10 Race course Peshawar. 64.566 60.066
51 Construction of building for public service commission, Peshawar. 98.529 6.506
F/S and construction of Flats and Houses at Race course Garden/Khyber road and civil quarters
52 Peshawar. 233.106 20.000
53 F/S and construction of approach road to SOS village & Mental Hospital up to Frontier Road Peshawar. 20.000 1.000
54 Construction of link road form jamrud road Tehkal Payan to Warsak road 140.000 5.000
55 Rehabilitation of Road form Swati Phatak to Bara Road/Ring Road Peshawar. 54.804 25.000
56 Construction of 6 security police posts, 4 on Ring Road & 2 in industrial estate, Peshawar. 30.000 18.000
57 Improvement of Major Urban Roads, Peshawar. 447.180 45.000
58 Improvement of Urban Roads in Town, I, II, III, & IV, Peshawar. 132.037 6.000
59 Land compensation for Ring road Peshawar (Court case). 252.300 2.000
60 Construction of Mufti Mehmood Flyover at Rehman Baba intersection Phase III. 5000.000 20.000
Up gradation of canal patrol road on Both sides of Warsak Gravity canal form Jamrud road to Bara road
61 and from Bara road to Kohat road. 97.340 30.000
Feasibility study to divert the municipal sewage and industrial effluents entering the canal system of
62 Peshawar valley. 5.000 1.000
Repair/widening including removal of encroachments form both sides of Kabul river canal road and
63 construction of wall (connecting Warsak road to G.T road) (12 kms). 156.745 50.000
64 Creation of planning and monitoring cell in irrigation and power Departments. 49.990 7.000
Programme Monitoring unit of national programme for improvement/lining of watercourses in Pakistan
65 (NWFP component). 102.810 32.021
Introduction of Nili/Ravi and Azakheli Buffaloes at livestock Research and development station,
66 Surezai. 57.669 4.181
67 Strengthening R& D activities on Post Harvest Technology at ARI Tarnab Peshawar. 3.945 2.129
68 Strengthening of WTO Cell in the Planning Cell of Agriculture Department. 5.000 1.194
Establishment of Aquarium House, improvement of sports fisheries and recreational facilities at CH &
69 TC, Peshawar. 10.500 4.631
70 Conservation and Rehabilitation of Historic Buildings in Peshawar NWFP. Gor Ghatree. 36.258 6.000
71 Improvement of Existing museums in NWFP (Extension of Peshawar Museum). 39.812 4.500
72 Construction of Cricket stadium at Regi Model Town Peshawar. 15.100 5.100
73 Conservation of Islamia College Peshawar. 29.825 6.000
74 Establishment of Govt. Polytechnic institute for women at Hayatabad, Peshawar. 85.133 25.000
75 Establishment of GPI in Sardar Garhi Peshawar (Civil Works) Phase I (State land available). 67.744 25.000
76 Block allocation for science & technology schemes. 25.000 10.000
77 District ADP (Provincial Finance Commission Award Allocation) 1218.000 99.388
Upgradation of GGPS Zakir Khel & Koti Sadat, Bannu and GPS Niami, Peshawar to Middle level
78 (Provincial) 16.693 7.693
79 Establishment of 2 industrial training centers for women in Peshawar 3.707 1.041
F/S for Establishment of Housing schemes of government servants in all districts of NWFP. SH:
80 Construction of High rise flats at Hayatabad Peshawar. (Provincial). 20.000 7.000
81 Establishment of Dairy colonies in D.I. Khan, Peshawar & Mardan. (Provincial). 187.581 70.568
82 Establishment of second College of Commerce at Peshawar and Bannu 9Provincial) 179.722 40
83 Computerization of land records of Peshawar & D.I. khan (Provincial). 66.196 10.000
231
(Rs. In millions)
Estimated Allocatio
# Name of schemes
Cost n 2008-09
1 Strengthening of planning cell of Health department. 10.000 10.000
2 Construction of female Doctor Hostel at KTH, Peshawar 15.000 5.000
3 Purchase of Equipment for lady reading Hospital, Peshawar. 80.000 80.000
4 Renovations of existing wards of lady reading hospital, Peshawar. 15.000 15.000
5 Construction of ward blocks at HMC, Peshawar. 250.000 20.000
6 Establishment of 500 Bedded Benazir Hospitals, Peshawar. 750.000 15.000
7 NWFP institute of Child Health and children Hospital. 200.000 7.000
8 Establishment of Causality Block KTH, Peshawar. 591.297 30.000
9 Conversion of civil dispensaries of Peshawar into primary health care Centers 100.000 5.000
10 Development of emergency rescue services (Rescue 1122) in Peshawar. 80.000 20.000
11 Construction of hostels for doctors & Nurses at HMC, Peshawar. 250.000 20.000
12 Construction of additional hostels for doctors, Nurses & Renovation of existing hostels at LRH, Peshawar. 90.000 15.000
13 Establishment of chest institute at HMC, Peshawar. 200.000 1.000
14 Establishment of PIU for implementation of PSDP projects in health department. 10.000 2.000
15 Establishment of emergency call centre for women at Peshawar. 2.600 1.200
16 Reconstruction and up gradation of blind school G.T. Road Peshawar to secondary level. 35.000 6.000
17 Construction of working women hostel at Peshawar (PM directive). 39.000 1.000
18 Construction of old P & D department Block civil secretariat Peshawar. 30.000 15.000
19 Establishment of project management unit (PMU) in Housing department. 215.300 1.000
20 Construction of 10 Nos. Ministers residences at Hayatabad. 70.000 35.000
21 Construction of 10 Nos officers’ residences at Hayatabad. 60.000 30.000
22 Construction of 100 residences for officer’s form grade 17-20 in Regi Lalma Peshawar. 400.000 5.000
23 Establishment of new bus terminal in Peshawar. 50.000 0.100
24 Purchase of 100 no’s containers for 5 cubic meter capacity for solid waste collection in Peshawar city 18.220 18.220
25 Construction & Remodeling of southern by pass detouring Hayatabad. 546.000 2.500
Face lifting and improvement of green belts on GT road form Ring road flyover to Rehaman Baba
26 20.000 5.000
intersection.
F/S for construction of 11 NO urban road intersections through provisions of under passes /flyover at
27 25.000 20.000
Peshawar.
28 improvement of Roads/streets in PF 1, 2,3 and 4 Peshawar. 50.000 7.000
29 Strengthening of Planning & Monitoring capacity of agriculture department. 15.000 5.000
30 Establishment of germ plasma Repository at ARI Tarnab Peshawar. 30.000 10.000
31 Strengthening of Directorate of livestock & Dairy Development, NWFP, Peshawar. 4.800 4.800
32 Construction of Tube well and over head reservoir at agriculture training institute Peshawar. 5.000 1.500
33 Establishment of data base and planning wing in NWFP wildlife department (Phase II). 8.000 3.000
34 Strengthening of accounting, budgeting & internal Audit system in environment department. 50.000 5.000
35 Establishment of zoo in Peshawar city. 66.000 66.000
Purchase of land for establishment of Fish market at Peshawar and augmentation of Madyan trout Hatchery
36 20.000 4.000
Mardayn under PSDP project “aquaculture and shrimp farming”.
37 Up gradation & strengthening of Peshawar carp hatchery & training center Peshawar. 20.000 4.000
38 Strengthening of planning section in the NWFP forest department 3.000 1.000
39 Provision of clay tennis courts and lighting system at Peshawar sports complex. 2.500 2.500
40 Rehabilitation of Lala Ayub hockey stadium, Peshawar cant. 40.000 5.000
41 Provision of playground on 128 kanals land at Wazir Bagh Peshawar (CMD). 40.000 10.500
42 Construction of international standard sports complex at Hayatabad (CMD). 100.000 0.100
43 Preservation of Sethi house Peshawar 40.000 3.766
44 Acquisition of land for carpet nagar at Peshawar (governor directive) 50.000 25.000
45 Feasibility study for establishment of trucking terminal Peshawar. 5.000 5.000
46 Land acquisition for second industrial estate, Peshawar 50.000 50.000
47 Establishment of girl’s commerce college Dalazak road Peshawar. 30.000 10.000
48 Mosaic marble training center for female in available building of SIDB at Peshawar. 3.000 1.000
49 Construction of approach roads & boundary wall at industrial estates Peshawar (CMD). 33.805 33.805
50 Establishment of science & technology park Peshawar 5.000 0.100
51 Computerization of provincial assembly NWFP. 5.000 5.000
Source: ADP 2008-09
232
Rs. In Millions
# Name of schemes Estimated Allocation
Cost 2008-09
1 Re modeling of Warsak canal system Peshawar & Nowshera District NWFP 3000.000 10.000
2 Construction of Diversion weir for Kabul river canal district Peshawar 500.000 10.000
3 Upgradation of national institute for food & Agri (NIFA) Peshawar. 246.030 77.79
4 Peshawar Northern bypass (24km) including 3078.100 100.000
5 Peshawar Torkhum (Section II ) 17 Km 5640.000 10.000
6 Peshawar Turkhum (Section II ) 17 km 5400.000 300.000
7 (192) Tube will water supply scheme Peshawar 331.000 100.000
8 Strengthening and development of NWFP Agri: University, Peshawar (Revised) 410.593 70.000
9 Strengthening of water resources management Deptt. NWFP Agri: University, Peshawar. 36.387 23.177
10 Construction of Multi Purpose sports Gymnasium on the campus of University of Agri: Peshawar. 37.772 28.972
11 Strengthening of instt: of biotechnology and Genetic Engg. NWFP Agri: University of Peshawar. 429.229 40.000
12 Strengthening & Enhancement of Academic Provisions in the university of Peshawar. 458.961 80.000
13 Strengthening & Enhancement of Academic Provision in faculty of Life & Environmental sciences, 464.695 80.000
university of Peshawar.
14 Estab: of center for Photo pharmaceutical and Nutraceuticals research, university of Peshawar. 39.111 10.524
15 Strengthening of c enter of excellence in Geology, university of Peshawar. 652.138 70.000
16 National Instt. Of urban infrastructure planning at the NWFP university of Engg. & Tech. Peshawar 190.601 48.762
(Revised)
17 Strengthening of satellite campuses of NWFP university of engineering & Technology, Peshawar at 487.669 80.000
Mardan, Bannu and Abbottabad (Revised)
18 Strengthening and up gradation of Peshawar campus of NWFP 479.000 42.211
19 Establishment of institute of earthquake engineering and engineering seismology by upgrading its 487.219 42.219
existing earthquake engineering centers at university of engineering & Technology Peshawar
20 Provision of academic, research facilities for Gemtone Dev. Cell Deptt. Of mining Engg. NWFP 32.929 22.744
university of Engg. & Tech. Peshawar.
21 Estab: of new Campus of jalozai NWFP UET Peshawar 6565.272 250.000
22 Dev. Of institute of management sciences (IMPS), Peshawar. 466.553 70.000
23 Estab: of Frontier Women University NWFP at Peshawar Phase I. 456.153 70.000
24 Establishment of Peshawar institute of Cardiology Peshawar (Phase II). 1454.972 50.000
25 Purchase & installation of 1.5 T3esla MRI Scanner in LRH, Peshawar, Mufti Mahmood Memorial 424.000 212.000
Hospital DI Khan, Khalifa Gul Nawaz Hospital complex Bannu, Ayub Teaching Hospital Abbottabad
& Saidu Group of hospitals Swat
26 Estab: of Causality block of KTH Peshawar. 350.000 40.000
27 Const: of Quarantine hospital at Peshawar. 17.670 5.000
28 Online Access to statutory & case laws (NWFP) Peshawar. 34.359 13.000
29 Estab: of technical training centre for precision mechanics & instrument technology at PCSIR campus 186.250 60.388
Peshawar.
30 Strengthening of WRRC Peshawar for undertaking research in water resources management PCRWR 37.640 2.000
31 Construction of PSQCA office and laboratories at Peshawar (NWFP). 31.060 12.770
32 Renovation & upgrade. Of existing infrastructure of PCSIR labs. Peshawar. 332.654 20.000
33 Upgrade & Monetization of herbal, Mineral and food pilot plants at PCSIR labs. Complex Peshawar. 156.830 50.000
34 Upgrad. & modernization of workshop facility at PCSIR labs. Peshawar. 148.000 19.190
35 Estab; of special education centre for mentally retarded children Peshawar. 9.831 2.500
36 Establishment of special education centers for visually handicapped child at primary level Peshawar. 11.350 5.068
37 Up-gradation of spl. Edu. centre for HIC Pesh. form primary to sec. level. 8.404 3.284
38 Up-gradation of institute of physically handicapped children form Primary to secondary level, 9.545 4.450
Peshawar.
39 Provision of hostel facilities at national spl. Education centre for VHC Peshawar. 12.975 8.416
40 Strengthening of forest products research at Pakistan forest institute, Pesh. 39.250 3.828
41 Renovation & improvement special repair of PFI at Peshawar. 39.697 6.194
42 Development and restoration of archaeological sites form Taxila to Swat (Pesh. Section). 1000.000 15.000
43 Construction of Boxing Gymnasium at Peshawar. 71.179 5.000
44 Const. of officer colony for HQ NWFP at Hayatabad Peshawar. 28.261 5.731
45 Const: of Zonal office for FIA at Peshawar. 39.405 0.207
46 Women Business Dev. Center Peshawar NWFP. 28.410 3.000
47 Const. of hostel Building at RMC Peshawar. 11.500 4.180
48 Const of office building survey of Pakistan Peshawar. 83.730 23.000
49 Acquisition of land and construction of residential accommodation for NAB, Pesh. 231.873 10.000
50 Const: of Audit Complex Peshawar. 39.995 15.000
51 Const. of Federal lodge II, Shami Road Peshawar. 39.512 15.000
52 Const. of 22 categories IV for Flat low paid FG employee Hassan Ghari Peshawar. 39.812 15.000
53 Additional in NAB Office Building at Hayatabad Peshawar. 7.963 6.073
54 Replacement of Sewerage line at Pak. Academy for rural dev. (PARD) Peshawar NWFP. 4.721 4.721
233
55 Const. of new building of federal Shariat court bench registry Khyber Road, Peshawar. 63.462 1.000
56 Provision of residential facilities for the officers/ staff of the collectorate of customs at jamrud road, 21.103 6.103
Peshawar .
57 Provision of a bus for girls students of Khyber medial college Peshawar. 4.000 4.000
58 Islamabad Peshawar motorway (M – I) 26862.300 375.000
59 Control of post harvest losses of fruits in northern area and swat division PCSIR, Peshawar. 35.000 5.075
60 Establishment of crisis centers (Lahore, Karachi, Peshawar, Mianwali, Quetta, Kohat, Vehari, 98.365 4.300
Sahibwal and Rawalpindi).
61 Vocational training center for the disabled, Peshawar and Quetta. 37.612 2.000
62 04 integrated social Dev. Projects Lahore, Karachi, Peshawar & Quetta. 24.648 2.000
63 Computerization of data of outgoing migrants and returning migrants Rawalpindi, Lahore, Multan, 39.500 3.495
Karachi, Quetta, Peshawar, Malakand.
64 Ladies industrial home cum work order center at Lahore, Karachi and Peshawar 15.000 2.000
65 ICT infrastructure for Regional Centers HEC (Karachi, Lahore & Peshawar). 36.287 5.542
Total Cost
Rs. In Million
(2009-
2010)
1 Development of Provincial Archives & Public Libraries 6.000 6.000
2 Establishment of Fountain House in Peshawar 200.000 200.000
3 Shaheed Mohtarma Benazir Bhutto Hospital (500 Beds), Peshawar 10.000 0.500
4 Improvement / Rehabilitation of KTH, Peshawar. 100.000 25.000
5 Rehabilitation of Khyber Medical College, Peshawar 300.000 100.000
6 Construction of Two Hostels and allied facilities for Students of Khyber Girls Medical College, 200.000 20.000
Peshawar
7 Purchase of Generators for Medical Colleges 70.000 70.000
8 Provision of building for Khyber Medical University, Peshawar. 110.000 10.000
9 Strengthening of Planning Cell of Health Department. 34.434 15.803
10 Protection and Rehabilitation of Vulnerable Children at Peshawar (Pilot Project). 10.000 10.000
11 Dualization of Peshawar Warsak road District Peshawar. 366.000 80.000
12 Rehabilitation / Construction & Widening of Akbar Pura Dalazak Link Peshawar including Budhni 74.833 30.000
road (3.5 km) (20 Km)
13 Improvement & Widening of Paggai Chagharmatti Road ( Balance Portion) District Peshawar. 30.000 10.000
14 Improvement & Rehabilitation of existing Mosque at Peshawar High Court Peshawar 5.000 1.000
Construction of Khan Abdul Wali Khan Multiplex in Civil Secretariat Peshawar. 192.324 10.000
15 Urban Development
16 Improvement & Rehabilitation of Bana Mari road at few sections. 2.500 2.500
17 Rehabilitation of road from Beri Bagh (Lakhtai Ghara) to Punj Khattak Chowk Zargarabad 2.500 2.500
Peshawar
18 Improvement & Rehabilitation of Superior Science College road Peshawar. 4. 000 4.000
19 Improvement of Church road along Shahi Khattah from Church to Kabari Bazar Peshawar. 1.800 1.800
20 Construction of 12 Nos tube wells for Augmentation of Warsak / Kabul river canal system in District 40.000 40.000
Peshawar.
21 Establishment of Planning & Monitoring Cell in Directorate General Agriculture Extension 6.600 1.500
22 Strengthening of Agricultural Research Directorate Peshawar. 50.000 15.000
23 Creation of Virology Section & Animal Houses at VRI, Peshawar. 60.000 10.000
24 Rehabilitation/ Construction of Residential facilities in Forest Department Peshawar. 20.000 2.000
25 Development of Infrastructure of NWFP Wildlife Department in Peshawar. 25.000 6.000
26 Establishment of Peasantry and erection of Hog Deer enclosure at Sheer Abad District 30.000 4.000
Peshawar.
27 Establishment of EPA NWFP Laboratory at Fishery Center, Sheer Abad, Peshawar 39.000 10.000
28 Establishment of Provincial Cleaner Production Centre (PCPC) at Peshawar. 9.500 2.500
29 Installation of Digital Data Display board and its integration with PTV. 5.500 1.200
30 Restoration & Rehabilitation of the Fire Brigade Building at Gor-Ghattree. 5.000 3.000
31 Preservation of the building of old Mohafiz Khana, Peshawar. 10.000 2.000
32 Reconstruction of old Pavilion at Qayum Stadium Peshawar. 40.000 25.000
33 Rehabilitation of Arbab Niaz Cricket Stadium, Peshawar 20.000 5.000
34 Playground at Landi Arbab Peshawar 20.000 5.000
35 Playground at Badbair Peshawar 15.000 5.000
36 Strengthening of Planning, Monitoring & Evaluation at Planning Cell of Industries Department. 10.000 5.000
37 F/S for Establishment of 2nd Industrial Estate & Carpet Nagar at Peshawar. 2.000 2.000
38 Provision of Firefighting & Rescue Equipments (Disaster Management) for I.E Peshawar (Phase-II) 25.000 25.000
39 Establishment of Social Protection Reform Unit in P&D Department. 2.000 1.000
40 Development partner's Coordination cell in F.Aid section of P&D 0.100 0.100
234
41 Establishment of PSDP section in P&D Department. 50.000 5.000
42 Establishment of Consumer Protection Cell in P&D Department 6.185 2.000
43 Development of MIS & Mobile Communication for Rescuer 1122 for District Govt Peshawar 5.000 5.000
44 Establishment of General Truck Stand at Peshawar through Public Private Partnership (Purchase of 400.000 400.000
Land)
Total Cost 2611.276 1181.403

Rs. In Million
(2009-10)
1 Establishment of GGHS, at Khan Mast Colony Peshawar. 20.373 15.373
2 Reconstruction of GGMS Adezai, GGPS Adezai No.1 and GGPS Adezai No.2 in District Peshawar. 20.841 10.841
3 Reconstruction of GGHS Baadaber in District Peshawar 56.717 42.197
4 Reconstruction of GGHS Jogiwara in District Peshawar. 39.600 20.000
5 Establishment of GGDC Bacha Khan, Kohat Road Peshawar 110.000 35.000
6 Construction of New Services Hospital Peshawar. 161.490 51.112
7 Establishment of Peshawar Institute of Cardiology, Phase-I. 36.865 2.000
8 Establishment of Peshawar Institute of Cardiology, Phase-II (Matching Grant). 727.468 100.000
9 Women & Children Hospital at Former Roadways House, Peshawar 395.962 15.000
10 Strengthening and Improvement of RHC Nahaqi, District Peshawar 22.839 3.000
11 Development of Emergency Rescue Services (Rescue 1122) in Peshawar. 170.000 141.030
12 Construction of additional Ward at LRH Peshawar 901.717 132.874
14 Construction of additional Hostels for Doctors, Nurses & Renovation of existing Hostels at LRH, 193.508 50.000
Peshawar.
15 Renovations of existing wards of Lady Reading Hospital, Peshawar. 39.010 24.010
16 Establishment of Casualty Block KTH, Peshawar. 12.759 3.000
17 Construction of Female Doctor Hostel at KTH, Peshawar 19.789 14.789
18 Construction of Ward Blocks at HMC, Peshawar 250.000 50.000
19 Construction of Hostels for Doctors & Nurses at HMC, Peshawar 193.508 50.000
20 Improvement/ Rehabilitation of Khyber Medical College, Peshawar 300.000 100.000
21 Completion of Balance Works in Burn Centre at Nishtarabad, Peshawar 10.000 1.000
22 Const: of Drinking water T/W outside Sarki Gate U/C Wazirbagh Peshawar. 3.588 3.588
23 Water Supply Scheme inside Sarki Gate Peshawar U/C Asia District Peshawar. 4.010 4.010
24 Water Supply Scheme Lakhti Ghara near Khan Mast Colony District Peshawar. 4.056 4.056
25 Provision of sewerage system for Civil Secretariat Peshawar. 10.000 4.000
26 W.S.S ( 192 Tube Wells) in District Peshawar under the President's Directive 662.501 100.000
27 Establishment of two ITC Centres at Zoorgarhi and Regi at Peshawar. 2.282 0.750
28 Reconstruction and Up gradation of Blind School G.T. Road Peshawar to Secondary level 37.441 20.614
29 Establishment of Emergency Call Centre for women at Peshawar 4.887 1.500
30 Establishment of Handicraft Centre/Dastakari Centre one at Peshawar 3.556 1.500
31 Construction of Model Madrassa at Hayatabad 50.000 3.510
32 Improvement, Widening and rehabilitation of City Circular road from Ramdas Bazar to GT road 144.724 10.956
Peshawar
33 Rehabilitation & Carpeting of internal roads in Peshawar City. 17.610 7.610
34 Widening/Black topping of remaining portion of Dalazak Road from Yousaf Abad Bridge to Bacha 91.591 10.000
Khan Road Peshawar (3 Km).
35 Construction of RCC Bridge in Village Baghicha Sufaid Sung PF-7 District Peshawar. 16.500 2.500
36 Construction & B/T of 7 km roads in PF-4 District Peshawar. 42.000 2.000
37 Feasibility study / planning designing of Central Prison, Peshawar 25.065 5.000
38 Construction of Central Police Office in Peshawar 145.142 19.675
39 Construction/Rehabilitation of Frontier Reserve Police Building Peshawar. 8.459 0.959
40 Purchase of land for police post Saifand police station Badber Peshawar 0.217 0.217
41 Construction of Treasury Block for District Accounts Office Peshawar 62.239 30.000
42 Construction of 10 Nos. Minister's residences at Hayatabad 70.000 20.000
43 Construction of 10 Nos Officers Residences at Hayatabad 60.000 10.000
44 Construction of 100 Residences for officers from grade 17-20 in Regi Lalma Peshawar. 400.000 10.000
45 Establishment of Planning Cell in Works & Services Department 31.132 8.000
46 Construction of office Block-II in Civil Secretariat Peshawar 62.886 9.426
47 Database Development based on electronic tools including MIS / GIS for W&S Department 25.299 5.000
48 Construction and Improvement of Circuit Houses/Rest Houses in NWFP. 70.000 17.587
49 Construction of Judicial Lodges at 10-Race Course Peshawar. 64.566 32.520
50 Construction of P&D Department Block Civil Secretariat Peshawar. 57.552 15.000
51 Construction of additional works in Provincial Assembly Building. 37.252 22.252
235
52 Construction of Flats and Houses at Race Course Garden/Khyber road and Civil Quarters Peshawar. 233.106 10.000
53 For Payment to Pakistan Housing Authority on a/c of purchase of Housing colony Nasapa Payan, 320.000 97.000
Peshawar SH: Completion of Balance Works.
54 F/S for Establishment of Housing Schemes for Government Servants in all Districts of NWFP.SH: 32.655 12.827
Construction of High rise flats at Hayatabad Peshawar.
55 Establishment of Media Colony, Peshawar. 50.000 0.001
56 Establishment of Project Management Unit (PMU) in Housing Department. 50.000 5.000
57 Special Repair of Offices/Residences of Commissioners Peshawar, 5.576 5.576
Urban Development
59 Improvement of Urban Roads in Town-I,II,III & IV, Peshawar. 135.661 21.203
61 Improvement of Major Urban Roads, Peshawar 447.180 50.000
62 Construction of 6 Security Police Posts, 4 on Ring Road & 2 in Industrial Estate Peshawar. 19.613 2.313
63 Construction of Mufti Mehmood Flyover at Rehman Baba intersection Phase-III 1500.000 1.000
64 Construction of link road from Jamrud road Tehkal Payan to Warsak road 495.674 0.100
65 Rehabilitation of Road from Swati Phatak to Bara Road/ Ring Road Peshawar 83.887 41.887
66 Impvt: of Roads / Streets in PF 1, 2,3 and 4 Peshawar. 86.833 30.500
67 Face lifting and Impvt of green belts on GT road from Ring road flyover to Rehman Baba 40.742 35.742
intersection.
68 Establishment of New Bus Terminal in Peshawar 10.000 0.100
Water
70 Feasibility study to divert the Municipal sewage and Industrial effluents entering the canal system of 5.000 3.000
Peshawar
71 Repair/widening including removal of encroachments from both sides of Kabul River Canal road 156.745 20.000
and construction of wall (connecting Warsak Road to G.T. Road) (12 kms)
72 Construction of Diversion Structure on Budhni Nullah for feeding Joe Zardad canal Districts 40.000 10.000
Peshawar & Nowshera.
Agriculture
74 Construction of Tube well and over Head Reservoir at Agriculture Training Institute Peshawar 8.254 3.454
75 Introduction of selected fruits, vegetable and medicinal plant species in the potential cultivable 14.000 3.000
waste areas of Peshawar Divisions.
76 Establishment of Germ plasma Repository at ARI Tarnab Peshawar. 30.000 2.000
77 Adaptive Research on the unexploited fruits in Peshawar Valley 7.444 2.000
78 Establishment of Dairy Colonies in Peshawar 87.581 3.819
79 Strengthening of Directorate of Livestock & Dairy Development, NWFP, Peshawar 20.989 10.989
80 Aforestation of Hills Around Peshawar Valley (Phase-II) 23.000 2.500
81 Linear Plantation along Canal & Roads in Peshawar Forest Division 25.000 3.000
82 F/S for Establishment of Zoo in Peshawar City. 2.500 2.500
83 Establishment of Aquarium House, improvement of sports fisheries and recreational facilities at 21.048 4.500
CH&TC, Peshawar
84 Up-gradation & Strengthening of Peshawar Carp Hatchery & Training Center, Peshawar 24.000 19.000
85 Establishment of Environmental Monitoring System 10.978 3.302
86 Strengthening facilities for review and examination of IEE& EIA reports 13.347 3.780
87 Raising of Environmental Awareness Among the Masses Regarding Environmental Pollution 16.000 4.146
88 Strengthening of Vehicular Emission Testing Station (VETS) Peshawar 5.000 1.901
89 Improvement of Existing Museums in NWFP (Extension of Peshawar Museum). 39.843 5.089
90 Conservation of Islamia College Peshawar. 29.825 16.825
91 Preservation of Sethi House, Peshawar. Including provision of Endowment Fund. 40.000 10.000
92 Conservation and Rehabilitation of Historic Buildings in Peshawar NWFP, Gor Ghatree 36.258 6.600
93 Rehabilitation of Lala Ayub Hockey Stadium, Peshawar Cant: 39.997 12.000
94 Provision of Playground on 119 Kanals land at Wazir Bagh Peshawar 26.015 8.175
95 Mosaic Marble Training Centre for female in available building of SIDB at Peshawar 2.635 1.635
96 Automotive/CNG Fitting Training Centres at Peshawar (Phase-II) 5.482 2.482
97 Consultancy for Design & Construction of Combined Effluent Treatment Plants at Peshawar 3.649 3.649
Industrial Estates
98 Construction of Approach Roads & Boundary wall at Industrial Estates Peshawar. 23.521 12.062
99 Establishment of GPI in Sardar Garhi Peshawar (Civil Works) Phase-I (State Land available) 101.380 25.744
100 Establishment of Second College of Commerce at Peshawar 100.722 7.522
101 Establishment of Govt. Polytechnic Institute for Women at Hayatabad, Peshawar 85.133 20.000
102 Establishment of Girls Commerce College at Dalazak Road Peshawar. 17.528 17.528
103 Feasibility study for creation of Directorate of Master Planning in LG&RD Department 0.500 0.500
104 NWFP Urban Development Project. (closing phase) 398.016 140.016
105 Renewal of Urban Centres in Major Cities of the Province. 200.000 30.000
106 Capacity building of Planning & Development Department, 85.000 28.766
107 Reform Management & Monitoring Unit (RMMU) in Chief Secretary' s Office 126.780 35.189
108 Computerization of Land Records of Peshawar 25.120 10.925
109 Establishment of Science & Technology Park Peshawar. 5.000 1.000
236
Rs. In Million
Allocation
# Name of schemes Cost
(2010-2011)
1 Establishment of GGHS, at Khan Mast Colony Peshawar. (Land Available) 20.373 5.000
2 Reconstruction of GGMS Adezai, GGPS Adezai No.1 and GGPS Adezai No.2 in District Peshawar. 20.841 10.841
3 Reconstruction of GGHS Jogiwara in District Peshawar. 39.600 20.000
Establishment of GGHS Surizai Payan, District Peshawar (including 12.000 million for purchase of
4 65.728 15.750
land)
5 Construction of Building for Directorate of E&S Education, Khyber Pakhtunkhwa. 100.000 40.000
6 Strengthening of Planning Cell of Higher Education Department. 20.910 2.710
7 Establishment of GGDC Bacha Khan, Kohat Road Peshawar. 113.375 30.000
8 Strengthening of Planning Cell of E&SED in Khyber Pakhtunkhwa. 27.680 5.000
9 Construction of New Services Hospital Peshawar. 161.490 41.102
10 Establishment of Peshawar Institute of Cardiology, Phase-I. 36.865 2.000
11 Establishment of Peshawar Institute of Cardiology, Phase-II (Matching Grant). 727.486 100.000
12 Women & Children Hospital at Former Roadways House, Peshawar Balance Works). 507.996 227.789
13 Establishment of Fountain House in Peshawar 30.000 15.000
14 Shaheed Mohtarma Benazir Bhutto Hospital (500 Beds), Peshawar 10.000 1.000
15 Removal of Deficiencies and Rehabilitation of Infectious Diseases Hospital, District Peshawar 24.082 24.082
16 Construction of additional Ward at LRH Peshawar 901.717 100.000
Construction of additional Hostels for Doctors, Nurses & Renovation of existing Hostels at LRH,
18 193.508 111.508
Peshawar.
19 Establishment of Casualty Block KTH, Peshawar. 12.759 2.000
20 Improvement / Rehabilitaion of KTH, Peshawar. 131.489 106.489
21 Construction of building for PGMI at H.M.C. 14.710 3.355
22 Improvement/ Rehabilitation of Khyber Medical College, Peshawar 298.975 68.075
Construction of Two Hostels and allied facilities for Students of Khyber Girls Medical College,
23 212.958 75.000
Peshawar
24 Provision of building for Khyber Medical University, Peshawar. 110.000 110.000
25 Construction of Ward Blocks at HMC, Peshawar 381.165 264.046
26 Construction of Hostels for Doctors & Nurses at HMC, Peshawar 269.882 113.094
27 Completion of Balance Works in Burn Centre at Nishtarabad, Peshawar 9.000 9.000
28 Conversion of Civil Dispensaries of Peshawar into Primary Health Care Centres 100.000 35.000
29 Feasibility Study Greater Water Supply Scheme Peshawar 27.785 27.785
30 Provision of sewerage system for Civil Secretariat Peshawar. 20.000 20.000
31 Feasibility Study and Establishment of (WASA) Water Supply & Sanitation Agency for Peshawar. 10.000 10.000
Establishment of 3 Regional Labs. for water quality monitoring in Peshawar, Southern & Northern
32 10.000 5.000
Regions.
W.S.S ( 192 Tube Wells) in District Peshawar under the President Directive
33 331.250 49.500
No. 221. ( Total Cost Rs. 662.500 million Federal Share Rs. 331.250 )
34 Establishment of two ITC Centres at Zoorgarhi and Regi at Peshawar. 2.969 0.700
35 Reconstruction and Upgradation of Blind School G.T. Road Peshawar to Secondary level 37.257 6.763
36 Protection and Rehabilitation of Vulnerable Children at Peshawar (Pilot Project) 8.238 5.238
37 Establishment of 2 Industrial Training Centres for Women, in Peshawar 2.866 0.850
38 Establishment of Working Women Hostel at Peshawar 8.576 2.500
39 Establishment of Emergency Call Centre for women at Peshawar 3.148 0.950
40 Feasibility study and construction of Model Madrassa at Hayatabad. 55.600 15.600
41 Dualization of Peshawar Warsak road District Peshawar. 363.942 100.000
42 Rehabilitation & Improvement of Taru Jabba - kbarpura Dalazak Road Peshawar (17.1 km) 220.000 50.000
Widening/Black topping of remaining portion of Dalazak Road from Yousaf Abad Bridge to Bacha
43 91.591 40.000
Khan Road Peshawar (3 Km).
44 Construction of RCC Bridge in Village Baghicha Sufaid Sung PF-7 District Peshawar. 14.576 12.076
45 Improvement & Widening of Pajaggi Chagharmatti Road ( Balance Portion) District Peshawar. 314.408 100.000
46 Feasibility study, Planning, Designing & Construction of Central Prison, Peshawar. 1000.000 100.000
47 Construction of Central Police Office in Peshawar. 395.210 40.000
48 Construction of High Rise Flats at Nishterabad Peshawar. 400.000 40.000
49 F/S and construction of Flats at Race Course Garden/Khyber road Peshawar. 150.000 65.980
50 Construction of office Block-II in Civil Secretariat Peshawar 62.886 13.460
51 Construction of Judicial Lodges at 10-Race Course Peshawar. 64.566 9.067
52 Construction of Treasury Block for District Accounts Office Peshawar 62.239 14.440
53 Construction of 10 Nos. Minister's residences at Hayatabad 200.000 20.000
54 Construction of 10 Nos Officers Residences at Hayatabad 140.000 20.000
55 Construction of P&D Department Block Civil Secretariat Peshawar. 57.552 30.000
56 Construction of additional works in Provincial Assembly Building. 45.000 5.248
237
57 Strengthening & Capacity Building of C&W Department . 99.721 49.721
58 Construction of Khan Abdul Wali Khan Multiplex in Civil Secretariat Peshawar. 205.963 60.000
59 Construction of Tarmac for Helicopter for Provincial Govt. at PAF Base Peshawar. 30.000 11.223
Improvement of Major Urban Roads, Peshawar SH: Improvement of Jamrud road from runway to Ist
61 620.910 160.000
entry / Hayatabad Town Peshawar.
62 Construction of 6 Security Police Posts, 4 on Ring Road & 2 in Industrial Estate, Peshawar. 19.613 7.000
63 Impvt: of Roads / Streets in PF 1, 2,3 and 4 Peshawar. 86.833 49.333
64 Face lifting and Impvt of green belts on GT road from Ring road flyover to Rehman Baba intersection. 56.220 15.478
65 Rehabilitation of road from Beri Bagh (Lakhtai Ghara) to Punj Khattak Chowk Zargarabad Peshawar. 7.500 7.500
Feasibility study to divert the Municipal sewage and Industrial effluents entering the canal system of
66 30.230 5.000
Peshawar Valley.
Construction of 20 Nos tube wells for Augmentation of Warsak / Kabul river canal system District
67 33.570 3.570
Peshawar
Introduction of selected fruits, vegetable and medicinal plant species in the potential cultivable waste
68 12.000 3.638
areas of Peshawar
69 Establishment of Germ plasma Repository at ARI Tarnab Peshawar. 30.000 4.254
70 Adaptive Research on the unexploited fruits in Peshawar Valley (Pecan nut, Louqat, Grapes, Almond) 7.444 2.812
71 Strengthening of Agricultural Research Directorate Peshawar. 50.000 15.000
72 Establishment of Dairy Colonies in Peshawar 87.581 5.000
73 Strengthening of Directorate of Livestock & Dairy Development, Khyber Pakhtunkhwa Peshawar 20.989 1.499
74 Creation of Virology Section & Animal Houses at VRI, Peshawar. 60.000 13.094
75 Strengthening of Planning Cell in Administrative Department. 15.000 3.000
76 Afforestation of Hills Around Peshawar Valley (Phase-II) 23.000 6.087
77 Strengthening of Planning Section in Khyber Pakhtunkhwa, Forest Department 3.615 0.965
78 Linear Plantation along Canals & Roads in Peshawar Forests Division 25.000 7.046
79 Rehabilitation/ Construction of Residential facilities in Forest Department Peshawar. 22.040 14.960
80 F/S for Establishment of Zoo in Peshawar City. 2.500 1.800
81 Development of Infrastructure of Khyber Pakhtunkhwa Wildlife Department in Peshawar. 25.000 13.070
82 Establishment of Peasantry and erection of Hog Deer enclosure at Sheer Abad District Peshawar. 28.906 14.399
Establishment of Aquarium House, improvement of sports fisheries and
83 21.048 5.009
recreational facilities at CH&TC, Peshawar
84 Up-gradation & Strengthening of Peshawar Carp Hatchery & Training Centre, Peshawar 24.000 4.510
85 Establishment of EPA Khyber Pakhtunkhwa Laboratory at Fishery Center, Sheer Abad, Peshawar. 37.345 16.000
86 Establishment of Provincial Cleaner Production Centre (PCPC) at Peshawar. 7.159 2.762
87 Installation of Digital Data Display Boards and its Integration with PTV. 4.770 3.570
88 Preservation of Sethi House, Peshawar. Including provision of Endowment Fund. 40.280 23.000
89 Restoration & Rehabilitation of the Fire Brigade Building at Gor-Ghattree. 5.000 2.000
90 Preservation of the building of old Mohafiz Khana, Peshawar. 10.000 3.000
91 Conservation and Rehabilitation of Historic Buildings in Peshawar, Gor Ghatree, 36.258 2.683
92 Rehabilitation of Lala Ayub Hockey Stadium, Peshawar Cant: 39.997 20.000
93 Provision of Playground on 119 Kanals land at Wazir Bagh Peshawar. 26.015 10.000
94 Reconstruction of old Pavilion at Qayum Stadium Peshawar. 26.879 25.653
95 Rehabilitation of Arbab Niaz Cricket Stadium, Peshawar 18.305 13.305
96 Playground at Landi Arbab Peshawar 20.000 10.000
97 Playground at Badbair Peshawar 15.000 5.000
98 Establishment of Second College of Commerce at Peshawar 116.455 24.733
99 Establishment of Govt. Polytechnic Institute for Women at Hayatabad, Peshawar. 85.133 19.633
100 Establishment of Girls Commerce College at Dalazak Road Peshawar. 17.528 4.000
101 Local Governance School, Peshawar. 124.690 24.690
102 Feasibility study for creation of Directorate of Master Planning in LG&RD Department 0.500 0.500
103 Renewal of Urban Centres in Major Cities of Khyber Pakhtunkhwa. 150.000 50.000
104 Establishment of Science & Technology Park Peshawar. 0.100 0.100
Establishment of General Truck Stand at Peshawar through Public Private Partnership (Purchase of
105 400.000 400.000
Land)
For Payment to Pakistan Housing Authority on a/c of purchase of Housing colony Nasapa Payan,
106 Peshawar SH: Completion of Balance Works on Housing Colony Nasapa Payan ,Constructed under 278.335 75.000
supervision of PHA.
Establishment of Project Management Unit (PMU) in Housing Department for preparation of Land Use
107 92.118 58.810
Plans, Phase -1- 5 Districts (Peshawar, Nowshera, Charsadda, Mardan & Swabi).
Procurement & Purchase of land for launching of Housing Schemes for the Government Servants and
108 1200.440 1200.440
General Public at Jalozai
109 F/S & Construction of Flats at Civil Quarters, Peshawar. 10.680 4.500
110 Establishment of Media Colony at Peshawar. 135.000 90.000
111 Computerization of Land Records in Khalisa circle of Distict Peshawar. 41.720 10.000
Total Cost 13699.61 5132.007
238
Rs. In Million
(2009-2010)
1 Strengthening of Directorate of Higher Education Department. 6.000 6.000
2 Establishment of Project Management Unit for re-organization of Higher Education. 20.000 10.000
3 Construction of Flats for Staff at LRH Colony and Renovation of Existing Residential Colony 38.000 10.000
4 Construction of Para-Medical Staff Hostel at LRH Peshawar 35.000 10.000
5 Feasibility study for construction of Car Park in LRH Peshawar Presentation to PDWP). 1.000 1.000
6 Construction of Main Surgical Operations Theatre Complex at LRH Peshawar. 60.000 10.000
7 Construction of Doctors Hostel in KTH Peshawar 60.000 10.000
8 Repair & Revamping of Drainage & Sewerage System of KTH Peshawar 40.000 10.000
9 Clinical & Performance Audit, KTH Peshawar 45.000 45.000
10 Establishment of Casualty Block, KTH Peshawar 559.410 75.000
11 Strengthening of Post-Graduate Nursing College, Peshawar 100.000 30.000
12 Strengthening of Khyber Medical University Peshawar 50.000 15.000
13 Establishment of Senior Citizens Home at Peshawar 5.000 5.000
14 Establishment of 2 Handicrafts/Dastkari Centres in Khyber Pakhtunkhwa. 2.800 0.800
15 Establishment of Halfway House for Women at Peshawar 3.000 3.000
16 Reconstruction of Masjid at Chirwe Koban Meena Bazar Peshawar. 10.000 10.000
17 Khyber Pakhtunkhwa Bar Council Building, Peshawar 68.742 20.000
18 Re-Construction of Mosque in the Technical Secretariat. 20.000 20.000
19 Provision for Parking / Sheds for Civil Secretariat, Peshawar 10.000 10.000
20 Construction of Office building and Training Institute for C&W Department. 100.000 50.000
21 Construction & Rehabilitation of Urban Roads in Peshawar 100.000 100.000
22 Diplomatic Enclave and Model Town in Peshawar. 300.000 10.000
23 Construction of link road from Jamrud road Tehkal Payan to Warsak road. 495.674 200.000
24 Flyover on Rehman Baba Intersection and Bacha Khan Chowk, Peshawar. 777.727 385.000
25 Flyover at Gulbahar-Nishtar Abad Intersection on G.T Road Peshawar. 333.351 333.351
26 Effluent Management System(Treatment Plants) in Peshawar. 400.000 10.000
27 Establishment of Civil Veterinary Hospital at Chaghar Matti, Peshawar on donated land 30.000 10.000
Establishment of Directorate General (Research), Livestock and Dairy Development Department, 30.000 15.000
28
Khyber Pakhtunkhwa Peshawar (Presentation to PDWP).
Establishment of Poultry Diseases Investigation and Vaccines Production Center at Veterinary 70.000 14.000
29
Research Institute, Peshawar
Estt.of reproductive physiology laboratories for enhancing reproductive efficiency of Dairy Animals at 60.000 20.000
30
Research Station Surezai, Peshawar
Introduction of new Nutritional Analytical methodologies and creation of facilities for drugs residues 40.000 15.000
31
determination at Directorate.
32 Construction of Directorate for Soil Conservation in Khyber Pakhtunkhwa. 15.000 5.000
33 Construction of residential facilities in Fisheries Department, Khyber Pakhtunkhwa at Peshawar 39.000 23.000
34 Feasibility Study for Waste Generation data collection in public/private hospitals in Peshawar 1.000 1.000
35 Strengthening of Legal / Prosecution Unit, EPA of Khyber Pakhtunkhwa. 8.000 2.000
Institution/Capacity building of Directorate of Archaeology & Museum Department, Peshawar 12.000 6.000
36
(Presentation to PDWP).
37 Conservation of Historical Mosque in Islamia College, Peshawar 15.000 7.000
38 Rehabilitation of Hayatabad Sports Complex (Presentation to PDWP). 20.000 20.000
39 Construction of FIFA Goal Project/ Football Stadium & Academy at Shahi Bagh Peshawar. 20.000 20.000
40 Development of vacant plot adjacent to Nishtar Hall for Art/Cultural/Recreational activities. 45.000 10.000
41 Acquisition of Land for Carpet Nagar Peshawar Region. 100.000 100.000
42 Establishment of Small Industrial Estate Peshawar-2 100.000 5.000
43 Establishment of GPI at Bazid Khel, Peshawar. 160.000 40.000
44 Up gradation & Modernization of Govt. College of Technology, Peshawar with special emphasis on 100.000 30.000
practical training.
45 Revamping and up-gradation of the Government Printing and Stationery Department, Peshawar. 85.509 85.509
46 Feasibility study for construction / establishment of Dedicated Parking Plazas for Peshawar through 2.000 2.000
Public Private Partnership.
47 Strengthening of VETS Peshawar 13.000 10.000
48 Construction of High Rise Flats for Govt. Servants at Phase-V Hayatabad, Peshawar. 866.000 26.000
49 Construction of new Muhafiz Khanas at Peshawar 30.000 10.000
Total Cost 5502.213 1865.66
239
Appendix - 5
Surveys Questionaires
240
Appendix- a 5
PhD Study on
Development Plan Practices to Manage Spatial Growth in Major Cities of Pakistan
(A Case Study of Peshawar City)
Interview Schedule for the Plan Implementing Agency Official
Name of the Agency concerned with Plan Implementation:______________________________
Q1- How many Development Plans have been prepared so far the city:___________________
Q2- Who has been the custodian of the Plan:
i- Minister for Physical Planning ii- Mayer of MC iii- Sectary physical planning
iv- D.G. PDA iiv- Commissioner/DC iiiv- Do Not exist
Who prepared these plans?

# Name of the plans Prepared by Number of Town Implementing Cost of plan
Planner involved Agency making
1 Master Plan
2 Structure Plan
3 UPDMSP
4 CDS Peshawar
Q3- Who did finance the expenditure of plan making:

I- The organization by it self
II- Foreign assistance
III- The Federal government
IV- The provincial government
Q4- How the line agencies (WAPDA, SUI GAS, Telephone) were made responsible to act
according to the plan._____________________________________________________
Q4- Was there any assurance of the line agencies for services provision in the plan proposed
areas?
i- Yes ii- No
Q5- If yes were the services proposed in the plan provided by the line agencies?
i- Yes ii- No
Q6- If no, what were the reasons for not following the plan?___________________________
241
______________________________________________________________________________
Q7- Did the custodian inform these organizations about the plan proposals?
i- Yes ii- No
Q8- If yes what action he taken in response: ______________________________________
Q9- Was general public involved in plan making? i- Yes ii- No
Q10- If yes what was the level of their participation: i- The city level representative consultation
ii- Major stake holder level
iii- General public
iv- Any other explain__________________
Q11- After completion of the plan draft, it was presented for public examination:
i- Yes ii- No
Q12- If yes where this examination was took place:___________________________________
Q13- Finally how many copies of the plan were published:_____________________________
Q14- Was the plan made available? i- To the agency concerned

ii- Libraries
iii- Book Stalls
iv- No where
Q15- What was the status of these D. Ps.

i- Plan was approved by the legislative body
ii- Plan was not approved by the legislative body
Q16- Why these plan were not approved by the legislative body:________________________
Q17- What legal cover was available with the agency concern for implementing the plan:
i- ______________________________________________
ii- ______________________________________________
Q18- If the plan was not approved how the development work progressed:
i- The plan was abandoned
ii- The un-approved plan was consulted for the projects
iii- Politician demand based development took place
iv- Professional perception was considered for the projects
v- Public pressure was considered
vi- Un-avoiding state of the problem work most
Q19- Number of Town Planner working on the plan implementation:_____________________
Q20- What proposals of the plan were implemented in time:

i-________________________________________ ii____________________________
242
iii_______________________________________ iv____________________________
v________________________________________ vi____________________________
Q21- Over all implementation level of the plan (in %age):______________________________
Q22- Did the Custodian keep himself informed about the DP activities:
i- Yes ii- No
Q23- If yes what action he took so far for not implementing the DP:______________________
Q24- Are you satisfied from the quality of the plan prepared so far:
i- Yes ii- No
Q25- If No what is lacking:______________________________________________________

_____________________________________________________________________________
______________________________________________________________________________
Q26- In your opinion what are the main hurdles in plan implementation:__________________
_____________________________________________________________________________
_____________________________________________________________________________
Q27- What is the mechanism for plan implementation with the Authority concerned:________
_____________________________________________________________________________
Q28- Does any plan implementing cell exist in this organization?

i- Yes ii- No
Q29- Who is specifically responsible for plan implementation: _________________________
Q30- Is there any Development Control system prevailing in your organization:

i- Yes ii- No
Q31- How many planner are involved in Development Control:_________________________
Q32- Is any Monitoring taking place for the plan progress:

i- yes ii- No
Q33- If yes at what interval:

i- Monthly ii- Quarterly ii- On term basis iv- Yearly
Q34- Is any sort of review taken place for Development Plans:

i- Yes ii- No
Q35- Your organization has sufficient capacity for plan review:

i- Yes ii- No
Q36- If yes, who is actually responsible for the plan review:___________________________

243
Q37- Are these long term plans necessary for the city development:
i- Yes ii No
Q38- If No, what type of plan is required:

i- No need of plans at all
ii- Project led Development is more appropriate
iii- Short term action plans are required
iv- Incremental planning is more appropriate
v- Any other approach_____________________
Q39- What are the main causes of the plan failure:__________________________________

____________________________________________________________________________
____________________________________________________________________________
Q40- What type of institutional framework is necessary for plan implementation:__________

____________________________________________________________________________
____________________________________________________________________________
Q41- Did your organization conduct courses for the capacity built up of the professionals
involved in:
DP implementation: i- Yes ii- No
If yes, at what level: i- Local/organizational level

ii- National level
iii- International level
Q42- What necessary changes do you suggest on the basis of your past experience to
successfully implement Development Plans:__________________________________________
_____________________________________________________________________________
_____________________________________________________________________back side
Q43- What is the impact of LGO 2001 on the city management:________________________

_____________________________________________________________________________
Name and Designation of the interviewed officer:______________________________________
244
Appendix 5b
PhD Study on
Development Plan Practices to Manage Spatial Growth in Major Cities of Pakistan
(A case study of Peshawar city)
Questionnaire for Resident of Plan Deviated areas in Peshawar
Name of Interviewer:_________________________ Date: ______________
1) Name of Locality: _________________________________ Location:_______________
2) Type of General Land Use: i- Residential; ii- Commercial; iii- Mix development
3) Nature of development occurred: i- Planned, ii- Unplanned, iii- Semi planned
4) Road width connecting this area: ___________ feet;
5) Type of road: i- Paved ii- Unpaved
Information from the head of house hold
1- Street condition and its width in front of the house:__________feet; Paved / Unpaved
2- Services available Services Availability Services Availability Condition

in your Mohallah:
Electricity Water supply
Sui Gas Drainage
Telephone Solid waste collection
3- Who provide these services: i- The concern Agency, ii- Councilors/ Nazim
iii- MPA/ MNA, iv- Acquired through own efforts
4- Who paved your Road: i- MNA; ii- MPA; iii- Councilor ; iv- Other______________________
5- Type of your house’s plot: i- Regular ii- Irregular
6- Size of Plot in Marlas: _______________
7- House occupation status: i- Owned ii- Rented iii- Any other

8- If owned construction status: i- Self constructed ii- Purchased
9- Year of Purchase: __________________ Year of Construction: ___________________
245
10- What is the role of TMA/MC/PDA in developing this site: i- Approval of building plan;
ii- Provision of infrastructure; iii- Land Management; iv- No role
11- Did you get approval your building plan : i- Yes ii- No.
12- If yes who gave approval: i- PDA ii- MCP/TMA iii- Cantonment
13- If No, what are the main hurdle in plan approval: ________________________________
14- Did you receive any notice from the authority concern regarding construction: i- Yes ii- No
15- If yes; how did you proceed construction: i- Through court order, ii- Through political
support iii- By bribing the official/inspector, iv- Any other
mean:____________________________________
16- Reasons for having a house in this area: i- Due to less cost of land/house;
ii- Near to educational facilities;
iii- Near to business/employment;
iv- None availability of planned site
17- What are the main problems faced by you while living in this locality? __________
_________________________________________________________________________
_________________________________________________________________________
18- Approximate distance of social facilities from your locality
Information P. School S. School Mosque BHU Shops Open space

Existence in the
locality/Neighborhood
App. Distance from the
house
19- Do you want to shift from this area: i- Yes ii- No
20- What is your Nationality: i- Pakistani ii- Afghan iii- Other
246
Appendix 5c
PhD Study on
Development Plan practices to Manage Spatial Growth in Major Cities of
Pakistan (A case study of Peshawar city)
Interview Schedule for government officials of Building Control Agency of (TMA)
Area of the TMA _________ Total area of the Town: ______ Sq. Km.
Total population of the town: __________
Total Number of Union Councils in the Town: _____; Urban UC:____, Rural UC _________
What is the jurisdiction of the TMA’s BCA; i- Whole of the TMA area; ii- Urban part of the TMA
If answer number ii is yes, then what about the rural areas;

i- No BC is applicable ii- Relaxed BC regulation is practice iii- The same process of Urban areas is practice
Over all nature of the violation in the town (%age wise) _____________%;
i- Building plan not approved_____________%
ii- Building Plan approved but violate the regulation____________%
Institutional capacity; ABIs __________, BIs ___________, DM ________, Demolition squad __________
Number of Police________, ATO Planning (qualification) _________, TOP (qualification) ________________
Professional competency; Town Planner/Architect ___________, Full time Magistrate _________________
Logistic support with BCA; i- Motor cycle ___________,ii- Van/Jeep __________,
iii- Shawal _____ iv- Tractors _______, v- Other equipments sufficiently available ___________
Legal support with BCA: i- Law strongly support BCA activities, ii- No legal support available by law
Have you any listed building of historical importance: 1- Yes 2- No
If yes how did you consider application for listed building consent (to alter or demolish a building of architectural or
historic interest);
__________________________________________________________________________________
Have you any special Rule for its Conservation; 1- Yes 2- No
If no how you deal with conservation areas consent to carry out work in conservation
area; ________________________________________________________________________
Any Dangerous Building exists in the town jurisdiction; 1- Yes 2- No
If yes what necessary action has been taken?
i- Prohibit residential accommodation
ii- Renew the building
iii- Demolished the building
iv- No action have been taken so far
Numbers of Plazas constructed in violation of 1985 Building Regulation; _________________
247
How many notices are issued by the BCA for demolition of Violation/ Dangerous building or
part thereof; _______ Percentage of honored cases________ Percentage of dishonored cases_____
Encroachment Exist in TMA Jurisdiction: i- Yes ii- No
If exists what action BCA take in response:

i- Issue Notice and take action ii- Issue Notice but can’t take action iii- Ignore it
If can’t take action who often interfere: i- Politician ii- Bureaucrat

iii- Court give stay order iv- No one interfere BCA staff have no security
248
Appendix 5d
PhD Study on
Development Plan practices to Manage Spatial Growth in Major Cities of
Pakistan (A case study of Peshawar city)
Interview Schedule for Building Control System of (TMA)
Limit of the BCA Activities: i- All UC of the TMA ii- Urban UC of the TMA
What is the rule for buildings approval in rural areas:

i- No BC is applicable ii- Relaxed BC regulation is practice iii- The same process of Urban areas
is practice
How did you regulate the Building Plan approval:
i- PUDB Building Regulation 1985 ii- Local Govt. Ordinance 2001 iii- Both
Process of Plan Submission for approval from BCA;
i- Who collect it first:_____________________________________ ii- Who check plans: __________________

ii- How it is Checked:__________________________________________________________________________
iv- Permissible plot sizes:________________________________________________________________________
iv- Permissible Covered area of the specified sizes:___________________________________________________
What is the qualification of the person checking plan for approval:_____________________
Most often how people violate building construction:

i- Building plan not approved ii- Increase covered area iii- No violation can occur
Over all nature of the violation in commercial building:
i- Building plan not approved ii- Building Plan approved but violate the regulation
ii- No violation occur can occur from the approved plan
Present process of implementation of PUDB Regulation and LGO 2001:
v- Good _________, ii- Fair ____________, iii- Bad _____________, iv- Nil _________________
Do you have a Development plan (Master/Structure plans): i- Yes ii- No
The LGO 2001 empower all TMA to prepare Development Plans for their area; what are
the causes for not having a Development Plan:
i- Professional incompetency for its preparation ii- No funds available iii- No priority
249
If the plan is not available then what is the basis of your building plan (Commercial,
Residential, Public building); Rejection or Approval
__________________________________________________________________________
If available, violation is there from the approved development plan; i- Yes ii- No
If yes why violation occur; i- People have no knowledge/respect of Development plan ii- We have no
legal power for its implementation iii- Plan is not available with
the TMA
What is the Standard Plot sizes for house construction;_______________________________
_____________________________________________________________________________
How Commercial Building plan get approved:______________________________________
i- Commercial Plot floor area ratio __________ ii- What is the permissible height of Commercial
Building;___________, iii- Set Back__________, iv- Minimum Plot size for Comm. Build. ________
Residential Building Plot floor area ratio; _______, Minimum room size________Mandatory open space
within plot area _________
How do, BI and ABI scrutinized the building plans__________________________________
How many notices are issued by the BCA for demolition of Violation/ Dangerous building or
part thereof; _______Percentage of honored cases_____ Percentage of dishonored cases___
How change of use violation is dealt with; what action BCA takes in response;
i- Issue Notice and take action
ii- Issue Notice but can’t take action
iii- Ignore it
If can’t take action who often interfere;
i- Politician
ii- Bureaucrat
iii- Court give stay order
vi- No one interfere BCA staff have no security
What weaknesses exists in Building Control Regulation;______________________________
______________________________________________________________________________
250
Appendix-6:
Satellite images showing
a general view of Peshawar city
growth
251
Unplanned private sector housing development predominantly in a leapfrog
pattern in the city causing difficulty in the provision of infrastructure
Evidence of absence of land use planning and land management

in areas located between University of Peshawar and the Cantonment
252
Emergence of unplanned communities in the immediate vicinity of planned town
(Hayatabad Township) highlight weak development control by authorities
Unplanned urban expansion along Motorway shows authorities inability

to plan growth of the city in holistic manner
253
Sub-urban growth pattern portrays inadequate
land management in Peshawar
A view of linear development along Warsak Road contrary to the

structure plan proposal of compact development
254
Satellite Image of Peshawar city
Boundaries of Master Plan & Structure Plans and PMC jurisdictions: Public sector deviation in highlighted
255

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PhD Dissertation

Development Plan Practices to Manage Spatial Growth

Department of City and Regional Planning

From within country

Prof. Dr. Haq Nawaz Anwar

1- Dr. Mark Seasons

2- Dr. Awais Latif Piracha

3- Dr. Saim Muhammad

Sr. No. Description Page No.

1.1 Context to the Research 1

Chapter 2 RESEARCH METHODOLOGY

Chapter 4 URBAN GROWTH MANAGEMENT IN PAKISTAN

Chapter 5 SPATIAL GROWTH MANAGEMENT IN PESHAWAR

Chapter 6 ANALYSIS OF URBAN DEVELOPMENT PLAN PRACTICES

Chapter 7 CONCLUSIONS AND RECOMMENDATIONS

7.1 Introduction 159

2.1 The research process 16

7.2 Sectoral development and action plans 171

7.3 Triangular forces to support plan implementation 173

Sr. No. Description Page No.

A procedure for the statements of community involvement in development

3.2 Factors that trigger need for a review 41

1 Public exhibition of draft Kuala Lumpur structure plan 47

ADP Annual Development Plan

1.1- Context to the Research

1.2- The Research Problem

i- Population growth rate of the city

1.4- Research Questions

i- What have been the development plan practices in Pakistan?

i- To review various aspects (legal provisions, institutional framework, plan making

1.6- Study Area for the Research

Source: Survey of Pakistan

Chapter 4 highlights the urban development initiatives in Pakistan. It gives a comprehensive

2.2- Selection of Topic

International Literature Review Regarding the

Selection of Good Practices

Review of the National Five Years Plan

Review of National Reference Manual on Planning and Infrastructure Standards

Review of Cantonments Act (1924) and Cantonment Regulations

Review of Khyber Pakhtunkhwa Comprehensive Review of Provincial Conservation

Review of Review of Review of TMA/PDA Review of Ten Year

Source: The Author, 2011

 Departmental capacity, structure, power and function of the implementing agency

ii- Preparation stage

 Vision statement or goal of the development plan

iii- Implementation Stage

 Phasing and time frame for implementation

2.3.2- Assessment of development plan compliance/deviation

Table 2.1 Sampling procedure for the selected localities

Map 2.1 Map showing the location of selected localities

Source: Map developed from SUPARCO (Spot) Satellite Image 2009

2.4- Methods Adopted for the Study

2.4.1- Literature review

 Reputed national and international journals

2.4.2- Personal observation

2.4.3- Collection of information on institutional framework

2.4.4- Interview with key urban development practitioners

Table 2.2 Interview with urban development practitioners

2.4.5- The development plans contents assessment and analysis