Town Planning and Housing: Principles, Planned Cities, Neighbourhoods, Densities and Standards
2. Traditional and modern planned cities in India and abroad
Traditional Indian planning drew on the Vastu and Shilpa texts (Manasara, Mayamata): a settlement laid on mandala-like geometry oriented to the cardinal directions, a central temple or palace, wide ceremonial streets and quarters allotted by occupation. The Harappan cities (Mohenjo-daro, Harappa) are far older planned towns, with a street grid, a citadel and a lower town, and covered drains. Modern planned cities are best learned as a table of planner, date and the one big planning idea, because the paper pairs them.
| City | Planner and date | Governing idea |
|---|---|---|
| Jaipur | Sawai Jai Singh II, 1727; chief architect Vidyadhar Bhattacharya | Walled grid city on Shilpa-shastra principles, divided into nine blocks (chowkris); broad axial streets lined by bazaars |
| New Delhi | Edwin Lutyens and Herbert Baker; capital announced 1911, inaugurated 1931 | Ceremonial axis and radial avenues on hexagonal geometry, the Central Vista, a low-density bungalow zone |
| Chandigarh | Le Corbusier with Pierre Jeanneret, Maxwell Fry and Jane Drew, after the earlier Mayer–Nowicki plan; 1950s | Sectors of about 800 m × 1,200 m, a seven-level road hierarchy (V1 to V7), Capitol Complex, continuous green belts |
| Bhubaneswar | Otto Königsberger, 1948 | New capital of Odisha planned as neighbourhood units with open space, beside the old temple city |
| Gandhinagar | Capital of Gujarat; H. K. Mewada and Prakash M. Apte, 1960s | City divided into sectors on Chandigarh-like lines, each with its own facilities, within a strong green framework |
| Navi Mumbai | CIDCO, 1970; conceived as a twin city across Thane Creek | A counter-magnet to Mumbai: a chain of nodes along the rail and road corridor to divert population and jobs |
| Canberra | Walter Burley Griffin and Marion Mahony Griffin; competition 1912 | A land axis and a water axis, geometry of circles, triangles and hexagons, an artificial lake, garden-city influence |
| Brasilia | Lúcio Costa, Plano Piloto 1957; principal buildings by Oscar Niemeyer; inaugurated 1960 | Two crossing axes (monumental and residential), housing in superblocks (superquadras), strict functional separation |
| Washington | Pierre Charles L’Enfant, 1791; McMillan Plan 1901–02 restored the Mall | Baroque diagonal avenues laid over a grid, with sight-lines between the principal buildings |
Read the table for patterns. Capital cities (New Delhi, Canberra, Washington, Brasilia) are organised by axes and sight-lines because they express state power. Post-independence Indian new towns (Chandigarh, Bhubaneswar, Gandhinagar) use the neighbourhood unit or sector as the building block, with a road hierarchy that keeps through traffic on the edge. Navi Mumbai is a metropolitan-scale idea, decongestion by a counter-magnet, not a capital. Jaipur is the traditional model: geometry from the texts, and a trading city whose bazaar streets are its spine.
3. Housing typologies
A housing typology is a recurring combination of dwelling form, plot arrangement and tenure. Classify housing by form (how units sit on the land), by tenure (who owns or rents) and by income group (whom it is meant for). Form decides land consumption, achievable density, cost per unit and the quality of private open space, so the paper expects you to place each form on the density scale.
| Typology | Form | Density position | Merit and limit |
|---|---|---|---|
| Detached house (bungalow) | One dwelling on its own plot, open on all sides | Lowest; most land per household | Privacy and light on four sides; highest land and service cost per unit |
| Semi-detached house | Two dwellings sharing a party wall | Low | Saves one side set-back and wall; two open sides only |
| Row (terrace) house | Continuous line of narrow-frontage units sharing side walls, each with its own entrance and rear yard | Medium to high for ground-related housing | Economical in land and services; light and air only from front and back, so plan depth is limited |
| Courtyard or cluster houses | Units grouped around a shared court or green, or around private patios (pol, haveli) | Medium to high | Climate-responsive and sociable; needs careful layout and upkeep of the common space |
| Walk-up apartments | Low-rise flats reached by stairs | High | Land-efficient without lifts; height limited by what people will climb and by code thresholds for lifts |
| High-rise tower | Tall block with lifts | Highest per site, but see the note below | Frees ground for open space; costly structure, services, fire safety and upkeep; weak neighbourly contact |
| Chawl or tenement | Single-room units along a shared corridor with common toilets | Very high crowding | Cheap to build and close to work; poor light, ventilation and sanitation |
By tenure: owner-occupied (freehold or leasehold), cooperative society, apartment (condominium) ownership, rental (private, public or employer), and hostels or dormitories for students, workers and single occupants. By income group: economically weaker section (EWS), low income group (LIG), middle income group (MIG) and high income group (HIG), each defined by a household-income band that the scheme or authority sets and revises, so the band is always stated, never assumed.
4. Neighbourhood design: Perry, Radburn, superblock and cluster
The neighbourhood is the planning unit in which daily life is meant to be possible on foot. Perry’s neighbourhood unit (1929) has six principles. (1) Size: the population that supports one elementary school, roughly 5,000 people on about 160 acres in Perry’s example, so the walk from edge to centre is about a quarter mile. (2) Boundaries: arterial streets that carry through traffic around the unit, not through it. (3) Open space: a system of small parks and recreation spaces. (4) Institution sites: the school and other institutions grouped at the centre. (5) Local shopping: at the edge, at traffic junctions, ideally beside the shops of the adjoining unit. (6) Internal street system: a hierarchy of narrow streets that serve the unit and discourage through traffic.
Radburn (New Jersey, 1929, “a town for the motor age”) answered the car. Its five ideas: (1) the superblock in place of the small gridiron block; (2) specialised roads, each street built for one kind of traffic; (3) complete separation of pedestrians from vehicles, with underpasses or bridges at crossings; (4) houses turned around: living rooms and gardens face a park, service and garage side faces a cul-de-sac; (5) the park as the backbone of the neighbourhood. A superblock is a large block, several times an ordinary one, closed to through traffic, bounded by arterials and served inside by cul-de-sacs and footpaths. Chandigarh’s sectors and Brasilia’s superquadras apply the superblock idea at city scale. Cluster housing groups a few dozen dwellings round a shared court, green or parking court and leaves the rest as common open space: the same homes with shorter roads and services, or the same land with more open space.
| Concept | Core device | Strength | Common criticism |
|---|---|---|---|
| Neighbourhood unit (Perry) | School at the centre; arterial boundary | Walkable, safe for children, identifiable | Assumes self-sufficiency and social sameness; city-wide jobs and services cross its edge |
| Radburn | Superblock, cul-de-sacs, grade-separated footpath spine | Safe, quiet, green core | Backs of houses face the street and paths are poorly overlooked, which weakens surveillance |
| Superblock | Large block closed to through traffic | Quiet interior, fewer junctions | Long walks round the perimeter; monotony; inflexible |
| Cluster | Dwellings round a shared court | Shorter roads, shared open space, community | Parking and upkeep of the commons need management |
| Gridiron | Small blocks, many junctions | Flexible, permeable, easy to navigate | Lets through traffic into residential streets |
5. Residential densities
Density is a quantity per unit area, expressed in persons per hectare (pph) or dwelling units per hectare (du/ha). What matters is the area in the denominator. Gross density divides the population (or dwellings) by the whole area of the layout or neighbourhood, including roads, open space, schools and shops. Net density divides it by the net residential area only, the land under dwelling plots (conventions differ on whether local access streets inside the housing block are counted, so the stem states it). For the same population, net density is always at least as large as gross density.
| Measure | Formula | Unit |
|---|---|---|
| Gross density | Population ÷ total area of the layout | persons/ha |
| Net residential density | Population ÷ net residential area | persons/ha |
| Dwelling density | Dwelling units ÷ area (gross or net, as stated) | du/ha |
| Population density of a city | Population ÷ whole city area | persons/km² |
| Persons per room | Persons ÷ rooms (a crowding measure, not a density of land) | persons/room |
Worked example 1. A neighbourhood of 48 ha houses 14,400 persons; 60% of its area is residential plots. Gross density = 14,400 ÷ 48 = 300 pph. Net residential area = 0.6 × 48 = 28.8 ha, so net density = 14,400 ÷ 28.8 = 500 pph. The same result comes from plots: if each 100 m² plot holds a household of 5, one net hectare has 100 plots and 500 persons, and 60% of a gross hectare is plots, so gross density is 0.6 × 500 = 300 pph. Worked example 2 (FAR). A 1 ha plot with FAR 1.8 has 18,000 m² of floor area; if all of it is dwellings of 60 m² each, there are 300 dwellings, and at 4 persons each the net density is 1,200 pph. Unit conversions: 1 ha = 10,000 m² ≈ 2.47 acres, so dwellings per acre × 2.47 = dwellings per hectare.
6. Standards for housing and community facilities
A standard converts need into a planning quantity. Facility standards rest on three ideas. Threshold population is the minimum population that makes a unit viable. Catchment (service radius) is the walking or travel distance within which users should be served. Hierarchy groups facilities by the tier of settlement unit, housing cluster, neighbourhood, community, district and city, each tier carrying the facilities whose thresholds it can meet. Indian standards (the URDPFI Guidelines and state development-control rules) state these as population per unit and area per unit or per 1,000 persons; the figures vary with city size and region, so a question supplies the norm in its stem.
| Facility group | Planning logic |
|---|---|
| Pre-primary and primary school | Lowest threshold and shortest walk; young children should not cross an arterial road; place inside the neighbourhood beside open space |
| Secondary and senior secondary school | Higher threshold and larger catchment; community level on a collector road, reached by cycle or bus |
| Health | Dispensary or clinic at neighbourhood or community level; hospital at district level with ambulance access from an arterial |
| Shopping | Convenience shops for daily needs within walking distance, at the edge or a junction; weekly market and larger centres at community and district level |
| Parks and play areas | Tot-lots near each cluster, playground at the neighbourhood, larger park at district level; area fixed per 1,000 persons or per person |
| Safety, civic and utility | Fire, police, post, community hall and utilities (sub-station, water tank, waste collection) sited by response time and service area |
Standards for housing itself cover dwelling floor area and persons per room (the crowding test), plot sizes by income group, ground coverage, FAR and set-backs, road widths by hierarchy, and the land-use split of a residential layout: typically residential plots take about half to three-fifths of the land and roads, open space and facilities share the rest. Building codes (the National Building Code and local bye-laws) fix minimum room sizes, light and ventilation.
Worked example. A town of 40,000 persons; assumed norm of one dispensary per 15,000 persons, on 0.2 ha each. Dispensaries needed = 40,000 ÷ 15,000 = 2.67, rounded up to 3 whole units so that no catchment exceeds the norm; land = 3 × 0.2 = 0.6 ha. A per-capita norm works the other way: 2.5 m² of playground per person for 20,000 persons is 50,000 m² = 5 ha.
7. Housing for special areas and needs
Special areas change the layout, not only the building. Hazard decides where housing may go, how dense it may be and how it is raised, roofed and drained; climate decides form and orientation.
| Area | Main problem | Housing response |
|---|---|---|
| Hill terrain | Slope instability, surface drainage, difficult access, little buildable land | Follow contours; terraced or stepped clusters; minimal cut and fill; retaining and drainage works; light structures; avoid unstable slopes; lower density and limited height; pedestrian lanes |
| Flood-prone and riverine | Inundation, silt, isolation | Sites above flood level; raised plinth or stilts with a non-habitable ground level; flood-resistant materials; evacuation routes; do not fill floodplain storage |
| Coastal and cyclone-prone | Wind, storm surge, salt | Set-backs from the shoreline as the coastal regulation requires; stilts; anchored, wind-resistant roofs; cyclone shelters; shelter-belts of trees |
| Earthquake-prone | Shaking, brittle failure | Simple, regular, compact plans; ductile detailing; light roofs; adequate separation between buildings |
| Hot-dry, hot-humid, cold climates | Heat, humidity or cold | Hot-dry: courtyards, narrow shaded lanes, shared walls. Hot-humid: cross-ventilation, deep verandahs, open layouts. Cold: compact form, solar gain, insulation |
| Tribal and rural-fringe areas | Cultural fit, livelihoods, local materials | Participatory design; local materials and craft; livelihood space at home; do not impose a city standard layout |
Special needs are met by design, location and tenure together. The elderly: ground-floor or lift-served homes, barrier-free paths, nearness to health care and company. Persons with disabilities: barrier-free, universal design, with ramps commonly at no steeper than 1 in 12, wide doors and tactile paths. Working women, single occupants, students and migrant workers: hostels, dormitories and affordable rental housing near work, with safety designed in. The homeless: night shelters with basic services. Disaster-affected families: transitional shelter first, then owner-driven reconstruction with technical help. Families displaced by projects: resettlement close to the original livelihood, not on a distant periphery.
Key takeaways
- Town planning aims at health, safety, convenience, economy and amenity. Geddes gave survey–analysis–plan, Howard the garden city (about 30,000 in the town, a permanent agricultural belt around it), Corbusier and CIAM the four separated functions, Perry the school-centred unit, Stein and Wright the Radburn superblock.
- Pair planner, date and idea: Jaipur (Jai Singh II, 1727, nine-block grid), New Delhi (Lutyens and Baker), Chandigarh (Corbusier, 800 m × 1,200 m sectors, V1 to V7), Bhubaneswar (Königsberger, 1948), Navi Mumbai (CIDCO, counter-magnet), Canberra (Griffin), Brasilia (Costa plan, Niemeyer buildings), Washington (L’Enfant, 1791).
- Housing form sets density, cost and open space: detached, semi-detached, row, courtyard or cluster, walk-up, high-rise, chawl. High density does not require high-rise, and taller blocks need wider spacing, so net density does not rise in step with height.
- Perry’s six principles are size by one elementary school, arterial boundaries, open space, central institutions, edge shops and a calm internal street system. Radburn’s five are the superblock, specialised roads, pedestrian–vehicle separation, houses turned to the park, and the park as backbone. Cluster housing leaves common open space and cuts road length.
- Gross density = population ÷ whole area; net density = population ÷ net residential area, so net is the larger. At fixed population, more roads and parks lower gross density and leave net density unchanged. Net density from FAR = FAR × 10,000 m² × dwelling share ÷ floor area per dwelling × persons per dwelling.
- Facility standards rest on threshold population, service radius and hierarchy; units needed = population ÷ threshold per unit, rounded up, and land = units × site area. Special areas and needs are met by matching the intervention to the hazard or user: contour clusters on hills, raised plinths in floods, barrier-free design, rental hostels for migrants and in-place rehabilitation for those displaced.
Practice questions (18)
Attempt each one before opening the answer. Every explanation names the tempting wrong option as well as the right one, because that is where marks are lost.
Which planning idea rests on a town of limited size set in a permanent agricultural belt, with land held in community ownership and jobs located near homes?
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Answer: C — Howard’s garden city, a self-contained town ringed by a permanent agricultural belt
Howard’s garden city combines limited size, a permanent agricultural belt, community-owned land and local employment in one self-contained town. The neighbourhood unit is the tempting answer because it is also bounded and compact, but it is a residential area inside a city, with no agricultural belt, no community land ownership and no employment base.Which statement about the layout of Chandigarh is correct?
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Answer: A — Its sectors, each roughly 800 m by 1,200 m, are bounded by fast-traffic roads and carry schools, shops and open space inside
Chandigarh’s building block is the sector of about 800 m by 1,200 m, bounded by fast roads and organised inside as a neighbourhood with its own schools, shops and green space, under a seven-level road hierarchy. The land-axis and water-axis plan with a lake is Canberra by Griffin; superquadras on an aeroplane-shaped plan are Brasilia, the tempting mix-up because both are mid-century capitals with superblock housing.Which of the following pairs of city and planner is correct?
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Answer: B — Brasilia and Lúcio Costa, whose Plano Piloto was chosen for the new capital in 1957
Costa’s Plano Piloto (1957) is Brasilia’s plan; Niemeyer designed its principal buildings. L’Enfant planned Washington (1791); Canberra is Griffin’s; Le Corbusier planned Chandigarh, while Bhubaneswar is Königsberger’s; New Delhi is Lutyens and Baker’s. The tempting wrong pair is Bhubaneswar with Le Corbusier, because Chandigarh, the other post-independence capital, is so closely tied to him.Perry’s neighbourhood unit is sized by the population needed to support
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Answer: D — one elementary school, which is placed at the centre
Perry sized the unit to the catchment of one elementary school and placed the school, with other institutions, at the centre so that no child walks far or crosses an arterial road. Shops go to the edge, not the centre; hospitals and weekly markets belong to larger tiers of the hierarchy.Which feature most directly characterises the Radburn layout?
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Answer: C — Superblocks with cul-de-sacs, houses facing a park, and pedestrians kept from vehicles
Radburn combined the superblock, cul-de-sacs for service access, houses turned to face a park, and complete separation of pedestrians from vehicles. A fine gridiron is the opposite idea, since it admits traffic to every street; the linear strip belongs to Soria y Mata, and the ring around a central square is a radial plan.A planner must (i) keep through traffic out of a housing area, (ii) let children walk to the primary school without crossing a motor road, and (iii) put shops where the adjoining area can also use them. Which scheme meets all three?
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Answer: A — A Perry-type unit: arterial boundary, central school reached by internal paths, shops at an edge junction beside the neighbour’s shops
Only the neighbourhood-unit scheme meets all three tests: arterial boundaries divert through traffic, the central school is reached by internal paths, and shops at an edge junction beside the neighbouring unit’s shops serve both. The superblock is tempting because it also keeps traffic out, but a shopping street through its middle serves one superblock only; the gridiron and the through-road strip admit traffic.The same plots and population are kept, but the layout is enlarged by adding parks and roads around them. What happens to the gross and net residential densities?
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Answer: B — Gross density falls and net density is unchanged
Gross density divides the population by the whole area, which has grown, so it falls. Net density divides it by the residential plots only, which have not changed, so it is unchanged. The claim that net density falls and gross density stays put reverses the roles: adding roads and parks cannot lower the density measured over the plots alone.Two housing schemes have the same gross density of 250 persons per hectare. In scheme X, 60% of the land is residential plots; in scheme Y, 40%. Which has the higher net density, and what are the net densities?
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Answer: D — Scheme Y, at about 625 pph against about 417 pph for X
Net density = gross density ÷ plot share. For X: 250 ÷ 0.6 ≈ 417 pph; for Y: 250 ÷ 0.4 = 625 pph. Y, which gives less land to plots, must pack more people on each plotted hectare to reach the same gross figure. Multiplying by the share instead of dividing (150 and 100) is the usual slip and would even make net lower than gross.In facility planning, “threshold population” means
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Answer: C — the smallest population whose demand makes the facility viable to provide
The threshold is the minimum population needed to justify a unit. The walking distance is the service radius or catchment, a different test; the area per 1,000 persons is an area norm; and the largest population a facility can serve is its capacity, not its threshold.A housing scheme is proposed on a hillside of moderate slope with good views, seasonal streams and a road along the upper edge. Which layout response best fits the site?
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Answer: A — Terraced clusters on the contours, access lanes along them, streams kept free for drainage, retaining works where needed
On a slope the layout should follow the land: contour-aligned terraces and lanes need little cut and fill, keep natural drainage lines open and spread the load on the hillside. Levelling creates unstable cut faces; slabs across the slope block drainage and cause heavy cut and fill; piping streams under plots invites flooding and failure, and plains density is unsuitable on a slope.Which of the following are ideas of the Radburn layout? Select all that apply.
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Answer: A — Houses turned so that living rooms and gardens face a park; C — Complete separation of pedestrian and vehicular traffic; D — Superblocks served by cul-de-sacs in place of small gridiron blocks
The Radburn idea has five parts: superblock, specialised roads, complete pedestrian–vehicle separation, houses turned to the park, and the park as backbone. A continuous line of shops along every residential street contradicts it, since it would bring vehicles and customers to the front of every home.Select the correct statements about planned cities.
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Answer: A — Navi Mumbai was developed by CIDCO as a counter-magnet to divert growth from Mumbai; B — Washington’s 1791 plan by L’Enfant laid baroque diagonal avenues over a street grid; D — Jaipur was laid out in 1727 by Sawai Jai Singh II as a walled city of nine blocks
Navi Mumbai (CIDCO, counter-magnet), Washington (L’Enfant, diagonals over a grid) and Jaipur (Jai Singh II, 1727, nine blocks) are correctly described. Canberra is the work of Walter Burley Griffin and Marion Mahony Griffin around land and water axes; the sector city around a Capitol Complex is Chandigarh, which is where this wrong statement borrows from.Which of the following belong to Perry’s neighbourhood unit?
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Answer: A — The unit is bounded by arterial streets so that through traffic goes round it; D — The size of the unit is set by the population that supports one elementary school
Perry bounded the unit by arterials and sized it by one elementary school’s population. His local shops sit at the edge, at traffic junctions, not in the middle, and arterial roads are kept out of the centre, since the school and children’s paths are protected from through traffic.Select the correct statements about residential density.
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Answer: B — For a given layout, net density is never lower than gross density; C — Gross density counts roads, open space and facilities in its area; D — At a fixed number of persons per plot, doubling the plots per net hectare doubles the net density
Net density divides by the smaller, residential-only area, so it is never lower than gross; gross density divides by the whole layout; and at a fixed number of persons per plot, net density is proportional to plots per net hectare. Persons per room measures crowding inside dwellings, not the density of land, which is the usual confusion.A rectangular sector of 800 m by 1,200 m houses 19,200 persons. Its gross density, in persons per hectare, is ____.
Numerical answer — type the value.
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Answer: 200
Area = 800 × 1,200 = 960,000 m² = 96 ha (1 ha = 10,000 m²). Gross density = 19,200 ÷ 96 = 200 persons per hectare. Check: 96 × 200 = 19,200.A neighbourhood of 50 ha houses 15,000 persons, and 40% of its area is under residential plots. Its net residential density, in persons per hectare, is ____.
Numerical answer — type the value.
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Answer: 750
Net residential area = 0.40 × 50 = 20 ha. Net density = 15,000 ÷ 20 = 750 persons per hectare. The gross density, 15,000 ÷ 50 = 300, is the trap; net = gross ÷ 0.4 = 750 agrees.A group-housing site has a net plot area of 2 ha and a FAR of 1.5. Of the floor area, 20% is common circulation and services and the rest is in dwellings of 60 m² each, with 4.5 persons per dwelling. The net density, in persons per hectare of plot, is ____.
Numerical answer — type the value.
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Answer: 900
Plot = 20,000 m²; floor area = 1.5 × 20,000 = 30,000 m². Dwelling floor = 0.8 × 30,000 = 24,000 m²; dwellings = 24,000 ÷ 60 = 400; persons = 400 × 4.5 = 1,800. Net density = 1,800 ÷ 2 = 900 persons per hectare. Ignoring the 20% would give 1,125.A layout is planned for 36,000 persons. The assumed norm is one primary school for every 5,000 persons, on a site of 0.4 ha, and only whole schools are provided (round the number up). The total school land, in hectares, correct to one decimal place, is ____.
Numerical answer — type the value.
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Answer: 3.2
Schools = 36,000 ÷ 5,000 = 7.2, rounded up to 8 whole schools so that no catchment exceeds the norm. Land = 8 × 0.4 = 3.2 ha. Using 7.2 directly would give 2.88, the trap of not rounding the unit count.