_Neighborhood Planning in Capital City of Chandigarh- An Appraisal (2) - Copy.docx

10. Uluslararası Sinan Sempozyumu, 27 – 28 Nisan 2017 10th
International Sinan Symposium, April 27 – 28th
2017
Trakya Üniversitesi, EDİRNE Trakya University, EDİRNE
Trakya University / Edirne 2017 Name Surname, Name Surname, aligned right
Neighborhood Planning in Capital City of Chandigarh- An Appraisal
Prof. Jit Kumar Gupta1, Dr. Rashmi Ashtt2
1 Former Director, College of Architecture, IET Bhaddal, 344/40-A,
Chandigarh, India
2 Principal, Hindu College of Architecture, Sonepat, Haryana, India
1 jit.kumar1944@gmail.com, 2 ashtt888@gmail.com
ABSTRACT
Neighborhood as an idea, concept, option and strategy has been extensively
used globally by Architects and Urban Planners to plan and decentralize cities,
create cities within cities, promote self-contained communities and to make cities
more humane, safe and socially interactive. Accordingly, large typologies of
neighborhood planning and designing with varying shapes, sizes and contents
have emerged in the urban context with Americans using superblock and French
using Sector for the neighborhood planning. Despite high degree of relevance,
neighborhood planning has not been able to deliver the envisioned objectives.
Cities in the process have been socially and physically fragmented, leading to
clear division into different communities with little physical and social
connectivity. Variance of planning and designing norms followed at neighborhood
and sub-neighborhood levels have promoted more dichotomy and contradictions
with varying quality of life. Differential population and infrastructures have divided
the city into high and low end neighborhoods. City fabric in large cases has
emerged as distinct social map of communities graded on the area/location basis
with neighborhood planning emerging as instrument of social
segregation/division. Neighborhood has been used in the planning of capital city
of Chandigarh (India) with entire city fabric woven around Sector as the basic
unit. In order to understand the neighborhood planning in the context of
Chandigarh, paper would aim at looking, critically and objectively, entire context
of sector planning with focus on basic philosophy and approach followed by
eminent Architect Le Corbusier and his team in all three phases of city
development, bringing out the issues, efficacy and efficiency of Neighborhood
unit and its impact on growth and development of the Chandigarh in the present
context.
Keywords: Neighborhood, communities, urban planning, decentralization
1. INTRODUCTION
Neighborhood ,as a geographically localized community within large city, town,
suburb having considerable face-to-face interaction among members, has been
promoted as a concept, approach, strategy and option for ensuring safety of
children and elders, walking to schools and playgrounds in industrial cities of
early nineteenth century in America. Clarence Perry envisioned neighborhood as
a model for residential development in metropolitan areas, to plan safer cities
and safer communities against the uncontrolled and unregulated vehicular traffic.

2017
Neighborhood was designed to provide a framework for urban planners
attempting to design functional, self-contained and desirable neighborhoods in
industrializing cities besides creating new residential communities which satisfies
social, administrative and service requirements for satisfactory urban existence.
However, over a period of time concept evolved to serve the broader purpose of
providing a distinct identity to communities besides offering designers a
framework for disseminating the city into smaller suburbs. Concept which had its
origin in USA, with variable degree and variable contours, over the years has
been used extensively, both locally and globally, by planners and architects to
provide a framework and model for developing residential communities and to
promote healthy social and physical relationship besides creating functional, self-
contained and desirable units with appropriate quality of life. The concept of the
neighborhood unit has been used extensively and forms a notable aspect of
designs of the new town movement. However despite variations used in creating
neighborhood units, the basic concept and variety of institutional, social and
physical design principles of neighborhood planning enunciated by Perry remain
universal. These principles provide specific guidelines for the spatial distribution
of residences, open spaces, community services, streets and businesses
involving well defined boundaries, safety from vehicular traffic, promoting
pedestrianisation, keeping vehicular traffic on fringe, providing assured level of
open spaces,

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community facilities based on defined norms for a defined population with
primary school as the focus of community. William E. Drummond - a central
architect in Frank Lloyd Wright’s studio advocated neighborhood unit to be the
organizing basis of the whole city; to be regarded as a unit in the social and
political structure of the city. Accordingly, the neighborhood unit, as a model for
residential environments containing community facilities, parks, local shopping
and housing, has revolutionized the basic approach to city planning promoting
decentralization, minimizing travel, rationalizing traffic and equitable distribution
of community facilities and amenities based on population . Concept has made
urban planning more objective and inclusive, promising assured quality of life to
all residents of the city. The neighborhood unit, as a comprehensive physical
planning tool, has also helped in promoting community centric life, away from the
pollution, smoke and ugliness of industrial plants. However despite distinct
advantages neighborhood has also promoted fragmentation of cities promoting
dichotomy and contradictions in their planning, development and management.
Looking at the variations in the growth and development of cities one can
visualize that neighborhood has also been used as a planning tool to promote
discrimination and differential quality of life for the various income groups in the
cities. This calls for looking at the concept both critically and objectively in order
to make it more rational.
2. PRINCIPLES GOVERNING NEIGHBOURHOOD
2.1 Human Scale
Looking at the entire context, Perry tried to put in place a clear agenda for defining
and planning of the neighbourhood unit. Considering the context of safety, he
stressed the need of adopting human scale based on walkability in order to fix
the size of neighbourhood. Based on the observations and data available, he
concluded that a child could walk about one-quarter of a mile and no more than
one half mile within a time span of 10 minutes without being stressed. This
distance, he found sufficient for excluding the major arterial street in the planning.
Making school as the fulcrum of the community, the size of NH unit was placed
at 160 acres. This area, based on a density of ten units per acre, could easily
house a population of 5000 to 9000, sufficient to support the provision of a school
and other amenities which could also be used by the community for
neighbourhood meetings and activities. Perry envisioned to make
neighbourhood, school centric based on the human scale with mobility leveraged
by walking.
2.2 Exclusion
Perry critically considered the role and importance of mobility in the communities
and came to the conclusion that if the neighbourhood unit is to be made safe,
healthy, free from the curse of noise and pollution, then it will be essential to
exclude vehicles from invading the community area. Accordingly, he suggested
the adoption of approach based on,’ Planning for people and not for vehicles’,
which called for excluding heavy and fast vehicular movement from the
neighbourhood unit. ’

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2.3 Edges
Based on the principle of exclusion, the third principle enunciated for defining
neighbourhood was to place arterial streets along the perimeter so as to eliminate
unwanted through-traffic from the neighbourhood. In this way, major arterial roads
became the definers of the neighbourhood unit rather than its divider.
2.4 Mobility
Perry advocated the need for adopting a well-defined pattern of road network for
the internal mobility in order to make it safe. He focussed on the reduction of the
number of vehicles moving within the neighbourhood besides limiting their speed.
To achieve this he suggested the adoption of narrow and curvilinear street design
for both safety and aesthetic purposes. Such streets, by design, would
discourage unwanted through traffic and enhance the safety of pedestrians by
rationalising their speed.
2.5 Shopping
For stopping and excluding non-local traffic, Perry proposed that local shopping
area should be

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placed on the perimeter or to the main entrance of the neighbourhood. Locating
shopping on the fringe will not only stop the entry of vehicles but will also
eliminate the need for providing parking vehicles coming for shopping.
2.6 Open Spaces
Perry considered open spaces vital for promoting community living and to
promote the environment and ecology of the area. He also considered these
spaces vital for promoting social interaction between the residents and
community. He suggested the open area should be distributed within the
community and the residential blocks for their optimisation. Keeping in view the
role and importance of these spaces, at least 10 percent of the neighbourhood
area is to be dedicated to parks and open space, creating places for play and
community interaction
3. PLANNING CHANDIGARH
Chandigarh a city of crisis, was the product of partition of India in 1947, when
state of Punjab was left without a capital, with Lahore going to Pakistan. Search
soon began to find a permanent seat of capital with state government opting for
a new city on a new site unfettered by the traditions of the past. City was
conceived to serve as a role model of planning and architecture for the future new
cities to come in the country. Capital city of Chandigarh was established on a
distinct terrain and a secure site encompassed by natural features defining its
edges on three sides with great Himalayas to the north, and two rivulets flowing
approximately 7-8 km apart on western and eastern margins. With vacuum
existing in the field of architecture and planning at that time in the country, Albert
Mayer, an American architect, was invited to prepare a Master Plan for the city in
1949. He along with Matthew Nowicki prepared the master plan and other details
for the city. However, the death of Matthew Nowicki, responsible for architectural
control and supervisory work of the Plan, in an air crash in August 1950 forced
Mayer to express his inability to continue with the project. Le Corbusier, the world
fame French architect, along with three other architects was then invited to
implement the plan and make capital city a reality. Present city is the product of
Master Plan and architectural details prepared by the second team.
3.1 Mayer Plan

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Figure 1. Albert Mayer plan for Chandigarh
The plan prepared by Mayer visualized a fan shaped layout, set between the two
seasonal streams which defined the location of four critical functions of the city.
The Capitol Complex was placed at the head, the Civic Centre in the middle, the
University campus on the western edge, and the Light Industrial area to the east,
adjacent to the Kalka-Ambala railway line. The plan was broadly based on
principles involving use of neighbourhood or superblocks as the basic planning
unit in order to separate residential areas from rapid vehicular traffic, and facilitate
the accessibility to and efficiency of urban amenities and services; and use of the
location and topography of the site to determine the overall character of the city.
The basic neighbourhood planning unit was to be the superblock. Three such
blocks, accommodating 3500 families, were to be grouped together. The
superblock covered an area of 500 x 1000 m, and was graded

2017
according to population density representing three income groups-low (75
persons/acre), medium (50 persons/acre) and upper (25 persons/acre). The
residential areas were placed at the edge of the superblocks, while facilities and
amenities (schools, parks, community centres etc.) were located in the centre.
Land was also reserved in the superblocks for undetermined future needs. The
house design included an inner courtyard, a characteristic feature of a traditional
Indian house. The road network was adapted to the terrain. A curvilinear network
of main roads was to surround the superblocks with separate interior roads
planned for pedestrians, cyclists and animal-drawn traffic. The plan provided for
two large parks extending east-west through the city. It also proposed a series of
dams on Sukhna Choe to create a permanent water basin around the Capitol
Complex. Proposed plan, based on 'humane ideals', was meant to create a
peaceful city, not one where complications were to be counteracted by
complications.
Matthew Nowicki, entrusted with the preparation of the architectural design of the
city, the detailed plans for the Capitol Complex, civic centre and market area, and
the supervision of the construction work in Mayer's absence, suggested the
following modifications in the Mayer’s plan:
 a leaf-like basic plan, instead of the proposed fan shape, with the stem
of leaf as the commercial axis and a vein like system of arteries flowing
from it:
 a continuous park system, and
 Design of the Capitol Complex with Indian elements.
3.2 Le Corbusier Plan
Figure 2. Le Corbusier’s plan for Chandigarh
Master Plan evolved by Le-Corbusier defined Chandigarh as a Horizontal city, on
the pattern of a garden city, considering the economy, socio-economic conditions
and living habits of people which ruled out vertical planning. City was planned for
a population of 0.5 million to be realized in two distinct stages of development.
Stage-I (S1) from Sector 1 to 30, covering 3642 hectares for housing150000
population was envisioned to be a low density development of 41.12 persons per
hectare with high order of infrastructure and amenities. Land was to be allotted
on free hold basis. Stage-II (S2), from Sector 31 to 47 covering 2428 hectares for
350000 population, was designed to be a high density development of 144.15
persons per hectare (3.5 times of stage 1) with differential order of infrastructure

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and amenities. Land was to be allotted on lease hold. Stage-III (S3) Re-
densification of Stage-I (S1), was also proposed to accommodate additional
population of city, when it exceeds 0.5 million, without compromising with the
quality of life. Thus Master Plan envisioned a stratified density pattern for the
capital city in different statges of development. The Master Plan of the city, re-
drawn by Le-Corbusier in four hectic days of inspired activity in February 1951,
was largely based on the Plan prepared by Albert Mayer. It, however, changed
the shape of the city from a leaf to a rectangle, reducing its size in the process.
The basic unit of planning was changed from a super-block to sector keeping
intact the neighbourhood concept i.e. city within a city,. The life of the future
inhabitants of the city was compartmentalized and put into air-tight containers of
working, living, care of body and spirit, known as sectors .The entire network of
sectors was woven in an efficient system of traffic and transportation governed
by the rule of 7 Vs (later changed to 8Vs). . The industrial area was placed on
the southeast of the city to eliminate any possibility of

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heavy traffic entering the city. A 500 feet wide green belt was provided to function
as sink for industrial fumes and noise. Educational area occupied the northwest
side with work centers in the Capitol Complex, City Centre, and Sub-city Centre
and along the major axis. Corbusier Master Plan focused on four major functions,
which were fundamental to the harmonious existence of a city, namely, living,
work, recreation and circulation. Planned on a rectangular gridiron pattern of
roads, half a mile apart in the east-west direction and three-quarters of a mile in
the north-south direction, the Chandigarh plan promised basic amenities of life
even to the poorest of the poor to lead a dignified life. Safe from traffic , within
easy reach of all needs of material, mental and moral sustenance and growth,
surrounded by nature in an intimate community and yet part of a real city, was
what the visionaries and planners dreamt for half a million inhabitants, to be
brought into the city in two phases of development. A distinct quality of life was
accordingly assured to a distinct class of people to be housed in the capital city.
3.3 Sector
Figure 3. Typical Sector Layout in Chandigarh
Sector, as a container of life, was defined by Le-Corbusier to be rectangular in
shape, on the analogy of neighbourhood unit to be self- contained and self-
sufficient in day to day needs in terms of local shopping, high/higher secondary
school, hospital/health, bank, post office and leisure. Considering the role and
importance of Sector, planning of capital city of Chandigarh was structured
around 46 sectors out of which 41 were residential and 5 institutional/ commercial
besides industrial Area. Size of the sector was based on the human scale with
dimensions fixed on a walking time of 10 minutes to access any area of the sector.
Restricting traffic in the sector was to be achieved through providing only four
entries, one from each side. Sector planning was made introvert with no door
opening on to V2 and V3 fast traffic roads. . The size and shape of the sector
was so designed as to enhance the quality of life. Each sector measured 800
meters by 1,200 meters, enclosed by roads allocated to fast mechanized
transport and sealed to direct access from the houses, catering to the daily needs
of its inhabitants, which was to vary from 5,000 to 25,000 and has a green strip
oriented longitudinally stretching centrally along the sector in the direction of the
mountains. The green strip was mandated to stay uninterrupted and
accommodate schools, sports fields, walks and recreational facilities for the
sector Vehicular traffic is completely forbidden in the green strips, where
tranquility shall reign and the curse of noise shall not penetrate For linking with

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Greater Himalayas, a continuous green belt stretching North-East to South-West
provided in the centre of Sector. Green belt was to house Education, Cultural,
Religious and Community Buildings. Most of the houses grouped around a central
open space. All houses have setback (open area) in front and rear. Though plans
of different Sectors not identical, but they followed the same planning principles.
Each Sector has a central green bisected by shopping street (V4). A loop road
was to distribute the traffic in the interior (V5) intersecting the shopping street.
Individual houses derive approach from V6 branching out of the loop road.
Grouping of houses and density pattern derived on the basis of income. High
income Sectors have low density and a pattern of detached houses. For achieving
higher densities, low income groups are provided with terrace housing on smaller
plots. Sectors 7 & 8 are exception, planned on the Mayer’s concept of Super
Blocks. Centre of focus of Sector was envisioned to be V4 shopping street, a
curved road to slow down traffic with shops on one side (South-West) and a
verandah to provide shade to shoppers and to eliminate crossing of streets.
Market were linked with

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adjoining Sectors, forming a continuous ribbon. Variety of shops provided ranged
from smaller booths to larger Shop-Cum-.Flats. Larger shops designed as three
storeyed buildings with shops on the ground floor and residence for owners on
upper floors, as per the preference of the shop owners. Continuous verandahs
running in front of shops was to protect shoppers not only from rain and sun but
also to provide a shaded walkway. Safe from traffic and in close proximity to the
nature, sector constitutes an attempt to create city within a city which provides for
all the basic day to day material and social needs of the citizens in easy reach of
the home, but at the same time linked to the larger scale of the city in terms of
transport and services as well as architectural meaning. Sector 22 was the first
sector to be planned in the city by Jane B Drew, which has been followed in the
planning of subsequent sectors with minor variations in planning for housing
clusters but without changing the basic principles.
Figure 4. Layout of Sector 22, Chandigarh
4. ISSUES & OPTIONS
With history spanning over six decades, Chandigarh planned and designed as
the capital city of state of Punjab, has given a new theme, direction and meaning
to the art and science of Architecture, Town Planning and Landscaping in the
Indian sub-continent. Chandigarh also has the distinction of achieving the mile-
stones of achieving its projected and targeted population of 5 lakh and creating
awareness about the importance of planned growth and to prove good urbanism
makes good money. These mile-stones have been achieved despite tremendous
population and developmental pressures which the city was able to cope
effectively and efficiently in the face of unforeseen developments emerging out of
changes in geo-political situation of the region in 1966. The city in the recent past
has started showing signs of enormous stress due to ever increasing population
pressure, rapidly transforming urban form, fast changing class-structure and ever
increasing unplanned and unforeseen physical and economical activities. There
is an urgent need of quantifying these stresses and suggesting appropriate
strategies to minimize them. The major impact in this growth and development
has been visualised at the neighbourhood level.
4.1 Population & Density
Despite following the framework of neighbourhood enunciated by the Perry,

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Chandigarh sectors represent a differential pattern of population and density
varying within different phases of development and different sectors. Few sectors
have very high population and density whereas few have very low population and
density. As against average planned density of 16 persons per acre for the Stage-
I (Sectors 1-30), as per 2001 census, it has already achieved density of 26
persons per acre. Existing residential density varies between 0.3 persons per
acre for sector 6 and 82 persons for sector 20. As against proposed population
for each sector 5000- 25,000, population ranges between 35 persons for sector
6 and 22,138 for sector 20. Similarly in the Stage –II development ( Sectors 31-
47), the variation in density ranges from 16 persons/acre in case of Sector 36 to
155 persons in Sector 45 as against average density of 60 persons per acre..
Large population variations have also been observed ranging from 4254 to 41077
in these sectors, this is despite the fact these sectors still have to be fully
developed. Master Plan prepared by Chandigarh administration, has placed the
planned density for Sector 41 at 236

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persons per acre with a population of 46049 when fully developed. Population of
these sectors have already gone up with more population getting concentrated in
Chandigarh, which achieved the distinction of becoming one of the 53
metropolitan centre with population of Union Territory placed as 10,54,686 as per
2011 census. These variations are the outcome of strategy adopted for planning
of sector level neighbourhoods emerging out of carving larger and smaller plots
.This pattern of development have stratified the neighbourhood into high end and
low end communities. Thus the individual status in capital city of Chandigarh is
now largely determined by the sector numbers. City looks clearly stratified and
divided in Northern and Southern cities, with distinct variations in quality of life,
basic services, amenities etc. With large population getting concentrated in
Southern part, these sectors represent high degree of congestion and chaos.
4.2 Housing
Image 1. One of the Government Housings in Sector 22, Chandigarh
Since Chandigarh was to be an administrative city, constructing housing for
government personnel was put on priority. Thirteen categories of houses,
according to the income of government employees, were proposed. The three
lowest types of government housing were subsidized to maintain the minimum
standards of amenities of two rooms, space for a kitchen, bathroom and a rear
open space. The factors of economy, available technology and local climate
governed the construction and design of each category of house. Lower
categories of housing were planned as terraced housing with small frontages,
shared walls and common circulation areas, whereas higher category housing
were planned as detached and semi- detached housing with large plot areas. The
lower category housing was also spatially planned at different location within the
sector with prime position going to higher category housing. Few Sectors were
exclusively marked for higher categories of government employees. This led to
branding of Chandigarh neighbourhoods based on the housing typologies and
the sectors. Similarly private housing in the city was stratified into Marla housing
(smaller plot area) and Kanal housing (larger plot area) distinguishing the society
on the basis of the typology of plots. Further the developmental controls put in
place were more stringent for lower category private housing (Frame Control) as
against more relaxed controls of development for larger plots (Zoning controls).
In addition larger open spaces were made available for the higher category
housing as compared to smaller housing. The fact was much more pronounced
in case of lower category housing created by the Chandigarh Housing Board, a
parastatal agency created to provide affordable housing to the lower portion of
economic pyramid involving economically weaker sections of society.

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4.3 Traffic
Neighbourhood concept had its genesis in the safety of the residents from the
hazards of the mechanical traffic. Accordingly, all neighbourhood concepts
provided for segregation of fast moving and mechanical traffic from the pedestrian
traffic to make the community safe. However, in case of Chandigarh, entire
planning of sectors revolve around V4 to V6 which distributes the traffic to the
individual household. This pattern has led to high degree of vehicular penetration
within the residential areas, making community highly unsafe. V4, which is the
shopping street and major activity zone of the sector, attracts large volume of
both inter and intra sector vehicular traffic, leading to not only traffic congestion
but also number of accidents. These roads have assumed the role and function
of major arteries of the city attracting large volume of vehicular traffic in the
sectors. In addition, lack of adequate parking in the shopping area at the sector
level has also led to spilling of vehicles on the roads. Shopping streets of few
sectors, particular that of sector 15, 19, 20, 22, 40, 45 have assumed city level
importance attracting

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large vehicles and population across the city. In the absence of shopping facilities
at the sub- sector level, residents are required to visit the shopping area provided
at V4, creating all the more traffic problems. Absence of pedestrian pathways has
further increased the vulnerability of people at the sector level. Increased level of
traffic also adversely impact the environment and ecology at the sector level,
which goes contrary to the principles enunciated for planning the neighbourhoods.
4.4 Size
Size of neighbourhood has great bearing on the planning of a safe communities.
Large sized neighbourhoods have obvious limitations in planning for such
communities. In case of Chandigarh size of sector has been placed at 262 Acres
as against 160 Acres stipulated by the Perry. Larger size of sector has led to
larger distance to be travelled by the community leading to use of mechanical
options for travel. Further, adoption of higher density norms in planning of majority
of the sectors has led to induction of more people, asking for more and higher
level of amenities and services to make them self-contained and self-sufficient.
This has led to making provision of number of high schools in sectors as against
primary school suggested in the neighbourhood concept. This has led to induction
of large student population and vehicles within the sector, creating multiple
problems of safety and community functioning. Certain sectors have been
provided with the higher level of healthcare and educational facilities, making the
situation all the more worst. Had the size and density been rationalised, sector
would have promoted a better and safer community living.
4.5 Shopping
Positioning of the commercial areas right at the centre of the sector has led to
numerous problems of traffic and transportation and safety. Perry proposed
positioning of the shopping area at one of the corner of the NH unit in order to
keep the vehicular and outside traffic from entering the NH unit. Corbusier
planning the sector is contrary to the basic principles of planning and positioning
of commercial areas. Further, commercial area in the sector has been provided
on one side of the sector leading to large number of sector crossing the vehicular
street. This has made sector highly unsafe for the residents living on other side
of the shopping. Rather than locating shopping on one side and in the centre of
sector, it would be desirable to provide convenient shopping at the sub-sector
level to make the community safe.
5. CONCLUSION AND EVALUATION
Looking, critically and objectively, at the entire context of neighbourhood planning
in the context of Chandigarh, it can be safely said that pattern of planning of
sectors adopted has led to high degree of stratification of population and
communities, with city emerging as the mosaic of total divide between north and
south. City misses the larger goal of creating self- contained and self- sufficient
communities, safe from traffic within easy reach of all needs of material, mental
and moral sustenance and growth, surrounded by nature in an intimate
community and yet part of a real city. Communities appear to be in crisis- crisis
of traffic, crisis of existence and crisis of identity. Detailed and in-depth study of
sector in Chandigarh as NH unit can help in understanding the physical, social,
economical and environmental implications besides efficacy and efficiency of NH

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planning as a tool of urban planning.
.
BIBLIOGRAPHY
*Census of India, 2011
*Chandigarh Administration; Chandigarh Master Plan- 2031, Department of
Urban Planning, 2015
*Corbusier Le; Edict of Chandigarh
*Perry Clarence; Neighbourhood unit, illustrating the spatiality of the core
principles of the concept, New York Regional Survey, Vol 7. 1929
* Perry Clarence; The Neighbourhood Unit, a Scheme for Arrangement for the
Family-Life Community, 1929
* Kant Surya; Chandigarh - Rise of a Phoenix from the Trauma of
Freedom, Million Cities of India, 2015 (unpublished paper)

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