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LOK SABHA SECRETARIAT
PARLIAMENT LIBRARY AND REFERENCE, RESEARCH, DOCUMENTATION
AND INFORMATION SERVICE (LARRDIS)
MEMBERS’ REFERENCE SERVICE
REFERENCE NOTE . No. 11/RN/Ref./February/2016
For the use of Members of Parliament Not for Publication
FDI IN URBAN HOUSING SECTOR: A REVIEW
----------------------------------------------------------------------------------------------------------------------------------------- The reference material is for personal use of the Members in the discharge of their Parliamentary duties, and is not for publication. This Service is not to be quoted as the source of the information as it is based on the sources indicated at the end/in the text. This Service does not accept any responsibility for the accuracy or veracity of the information or views contained in the note/collection.
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FDI in Urban Housing Sector: A Review
BACKGROUND
The official figure of urban housing shortage in India has been estimated to be
around 25 million dwelling units. The housing requirement in the country is humongous,
the problem is more acute in the urban areas rather than in the rural areas. Further, the
question becomes more complex when we look at the kind of population segment which
is more in need of housing than the others. A large number of low and middle income
families need housing which is reasonably priced while a relatively small number of
families can afford to pay for large or high priced housing. Therefore, the demand is
more for budget housing products while the affordability is limited1.
SLUM POPULATION
According to the Report of the Committee on Slum Statistics/Census, 2010, slum
demography has been presented on the basis of actual count in Census 2001 for the
first time. Initially, the Census coverage was restricted to cities/towns having population
of 50,000 or above in 1991 Census. Therefore, Phase I report of Slum Census reported
only 640 cities/ towns. However, as a follow up of the recommendations of the
Parliamentary Standing Committee, the Ministry of Housing and Urban Poverty
Alleviation requested the Registrar General of India to cover towns/cities with population
of 20,000-50,000 as per 2001 census. Hence, in this Phase II Census, 958 towns with
20,000 to 50,000 reported slum-population was covered. Therefore, total slum
population of the country reported in 1743 cities/towns was 52.4 million.2 However, as
per Census 2011, slum population in the country is 65.5 million.
The Statement showing State-wise estimated number of slums/slum households is
given at Annexure-I.
HOUSING SHORTAGE
As per the report of the Technical Group constituted by the Ministry of Housing
and Urban Poverty Alleviation for estimating the housing shortage in India in the year
1 'Smart Housing for Smart Cities' by P.S.N. Rao, Yojana, September, 2015, p.25
2 Lok Sabha, Unstarred Question No.1526, dated 4.3.2015.
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2012, there is a shortage of 18.78 million dwelling units across the country in urban
areas. The statement showing the state-wise details of shortage of houses is given at
Annexure-II.
NATIONAL URBAN HOUSING AND HABITAT POLICY (NUHHP), 2007
In order to regulate the entire activities of the Housing Sector and providing the
policy framework for the future, the Government framed NUHHP in 2007. The salient
features of the Policy are as follows:
10-15 percent land or 20-25 percent Floor Space Index (whichever is greater) to be reserved for EWS and LIG housing.
A special action plan to be prepared for urban slum dwellers.
A special package to be worked out for cooperative housing, labor housing & employee housing.
States/UTs to be advised to develop 10 year perspective plans for housing for EWS and LIG.
Central & State Government to develop special incentive.
Plans for In-situ slum upgradation.
Plan funds and other assistance to be dovetailed according to Action Plan prepared under the State Habitat Policy prepared by the States.
Micro-finance Institutions (MFIs) to be promoted at State level to expedite the flow of finances to urban poor.
States/UTs to be encouraged to undertake reforms listed under JNNURM.
Policy gives primacy to provision of shelter to the urban poor at their present location or near their work place.
Approach will be In-situ slum rehabilitation. Relocation will be considered only in specific cases.
Formation of Cooperative Housing Societies of urban poor and slum dwellers to be encouraged3.
3 Lok Sabha, Unstarred Question No.3495, dated 18.3.2015.
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STRATEGY UNDER TWELFTH FIVE YEAR PLAN
As against this huge requirement, during the seven years of implementation of
the Basic Services to the Urban Poor (BSUP) and the Integrated Housing and
Development Programme (IHSDP) component of Jawaharlal Nehru National Urban
Renewal Mission (JNNURM), only about 1.6 million dwelling units have been
sanctioned. Given the huge investment required to bridge the gap between demand for
affordable housing and its availability, all the costs cannot be borne by the Government
and hence the key would be to attract private investment and to enable the beneficiary
to increase his/her contribution. A multi-pronged strategy is required to meet the need
for housing of the urban poor.
Budgetary Support - The Isher Ahluwalia High Power Expert Committee on Housing
has estimated a requirement of about ₹4.1 lakh crore over the 20 years for the purpose
of slum rehabilitation. In addition, noting that about 25 percent of urban population live
in slums, the Committee recommended that for inclusive growth, out of the estimated
Capital Expenditure of ₹34.1 lakh crore over a period of 20 year, 25 percent, that is,
about ₹8.5 lakh crore should be for slum population, assuming universal standards for
all as well as universal provision for access and mobility. However, an objective
estimation of the budgetary requirement from the Central Government for the Twelfth
Plan is difficult because this is crucially linked to the extent of innovation in low cost
housing, the flow of private capital for such dwelling units and the extent of contribution
from other stakeholders like the State Government, ULBs and the beneficiaries4. The
Statement showing State-wise allocation under 'Housing for All' under Budget Estimates
2015-16 is given in Annexure-III.
SCHEMES ON HOUSING SECTOR
In order to meet the huge demand for Housing, the Government of India started a
number of schemes like Jawaharlal Nehru National Urban Renewal Mission (JnNURM)
[with sub-components-Basic Services to the Urban Poor (BSUP) and Integrated
Housing and Slum Development Programme (IHSDP)], Rajiv Awas Yojana (RAY),
4 India. Twelfth Five Year Plan (2012-2017), Economic Sectors, Vol.-II, pp.336-337.
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Affordable Housing in Partnership (AHP) and Interest Subsidy for Housing for the Urban
Poor (ISHUP)/Rajiv Rinn Yojana (RRY) to ensure Government funding for targeted
population. In order to further accelerate this process, the Prime Minister of India
launched the mission 'Housing for all by 2022' on 17 June 20155.
Housing for all by 2022 Mission
The Mission will be implemented during 2015-2022 and will provide central
assistance to Urban Local Bodies (ULBs) and other implementing agencies through
States/UTs for:
1. In-situ Rehabilitation of existing slum dwellers using land as a resource through private participation 2. Credit Linked Subsidy 3. Affordable Housing in Partnership 4. Subsidy for beneficiary-led individual house construction/enhancement.
Credit linked subsidy component will be implemented as a Central Sector
Scheme while other three components will be implemented as Centrally Sponsored
Scheme.
The Scheme will cover entire urban area consisting of 4041 statutory towns with
initial focus on 500 Class-I cities in three phases as under:
Phase I (April 2015 - March 2017) to cover 100 Cities selected from States/UTs
as per their willingness.
Phase II (April 2017 - March 2019) to cover additional 200 Cities.
Phase III (April 2019 - March 2022) to cover all other remaining Cities. The
Ministry, however, will have flexibility regarding inclusion of additional cities in earlier phases in case there is a resource backed demand from States/UTs6.
Urban Housing Schemes for EWS
The Ministry of Housing and Urban Poverty Alleviation (HUPA) has sanctioned
1,69,381 houses for Economically Weaker Sections (EWS) in 145 cities in 8 States for
5 Rajya Sabha, Unstarred Question No.3129 dated 7.8.2014
6 Ibid.
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which a total central assistance of ₹ 2,444 crore will be provided. These include
construction of houses under slum redevelopment affordable housing in partnership and
beneficiary led individual construction. Under this project, the EWS houses approved
include 47,050 units in 70 cities of West Bengal, 45,217 in 27 cities and towns of
Telangana, 27,186 in 6 cities of Gujarat, 19,241 in 16 cities of Madhya Pradesh, 16,146
in 14 cities of Jharkhand, 7,621 in nine cities of Tamil Nadu, 5,548 in Bhubaneswar in
Odisha and 1,364 in Aizawl and Lawngtlai in Mizoram. The Ministry of Housing and
Urban Poverty Alleviation (HUPA) has so far approved construction of 4,23,415 houses
for urban poor in 243 cities in 11 States across the country, for which the Union
Government will provide an assistance of ₹ 5,900 crore7.
Rajiv Awas Yojana (RAY)
Rajiv Awas Yojana (RAY) envisages a “Slum Free India" with inclusive and
equitable cities in which every citizen has access to basic civic infrastructure and social
amenities and decent shelter.
RAY is to be implemented in a mission mode and will provide financial support to
States/UTs/Urban Local Bodies (ULBs)/Central Government Agencies, hereafter called
implementing agencies, for providing housing and improvement of basic civic
infrastructure and social amenities in each selected slums. Rental and transit housing
will be admissible under the scheme. Operation and maintenance (O&M) of assets
created under this scheme will also be eligible for funding. RAY will also extend
financial support to States for creation of affordable housing stock through Public-
Private Partnership (PPP) under the Affordable Housing in Partnership (AHP)
component of the Scheme.8
The details of the overall progress of RAY and AHP is given at Annexure-IV.
Survey on FDI in Housing Sector The Standing Committee on Urban Development has directed the Ministry of
Housing and Urban Poverty Alleviation (HUPA) to undertake a survey to assess the
7 The Statesman, New Delhi dated 22.12.2015
8 India, the Ministry of Housing and Urban Poverty Alleviation, Rajiv Awas Yojna Schme, p.5
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impact of foreign direct investment (FDI) inflows into the housing sector. Since 96 per
cent of the housing shortage in India is in economically weaker section and low income
group segment, there is an urgent need to conduct study so that the real impact of FDI
can be assessed. FDI is permitted through the automation route in construction and
development sector. It covers development of townships, housing, built-up infrastructure
and construction-development related projects. The Department of Industrial Policy and
Promotion (DIPP), on a regular basis, publishes data on sector-wise FDI inflows in their
fact-sheets. Statement on sector-wise FDI equity inflows from April 2000 to December
2014 shows that inflows in construction development are ₹1,12,821.03 crore which
forms 10.06 percent of total FDI inflow in india9.
FDI in Urban Housing Sector In the Financial Years 2007-08, 2008-09 and 2009-10, the housing and real
estate sector attracted FDIs of 8.9%, 10.3% and 11% respectively, of the total FDI in
India. However, the financial year 2010-11 saw a mere 6% FDI in this sector. The year
2010 saw the Indian real estate sector spring back into action after the gloom and
recessionary pressures experienced in the aftermath of the global downturn. The focus
on „affordable housing‟ helped the sector tide over the financial crunch it had witnessed.
There is no doubt that the sector holds huge potential to attract FDI in its various
segments. However, progress is possible only with the joint efforts of both the industry
and the Government. On the one hand, the industry should work towards increased
transparency, clear land titles, improved delivery and project execution while on the
other hand the Government must provide fiscal incentives to developers to build low
cost and affordable housing for the masses and also review the existing FDI guidelines
for investment and development in Indian real estate in order to increase the flow of
foreign capital into the sector.10
Consolidated FDI Policy As per the Government Policy Note dated 12 May 2015, various changes have
been effected in FDI policy. Under this policy, the percentage of Equity/FDI Cap under
9 The Hindu Business Line, New Delhi, 11.08.2015
10 http://FICCI.in/sector/59/project_docs/real estate/profile-pdf
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the heading Construction Development which includes building Townships, Houses,
Built-up Infrastructure has been raised up to 100%. The entry route of the FDI in this
sector will be automatic.
The investment in this sector will be subject to the following conditions:
(A) Minimum area to be developed under each project would be as under:
(i) In case of development of serviced plots, no minimum land area
requirement.
(ii) In case of construction-development projects, a minimum floor area
of 20,000 sq. meter.
(B) Investee company will be required to bring minimum FDI of US$ 5 million
within six months of commencement of the project. The commencement of the
project will be the date of approval of the building plan/lay out plan by the
relevant statutory authority. Subsequent tranches of FDI can be brought till the
period of ten years from the commencement of the project or before the
completion of project, whichever expires earlier.
(C) (i) The investor will be permitted to exit on completion of the project or after
development of trunk infrastructure i.e. roads, water supply, street lighting,
drainage and sewerage.
(ii)The Government may, in view of facts and circumstances of a case,
permit repatriation of FDI or transfer of stake by one non-resident investor
to another non-resident investor, before the completion of project.
(D) The project shall conform to the norms and standards, including land use
requirements and provision of community amenities and common facilities, as
laid down in the applicable building control regulations, bye-laws, rules, and other
regulations of the State Government/Municipal/Local Body concerned.
(E) The Indian investee company will be permitted to sell only developed plots.
For the purposes of this policy “developed plots” will mean plots where trunk
infrastructure i.e. roads, water supply, street lighting, drainage and sewerage,
have been made available.
(F) The Indian investee company shall be responsible for obtaining all necessary
approvals, including those of the building/layout plans, developing internal and
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peripheral areas and other infrastructure facilities, payment of development,
external development and other charges and complying with all other
requirements as prescribed under applicable rules/bye-laws/regulations of the
State Government/Municipal/Local Body concerned.11
Latest Reforms in FDI
India is the fastest growing economy among major Nations. The World Bank has
improved India's ranking by 12 places in the 2016 Study of Ease of Doing Business. FDI
has gone up by 40%. Several Global Institutions have projected India as the leading
destination for FDI in the World. IMF has branded India as the brightest spot in the
Global Economy whereas the World Bank projects India's growth at 7.5% and even
better. To further boost this entire investment environment and to bring in foreign
investments in the country, the Government has brought in FDI related Reforms and
liberalisation touching upon 15 major Sectors of the Economy including construction
development sector.
The Crux of these reforms is to further ease, rationalise and simplify the process
of foreign investments in the country and to put more and more FDI proposals on
automatic route instead of Government route. Further refining of foreign investments in
key Sectors like Construction where 50 million houses for poor are to be built. The
proposed reforms also enhance the limit of Foreign Investment Promotion Board (FIPB)
from current Rupees Three thousand crores to Five thousand crores. The proposal also
contains many other long pending corrections including those being felt by the limited
liability partnerships as well as Non-Resident Indian (NRI) owned Companies who seem
motivated to invest in India. Few other proposals seek to enhance the sectoral Caps so
that foreign investors don't have to face fragmented ownership issues and get motivated
to deploy their resources and technology with full force.
11
India, Ministry of Commerce and Industry, Department of Industrial Policy and Promotion,pp.56-58 dated 12.05.2015
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CONCLUSION
With these Reforms, the Government has demonstrated that India is unstoppable
on the path of Economic Development. The Prime Minister has reiterated that
Economic Well being of the people of India is the main Task before him. It is also clear
that India is a Country which is more than ready to integrate with the Global Economy
because it feels that the Fruits of Development will reach to the common man only if
there is Development. Above all, every citizen in all nooks and corners must have a
stake.
Along with these Sectoral reforms, the Department of Industrial Policy and
Promotion (DIPP) has also been advised to consolidate all FDI related instructions
contained in various notifications and press notes and prepare a booklet so that the
investors don't have to refer to several documents of different timeframes. This
exercise of the Prime Minister is intended on the one hand to further open up the
Sectors for more foreign investments in the country and also to make it easy to invest in
India. Thus, this action is a very dynamic step in terms of integrating the Indian
Economy with the rest of the World for attracting investments and technology and
generating employment for enhancement of income of the people of India12.
12
India, Ministry of Commerce and Industry, Press Information Bureau Release, N. Delhi dated 10.11.2015
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Annexure-I
Estimated number of Slums and Slum Households
State estimated number of slums estimated number of slum households
Notified Non-notified All Notified Non-notified All
Andhra Pradesh 3224 (71%)
1315 (29%) 4539
1417890 (89%)
180769 (11%)
1598659
Bihar * 636
(97%) 655 *
54851 (94%)
58118
Chhattisgarh 632
(59%) 446
(41%) 1079
52846 (61%)
33395 (39%)
86241
Gujarat * 2058 (70%)
2923 * 284180 (84%)
336338
Karnataka 716
(50%) 708
(50%) 1424
356627 (64%)
201608 (36%)
558235
Madhya Pradesh 1327 (81%)
308 (19%)
1635 301302 (86%)
50827 (14%)
352129
Maharashtra 1954 (25%)
5769 (75%)
7723 2033799
(61%) 1311307
(36%) 3345106
Odisha * 744
(98%) 756 *
136149 (99%)
137589
Rajasthan 947
(59%) 653
(41%) 1600
311672 (87%)
44793 (13%)
356466
Tamil Nadu 1208 (51%)
1156 (49%)
2364 343521 (58%)
245089 (42%)
588611
Uttar Pradesh 836
(46%) 978
(54%) 1814
121737 (59%)
85798 (41%)
207535
West Bengal 1274 (32%)
2684 (68%)
3957 378459 (57%)
285542 (43%)
664001
All-India ** 13761 (41%)
19749 (59%)
33510 5559771
(63%) 3249236
(37%) 8809007
* Estimate not presented, as it may be subject to high sampling error due to inadequate sample size ** Based on all States and UTs, including States and UTs not shown in this table.
Source: Lok Sabha,Unstarred Question No. 3638 dated 18.3.2015.
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Annexure-II State-wise details of Housing shortage-2012 as estimated by Technical
Group (TG) 2012 set up by Ministry of Housing & Urban Poverty Alleviation.
Name of State/UTs State wise Distribution of Housing shortage (in millions)
1 2
Andhra Pradesh 1.27
Arunachal Pradesh 0.03
Assam 0.28
Bihar 1.19
Chhattisgarh 0.35
Delhi 0.49
Goa 0.06
Gujarat 0.99
Haryana 0.42
Himachal Pradesh 0.04
Jammu & Kashmir 0.13
Jharkhand 0.63
Karnataka 1.02
Kerala 0.54
Madhya Pradesh 1.10
Maharashtra 1.94
Manipur 0.08
Meghalaya 0.03
Mizoram 0.02
Nagaland 0.21
Orissa 0.41
Puducherry 0.07
Punjab 0.39
Rajasthan 1.15
Sikkim 0.01
Tamilnadu 1.25
Tripura 0.03
Uttar Pradesh 3.07
Uttarakhand 0.16
West Bengal 1.33
Andaman & N Island 0.00
Chandigarh 0.02
Dadra and Nagar 0.05
Daman and Diu 0.01
Lakshadweep 0.01
India 18.78
Source: Rajya Sabha, Unstarred Question No.3129 dated 7.8.2014
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Annexure-III
State-wise Allocation under Housing for All (HFA) under Budgetary Estimates (BE) 2015-16
Sl. No. State/UT Allocation of Rs.4000 crores (BE2015-16) including Tribal-Sub Plan (TSP) under HFA (excluding CLSS component)
A B C
1. Andhra Pradesh 225.62
2. Bihar 87.46
3. Chhattisgarh 83.82
4. Delhi 122.48
5. Goa 5.67
6. Gujarat 172.99
7. Haryana 84.28
8. Jammu & Kashmir 34.13
9. Jharkhand 55.14
10. Karnataka 204.51
11. Kerala 79.42
12. Madhya Pradesh 253.23
13. Maharashtra 561.74
14. Orissa 79.94
15. Punjab 86.25
16. Rajasthan 139.05
17. Tamilnadu 314.55
18. Telengana 179.03
19. Uttar Pradesh 369.96
20. Uttarakhand 27.25
21. West Bengal 307.34
22. Himachal Pradesh 50.11
23. Puducherry 25.00
24. Andaman & Nicobar Islands
51.04
25. Chandigarh
26. Dadra and Nagar Havevli
27. Daman and Diu
28. Lakshadweep
29. Assam 140.00
30. Arunachal Pradesh 25.00
31. Manipur 25.00
32. Meghalaya 35.00
33. Mizoram 40.00
34. Nagaland 40.00
35. Sikkim 25.00
36. Tripura 70.00
Total 4000.00
Source: India. Ministry of Housing and Urban Poverty Alleviation, Housing for all Mission Directorate, Letter dated 3.8.2015
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Annexure-IV
Source: India, Ministry of Housing and Poverty Alleviation, Rajiv Awas Yojna.