02 0 2

Table of Contents.

01 Introduction

02 The Problem of Sprawl in Pakistan

06 Pakistan's Car Culture

15 The Need for Density

21 A Change in Governance

23 An End to Anti-Encroachment

25 Conclusion

PIDE City Planning and Urban Design Guide | i

 "Pakistan has a potentially fleeting opportunity to
harness its cities’ potential as engines of growth."

01.
INTRODUCTION
According to leading Pakistani demographers and
social scientists, unofficial estimates place the
country’s urban population between 50 and 70
percent. As the fastest urbanizing country in South
Asia, Pakistan has a potentially fleeting opportunity to
harness its cities’ potential as engines of growth.
Unfortunately, Pakistan’s rapid urbanization has
instead been accompanied by a myriad of problems,
including poor health outcomes, extreme poverty,
Karachi, considered to be Pakistan’s economic and
industrial hub, has been ranked amongst the 10
least livable cities for a consecutive four years by
the Economist Intelligence Unit in their Global
Livability Index.

Many of the issues plaguing Pakistan’s cities can be

attributed to poor urban planning, design, and
management practices. This City Planning and Urban
overburdened public services, inadequate housing Design Guide aims to bring to light the factors
availability, and urban sprawl. These may be partially restricting the progress of Pakistan’s cities and to
responsible for the country’s slow and declining create space for urban planning in policy discourse.
economic growth. The suboptimal performance of We advocate for the adoption of contemporary urban
Pakistan’s cities is highlighted in the following figures: design concepts that prioritize commerce, density,
1 in 8 urban dwellers in Pakistan live below the community, and inclusive growth. Specifically, this
poverty line. guide uses the cities of Canada – which include the
In 2015, 45.5 percent of Pakistan’s urban population fastest growing city in North America and some of
was living in informal settlements, which often have the world’s most livable cities according to the
limited access to water and sanitation. Economist Intelligence Unit’s Global Livability Index –
Urban housing was approximately 4.4 million units to devise strategies for urban planning in Pakistan’s
short of demand in 2015. cities.

PIDE City Planning and Urban Design Guide | 1

 City planning in Pakistan has focused on
low-rise suburban development, imposing
restrictions on high rise construction and
designing policies that subsidize car use.
The resultant sprawl has led to an

02.
increase in:
Land consumption
Congestion and commuting times
Transportation costs
Greenhouse gas emissions

THE PROBLEM OF Health adversities due to air pollution

Unlike inner-city development, which is
S P R AW L I N PA K I S TA N possible with the renovation of current
infrastructure, urban sprawl requires the
construction of entirely new
infrastructure. The cost of urban sprawl is
consequently more than two times that of
building in the city center.
Single-family housing units are
unaffordable for the average Pakistani
household, including the poor and a large
part of the middle-class.

PIDE City Planning and Urban Design Guide | 2

 Estimated Annual Costs to Service
Varying Densities in Halifax, Canada

3500

3000

2500
Density (people per hectare)

Fig. 1 Urban Sprawl in Lahore

2000 (Credits: Hammad Gillani and Adeel Ahmad).

1500 Distribution of Residential

Land Use in Karachi, Pakistan
1000

1.24
5.29 Planned Residential (34.51%)
500 Schemes to In ll (20.84%)
18.12
7.76 Low income Settlements (17.43%)
Unplanned Residential (14.78%)
0
40 89 228 Densi cation Areas (10.08%)
9.15 Urban Renewal (2.36%)
Annual Service Cost ($)
10.94

Chart 1: Service Costs Decrease with Density

(Source: Regional Municipality of Halifax, 2005).
Chart 2: Residential Land Use in Karachi
(Source: Salman Qureshi, 2010).

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What is Canada Doing
About Urban Sprawl?
Shifting to more compact development Implementing The Places to Grow Act,
patterns and mixed-use development in 2005, an initiative by the Ontario
urban growth centers. government that establishes a long-
Encouraging greater integration of transit term framework for better managing
and land use planning. growth:
Increasing the availability of housing Promotes collaboration amongst
options that are “location-efficient,” i.e. multiple levels of government,
walkable and close to transit, jobs, schools indigenous communities, citizens,
and services . private and non-profit sectors, and
Adopting transit-oriented development other stakeholders.
(TOD) by building mixed-use developments Identifies density and intensification
near existing or planned stations, along targets and imposes settlement area
with social and physical infrastructure to restrictions accordingly.
support livability. Prioritizes intensification and directs
density toward designated strategic
growth areas (urban growth centers,
major transit station areas, and
intensification corridors).
Supports a range of mixed housing
options to offer affordable housing
to numerous income groups.
Provides different approaches to
manage growth in order to
accommodate for the diversity of
Fig. 2 Density in Toronto's Downtown
communities.
(Source: TVO.org).

PIDE City Planning and Urban Design Guide | 4

 OUR

RECOMMENDATIONS

Shift from horizontal Divert investment from

expansion to vertical flyovers, road widening, and
expansion trends by underpasses to public
relaxing height and land- transit systems.
use restrictions.

Develop downtown centers Strengthen local

– that are walkable, dense, governments that engage
and mixed-use – in residents, the private
Pakistan’s major cities. sector, and other relevant
stakeholders.

Revise zoning policies to Prioritize walking and

increase commercial and cycling as mobility choices
industrial, instead of by implementing a car
residential, land use. policy.

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 Number of Registered Private Motor Vehicles
30

25
01
03. PA K I S TA N ' S
C A R C U LT U R E

Road-building is the largest item in the

development budget of all levels of government.

02
Vehicles (hundred thousands)

20 As shown in Chart 3, the number of

registered motor cars, jeeps, and station wagons
increased from less than 700,000 in 1990 to more
15 than 2.8 million in 2017 (Pakistan Bureau of
Statistics).

10
03 As shown in Chart 4, the growth rate of
certain vehicles has been consistently greater than
that of Pakistan’s population.
5

0
04 Private vehicles (motorbikes and cars) made up
87% of Pakistan's total vehicle share in 2018,
according to data from the Pakistan Bureau of
90

92

94

96

98

00

02

04

06

08

10

12

14

16
19

19

19

19

19

20

20

20

20

20

20

20

20

20

Year Statistics.

Chart 3: Registered Private Motor Vehicles -

defined as motor cars, jeeps, and station wagons
(Source: CEICData - Pakistan Bureau of Statistics).
05 The extensive network of wide avenues, flyovers,
and underpasses has functioned as a subsidy to car
users and a tax on the poor.

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 Comparing Population and Vehicle Growth
15

INCREASING CAR 12.5

USE HAS LED TO: 10

Growth Rate (%)

Environmental adversities
resulting from greenhouse 7.5
gas (GHG) emissions
Excessive travel times
Poor investment in public 5

transit projects
Economic inefficiencies
Low quality of life 2.5

High noise and air pollution

levels
0
Urban growth that excludes

91

93

95

97

99

01

03

05

07

09

11

13

15

17
the poor

19

19

19

19

19

20

20

20

20

20

20

20

20

20
Year

Population Growth Rate (%)

Growth Rate of Registered Motor Cars, Jeeps & Station Wagons (%)

Chart 4: Growth in Population & Private Motor Vehicles

- motor cars, jeeps, and station wagons
(Sources: CEICData - Pakistan Bureau of Statistics & World Bank Group).

PIDE City Planning and Urban Design Guide | 7

 Explores new Suggests use
technologies - such of escalating
as responsive signal & period-dependent
timing systems and parking charges to
smart street lighting encourage higher
- to support traffic turnover of on-street
flow. parking spaces.

Provides a tool kit of Consistently

measures progress
strategies that can CONGESTION by reviewing projects
be chosen and MANAGEMENT IN and improving
applied to unique CANADA
road contexts. monitoring of traffic
conditions.

Places emphasis on
supporting all modes Studies efficient and
of transportation by effective initiatives
expanding bicycle employed in other
facilities and traffic jurisdictions.
signal priority for
public transit.

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 Results

22%
Walk or Cycle (46.53%)

47% Public Transit (31.68%)

Auto (21.78%)
32%

Vancouver has seen a 32% Only 22% of Toronto's Parking revenues contribute
decrease in distance driven Downtown residents use ~5% of the money Vancouver
per person since 2007. autos to travel to work. uses to fund its annual budget.

PIDE: City Planning and Urban Design Guide | 9

 DO's DON'Ts
Develop a strictly monitored metered Prioritize cars over cycling,
parking system in which rates increase walking, and shared vehicles as
the longer a vehicle is parked in a the primary mode of
location. transportation.

Conduct an extensive review of Dedicate development

traffic volumes and trends in order to budgets to the construction of
design appropriate strategies and roads in order to accommodate
establish baseline conditions. the city’s demand for cars.

SUGGESTION #1: Adopt mobility pricing, with fees for Enforce zoning laws that

CONGESTION private transportation, including bridge

tolls, road usage charges, and other
separate land uses as these
ultimately lead to longer
MANAGEMENT PLAN congestion fees. commutes and increased
congestion.
Increase the use of technology for
route guidance, traffic control, Minimize local revenue
payment collection, and road network collection by ignoring the
performance. benefits of congestion fees and
parking charges.
Implement an electronic tolling
system that enforces charges to enter Continue haphazard
"When a city reaches an economic development level that the denser and more commercial parts horizontal expansion that
makes car ownership affordable for a majority of of a city. increases dependency on cars.
residents it is rare to have low barriers and low
congestion levels at the same time"
(McKinsey & Company, 2018).
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REIMAGINING MASS TRANSPORTATION
SUGGESTION #2:
IMPROVE PUBLIC
Complete an analysis of the results of road,
infrastructure, and transit investments in order to
TRANSPORT SYSTEMS
invest in transit projects with highest benefit-to-cost
ratio.

Take a network approach to transit development,

instead of spending money on isolated and haphazard
projects.

Ensure that the per-passenger-development and

running cost of a transit service is considered prior to
investment.

Shift to Transit-Oriented Development (TOD): a type

transit walking cycling single occupancy automobile
of urban development that creates high-density, 2 2 2
1 m /second 1 m /second 4 m2/second 19 m /second

pedestrian-oriented, mixed-use communities that Fig. 3 Road space required per passenger for various travel modes
are centered around public transport stations. (Source: Toronto Complete Streets Guidelines)

Adopt public transport systems, such as Bus Rapid

Transit, that have shown to lower congestion and PAKISTANI CITIES MUST PRIORITIZE TRAVEL MODES
pollution in developing countries such as Brazil and WITH LOW ROAD SPACE REQUIREMENTS TO
Mexico. ADDRESS CONGESTION.

PIDE City Planning and Urban Design Guide | 11

 Percent Breakdown of
TRANSPORTATION Particulate Matter Pollution
AND POLLUTION 25

Transportation contributes 23%

of Pakistan’s total annual GHG 20

emissions, according to the

Percent Contribution
World Resources Institute’s
Climate Analysis Indicator Tool. 15

Karachi is the only megacity in the

10
world without a mass public
transport system.

5
4 out of 12 of the world's most
polluted cities are located in
Pakistan (IQAir). 0

es

ry

es

tic

as
ce

in
st

G
cl

at

es
rn
ur
hi

du

ul

al
As shown in Chart 5, road vehicles

om
Bu
So
Ve

ur
tic
In

at
e

te
ar
ad

id

N
as
yP
Ro
are the primary contributor to air

-w

nd
W
ar
ea

il a
nd
Ar

O
co
pollution in Karachi.

Se
Source

Chart 5: Analysis of Karachi from 2006 to 2009

(Source: Cleaning Pakistan's Air - The World Bank).

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 ENVIRONMENTAL URGENCY
OF PUBLIC TRANSPORT

IN PAKISTAN, URBAN AIR POLLUTION IN SINDH, THE SOCIAL IMPACTS OF THE ANNUAL COSTS OF AIR
IS ANNUALLY RESPONSIBLE FOR: POOR AIR QUALITY EXTEND TO: POLLUTION IN SINDH INCLUDE:

20,000+ 80,000 ~2.7 IQ point loss Years of life lost Health effects IQ losses
deaths hospital for children = 213,000+ = 0.8 - 2% = 1.6 - 3.5%
admissions under 5 of GDP of GDP

Source: Cleaning Pakistan's Air - The World Bank

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 “Streets are dynamic spaces
that adapt over time to
support environmental
sustainability, public health,
economic activity, and
cultural significance”
(Global Designing
Cities Initiative)

Street design in Pakistan’s cities

will play a critical role in
promoting the use of non-
motorized transport and reducing
the country’s dependence on cars.
Fig. 4 Rethinking street design in Toronto (Source: Toronto Complete Streets Guidelines)

SUGGESTION #3: LEARNING FROM

OPTIMIZE STREET TORONTO'S COMPLETE STREETS GUIDELINES
DESIGN

1. 2. 3. 4,
Recognizes that streets Result of a collaborative Identifies 16 different Informs complete
are more than just effort involving policy street types – including street design approach
corridors for movement makers, city staff, civic, residential streets, by specifying context-
and are in fact, for the community residents, mixed use, and downtown sensitive design
people, for placemaking, advocates, researchers, streets – and provides key principles for cycling,
and for prosperity. and professionals. design objectives for each. transit, and sidewalks.

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 The transition to vertical growth is imperative to
address Pakistan's urban housing crisis and
enhance its cities' economic growth potential.

Pakistan's already large urban The height restrictions on buildings has

population is growing rapidly, led to an underutilization of land in
with populations of Karachi and some of Pakistan's most populous cities.
Lahore to increase by 50% in the Due its high demand and low supply,
next 15-20 years. This growth, housing is unaffordable for the poor
coupled with regulations on high- and a portion of the middle class. This
rise buildings, has led to an acute has led to the proliferation of slums and
shortfall of housing in the largest shanty towns known as katchi abadies.
cities. As shown in Chart 6, the The development of high-rise, mixed-
housing backlog in Lahore has use communities is the best way for

04.
magnified in the past few decades Pakistan's cities to make housing that is
and is projected to only increase appropriate and affordable for a range
further. of incomes.

THE NEED FOR DENSITY

Chart 6: Trend and extrapolation of housing shortage in Lahore

(Source: Muhammad Ahsan, 2019).

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 PAKISTAN'S URBAN PLANNING
4.1 MODELS MUST CHANGE.

40% 37.9% 16.9% 4.1% 1% 0.3%

5% 35% 27% 14% 10% 9%

Very Low Low Middle Moderate High Very High

INCOME 0-14,000 14,001 - 30,000 30,001 - 60,000 60,001 - 120,000 120,001 - 240,000 240,001+
Fig. 5 Disproportionate housing provision in Punjab province (Source: Muhammad Ahsan, 2019).

Pakistan's cities have long favored a low-rise, low-density sprawl afford suburban single-family homes. As a result, 47-50% of Pakistan's
model, which has come to define the country's masterplans and urban urban population is forced to live in katchi abadies, according to GoP
policies. However, it is this beloved sprawl that has caused residential estimates. While the Naya Pakistan Housing Project may mitigate the
land use to encroach agricultural lands and destroy scarce forestation. nation's housing shortage, similar initiatives have failed to create
Furthermore, the aversion to sprawl has restricted the ability to long-lasting change in the past. What Pakistan needs for inclusive
densify urban areas and is partially responsibly for the country's growth in its cities, is a paradigm shift that rejects sprawl and instead
backlog of over 10 million houses. The current sprawl model only favors densification.
caters to households in the highest income brackets, who are able to

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 Competitive and vibrant cities are a
REVISING ZONING AND
4.2 BUILDING REGULATIONS
complete ecosystem of commerce,
culture, governance, and sustainability.
Pakistan needs to amend its laws and
regulations such that they encourage
diverse forms of urban development.

Instead of separation of uses, zoning laws should be

revised to facilitate mixed-use, commercial development
of office spaces and retail centers adjacent to residential
20.08 % areas. This will increase vibrancy and economic activity,
22.29 %
finally allowing Pakistan's cities to become engines of
growth.
Economic (20.08%)
5.13 % Infrastructure (5.13%) Relaxation of Floor Area Ratios (FARs) could add much-
Residential (52.5%) needed flexibility to Pakistan's restrictive zoning
Special Purpose (22.29%) ordinances. A study by David Dowall and Peter Ellis
discovered that lower FARs lead to high land prices and
reduce formal housing, which disproportionately impacts
the poor. High FARs could make housing affordable and
52.50 % increase social mobility.

Easing height restrictions to allow vertical growth will

Chart 7: Breakdown of urban land use in Karachi enable the efficient use of urban space and address the
(Source: Salman Qureshi, 2010).
issues of urban sprawl and insufficient housing.

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 UNION PARK:
Toronto's Largest Mixed-Use Development

Fig. 6 Oxford's vision of the Union Park Development Fig. 7 Two-acre public park space within Union Park
(Source: Oxford Properties Group). (Source: Oxford Properties Group).

A four acre-site at the heart of Toronto's dynamic downtown. Prioritizing sustainability, convenience, and community interaction.
Three towers including 800 rental residential units, 200,000 Features a two-acre park that will act as a landmark community-
square feet of retail, and 3.3 million square feet of office space. gathering space for the city's general public.
Development could create 22,000 construction jobs. The park is designed by award-winning architects who have focused on
Around 18,000 people will work in the mixed-use community. creating opportunities for programmable community spaces, public art,
Creating larger rental units to fulfill the demand for family and installations.
housing in Toronto, which was identified in numerous Union Park is planned to be a sustainable community, providing bicycle
research studies before the project commenced. facilities and incorporating renewable energy.

PIDE City Planning and Urban Design Guide | 18

T I M E T O R E I N V E N T PA R K I N G :
E L I M I N AT I N G M I N I M U M PA R K I N G R E Q U I R E M E N T S

Fig. 8 Increased building costs associated with parking - estimates from the U.S. (Source: Reinventing Parking).

In addition to their direct costs, minimum parking requirements subsidize cars, raise housing prices, undermine walkable
neighborhoods, block transit-oriented development, and leave less land for other purposes such as housing and commerce.

Many cities, including London and San Francisco, have abolished minimum parking requirements without any ensuing chaos.
Eliminating parking requirements will lead to gradual change, as many developers will still provide on-site parking. However, the
provision of parking will be based on analyses of market demand, instead of arbitrary minimums imposed by authorities.
Lower parking availability, coupled with fees on city-owned parking, will reduce free riding by motorists and discourage car use.
In turn, this will encourage alternative mobility options in Pakistan's congested cities.

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 STRATEGIC DENSITY AND
4.3 PUBLIC SPACES
Denser forms of development make more
efficient use of land, but can only be successful
if they are accompanied by appropriate levels
of services and utility infrastructure.
To begin densification, Pakistan's cities should
strategically distribute medium- and high-rise
developments throughout areas that are
already urbanized and have effective service
delivery.
Governments must focus on matching
infrastructure development – of water, transit,
schools, hospitals, etc. – with growth.
Pakistan's cities should mimic Toronto's model
of including Privately Owned Publicly-
Accessible Spaces (POPS) in high-density urban
areas. These POPS are part of the
development application process for private
construction, and ensure open spaces are
available for city residents.
Mixed-use, high-density development requires
Fig. 9 Rendering of Oakridge Community Centre in Vancouver (Source: DailyHive). innovative partnership between diverse
stakeholders, as opposed to traditional
unidirectional development that is often seen
Infrastructure and service constraints must be considered in the shift in Pakistan's masterplans.
toward densification and mixed-use development. The elements
of sustainability, convenience, and community interaction should also
be at the forefront of planning for this transition.

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05. A CHANGE IN
GOVERNANCE
Currently, majority of Pakistan's cities lack local governments (LGs),
and those that exist are subservient to the provincial tier. Despite
the requirement to hold local elections, Sindh is the only province with
elected LGs. In fact, the Local Government Acts passed by the provinces
of Punjab and Khyber Pakhtunkhwa in 2019 completely abolished the
district-level tier of government and transferred control of several
devolved departments to higher governance levels. The lack of LGs is
evident in the fact that LG expenditures constituted only 5% of public
spending in 2011, a statistic that is likely to have decreased over the
past decade. A centralized approach is detrimental to the growth of
cities as it hinders political representation, the provision of public
services, and effective city planning. Fig. 10 Disconnect between local and national government bodies
(Source: Jaffer Rizvi).

POINT #1 POINT #2 POINT #3

Context-Specific Governance Economic Growth Provision of Power

Decentralization will allow Pakistan's The transfer of certain services and Autonomy for LGs will empower them
cities to respond to the unique needs of functions to LGs will create to appropriately allocate resources,
their municipalities and empower employment and contribute to authority, and funding that is currently
them to benefit from bottom-up economic growth in urban areas. concentrated in the hands of provincial
economic and social development. politicians and bureaucrats.

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 COLLEC TIVE
GOVERNANCE
In order to create cities that are both socially and economically successful, Pakistan's cities
must adopt a collaborative governance model. Such a model would engage diverse stakeholders
in the political process, allowing LGs to identify key urban issues and create policies accordingly.

STEP 1 STEP 2 STEP 3 STEP 4

••• ••• ••• •••

Foster an Facilitate the Develop strategic Engage in context-

environment in which participation of the partnerships with specific, succinct
community residents working class, the the private sector to interventions which
and organizations are poorest populations, drive entrepreneurship are designed according
encouraged to voice women, and and undertake to interdepartmental
their opinions about minorities in the city innovative urban efforts and public
local matters. planning process. design projects. inclusion.

PIDE City Planning and Urban Design Guide | 22

 In 2019, the Islamabad High Court and the Supreme Court ordered removal of all
encroachments in Karachi and Islamabad. While these actions may have been taken
with the goals of formalizing the economy and modernizing cities, they ignore
Pakistan's socioeconomic culture and its desperate need for poverty eradication. The
anti-encroachment drive must be reexamined and the government should develop a
national policy framework that recognizes and regularizes urban street vending
businesses, instead of shutting down this large entrepreneurial market.

The Facts Suggested Actions

The recent removal of 485 khokhas Acknowledge the economic and

07
(street kiosks) in Islamabad social contribution of street vending,
affected upwards of 25,000 which provides a livelihood for the poor
people, according to Saima Bashi. and makes goods available at affordable
prices for buyers.
75 percent of Pakistani inhabitants
said that they have easy access to Allow city authorities to issue permits
AN END TO street vendors, clearly that legitimize vending.
demonstrating their demand.
ANTI-ENCROACHMENT Designate vending zones and place
The incidence of multidimensional restrictions on operating conditions to
poverty in Pakistan is 38.3 percent, ensure vending is clean and aesthetic.
as indicated in The Global
Multidimensional Poverty Index Collect licensing fees to establish a
2019. previously untapped source of revenue.

Creating street vending licenses and designating vending zones in city plans is
necessary for inclusive and pro-poor growth in Pakistan. Encouraging the employment
of the nation's millions of poor residents is an important step in reducing poverty.

PIDE: City Planning and Urban Design Guide | 23

 LESSONS FROM ABROAD
Indian National Policy on Urban Street
Vendors (2009): I N T E R N AT I O N A L E X P E R I E N C E S
Requires each town to set up a Town IN MANAGING STREET VENDING
Vending Committee (TVC) that designates
vending zones through a participatory
process.
Instructs TVCs to provide water, electricity,
toilets, and other necessary facilities at
vendors' markets.
Describes a system of registration, including
revenue collection and renewal guidelines,
for vendors.

Toronto's Municipal Code for Street

Vending:
Designates protocol for the permit
application, as well as the issuance, denial,
and appeals of numerous vending permit
types.
Limits removal of vending units to those
specified in the code's "Seizure and
Removal section," thus eliminating the
possibility of arbitrary anti-encroachment.

Fig. 11 City of Toronto's street vending code (Source: Toronto Municipal Code, Chapter 740).

PIDE City Planning and Urban Design Guide | 24

07.
CONCLUSION

Despite the international recognition of cities

as engines of growth and globalization,
This City Planning and Urban Design Guide
offers a discussion of some of the most
Pakistan’s cities have struggled to contribute pressing issues that Pakistan's cities are
to its economic and social development. This is facing. It provides several recommendations
largely due to a focus on horizontal expansion based on the experiences of global cities,
featuring a suburban model and haphazard particularly those in Canada. Specifically,
city development. It is critical that the these suggestions can be adopted and
subsequent issues of congestion, poor land implemented at local levels without rigid and
use, and a lack of opportunities for economic restrictive masterplans. The pursuit of
and social mobility, are addressed by a development in Pakistan's urban areas is a
collaborative team of policy makers, complex, yet achievable, task that requires a
administrative staff, city planners, technical shift from traditional, centralized approaches
experts, and community residents. to innovative and inclusive solutions.

PIDE City Planning and Urban Design Guide | 25